中國城市低保制度的減貧與再分配效應(yīng)研究
發(fā)布時間：2018-09-14 10:03
【摘要】：20世紀90年代,為了緩和經(jīng)濟轉(zhuǎn)型造成的社會沖擊,保證下崗失業(yè)人員的基本生活,最低生活保障制度應(yīng)運而生,為城市居民構(gòu)筑了最后一道生存“防線”。經(jīng)過近二十年的發(fā)展,以最低生活保障制度為核心的新型社會救助體系初步形成。與此同時,我國已經(jīng)從一個經(jīng)濟發(fā)展落后、財政基礎(chǔ)薄弱的低收入國家成功跨入中等收入國家之列。當改革向著更高階段邁進時,轉(zhuǎn)型期累積的矛盾與沖突、經(jīng)濟發(fā)展帶來的社會問題集中爆發(fā),強烈地沖擊著我國已有的制度體系,改革的推進舉步維艱。 面對現(xiàn)階段出現(xiàn)的利益分配失衡和城市貧困問題,以扶危濟困為目標的社會救助制度被推向了制度建設(shè)的前沿。正是基于上述背景,本文選擇將社會救助體系中的城市低保制度作為研究對象,專門對其減貧效應(yīng)和收入再分配效應(yīng)進行分析。本文從總體上分成五個部分： 第一部分主要是對社會救助制度的理論基礎(chǔ)、產(chǎn)生和發(fā)展,以及最低生活保障制度的性質(zhì)、內(nèi)容和作用進行系統(tǒng)性的闡述。 第二部分首先介紹了我國城市低保制度的建立和發(fā)展情況,并重點針對該項制度的目標瞄準和保障標準環(huán)節(jié)進行政策分析。在討論城市低保的目標瞄準情況時,本文運用離散選擇模型分析了哪些因素將影響家庭獲得低保救助的概率。檢驗結(jié)果表明戶主的健康狀況較差、無配偶、下過鄉(xiāng)、失業(yè)、需要自付醫(yī)療費、家庭內(nèi)部就業(yè)人口多、獲得低保救助前家庭的人均可支配收入低、家庭耐用消費品的市場估計現(xiàn)值低、家庭所在城市的人均可支配收入高、居住在中、西部地區(qū)是提高家庭獲得低保救助概率的主要因素,也是影響城市低保目標瞄準的主要因素。 在對城市低保標準進行政策分析時,本文首先從實證角度考察了城市低保標準的影響因素。檢驗結(jié)果表明在東部地區(qū),低保標準對城鎮(zhèn)單位就業(yè)人員的平均工資、政府財力、物價水平和人口撫養(yǎng)比較敏感；在中部地區(qū),低保標準主要受物價水平的影響；在西部地區(qū),政府財力是城市低保標準的決定性因素。 在對名義低保標準進行評估時,本文發(fā)現(xiàn)2004-2011年間,我國城市的名義低保標準逐年提高,年均增長率達到9.60%;東部地區(qū)城市的名義低保標準明顯高于中、西部地區(qū),中、西部地區(qū)城市的名義低保標準增長率在絕大多數(shù)年份高于東部地區(qū)。從名義低保標準的地區(qū)差距來看,東部地區(qū)內(nèi)部城市低保標準的差距最大,區(qū)域內(nèi)部城市低保標準的差距略高于區(qū)域之間。 按照反貧困能力對實際低保標準進行評估,本文發(fā)現(xiàn)無論是從緩解絕對貧困還是從緩解相對貧困來看,我國城市的實際低保標準都呈現(xiàn)出明顯的下滑趨勢；城市低保標準緩解絕對貧困和相對貧困能力相對較強的省份主要集中在東部地區(qū),相對較弱的省份主要集中在中、西部地區(qū)。從滿足社會的反貧困需求和低保支出負擔兩個方面對實際低保標準進行綜合評估,本文得出的結(jié)論是西藏、江西、河北等省份是城市低保標準的反貧困能力相對較強、低保支出負擔相對較重的地區(qū),該區(qū)域需要中央政府繼續(xù)增加城市低保的財政投入；甘肅、廣西、河南等省份是城市低保標準的反貧困能力相對較弱、低保支出負擔相對較重的地區(qū),中央政府增加財政轉(zhuǎn)移支付將有利于上述地區(qū)城市低保標準的提高；廣東、福建、上海等省市城市低保標準的反貧困能力相對較弱、低保支出負擔相對較輕,上述地區(qū)只要對城市低保制度進行重新定位,使保障標準與居民的生存需求和經(jīng)濟增長相適應(yīng),就能夠提高低保的反貧困能力；北京、天津、浙江等省市的城市低保標準,不但具有很好的反貧困能力,而且低保支出負擔相對較輕,因此上述地區(qū)具有進一步提高保障標準的可能。 第三部分是政策效果評估。本文利用中國家庭收入調(diào)查(Chinese Household Income Project,CHIP)2002和2007中的城鎮(zhèn)數(shù)據(jù),測度了我國城市低保的減貧效應(yīng)和收入再分配效應(yīng)。從整體上看,城市低保緩解絕對貧困的能力比緩解相對貧困的能力強,其政策定位主要是幫助貧困程度較為嚴重的家庭緩解貧困,并非使其完全脫貧。城市低保在縮小收入差距方面起到了一定的作用,但是作用比較微弱,尤其是東部地區(qū)在利用城市低保實現(xiàn)收入再分配方面,明顯落后于中、西部地區(qū)。 按地區(qū)測度城市低保的減貧效應(yīng),本文發(fā)現(xiàn)：2002年,無論是在絕對貧困線還是在相對貧困線下,城市低保減貧能力最強的地區(qū)都是重慶,減貧能力最弱的地區(qū)都是北京、江蘇、河南和四川。2007年,在絕對貧困線下,城市低保減貧能力最強的地區(qū)是湖北和四川,減貧能力最弱的地區(qū)是安徽和重慶；在相對貧困線下,城市低保減貧能力最強的地區(qū)是河南、湖北、重慶和四川,減貧能力最弱的地區(qū)是上海、江蘇、浙江和廣東。按家庭類型測度城市低保的減貧效應(yīng),本文發(fā)現(xiàn)：2002年,在絕對貧困線下,女性戶主家庭和三人戶從低保救助中受益最大；在相對貧困線下,戶主失業(yè)家庭和戶主殘疾家庭從低保救助中受益最大。2007年,在絕對貧困線下,戶主殘疾家庭、單人戶和老年戶從低保救助中受益最大：在相對貧困線下,戶主殘疾家庭、單人戶和戶主失業(yè)家庭從低保救助中受益最大。 按地區(qū)測度城市低保的收入再分配效應(yīng),本文的測算結(jié)果表明：2002年,重慶和甘肅兩個西部省市城市低保的收入再分配作用較強,北京、江蘇和廣東三個東部省市的城市低保都沒有產(chǎn)生明顯的收入再分配效果。2007年,該項政策在湖北和河南兩個中部省市發(fā)揮了較強的收入再分配作用,在廣東、浙江、上海、江蘇四個東部省市產(chǎn)生的收入再分配效果較小。按家庭類型測度城市低保的收入再分配效應(yīng),本文的測算結(jié)果表明：2002年,戶主殘疾家庭、戶主失業(yè)家庭、多人口家庭,經(jīng)過低保救助后,收入差距的下降幅度較大；2007年,戶主殘疾家庭、單人戶、戶主失業(yè)家庭,經(jīng)過低保救助后,收入差距的下降幅度較大。 第四部分是政策模擬。由于城市低保屬于地方性政策,因此本文選擇天津市作為案例進行政策模擬。本文的模擬結(jié)果表明：2007年和2008年,只要在現(xiàn)有的保障標準下做到低保全覆蓋、保障金有效發(fā)放、剔除不符合低保資格的家庭,天津市的城鎮(zhèn)絕對貧困將完全消除。在上述條件下,適度提高保障標準,盡管仍然無法降低相對貧困率,但是相對貧困深度和貧困強度,以及收入不平等狀況都將得到明顯改善。 第五部分針對本文的研究結(jié)論,主要從保障對象的識別、保障標準的設(shè)定、保障資金的供給、保障對象的管理等方面,對我國城市低保制度的未來發(fā)展提出政策建議。 本文的創(chuàng)新之處在于：第一,本文利用多條貧困線對我國城市低保制度的減貧效應(yīng)進行了全面的測度。本文的研究發(fā)現(xiàn)近年來,我國城市低保的減貧能力有了顯著提高,但是其政策定位主要是幫助貧困程度較為嚴重的家庭緩解貧困,并不能使其完全脫貧；第二,本文利用多種收入分配指標對我國城市低保制度的收入再分配效應(yīng)進行了全面的測度。本文的測算結(jié)果表明,我國城市低保在縮小收入差距方面起到了一定的作用,但是作用比較微弱；第三,本文以天津市作為案例,對城市低保的目標瞄準和保障標準兩個政策環(huán)節(jié)進行了微觀模擬。本文發(fā)現(xiàn)在應(yīng)保盡保、保障金有效發(fā)放的條件下,適度提高保障標準,才能使城市低保的減貧和收入再分配作用得到最有效的發(fā)揮。
[Abstract]:In the 1990s, in order to alleviate the social impact caused by economic transformation and ensure the basic life of laid-off and unemployed people, the minimum living security system came into being, which constituted the last "defense line" for urban residents. After nearly 20 years of development, a new social assistance system with the minimum living security system as the core was initially formed. At the same time, China has successfully stepped into the middle-income countries from a low-income country with backward economic development and weak fiscal base. As the reform moves to a higher stage, the contradictions and conflicts accumulated during the transition period and the social problems brought about by the economic development have erupted, which have strongly impacted the existing system and reformed the system in China. Advancing is difficult.
Facing the imbalance of benefit distribution and urban poverty, the social relief system aiming at helping the poor and the dangerous is pushed to the forefront of system construction. Based on the above background, this paper chooses the urban minimum living security system in the social relief system as the research object, focusing on its poverty reduction effect and income redistribution effect. This paper is divided into five parts in general.
The first part mainly elaborates the theoretical basis, the emergence and development of the social assistance system, as well as the nature, content and function of the minimum living security system.
The second part firstly introduces the establishment and development of the urban low-income insurance system in China, and focuses on the policy analysis of the target targeting and guarantee standard links of the system. The results show that the health status of the head of household is poor, without spouse, going to the countryside, unemployed, needing to pay medical expenses by oneself, the number of employed people in the family is large, the per capita disposable income of the family before receiving the low-income insurance assistance is low, the market estimated present value of household durable goods is low, the per capita disposable income of the city in which the family is located is high, and living in the central and western regions is Increasing the probability of families getting low-income insurance assistance is also the main factor affecting the aim of urban low-income insurance.
In the policy analysis of the urban minimum living standard, this paper first examines the influencing factors of the urban minimum living standard from the empirical point of view. In the western region, the government's financial power is the decisive factor of the standard of urban minimum living standard.
In the evaluation of the nominal minimum living standard, this paper finds that the nominal minimum living standard of cities in China increased year by year from 2004 to 2011, with an average annual growth rate of 9.60%; the nominal minimum living standard of cities in the eastern region is obviously higher than that in the central and Western regions, and the nominal minimum living standard growth rate of cities in the western region is higher than that in the eastern region in most years. From the point of view of the regional disparity of nominal subsistence allowance standard, the disparity of urban subsistence allowance standard within the eastern region is the biggest, and the disparity of urban subsistence allowance standard within the region is slightly higher than that between regions.
According to the anti-poverty ability to assess the actual minimum standard of living, this paper finds that the actual minimum standard of living in China's cities has shown a downward trend in terms of either alleviating absolute poverty or alleviating relative poverty; the provinces with relatively strong ability to alleviate absolute poverty and relative poverty are mainly concentrated in the eastern part of China. From the two aspects of meeting the social anti-poverty demand and the burden of low-income insurance expenditure, this paper makes a comprehensive evaluation of the actual low-income insurance standard, and draws the conclusion that Tibet, Jiangxi, Hebei and other provinces have relatively strong anti-poverty ability and relatively low-income insurance expenditure burden. In heavy areas, the central government needs to continue to increase the financial input of urban minimum living standard; Gansu, Guangxi, Henan and other provinces are relatively weak in anti-poverty ability of urban minimum living standard, and the burden of low living standard expenditure is relatively heavy. Increasing fiscal transfer payment by the central government will be conducive to the improvement of urban minimum living standard in these areas. Fujian, Shanghai and other provinces and municipalities have relatively weak anti-poverty ability and relatively light burden of low-income insurance expenditure. The above-mentioned areas can improve the anti-poverty ability of low-income insurance as long as they reposition the urban low-income insurance system so as to make the security standards compatible with the living needs of residents and economic growth. Beijing, Tianjin, Zhejiang and other provinces and municipalities can improve the anti-poverty ability of low-income insurance. The urban minimum insurance standard has not only a good anti-poverty ability, but also a relatively light burden of the minimum insurance expenditure. Therefore, the above-mentioned areas have the possibility to further improve the security standard.
The third part is the policy effect evaluation. This paper uses the urban data of China Household Income Project (CHIP) 2002 and 2007 to measure the poverty reduction effect and income redistribution effect of urban minimum living allowance in China. The policy orientation is mainly to help families with more serious poverty alleviate poverty, not to make them completely out of poverty. Urban minimum living allowance has played a certain role in narrowing the income gap, but the role is relatively weak, especially in the eastern region, the use of urban minimum living allowance to achieve income redistribution, obviously lagging behind the middle and Western regions.
According to the regional measurement of the poverty reduction effect of urban minimum living allowance, this paper finds that in 2002, the areas with the strongest ability of urban minimum living allowance and poverty reduction are all Chongqing, and the areas with the weakest ability of poverty reduction are all Beijing, Jiangsu, Henan and Sichuan. In 2007, under the absolute poverty line, the urban minimum living allowance and poverty reduction ability is the strongest. Anhui and Chongqing have the weakest ability to reduce poverty, while Henan, Hubei, Chongqing and Sichuan have the strongest ability to reduce poverty under the relative poverty line. Shanghai, Jiangsu, Zhejiang and Guangdong have the weakest ability to reduce poverty. Under the absolute poverty line, female-headed households and three-person households benefit the most from the basic social security assistance; under the relative poverty line, unemployed households and disabled households benefit the most from the basic social security assistance. Below, households with disabled families, single family members and household unemployed families benefit most from the minimum allowances.
Measuring the income redistribution effect of urban minimum living allowance according to the region, the results show that in 2002, the income redistribution effect of urban minimum living allowance in Chongqing and Gansu provinces and cities in Western China was stronger, while that of Beijing, Jiangsu and Guangdong provinces and cities in eastern China did not produce significant income redistribution effect. Two central provinces and cities in Henan Province have played a strong role in income redistribution, and four eastern provinces and cities in Guangdong, Zhejiang, Shanghai and Jiangsu Province have produced less income redistribution effect. In 2007, the income gap of disabled households, single households and unemployed households headed by low-income insurance assistance decreased greatly.
The fourth part is the policy simulation. Because the urban minimum living allowance belongs to the local policy, this paper chooses Tianjin as a case to carry on the policy simulation. The simulation results show that: in 2007 and 2008, as long as the existing security standards to achieve low protection coverage, effective payment of security benefits, excluding families not qualified for low living allowance, Tianjin City Under the above conditions, although it is still impossible to reduce the relative poverty rate, the relative poverty depth and intensity, as well as income inequality will be significantly improved.
The fifth part puts forward policy suggestions on the future development of China's urban minimum living security system from the aspects of the identification of the security objects, the setting of the security standards, the supply of funds and the management of the security objects.
The innovations of this paper are as follows: Firstly, this paper uses several poverty lines to measure the poverty reduction effect of China's urban minimum living insurance system. Secondly, this paper uses a variety of income distribution indicators to measure the income redistribution effect of China's urban minimum living security system. This paper finds that the most effective way to reduce poverty and redistribute income is to raise the security standard appropriately under the condition that the insurance should be guaranteed to the full extent and the security fund should be paid effectively.
【學(xué)位授予單位】：南開大學(xué)
【學(xué)位級別】：博士
【學(xué)位授予年份】：2013
【分類號】：F124.7;D632.1
本文編號：2242393
[Abstract]:In the 1990s, in order to alleviate the social impact caused by economic transformation and ensure the basic life of laid-off and unemployed people, the minimum living security system came into being, which constituted the last "defense line" for urban residents. After nearly 20 years of development, a new social assistance system with the minimum living security system as the core was initially formed. At the same time, China has successfully stepped into the middle-income countries from a low-income country with backward economic development and weak fiscal base. As the reform moves to a higher stage, the contradictions and conflicts accumulated during the transition period and the social problems brought about by the economic development have erupted, which have strongly impacted the existing system and reformed the system in China. Advancing is difficult.
Facing the imbalance of benefit distribution and urban poverty, the social relief system aiming at helping the poor and the dangerous is pushed to the forefront of system construction. Based on the above background, this paper chooses the urban minimum living security system in the social relief system as the research object, focusing on its poverty reduction effect and income redistribution effect. This paper is divided into five parts in general.
The first part mainly elaborates the theoretical basis, the emergence and development of the social assistance system, as well as the nature, content and function of the minimum living security system.
The second part firstly introduces the establishment and development of the urban low-income insurance system in China, and focuses on the policy analysis of the target targeting and guarantee standard links of the system. The results show that the health status of the head of household is poor, without spouse, going to the countryside, unemployed, needing to pay medical expenses by oneself, the number of employed people in the family is large, the per capita disposable income of the family before receiving the low-income insurance assistance is low, the market estimated present value of household durable goods is low, the per capita disposable income of the city in which the family is located is high, and living in the central and western regions is Increasing the probability of families getting low-income insurance assistance is also the main factor affecting the aim of urban low-income insurance.
In the policy analysis of the urban minimum living standard, this paper first examines the influencing factors of the urban minimum living standard from the empirical point of view. In the western region, the government's financial power is the decisive factor of the standard of urban minimum living standard.
In the evaluation of the nominal minimum living standard, this paper finds that the nominal minimum living standard of cities in China increased year by year from 2004 to 2011, with an average annual growth rate of 9.60%; the nominal minimum living standard of cities in the eastern region is obviously higher than that in the central and Western regions, and the nominal minimum living standard growth rate of cities in the western region is higher than that in the eastern region in most years. From the point of view of the regional disparity of nominal subsistence allowance standard, the disparity of urban subsistence allowance standard within the eastern region is the biggest, and the disparity of urban subsistence allowance standard within the region is slightly higher than that between regions.
According to the anti-poverty ability to assess the actual minimum standard of living, this paper finds that the actual minimum standard of living in China's cities has shown a downward trend in terms of either alleviating absolute poverty or alleviating relative poverty; the provinces with relatively strong ability to alleviate absolute poverty and relative poverty are mainly concentrated in the eastern part of China. From the two aspects of meeting the social anti-poverty demand and the burden of low-income insurance expenditure, this paper makes a comprehensive evaluation of the actual low-income insurance standard, and draws the conclusion that Tibet, Jiangxi, Hebei and other provinces have relatively strong anti-poverty ability and relatively low-income insurance expenditure burden. In heavy areas, the central government needs to continue to increase the financial input of urban minimum living standard; Gansu, Guangxi, Henan and other provinces are relatively weak in anti-poverty ability of urban minimum living standard, and the burden of low living standard expenditure is relatively heavy. Increasing fiscal transfer payment by the central government will be conducive to the improvement of urban minimum living standard in these areas. Fujian, Shanghai and other provinces and municipalities have relatively weak anti-poverty ability and relatively light burden of low-income insurance expenditure. The above-mentioned areas can improve the anti-poverty ability of low-income insurance as long as they reposition the urban low-income insurance system so as to make the security standards compatible with the living needs of residents and economic growth. Beijing, Tianjin, Zhejiang and other provinces and municipalities can improve the anti-poverty ability of low-income insurance. The urban minimum insurance standard has not only a good anti-poverty ability, but also a relatively light burden of the minimum insurance expenditure. Therefore, the above-mentioned areas have the possibility to further improve the security standard.
The third part is the policy effect evaluation. This paper uses the urban data of China Household Income Project (CHIP) 2002 and 2007 to measure the poverty reduction effect and income redistribution effect of urban minimum living allowance in China. The policy orientation is mainly to help families with more serious poverty alleviate poverty, not to make them completely out of poverty. Urban minimum living allowance has played a certain role in narrowing the income gap, but the role is relatively weak, especially in the eastern region, the use of urban minimum living allowance to achieve income redistribution, obviously lagging behind the middle and Western regions.
According to the regional measurement of the poverty reduction effect of urban minimum living allowance, this paper finds that in 2002, the areas with the strongest ability of urban minimum living allowance and poverty reduction are all Chongqing, and the areas with the weakest ability of poverty reduction are all Beijing, Jiangsu, Henan and Sichuan. In 2007, under the absolute poverty line, the urban minimum living allowance and poverty reduction ability is the strongest. Anhui and Chongqing have the weakest ability to reduce poverty, while Henan, Hubei, Chongqing and Sichuan have the strongest ability to reduce poverty under the relative poverty line. Shanghai, Jiangsu, Zhejiang and Guangdong have the weakest ability to reduce poverty. Under the absolute poverty line, female-headed households and three-person households benefit the most from the basic social security assistance; under the relative poverty line, unemployed households and disabled households benefit the most from the basic social security assistance. Below, households with disabled families, single family members and household unemployed families benefit most from the minimum allowances.
Measuring the income redistribution effect of urban minimum living allowance according to the region, the results show that in 2002, the income redistribution effect of urban minimum living allowance in Chongqing and Gansu provinces and cities in Western China was stronger, while that of Beijing, Jiangsu and Guangdong provinces and cities in eastern China did not produce significant income redistribution effect. Two central provinces and cities in Henan Province have played a strong role in income redistribution, and four eastern provinces and cities in Guangdong, Zhejiang, Shanghai and Jiangsu Province have produced less income redistribution effect. In 2007, the income gap of disabled households, single households and unemployed households headed by low-income insurance assistance decreased greatly.
The fourth part is the policy simulation. Because the urban minimum living allowance belongs to the local policy, this paper chooses Tianjin as a case to carry on the policy simulation. The simulation results show that: in 2007 and 2008, as long as the existing security standards to achieve low protection coverage, effective payment of security benefits, excluding families not qualified for low living allowance, Tianjin City Under the above conditions, although it is still impossible to reduce the relative poverty rate, the relative poverty depth and intensity, as well as income inequality will be significantly improved.
The fifth part puts forward policy suggestions on the future development of China's urban minimum living security system from the aspects of the identification of the security objects, the setting of the security standards, the supply of funds and the management of the security objects.
The innovations of this paper are as follows: Firstly, this paper uses several poverty lines to measure the poverty reduction effect of China's urban minimum living insurance system. Secondly, this paper uses a variety of income distribution indicators to measure the income redistribution effect of China's urban minimum living security system. This paper finds that the most effective way to reduce poverty and redistribute income is to raise the security standard appropriately under the condition that the insurance should be guaranteed to the full extent and the security fund should be paid effectively.
【學(xué)位授予單位】：南開大學(xué)
【學(xué)位級別】：博士
【學(xué)位授予年份】：2013
【分類號】：F124.7;D632.1
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