中国城市低保制度的减贫与再分配效应研究
发布时间：2018-09-14 10:03
【摘要】：20世纪90年代,为了缓和经济转型造成的社会冲击,保证下岗失业人员的基本生活,最低生活保障制度应运而生,为城市居民构筑了最后一道生存“防线”。经过近二十年的发展,以最低生活保障制度为核心的新型社会救助体系初步形成。与此同时,我国已经从一个经济发展落后、财政基础薄弱的低收入国家成功跨入中等收入国家之列。当改革向着更高阶段迈进时,转型期累积的矛盾与冲突、经济发展带来的社会问题集中爆发,强烈地冲击着我国已有的制度体系,改革的推进举步维艰。 面对现阶段出现的利益分配失衡和城市贫困问题,以扶危济困为目标的社会救助制度被推向了制度建设的前沿。正是基于上述背景,本文选择将社会救助体系中的城市低保制度作为研究对象,专门对其减贫效应和收入再分配效应进行分析。本文从总体上分成五个部分： 第一部分主要是对社会救助制度的理论基础、产生和发展,以及最低生活保障制度的性质、内容和作用进行系统性的阐述。 第二部分首先介绍了我国城市低保制度的建立和发展情况,并重点针对该项制度的目标瞄准和保障标准环节进行政策分析。在讨论城市低保的目标瞄准情况时,本文运用离散选择模型分析了哪些因素将影响家庭获得低保救助的概率。检验结果表明户主的健康状况较差、无配偶、下过乡、失业、需要自付医疗费、家庭内部就业人口多、获得低保救助前家庭的人均可支配收入低、家庭耐用消费品的市场估计现值低、家庭所在城市的人均可支配收入高、居住在中、西部地区是提高家庭获得低保救助概率的主要因素,也是影响城市低保目标瞄准的主要因素。 在对城市低保标准进行政策分析时,本文首先从实证角度考察了城市低保标准的影响因素。检验结果表明在东部地区,低保标准对城镇单位就业人员的平均工资、政府财力、物价水平和人口抚养比较敏感；在中部地区,低保标准主要受物价水平的影响；在西部地区,政府财力是城市低保标准的决定性因素。 在对名义低保标准进行评估时,本文发现2004-2011年间,我国城市的名义低保标准逐年提高,年均增长率达到9.60%;东部地区城市的名义低保标准明显高于中、西部地区,中、西部地区城市的名义低保标准增长率在绝大多数年份高于东部地区。从名义低保标准的地区差距来看,东部地区内部城市低保标准的差距最大,区域内部城市低保标准的差距略高于区域之间。 按照反贫困能力对实际低保标准进行评估,本文发现无论是从缓解绝对贫困还是从缓解相对贫困来看,我国城市的实际低保标准都呈现出明显的下滑趋势；城市低保标准缓解绝对贫困和相对贫困能力相对较强的省份主要集中在东部地区,相对较弱的省份主要集中在中、西部地区。从满足社会的反贫困需求和低保支出负担两个方面对实际低保标准进行综合评估,本文得出的结论是西藏、江西、河北等省份是城市低保标准的反贫困能力相对较强、低保支出负担相对较重的地区,该区域需要中央政府继续增加城市低保的财政投入；甘肃、广西、河南等省份是城市低保标准的反贫困能力相对较弱、低保支出负担相对较重的地区,中央政府增加财政转移支付将有利于上述地区城市低保标准的提高；广东、福建、上海等省市城市低保标准的反贫困能力相对较弱、低保支出负担相对较轻,上述地区只要对城市低保制度进行重新定位,使保障标准与居民的生存需求和经济增长相适应,就能够提高低保的反贫困能力；北京、天津、浙江等省市的城市低保标准,不但具有很好的反贫困能力,而且低保支出负担相对较轻,因此上述地区具有进一步提高保障标准的可能。 第三部分是政策效果评估。本文利用中国家庭收入调查(Chinese Household Income Project,CHIP)2002和2007中的城镇数据,测度了我国城市低保的减贫效应和收入再分配效应。从整体上看,城市低保缓解绝对贫困的能力比缓解相对贫困的能力强,其政策定位主要是帮助贫困程度较为严重的家庭缓解贫困,并非使其完全脱贫。城市低保在缩小收入差距方面起到了一定的作用,但是作用比较微弱,尤其是东部地区在利用城市低保实现收入再分配方面,明显落后于中、西部地区。 按地区测度城市低保的减贫效应,本文发现：2002年,无论是在绝对贫困线还是在相对贫困线下,城市低保减贫能力最强的地区都是重庆,减贫能力最弱的地区都是北京、江苏、河南和四川。2007年,在绝对贫困线下,城市低保减贫能力最强的地区是湖北和四川,减贫能力最弱的地区是安徽和重庆；在相对贫困线下,城市低保减贫能力最强的地区是河南、湖北、重庆和四川,减贫能力最弱的地区是上海、江苏、浙江和广东。按家庭类型测度城市低保的减贫效应,本文发现：2002年,在绝对贫困线下,女性户主家庭和三人户从低保救助中受益最大；在相对贫困线下,户主失业家庭和户主残疾家庭从低保救助中受益最大。2007年,在绝对贫困线下,户主残疾家庭、单人户和老年户从低保救助中受益最大：在相对贫困线下,户主残疾家庭、单人户和户主失业家庭从低保救助中受益最大。 按地区测度城市低保的收入再分配效应,本文的测算结果表明：2002年,重庆和甘肃两个西部省市城市低保的收入再分配作用较强,北京、江苏和广东三个东部省市的城市低保都没有产生明显的收入再分配效果。2007年,该项政策在湖北和河南两个中部省市发挥了较强的收入再分配作用,在广东、浙江、上海、江苏四个东部省市产生的收入再分配效果较小。按家庭类型测度城市低保的收入再分配效应,本文的测算结果表明：2002年,户主残疾家庭、户主失业家庭、多人口家庭,经过低保救助后,收入差距的下降幅度较大；2007年,户主残疾家庭、单人户、户主失业家庭,经过低保救助后,收入差距的下降幅度较大。 第四部分是政策模拟。由于城市低保属于地方性政策,因此本文选择天津市作为案例进行政策模拟。本文的模拟结果表明：2007年和2008年,只要在现有的保障标准下做到低保全覆盖、保障金有效发放、剔除不符合低保资格的家庭,天津市的城镇绝对贫困将完全消除。在上述条件下,适度提高保障标准,尽管仍然无法降低相对贫困率,但是相对贫困深度和贫困强度,以及收入不平等状况都将得到明显改善。 第五部分针对本文的研究结论,主要从保障对象的识别、保障标准的设定、保障资金的供给、保障对象的管理等方面,对我国城市低保制度的未来发展提出政策建议。 本文的创新之处在于：第一,本文利用多条贫困线对我国城市低保制度的减贫效应进行了全面的测度。本文的研究发现近年来,我国城市低保的减贫能力有了显著提高,但是其政策定位主要是帮助贫困程度较为严重的家庭缓解贫困,并不能使其完全脱贫；第二,本文利用多种收入分配指标对我国城市低保制度的收入再分配效应进行了全面的测度。本文的测算结果表明,我国城市低保在缩小收入差距方面起到了一定的作用,但是作用比较微弱；第三,本文以天津市作为案例,对城市低保的目标瞄准和保障标准两个政策环节进行了微观模拟。本文发现在应保尽保、保障金有效发放的条件下,适度提高保障标准,才能使城市低保的减贫和收入再分配作用得到最有效的发挥。
[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.
【学位授予单位】：南开大学
【学位级别】：博士
【学位授予年份】：2013
【分类号】：F124.7;D632.1
本文编号：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.
【学位授予单位】：南开大学
【学位级别】：博士
【学位授予年份】：2013
【分类号】：F124.7;D632.1
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