供暖体制改革与社会政策的制度性缺陷  

Distributional Consequences of Heating System Reform Policies

作　　者：徐月宾[1] 张秀兰[1] 

机构地区：[1]北京师范大学社会发展与公共政策研究所,北京100875

出　　处：《清华大学学报（哲学社会科学版）》2006年第4期104-120,共17页Journal of Tsinghua University(Philosophy and Social Sciences)

基　　金：世界银行项目;建设部2004年"中国城镇供热价格改革和政策研究"项目中的"中国城市采暖社会保障机制研究"的组成部分

摘　　要：供暖体制改革后,很多城市针对困难群体的采暖需求实施了由政府和企业共同负担的采暖补贴政策。长春、哈尔滨、太原和天津四个试点城市的采暖补贴政策表明,政府的采暖补贴只覆盖了低保户中的极端贫困者,而企业的补贴则明显地倾向于收入较高的群体。大多数低保户以及处于贫困边缘的低收入家庭既不符合享受政府补贴的资格,其工作单位也往往由于经营困难而无法分担其采暖费用。因此,供暖改革不仅明显地加剧了当前贫困家庭的经济困境,也使相当一部分处于贫困边缘的群体由于生活费用的增加而陷入了新的贫困。供暖改革对贫困及低收入群体的负面影响反映了我国现行社会政策在公平和效率方面存在的制度性缺陷,政府需要对社会政策的积极作用以及缺少社会政策的经济和社会代价有充分的认识,制定积极的政策帮助社会成员增强其适应经济和社会变化的能力,从而减少或避免使他们陷入贫困的因素。After discussing the evolution of China＇s planned economy to her market economy brought about changes that created financial losses for heating utilities, the burden of supplying heat during the winter shifted to local governments. This paper empirically reports on variations in the locally designed social responses to the need for heat during the winter in Changchun, Harbin, Taiyuan and Tianjin. Our results show that only a small section of the urban poor populations obtain any heat subsidies. Recipients are usually the poorest of the poor. Those just above the poverty line are found to ＂fall through the cracks＂ as their consumptions of heat are neither supported by work-units, nor by local government. Thus, heat reform has led to a net loss in the economic well-being of the poor and low-income households. This indicates that China＇s current social urban protection policies lack efficiency and equity. This paper concludes that government needs to view social policy from a more positive perspective and make efforts to support people to adapt more effectively to social and economic changes.

关 键 词：供暖体制改革 采暖补贴 社会政策 

分 类 号：F299.241[经济管理—国民经济]