我国农村扶贫政策的演进特征研究--基于中央一号文件的内容分析(1982—2019)  

Research on the Evolutionary Characteristics of China's Rural Poverty Alleviation Policy-Based on the Content Analysis of the Central No.1 Document(1982-2019)

作　　者：衡霞[1] 陈鑫瑶 Heng Xia;Chen Xinyao

机构地区：[1]四川大学公共管理学院,四川成都610065

出　　处：《新疆社会科学》2020年第3期122-130,152,共10页Social Sciences in Xinjiang

基　　金：国家社科基金项目“农村社区治理能力现代化的双重困境及破解机制研究”(19BZZ069)的阶段性成果。

摘　　要：贫困治理是国家治理的重要组成部分,更是推进国家治理体系和治理能力现代化进程中需要关注的关键领域。文章基于政策变迁的视角,以改革开放以来颁布的21份中央一号文件中与农村扶贫相关的政策为研究样本,建立“政策工具—政策目标—政策时间”的三维分析框架对我国农村扶贫政策的演进进行剖析。研究发现,随着农村扶贫政策的演进,政策工具的搭配由单一主导到多元协同;政策目标中经济发展从关注农村经济基础的社会主义属性向市场属性转变,扶贫开发从关注开发数量向保障质量及可持续发展转变,社会保障从关注生存性问题向保障农民权益转变,并逐步形成了“宏观改革—中观完善—微观落实”的路径。总的来说,农村扶贫政策的演进体现了其价值取向由公平向多维价值取向的扩充,促进了国家治理能力的提升。Poverty governance is an important part of national governance,and it is a key area requiring attention in the process of modernizing the national governance system and governance capacity.Based on the perspective of policy change,the article takes 21 No.1 documents of the central government issued since the reform and opening-up as a research sample,establishes a three-dimensional analysis framework of "policy tool-policy target-policy time",and adopts content analysis to analyze the policies related to rural poverty alleviation.Its development,evolution and characteristics are analyzed.It is found that,with the evolution of rural poverty alleviation policies,the mix of policy instruments has changed from single dominant to multifaceted synergy,showing obvious time preference and structural imbalance in specific applications;economic development in policy objectives has changed from focusing on the socialist attributes of the rural economic base to market attributes;poverty alleviation development has changed from focusing on the quantity of development to ensuring quality and sustainable development;social security has changed from focusing on survival issues to ensuring quality and sustainable development;and social security has changed from focusing on survival issues to ensuring quality and sustainable development.The protection of farmers’ rights and interests has been transformed,and a path of " macro reform,meso perfection and micro implementation" has gradually been formed.On the whole,the evolution of rural poverty alleviation policies reflects the expansion of their value orientation from equity to a multidimensional value orientation,which is in line with the central Government’s goal of establishing a long-term mechanism for solving relative poverty,and has promoted the matching of policy tools with policy concepts and objectives,as well as the upgrading of the country’s governance capacity.

关 键 词：农村扶贫政策 政策演进 中央一号文件 

分 类 号：F323.8[经济管理—产业经济]