中国农村贫困化地域分异特征及其精准扶贫策略

刘彦随^1,2 周 扬^1,2 刘继来²
1 中国科学院地理科学与资源研究所 北京 100101
2 北京师范大学土地与城乡发展研究院 北京 100875

 摘要：长期以来，中国坚持政府主导推动减贫事业，在实践中不断推进扶贫开发的理论创新、组织创新和制度创新，走出了一条中国特色的扶贫开发道路，为全球减贫事业做出了巨大贡献。然而，目前中国仍有 7 017 万农村贫困人口，成为全面建成小康社会的最大短板。文章深入剖析了新时期中国农村贫困化基本特征，揭示了农村贫困化地域分异规律，探明了农村贫困化的主导因素，提出了科学推进精准扶贫的战略与对策。研究结果表明：贫困人口规模大、分布广、贫困程度深、脱贫难度逐渐加大，是当前中国农村贫困状况的基本特征，因病、因残、因学、因灾致贫或返贫现象突出；农村贫困人口逐渐向我国中西部深石山区、高寒区、民族地区和边境地区集聚，具有贫困户、贫困村、贫困县、贫困区（片）等多级并存的组织结构和空间分布格局；“胡焕庸线”西北部、东南部贫困人口的比重分别占 16.4%、83.6%；自然环境恶劣、区位条件差、基础设施落后、区域发展不均衡
及前期扶贫开发政策精准性不够等，是中国农村持续贫困的主要症结。如期实现 2020 年全面消除贫困，亟需扶贫工作体制机制的创新，科学推进精准扶贫战略。

Abstract:  Poverty is a challenge facing all countries and the international community as a whole. Narrowing the rural-urban gap and eliminating poverty to ultimately achieve common prosperity is an ideal that humanity constantly pursues. China has long insisted the government-led to promote poverty reduction and constantly bring forth theoretical, organization, and institutional innovation of poverty relief in practice, and explored a road of poverty alleviation and development with Chinese characteristics that captures the world’s attention, contributing significantly to the global effort to eliminate poverty. However, at present China still have 70.17 million poor people in rural areas, becoming the biggest weakness for building moderately prosperous society. This study deeply analyzed and investigated the basic characteristics of Chinese rural poverty in the new era and then revealed the laws of territorial differentiation of rural poverty, and explored the leading factors and the main sticking points of rural poverty. Finally, we proposed some problem-oriented policy implications for poverty alleviation in China. Results showed that China has still large poor populations with the characteristics of wide distribution and deep poverty, and it is more and more difficult to leave the remaining poor population out of poverty by conventional measures. The phenomenon on poverty and returning to fall into poverty again for the poor who have got rid of poverty induced by disease, disability, and natural disasters are very universal. The remaining poor population gradually gathered towards the central-western deep mountain, alpine areas, minority areas, and border areas, with coexistence of impoverished households, poor villages, poverty counties and areas. The proportion of poor people in the northwestern and southeastern regions of the Hu Huanyong line was 16.4% and 83.6%, respectively. The crux of the persistent poverty in rural China was largely due to harsh natural conditions, poor regional location, infrastructure backwardness, uneven regional development, and inaccurate early anti-poverty policies and measures. These findings demonstrated that it is urgent to innovate the institutional mechanisms for anti-poverty and promote scientifically the targeted poverty alleviating strategy in China. In present, five important aspects need to be strengthened further to implement China's targeted poverty alleviation strategy: (1) Deepening the frontier theory and practical exploration of the targeted poverty alleviation; (2) Strengthening the institution establishment, management innovation and platform creation of the targeted poverty alleviation; (3) Attaching importance to summarizing the new modes emerging in the process of poverty alleviation and development for different region types; (4) Creating a multi-target system for the assessment of targeted poverty alleviation and its dynamic evaluation mechanism; (5) Integrated planning and long-term design of the strategy for shaking off poverty and sustainable development in the rural areas.