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中国城市最低生活保障制度惠及了一大批城市贫困人口。根据官方报告,城市低保已基本实现“应保尽保”。然而,不少研究发现,低保政策的实施存在“应保未保、不应保而被保”的现象。低保制度目标瞄准的准确度存在严重问题。本文基于一线的调研,以“街头官僚”理论作为基础的解释框架,检视城市低保目标瞄准的决定因素。诚然,所有基于家计调查的社会救助项目都或多或少存在瞄准率不高的现象。除了“客观”的原因,比如政府考虑到瞄准率提高的庞大行政成本而允许存在一定的偏差等,我们认为,导致中国城市低保政策“应保未保,不应保而被保”现象的主要因素有:政策指引的清晰度,实施过程中的监督机制以及配套措施;低保工作人员的岗位设置、教育背景以及培训情况,行政自由裁量权以及对低保政策和救助标准的态度;作为政策对象的低保户的社会权利意识,以及低保户对低保政策及标准的理解。本文在为目前国内社会政策研究引进新视角的同时,用中国的实证研究结果丰富并验证了西方“街头官僚”理论。
China’s urban minimum living security system benefits a large number of urban poor. According to the official report, the urban minimum living allowance has been basically realized. However, many studies have found that the implementation of the policy of ensuring the existence of “” should be insured and should not be insured “. There is a serious problem with the accuracy of targeting the subsistence allowances system. Based on the first-line research and the explanation framework based on the theory of ”street bureaucrats“, this article examines the determinants of targeting the urban subsistence allowances. It is true that all social assistance programs based on household surveys have more or less the low targeting rate. In addition to ”objective “ reasons, such as the government taking into account the huge administrative costs to improve the targeting rate and allow certain bias, etc., we believe that leading to China’s urban minimum living security policy ”should be insured, should not be insured “The main factors are: the clarity of the policy guidelines, the implementation of the monitoring mechanism and supporting measures; dibao staff positions, educational background and training, administrative discretion and minimum living allowance policy and relief standards ; The social rights awareness of dibao households as policy targets, and the understanding of dibao households on minimum living standards and policies. This article enriches and verifies the Western theory of ”street bureaucrats" while using the results of empirical studies in China to introduce a new perspective for the current domestic social policy research.