《中国的减贫行动与人权进步》白皮书（中英双语）

admin

中国的减贫行动与人权进步

China’s Progress in Poverty Reduction and Human Rights

中华人民共和国国务院新闻办公室

The State Council Information Office of the People’s Republic of China

2016年10月

October 2016

目录

Contents

一、减贫促进了中国人权事业发展

I. China’s Poverty Reduction Program Has Promoted the Development of Human Rights

二、保障贫困人口生存权

II. Ensuring Impoverished People’s Right to Life

三、维护特定群体权利

III. Safeguarding the Rights of Specific Groups

四、改善贫困地区发展环境

IV. Improving the Development Environment of Impoverished Areas

五、合力推进减贫事业

V. Concerted Efforts in Poverty Reduction

六、减贫进入攻坚阶段

VI. Poverty Reduction at a Crucial Stage

消除贫困是人类梦寐以求的理想，是各国人民追求幸福生活的基本权利。多年来，中国共产党和中国政府从基本国情出发，把人民的生存权、发展权放在首位，致力于减贫脱贫，努力保障和改善民生，发展各项社会事业，使发展成果更多更公平惠及全体人民，保障人民平等参与、平等发展权利。2012年中国共产党十八大以来，在全面建成小康社会、实现中华民族伟大复兴中国梦的伟大进程中，以习近平同志为总书记的党中央，坚持以人民为中心的发展思想，实施精准扶贫、精准脱贫基本方略，中国的减贫行动更加扎实有效，为世界减贫事业作出了重大贡献，创造了世界人权发展新奇迹。

Poverty eradication is and always has been a goal and a basic right of all peoples in their pursuit of a happy life. Over the years, based on the prevailing national conditions, the Communist Party of China (CPC) and the Chinese government have remained committed to a development concept that puts people’s rights to subsistence and to development first. Committed to reducing and eliminating poverty, China has endeavored to guarantee and improve people’s well-being, and developed a full range of social undertakings, so as to ensure that the results of development benefit all the people in a fairer way, and that all enjoy the rights to equal participation and equal development.

Since the 18th National Congress of the CPC in November 2012, in the great cause of building a moderately prosperous society and realizing the Chinese Dream of great rejuvenation of the Chinese nation, the CPC Central Committee led by General Secretary Xi Jinping has remained committed to a development concept that puts people first, and implemented the basic strategy of targeted poverty alleviation and elimination. China’s poverty reduction actions, both solid and effective, have made a great contribution to the cause of international poverty reduction, and achieved remarkable results in world human rights development.

一、减贫促进了中国人权事业发展

I. China’s Poverty Reduction Program Has Promoted the Development of Human Rights

贫困的广泛存在严重妨碍人权的充分实现和享有。减缓和消除贫困，是人权保障的重要内容。多年来，中国政府坚持消除贫困、改善民生、逐步实现共同富裕，持续开展以农村扶贫开发为中心的减贫行动，努力实现脱贫致富。中国减贫行动涉及的范围十分广泛，既包括农村农业基础设施建设，提高贫困人口收入水平，也包括提供社会保障和卫生、教育、文化等公共服务。这些扶贫措施在全面保障贫困人口的经济、社会、文化权利的同时，也为进一步保障其他人权创造了条件。

Poverty is so widespread that it has seriously hindered the fulfillment and enjoyment of human rights; reducing and eliminating poverty is therefore a major element of human rights protection.

Over the recent decades, the Chinese government has persevered in its attempts to eliminate poverty, improve people’s well-being, and gradually realize common prosperity. It has made continuous development- oriented poverty-reduction efforts in rural areas to help those who are striving to escape from poverty and improve the quality of their lives.

China’s poverty reduction actions are broad in extent; they include building rural and agricultural infrastructure, helping increase the incomes of impoverished population, and providing public services such as social security and health care, education and cultural services. While comprehensively safeguarding the economic, social and cultural rights of those living in poverty, these measures have created conditions for the protection of other human rights.

自20世纪70年代末实行改革开放以来，中国政府不断加大扶贫力度，成立专门扶贫工作机构，确定重点扶持地区和群体，安排专项资金，制定适合现实国情的贫困标准和专门的优惠政策，确定了开发式扶贫方针。中国政府在全国范围内开展了有计划有组织的大规模开发式扶贫，先后实施了《国家八七扶贫攻坚计划（1994－2000年）》《中国农村扶贫开发纲要（2001－2010年）》《中国农村扶贫开发纲要（2011－2020年）》等中长期扶贫规划，减贫成为国家战略的重要组成部分。

Since the initiation of reform and opening up in the late 1970s, the Chinese government has worked without fail to alleviate poverty – establishing special poverty-relief institutions, determining targeted areas and population, allocating specialized funds, formulating poverty standards and special preferential policies adapted to China’s national conditions, and steering its policy of poverty alleviation through development.

The government has carried out large-scale development-oriented poverty eradication programs across the country in a planned and organized way, and implemented a series of medium- and long-term projects which include the Seven-Year Program for Lifting 80 Million People Out of Poverty (1994-2000), the Outline for Development-Oriented Poverty Alleviation for China’s Rural Areas (2001-2010) and the Outline for Development-Oriented Poverty Alleviation for China’s Rural Areas (2011-2020). Poverty reduction has become an important component of China’s national strategy.

党的十八大以来，党中央把扶贫开发摆到治国理政的重要位置，提升到事关全面建成小康社会、实现第一个百年奋斗目标的新高度，纳入“五位一体”总体布局和“四个全面”战略布局进行决策部署。党的十八届五中全会提出了贫困人口全部脱贫、贫困县全部摘帽的目标任务。中央召开扶贫开发工作会议，中共中央、国务院印发关于打赢脱贫攻坚战的决定，对“十三五”脱贫攻坚作出全面部署。“十三五”规划将中央脱贫攻坚决策部署变为国家意志，变为可操作的规划，第一次把脱贫攻坚作为五年规划纲要的重要内容，第一次把贫困人口脱贫作为五年规划的约束性指标，第一次由省区市党政一把手向中央签署《脱贫攻坚责任书》，并层层立下军令状。

Since the 18th National Congress of CPC, the Central Committee has given top priority to development-oriented poverty reduction in its philosophy of governance, deeming it vital in its efforts to complete the process of building a moderately prosperous society in all respects by the centenary of the CPC (founded in 1921), which is known to be one of China’s “Two Centenary Goals.” (see note) To this end, poverty reduction has been incorporated into China’s overall approach to building socialism with Chinese characteristics, that is, to promote coordinated progress in economic, political, cultural, social and ecological areas and strategy of “Four Comprehensives” (comprehensively build a moderately prosperous society, comprehensively deepen reform, comprehensively implement the rule of law, and comprehensively strengthen Party discipline).

[Note: The Two Centenary Goals were put forth by the CPC at its 18th National Congress for building socialism with Chinese characteristics. The other goal is to build China into a modern socialist country that is prosperous, strong, democratic, culturally advanced, and harmonious by the centenary of the People’s Republic of China (founded in 1949).]

At the Fifth Plenary Session of the 18th CPC Central Committee held in October 2015, the CPC further specified the task of eliminating rural poverty and rehabilitating all impoverished counties by 2020. The subsequent central work conference on development-oriented poverty reduction, held the following November, and the decision on winning the fight against poverty issued by the CPC Central Committee and the State Council in December, made comprehensive plans on poverty elimination for the 13th Five-Year Plan period (2016-2020).

China’s 13th Five-Year Plan for Economic and Social Development has codified the central leadership’s poverty-reduction decision into the state will that is operable in practice. For the first time, poverty reduction has been made an important part of one of China’s five-year plans, and helping the poor population shake off poverty has been listed an obligatory index in such a document. Also for the first time, the heads of Party committees and governments of relevant provinces and autonomous regions have signed to the Central Authorities letters of commitment on poverty elimination, and likewise similar documents have been signed by leaders at lower levels.

中国的减贫行动是中国人权事业进步的最显著标志。改革开放30多年来，7亿多贫困人口摆脱贫困，农村贫困人口减少到2015年的5575万人，贫困发生率下降到5.7%，基础设施明显改善，基本公共服务保障水平持续提高，扶贫机制创新迈出重大步伐，有力促进了贫困人口基本权利的实现，为全面建成小康社会打下了坚实基础。联合国《2015年千年发展目标报告》显示，中国极端贫困人口比例从1990年的61%，下降到2002年的30%以下，率先实现比例减半，2014年又下降到4.2%，中国对全球减贫的贡献率超过70%。中国成为世界上减贫人口最多的国家，也是世界上率先完成联合国千年发展目标的国家，为全球减贫事业作出了重大贡献，得到了国际社会的广泛赞誉。这个成就，足以载入人类社会发展史册，也足以向世界证明中国共产党领导和中国特色社会主义制度的优越性。

Poverty reduction is the most telling evidence of China’s progress in human rights. Over the past 30 years or more since the launch of reform and opening up, more than 700 million Chinese people have been raised from poverty. The number of rural poor had fallen to 55.75 million by 2015, with the incidence of poverty dropping to 5.7 percent. Notable improvement has been made to infrastructure and basic public services, and poverty-reduction mechanisms have been innovated, thus contributing to the guarantee of the basic rights of the impoverished population. This has laid a solid foundation for achieving a moderately prosperous society in all respects.

The UN Millennium Development Goals Report 2015 shows that the proportion of people living in extreme poverty in China fell by half from 61 percent in 1990 to below 30 percent in 2002, and on down to 4.2 percent in 2014. The number of citizens China has raised from poverty accounts for 70 percent of the world’s total. With the most people lifted out of poverty, China has led other countries to realize the UN Millennium Development Goal and made an enormous contribution to poverty reduction worldwide. Its endeavors have been widely hailed by the international community and its achievements will go down in history. Such achievements forcefully demonstrate the brilliant leadership of the CPC and the advantages of socialism with Chinese characteristics.

图表：按现行农村贫困标准衡量的农村贫困状况

Chart: Poverty levels in China’s rural areas according to the current rural poverty standard

中国致力于消除本国贫困的同时，积极支持和帮助广大发展中国家消除贫困。新中国成立60多年来，中国共向166个国家和国际组织提供了近4000亿元人民币援助，派遣60多万援助人员，先后7次宣布无条件免除重债国和最不发达国家对华到期政府无息贷款债务，向69个国家提供医疗援助，为120多个发展中国家落实千年发展目标提供帮助。

While combating poverty at home, China also actively helps other developing countries to address their poverty problems. Over more than six decades since the founding of the People’s Republic of China in 1949, China has provided nearly RMB400 billion to 166 countries and international organizations, sent more than 600,000 aid workers, given medical assistance to 69 countries, and aided more than 120 developing countries in realizing the Millennium Goals. On seven occasions China has unconditionally canceled interest-free loans to heavily indebted countries and least developed countries.

经过多年探索实践，中国积累了通过减贫促进人权事业发展的成功经验，走出一条中国特色扶贫开发道路。

After years of trials and experimentation, China has accumulated a wealth of experience in promoting human rights through development-oriented poverty reduction, and established a new model of development-oriented poverty alleviation with Chinese characteristics.

——坚持立足基本国情，充分发挥制度优势。中国有13亿多人口，是世界上最大的发展中国家。发展是中国共产党执政兴国的第一要务，是解决中国所有问题的关键。中国发挥政治优势和制度优势，通过“党的领导、政府主导、社会参与”的工作机制，形成跨地区、跨部门、跨行业、全社会共同参与多元主体的社会扶贫体系。

– Proceeding from the prevailing national conditions and exploiting its institutional advantages. China is the world’s largest developing country with more than 1.3 billion people. Development is the paramount task of the CPC in governing and rejuvenating China, which is essential to addressing the country’s existing problems. By exploiting its political and institutional advantages, China has formed a trans-regional, trans-departmental, and trans-industrial poverty reduction process to which all social sectors contribute through the mechanism of “Party leadership, government guidance and social participation.”

——坚持加快发展经济，扎实推进减贫事业。将减贫作为发展经济的一项重要内容，以发展经济促进减贫，发挥扶贫开发与经济社会发展相互促进作用，把扶贫开发作为经济社会发展规划的主要内容，推动减贫和人权保障领域各项工作统筹兼顾、协调发展，实现扶贫减贫规划、国家经济社会发展规划与国家人权行动计划有机联动。

– Accelerating economic development and promoting poverty reduction. Taking poverty reduction as a major element of economic development, China promotes poverty reduction alongside economic growth, combines development-oriented poverty alleviation and socio-economic development, treats poverty alleviation through development as the main focus of the economic and social development plan, coordinates the development of poverty reduction and human rights protection, and achieves effective interaction between plans for poverty reduction and elimination, national economic and social development, and national human rights action.

——坚持多种形式减贫，注重提高实际效果。把发展作为解决贫困的根本途径，坚持开发式扶贫方针，注重扶贫先扶智，增强贫困人口自我发展能力，阻断贫困代际传递。坚持普惠政策和特惠政策相结合，在加大对农村、农业、农民普惠政策支持的基础上，对贫困人口实施特惠政策。把精准扶贫、精准脱贫作为基本方略，分类施策，重在精准，做到应扶尽扶、应保尽保。

– Adhering to multi-form poverty reduction, and focusing on effect. Development is the fundamental approach to poverty eradication. China addresses poverty reduction by enhancing the skills of the impoverished population and improving their capacity for self-development, and acts to prevent the transfer of poverty across generations. The government adds preferential policies to its general welfare policy, devising preferential policies for the impoverished population on the basis of the general welfare policy for the rural areas, agriculture and farmers. It takes targeted poverty reduction and elimination as the basic strategy, with differentiated and targeted measures, and provides aid and guarantees for all those who qualify.

——坚持社会公平公正，努力实现成果共享和共同富裕。以保障和改善民生为重点，创新制度安排，促进社会公平正义。建立以权利公平、机会公平、规则公平为主要内容的社会公平保障体系，用法治保证人民平等参与、平等发展权利，使全体人民共享改革发展成果，实现共同富裕。

– Prioritizing social fairness and justice, and striving to bring benefits and common prosperity to all. Focusing on ensuring and improving public well-being, China encourages institutional and organizational innovation, and promotes social fairness and justice. It is establishing a social fairness guarantee system applying to rights, opportunities and rules, protecting the people’s right to equal participation and equal development with the rule of law, and bringing the benefits of reform and development as well as common prosperity to the whole population.

II. Ensuring Impoverished People’s Right to Life

中国政府创新扶贫模式，实施精准扶贫、精准脱贫基本方略。近年来，通过建档立卡摸清底数，分析致贫原因和发展需求，分类指导，精准施策，落实扶贫对象精准、项目安排精准、资金使用精准、措施到户精准、因村派人精准、脱贫成效精准的要求，切实提高扶贫实效，加快贫困人口精准脱贫，保障贫困人口生存权。

It is one of the basic policies of the Chinese government to innovatively improve its methods in reducing and eradicating poverty, and takes targeted measures to that end. Recently, through data tracking on the conditions of the impoverished population, the government analyzes the causes of their problems, and offer guidance on their development needs. Targeted measures are implemented in terms of funding, projects, and recipients. Every impoverished household is guaranteed help, every village has designated officials to carry out poverty eradication measures, and goals are met within the defined standards. In the fight against poverty, China has enhanced poverty eradication effects, accelerated the speed of poverty eradication, and ensured impoverished people’s right to life.

特色产业脱贫得到扶持。国家相继出台一系列特色产业发展规划、政策，为贫困地区提供发展机会。制定实施关于加强农业行业扶贫工作的指导意见和《全国林业扶贫攻坚规划（2013－2020年）》，明确将大力发展特色农牧业作为农业行业扶贫重点工作。编制《农业行业扶贫开发规划（2011－2020年）》，制定《特色产业增收工作实施方案》《全国优势特色经济林发展布局规划（2013－2020年）》，对各集中连片特困地区特色农林牧业进行科学布局，明确发展重点。发布《特色农产品区域布局规划（2013－2020年）》，将贫困地区96个特色品种纳入规划范围，引导多方力量加大投入。“十二五”（2011－2015年）期间，向连片特困地区投入农业基本建设资金和财政专项资金1220亿元，安排林业基本建设资金和财政专项资金1160多亿元。在特色产业带动下，贫困地区发展条件不断改善，农民收入水平不断增加。

Support has been given to poverty eradication through developing industries with local features. The state has issued a series of development plans and policies regarding industries with local features to provide growth opportunities for impoverished areas. These include the Guiding Opinions on Strengthening Poverty Alleviation Work in the Agricultural Industry and Poverty Alleviation Plan in the Forestry Sector (2013-2020), which focuses on developing agriculture and animal husbandry with local features. Poverty Alleviation Through Development Plan of the Agricultural Industry (2011-2020); Measures for Increasing the Income of Industries with Local Features and Development Plan for Economic Forests (2013-2020), which lay out a good plan for the development of agriculture, forestry, and animal husbandry in contiguous poverty-stricken areas, with key areas specified; and Regional Layout of Agricultural Products with Local Features (2013-2020), which covers 96 agricultural products with local characteristics in impoverished areas for unified planning, with increased investment from various sources. During the Twelfth Five-Year Plan period (2011-2015), RMB122 billion was spent on agricultural infrastructure and specialized funds, and RMB116 billion on forestry infrastructure and specialized funds in contiguous poverty-stricken areas. Driven by the industries with local characteristics, poverty-stricken areas are seeing greater momentum in their development, with growing incomes for farmers.

易地搬迁脱贫稳步实施。2012年以来，国家累计安排中央预算内投资404亿元，撬动各类投资近1412亿元，搬迁贫困人口591万人，地方各级统筹中央和省级财政专项扶贫资金380亿元，搬迁580多万贫困人口，有效拓展贫困地区发展空间。通过科学规划、合理选址，加强安置区基础设施和社会公共服务设施建设，大幅改善生产生活条件，搬迁群众生产生活水平显著提升。通过帮助发展种植业和养殖业，引导外出务工，直接增加劳务收入，搬迁群众脱贫致富步伐明显加快。2016年，中国政府启动实施了新一轮易地扶贫搬迁方案，增加中央预算内投资规模，提高政府补助标准，引入开发性、政策性金融资金，大幅拓宽融资渠道，并加大易地扶贫搬迁群众后续脱贫扶持力度，确保搬迁一户、脱贫一户。

Poverty alleviation through resettling impoverished population has been steadily carried out. Since 2012 the state has allocated RMB40.4 billion from the central government to leverage a total investment of RMB141.2 billion of all kinds, resettling 5.91 million impoverished people. The central and provincial coffers as well as local governments at various levels have provided RMB38 billion for poverty reduction, resettled 5.8 million poor people. These concerted efforts have effectively brought more development opportunities to poverty-stricken areas. Through scientific planning and careful site selection, infrastructure and community services have been strengthened in resettlement areas, significantly improving the living and working conditions of the relocated population. By developing farm production and animal farming, and guiding workers to travel to seek employment elsewhere, China has seen increases in the income of resettled farmers and migrant workers, with faster progress in eradicating poverty and achieving prosperity. In 2016 the Chinese government has initiated a new round of resettlement programs for its impoverished population, with increased funds from central government, and further raised subsidy standards. It has introduced policy-based funds for development, expanded funding sources, and strengthened follow-up support to relocated people, ensuring that each resettled household is lifted out of poverty.

生态保护脱贫持续推进。在贫困地区积极推进天然林资源保护、退耕还林、退牧还草、京津风沙源治理、石漠化综合治理和生物多样性保护等重大生态工程，加快贫困地区生态保护和修复步伐，改善当地生态环境，不断拓展贫困人口生存空间，为当地优势特色产业发展、贫困人口就业增收以及保障发展环境创造了良好的条件。建立完善生态补偿机制，积极推进贫困地区的生态补偿工作，进一步提高森林生态效益补偿标准，完善草原生态保护奖励机制，推动贫困地区传统牧业向现代牧业转变。拓宽贫困人口增收渠道，鼓励重点工程区范围内的贫困户投工投劳，提高了贫困人口的受益水平。改善贫困人口生存条件，加大贫困县生态环境综合治理力度，强化木本粮油、特色林果、木竹原料林、林下经济、草食畜牧业、生态旅游业等发展，切实改善贫困人口生活条件。

Poverty eradication through ecological conservation is making progress. In poverty-stricken areas, the state promotes the protection of natural forest resources, returning farmlands to forests and grazing land to grasslands, controlling the sources of sandstorms affecting the Beijing-Tianjin area, controlling stony desertification, and protecting biological diversity. All these efforts have contributed to protecting the ecology in impoverished areas and restoring the environment, to improving local ecology, to providing more opportunities for the impoverished population, to boosting the industries with local characteristics, and to increasing the employment and income of local residents and protecting the resources required for their development. China has established a mechanism for ecological compensation, and is actively promoting the program in poverty-stricken areas. It has further raised the standards of compensating the ecological benefits of forests, improving the reward mechanism for grassland ecological protection, and promoting the modernization of animal husbandry in poverty-stricken areas. Measures have been taken to expand the income channels of the impoverished population, and to encourage voluntary work by those living in the key projects areas, thereby bringing them benefits. China strives to improve living conditions of impoverished population. Efforts have been made to improve the ecological environment of impoverished counties, and to promote the development of woody grain and oil, specialty fruits, timber and bamboo forests, forest-dependent industries, herbivorous animal husbandry, and eco-tourism, effectively improving the lives of the impoverished population.

教育脱贫力度不断加大。“十二五”期间，中国把教育扶贫作为脱贫攻坚的重要内容，深入推进义务教育均衡发展，着力缩小城乡教育差距，全面改善贫困地区的办学条件，实施学前教育三年行动计划、乡村教师生活补助计划，实施中等职业学校免学费、补助生活费政策及面向贫困地区定向招生专项计划，切实保障贫困人口受教育权利。2012－2015年，中央财政累计投入资金831亿元改造义务教育薄弱学校，投入约140亿元建设边远艰苦地区农村学校教师周转宿舍24.4万套，可入住教师30万人。连续实施学前教育三年行动计划，全国学前三年毛入园率由2011年的62.3%提高到2015年的75%，中西部地区在园幼儿数由2011年的2153万增加到2015年的2789万，增长了30%。2014年11月，有关部门联合印发《关于统一城乡中小学教职工编制标准的通知》，将县镇、农村中小学教职工编制标准统一到城市标准，并向农村边远贫困地区倾斜。2013－2015年，中央财政累计投入资金约44亿元，支持连片特困地区对乡村教师发放生活补助，惠及约600个县的100多万名乡村教师。2012－2015年，中央财政共下达中等职业学校免学费补助资金417亿元，对公办中等职业学校全日制在校生中所有农村（含县镇）学生、城市涉农专业和家庭经济困难学生免除学费（艺术类相关专业除外）。对在职业教育行政管理部门依法批准、符合国家标准的民办中等职业学校就读的符合免学费政策条件的学生，按照当地同类型同专业公办中等职业学校免除学费标准给予补助。对全日制一、二年级在校涉农专业学生和非涉农专业家庭经济困难学生发放国家助学金，2012－2014年标准为每生每年1500元，从2015年春季学期起标准提高到每生每年2000元，覆盖近40%的学生。实施面向贫困地区定向招生专项计划，面向832个贫困县4年累计录取学生18.3万人，贫困地区农村学生上重点高校人数连续三年（2013－2015年）增长10%以上。

Increased efforts have been made to alleviate poverty through education. During the Twelfth Five-Year Plan period, China prioritized education in its effort to eradicate poverty. The measures included: continuing to promote the balanced development of compulsory education, closing the gap in education between urban and rural areas, improving education infrastructure in impoverished areas, implementing the Action Plan for Three-Year Preschool Education, offering cost-of-living subsidies to teachers in rural areas, and enrolling students from poverty-stricken areas, exempting their tuition fees at secondary vocational schools, and allotting living subsidies to the students. All this was targeted at ensuring impoverished people’s access to education.

In 2012-2015, the central government injected RMB83.1 billion into poor compulsory education schools, and RMB14 billion to build 244,000 dormitory units for 300,000 teachers in remote rural areas. The state carried out a three-year action plan to promote preschool education, increasing the nation’s three-year preschool gross enrollment rate from 62.3 percent in 2011 to 75 percent in 2015. In central and western China, the number of children enrolled in kindergartens rose from 21.53 million in 2011 to 27.89 million in 2015, up 30 percent. Following the release of the Notice on Unifying the Establishment of the Faculty and Staff of Elementary and Secondary Schools in Urban and Rural Areas, issued in November 2014, the teaching and administrative staff of elementary and secondary schools in villages, counties, and towns began to enjoy the same standards of establishment as urban schools, with favorable treatment for those in remote poor rural areas. In 2013-2015, the central government allotted RMB4.4 billion for cost-of-living subsidies for rural teachers in contiguous poverty-stricken areas, benefiting over one million teachers in 600 counties. In 2012-2015, the central government provided RMB41.7 billion in tuition subsidies to secondary vocational schools, and granted exemptions from tuition fees to rural students (including those from counties and towns) and urban students with agriculture-related majors or with financial difficulties (except those majoring in arts) at full-time public secondary vocational schools. Students who were eligible for tuitions exemption at private secondary vocational schools certified by administrative organs were guaranteed the same tuition exemptions as students of the same major at local public secondary vocational schools. The state offers grants to first- and second-year students with agriculture-related majors or with financial difficulties at full-time schools, and the standard has been raised from RMB1,500 per student per year in 2012-2014 to RMB2,000 since the spring semester of 2015, covering 40 percent of students. A directional enrollment program was carried out in poverty-stricken areas, enrolling 183,000 students in 832 impoverished counties from 2012 to 2015. In 2013-2015, the annual growth rate of rural students from poor areas enrolled in key universities was kept above 10 percent.

图表：中央财政教育扶贫投入情况

Chart: Spending of the central government on poverty alleviation through education

医疗保障脱贫全面落实。中国政府不断加大健康扶贫工作力度，减轻农村贫困人口医疗费用负担，增强贫困地区医疗卫生服务能力，提高贫困地区群众健康水平，努力防止因病致贫、因病返贫，贫困人口健康权利得到切实保障。新型农村合作医疗制度逐步完善，覆盖97%以上的农村居民。2016年，新农合人均补助标准提高到420元，政策范围内门诊和住院费用报销比例分别达到50%和75%左右。全面实施城乡居民大病保险，覆盖超过10亿参保居民，报销比例不低于50%。全面建立疾病应急救助制度，开展重特大疾病医疗救助，全民医保制度防大病、兜底线的能力进一步增强，农村居民看病负担大大减轻。2012年以来，中央专项投资共安排794亿元支持贫困地区11万个卫生机构基础设施建设，改善贫困地区卫生服务条件。实施农村订单定向免费医学生培养、全科医生特设岗位计划等项目。深入实施城乡医院对口支援，组织全国三级医院对口帮扶贫困地区县级医院。2015年，基本公共卫生服务12大类45项得到全面落实，人均经费从2011年的15元提高到40元。实施农村妇女增补叶酸预防神经管缺陷、贫困地区儿童营养改善等项目，加强疾病预防控制和健康促进，贫困地区群众健康状况逐步改善。2016年，国家卫计委、国务院扶贫办等15个部门联合实施健康扶贫工程，为农村贫困人口与全国人民一道迈入全面小康社会提供健康保障。

Poverty alleviation through medical security has been implemented. The Chinese government continues to strengthen its poverty alleviation effort through promoting medical security, reducing the medical costs of the impoverished population in rural areas, strengthening medical and health services in poverty-stricken areas, and improving the health of people in these areas, so that they are not reduced to or returned to poverty because of illness. All this has ensured the right to health. Improvement has been made in the New Rural Cooperative Medical System (NRCMS), which covers over 97 percent of rural residents. In 2016, the NRCMS offers a per capita subsidy of RMB420, and reimbursement ratios of outpatient and inpatient costs reached 50 percent and 75 percent. Serious illness insurance for urban and rural residents has been fully implemented, covering more than one billion residents with a reimbursement ratio of no lower than 50 percent. A medical emergency relief system has been established to help people suffering from serious illnesses, and universal medical care has been further improved to cover major illnesses, significantly reducing the medical costs of rural residents. Since 2012, the central government has allocated RMB79.4 billion to support infrastructure construction at 110,000 health service units in poverty-stricken areas. Programs have been carried out to offer free medical education to rural students who will return to serve in their areas, to send general practitioners to clinics in rural areas, to pair up hospitals in urban and rural areas to enable medical assistance, and to organize state-level hospitals to help and support county-level hospitals in poverty-stricken areas. In 2015, 45 items in the 12 categories of basic public health services were implemented, with per capita subsidy rising from RMB15 in 2011 to RMB40. Programs have been carried out to ensure that women in rural areas have access to folic acid supplements in order to prevent neural tube defects, and to improve child nutrition in poverty-stricken areas, in an effort to strengthen disease prevention and control and promote good health. Thanks to these efforts the health of the impoverished population has gradually improved. In 2016, the National Health and Family Planning Commission, the State Council Leading Group of Poverty Alleviation and Development, and 13 other departments jointly launched a poverty alleviation project through health promotion, so as to ensure that the impoverished rural population will welcome the arrival of a moderately prosperous society with the rest of the nation.

图表：2012—2016年新农合人均补助标准

Chart: NRCMS per capita subsidy

农村兜底脱贫逐步实行。国家制定农村低保制度与扶贫开发政策相衔接实施方案，各地紧紧围绕贫困人口脱贫目标，完善政策措施，健全工作机制，努力实现农村低保制度政策性兜底保障，不断提高贫困人口社会保障水平。对于符合农村低保条件的建档立卡家庭，按规定程序纳入低保范围，根据家庭人均收入与当地低保标准的差额发给低保金。对于符合扶贫条件的农村低保家庭，按规定程序纳入建档立卡范围，根据不同致贫原因予以精确帮扶。对于脱贫后再返贫的家庭，分别纳入临时救助、医疗救助、农村低保等社会救助制度和建档立卡帮扶政策范围。2015年，全国保障农村低保对象共4903.6万人，农村低保标准从2011年的平均每人每月143元提高到265元；农村特困人口集中和分散供养年人均标准分别达到6026元和4490元，比2012年同期分别增长48.4%和49.3%。

Programs are being implemented to lift all rural residents out of poverty. The state has released a plan to align the subsistence allowances system with development-oriented poverty alleviation policies in rural areas. Focusing on the goals of poverty eradication, all localities are improving their policies, measures, and working mechanisms to offer subsistence allowances to the most impoverished rural residents, striving to increase the standards of social security for the impoverished population. Registered rural families eligible for subsistence allowances are included in the subsistence allowance system in accordance with established procedures, and they receive the allowances based on the gap between their per capita household income and local subsistence allowance standards. Rural families covered by the subsistence allowances and eligible for poverty reduction programs are registered in accordance with established procedures, and receive help and support based on the different causes of their poverty. Families which were lifted out of poverty but have returned to poverty are included in temporary relief, medical relief, rural subsistence allowances and other social relief systems, and are registered for help and support. In 2015, the number of recipients of rural subsistence allowances was 49.04 million, with the standard raised from RMB143 per person per month in 2011 to RMB265. Per capita expenditure on supporting rural population in dire poverty in nursing homes and at their own homes reached RMB6,026 and RMB4,490, growing by 48.4 percent and 49.3 percent compared with the 2012 levels.

资产收益扶贫探索实行。对于难以通过增强自我发展能力实现脱贫的贫困人口，近年来一些地方积极探索资产收益扶贫，在不改变资金用途的情况下，将财政专项扶贫资金和其他涉农资金投入贫困地区基础设施建设和产业发展形成的资产，拿出部分量化折股配置给丧失或部分丧失劳动能力的贫困户，帮助其增加财产性收入。各地资产收益扶贫主要依托当地优势特色产业，并积极发挥农民专业合作社等新型生产经营主体作用，确保贫困人口既可以享受保底收益和红利，还能通过流转土地和参加务工获得收益。2014年年底，国家启动光伏扶贫试点工作，在安徽、河北、山西、宁夏、甘肃、青海6省区开展试点，通过资产收益扶贫增加贫困地区“造血”能力。2016年，国家大力推进光伏扶贫，计划在2020年之前，在16个省区471个县约3.5万个建档立卡贫困村，以整村推进的方式，保障200万建档立卡无劳动能力贫困户（包括残疾人）户均年增收3000元以上。

Experiments have been carried out on poverty alleviation through asset investments. In recent years, to help impoverished people experiencing difficulties in achieving self-development, some localities are actively experimenting on poverty alleviation through asset investments. With poverty reduction as the ultimate goal, poverty alleviation funds and other funds for rural areas are invested in infrastructure construction and industrial development in poverty-stricken areas, and the assets are quantified as shares owned by the households with a partial or permanent inability to increase their property income. The investment is mainly made by promising industries with local characteristics, and the farmers’ specialized cooperatives often play an active role in running the operations, to ensure that impoverished people enjoy a guaranteed return and dividends on such asset investments, and that they may also benefit from transferring their farmlands and working in local businesses. At the end of 2014, the state initiated trial runs of poverty alleviation projects through developing the photovoltaic industry in provinces of Anhui, Hebei, Shanxi, Gansu, Qinghai, and Ningxia Hui Autonomous Region, pumping new blood into these regions by increasing their asset income. In 2016, the state has strengthened the initiative, planning to increase the average household income of two million households registered with incapacity (including disabled persons) to RMB3,000 and above by 2020. This will involve 35,000 registered villages in 471 counties of 16 provinces and autonomous regions.

就业创业服务不断加强。近年来，中国政府大力实施就业优先战略和更加积极的就业政策，提供职业技能培训，加强就业创业服务，有效保障贫困人口工作权利。组织实施农民工职业技能提升计划——“春潮行动”，面向农村贫困劳动力开展就业技能培训、岗位技能提升培训和创业培训，并落实培训补贴政策。落实《关于加强雨露计划支持农村贫困家庭新成长劳动力接受职业教育的意见》，对农村贫困家庭子女接受职业教育的给予补助。进一步健全完善公共就业服务体系，加强基层劳动就业和社会保障服务平台建设，组织开展“春风行动”等专项就业服务，加强输出输入地劳务对接，为农村贫困人口免费提供职业指导、职业介绍、就业信息、政策法规咨询等公共就业服务，推进农村富余劳动力进城务工和稳定转移，2011－2014年年均新增农民工793万人。积极落实创业扶持政策，对有创业意愿和创业培训、创业服务需求的劳动者，组织参加创业培训，提供信息咨询、开业指导、创业孵化、跟踪辅导等“一条龙”创业服务，提高创业成功率。

Services have been strengthened to support employment and entrepreneurship. In recent years, the government has given top priority to employment, enacting more active employment policies, providing vocational training, and strengthening services to support employment and entrepreneurship, effectively ensuring impoverished people’s right to work. It has launched the Spring Tide Action, a program to enhance the occupational skills of migrant workers, providing impoverished rural laborers with training programs in employment and occupational skills, and starting businesses, with subsidies provided for attending these trainings. The state has implemented the Opinions on Strengthening the Dewdrop Project to Support New Laborers from Impoverished Rural Families to Receive Vocational Training, providing an annual subsidy to registered impoverished families with people receiving vocational education. China has further improved its public services for employment. It has strengthened the platform for labor and employment and social security services at the grassroots level, organized the Spring Breeze Action and other employment services, strengthened the alignment of labor exports and imports, and offered free services to the impoverished rural population in guiding their employment choices, introducing jobs and opportunities, and offering counseling on the policies, laws, and regulations regarding employment. The state has helped surplus rural laborers to seek employment in cities and promoted their steady transfer, with 7.93 million new migrant workers added on a yearly basis in 2011- 2014. China has actively implemented policies to support entrepreneurship, organizing training sessions for people who are interested in starting businesses and who need training in entrepreneurship and relevant services. Other services such as information, guidance on business operations, new business incubation, and follow-up services are also provided to support new entrepreneurs.

三、维护特定群体权利

III. Safeguarding the Rights of Specific Groups

妇女、儿童、老年人、残疾人、少数民族等特定群体中的贫困人口是扶贫工作的重点对象。2012年以来，中国政府加大优先扶持政策力度，切实保障这些群体的社会保障权、健康权、受教育权等各项权利。

The poor population in such specific groups as women, children, the elderly, the disabled and ethnic minorities are the focus of poverty reduction. Since 2012, the Chinese government has increased support for these groups in policy priorities to ensure their rights to social security, health, education and other services are effectively protected.

贫困妇女权利保障水平不断提升。国家落实《中国妇女发展纲要（2011－2020年）》，制定实施保障贫困妇女权益的政策措施。加强贫困地区妇女教育培训，培训中西部农村妇女200多万人。实施妇女小额贷款担保项目及财政贴息政策，促进城乡妇女创业就业。开展农村妇女“两癌”检查项目，每年为全国1000万适龄农村妇女进行免费宫颈癌检查，为120万适龄农村妇女进行免费乳腺癌检查，已覆盖532个贫困县。2011－2015年，中央彩票公益金投入4亿元，积极开展“贫困母亲两癌救助”。实施“母亲安居工程”“母亲健康快车”等公益项目，帮助贫困单亲母亲、患病贫困妇女改善生存和发展状况。建立完善新型社会救助体系，加大对贫困妇女的保障力度。2015年，全国获得低保及特困人员救助供养的居民达7121.5万人，其中女性约2609.4万人，所占比重为36.6%，基本实现了应保尽保。

Protection of impoverished women’s rights has been enhanced. The government has carried out the Program for the Development of Chinese Women (2011-2020), formulating and implementing policies and measures to protect poor women’s rights and interests. It has strengthened education and training for women in poor areas, training more than 2 million women in rural areas of central and western regions of China. The government has implemented the small-loan guarantee program and a financial interest discount policy for women to encourage urban and rural women to find employment or start businesses. The government conducts a campaign of free breast and cervical cancer screening (“two cancers screening”) for rural women every year which covers 532 impoverished counties, offering free breast cancer screening for 10 million rural women and cervical cancer screening for 1.2 million rural women. From 2011 to 2015, the central lottery public welfare fund provided RMB400 million in carrying out such public welfare projects as “treating poor mothers with breast and cervical cancers,” “affordable housing for mothers,” and “mothers’ health express,” through which it had helped poor single mothers and poor women who were sick to achieve better lives and better prospects for development. The government has established and improved a new social relief system to enhance the protection of poor women. In 2015, 71.22 million people around China received subsistence allowances and relief and assistance to support those in extreme poverty. Among these, 26.094 million were women, accounting for 36.6 percent of the total. In this way, those who qualified all received assistance and help.

贫困儿童权利保障力度不断加大。国家制定并落实《中国儿童发展纲要（2011－2020年）》《国家贫困地区儿童发展规划（2014－2020年）》，健全完善留守儿童关爱服务体系、困境儿童分类保障和救助保护机制。落实《国务院关于加强农村留守儿童关爱保护工作的意见》，推进城乡社区“儿童之家”和“儿童快乐家园”建设，各地以儿童之家和儿童快乐家园为依托开展关爱服务活动15.8万项，受益农村留守儿童人数达1312.9万人次。落实《国务院关于加强困境儿童保障工作的意见》，各地出台困境儿童分类管理办法，根据不同儿童群体需求特点，分类型设置标准，分标准实施保障，加强困境儿童保障水平。落实《国务院关于孤儿保障工作的意见》，全面建立全国孤儿基本生活保障制度和艾滋病病毒感染儿童生活保障制度，中央财政每年安排20亿元，保障50多万名孤独和艾滋病病毒感染儿童的基本生活，并对他们的医疗、教育、康复及成年后就业、住房等做了制度性安排。实施“全国孤儿手术康复明天计划”，累计投入资金8.6亿元，为9万多名孤儿、弃婴和贫困儿童免费实施手术矫治和康复。贯彻《国务院办公厅关于加强流浪未成年人救助保护工作的意见》，开展“接送流浪孩子回家”和“流浪孩子回校园”专项行动，基本杜绝胁迫、诱骗、利用未成年人乞讨现象。广泛开展适度普惠型儿童福利保障制度和未成年人社会保护试点工作，推动构建未成年人救助保护制度，推动建立县、乡、村三级儿童福利和保护工作网络。自2011年起，全国超过1/2的县实施了农村义务教育学生营养改善计划，按照每生每天4元标准为贫困地区提供营养膳食补助，中央财政累计投入670亿元，惠及3360万农村学生。自2012年起，实施贫困地区儿童营养改善项目，为6－24月龄婴幼儿免费提供营养包，提高监护人科学喂养知识普及程度和家庭教育水平，促进贫困地区婴幼儿健康发育成长。2015年，该项目由中央财政专项补助经费5亿元，覆盖21个省（区、市）14个国家集中连片特困地区的341个县，共211万名儿童受益。

Protection of poor children’s rights has been enhanced. The government has formulated and carried out the Program for the Development of Chinese Children (2011-2020) and the National Program for the Development of Children in Poor Areas (2014-2020), improving the system of care services for “left-behind” children (see note) and the mechanism of classified services for children living in difficult circumstances, providing them with rescue and protection.

[Note: Children who remain at home while their parents travel as migrant workers to pursue employment.]

The government has implemented the Opinions of the State Council on Strengthening Care and Protection of Rural Left-Behind Children. In this process, it has advanced the building of “children’s homes” and “children’s happy homes” in urban and rural communities, based on which 158,000 care service actions have been carried out around China, benefiting 13.13 million “left-behind” children. The government has carried out the Opinions of the State Council on Strengthening Care and Protection of Children in Difficulty. During the process, local governments have introduced measures of classified management of children in difficulty, under which, based on the needs and characteristics of different groups, standards are set by category and measures are enforced based on these standards to increase the level of guarantee for children living in difficulty.

The government has implemented the Opinions of the State Council on Strengthening Care and Protection of Orphans, on the basis of which a nationwide subsistence allowance system for orphans and a living allowance system for HIV-affected children have been established. To this end, the central government allocates RMB2 billion every year, ensuring the basic life needs of more than 500,000 orphans and HIV-infected children and making institutional arrangements concerning their medical care, education, and rehabilitation, and their employment, housing and other needs when they grow up.

The government has launched the National Tomorrow Program on Surgery and Rehabilitation for Orphans with Disabilities, with an accumulated fund of RMB860 million, offering free surgery and rehabilitation services to 90,000 orphans, abandoned babies, and poor children.

The government has implemented the Opinions of the General Office of the State Council on Strengthening Rescue and Protection of Homeless Minors, launching special campaigns to “send street children home” and “help street children back to school,” while striving to ensure that no minors are used for begging or forced or tricked into begging. It has also extensively introduced an appropriate and all-inclusive welfare and service system for children and carried out experimental work on encouraging social protection of minors, and promoted the establishment of a system for rescuing and protecting minors and a children’s welfare and protection network at the county, township and village levels. Since 2011, more than half of China’s counties have implemented a program of nutrition improvement for rural students receiving compulsory education, offering a nutritious meal allowance of RMB4 per day per student in impoverished areas; the central government has input a total of RMB67 billion benefiting 33.6 million rural students. Since 2012 the government has carried out a nutrition improvement program for children in poor areas, providing free nutrition packages to infants aged six to 24 months, and popularizing knowledge on healthy feeding among guardians and improving their family education; by this method it has promoted healthy growth and development of infants and young children in poor areas. In 2015, the central government allocated specialized subsidies of RMB500 million to this program, benefiting 2.11 million children in 341 counties in 14 contiguous impoverished areas in 21 provinces, autonomous regions and municipalities directly under the central government.

老年人权利保障体系不断完善。国家积极推动养老保险制度改革，加强农村养老服务建设，建立健全养老服务补贴制度。2009年开展新型农村社会养老保险试点，2011年开展城镇居民社会养老保险试点，2014年在全国范围内建立了统一的城乡居民养老保险制度。2015年，中央和地方政府支付补贴资金2044亿元，保障和改善亿万城乡老年居民的基本生活。截至2015年年底，全国参保人数达5.05亿，待遇领取人数达1.48亿，其中95%是农村居民；全国共有农村敬老院27248所，床位249.3万张，日间照料服务设施已覆盖50%以上的农村社区；全国20个省（区、市）建立经济困难老人养老服务补贴制度，17个省（区、市）建立失能老人护理补贴制度。

System for protecting the rights of the elderly has been improved. The government has actively promoted the reform of the old-age insurance system, strengthened old-age services in rural areas, and established and improved a subsidy system for old-age services. In 2009 it started pilot work on new rural social old-age insurance; in 2011 it started pilot work on social old-age insurance for urban residents; in 2014 it established a unified old-age insurance system for urban and rural residents nationwide. In 2015, the central and local governments provided RMB204.4 billion to guarantee and improve the basic life needs of hundreds of millions of elderly urban and rural residents. By the end of 2015, the number of insured around China had reached 505 million, 148 million people had received insurance payments, 95 percent being rural residents; there were 27,248 homes for the elderly with 2.49 million beds in rural areas; day-care services covered more than 50 percent of rural communities; and a system of old-age service subsidies for the elderly in financial difficulties had been established in 20 provinces and equivalent units, while a system of nursing subsidies for disabled elderly had been set up in 17 provinces and equivalent units.

残疾人权利保障事业扎实推进。2012年，国务院办公厅印发《农村残疾人扶贫开发纲要（2011－2020年）》，明确将贫困残疾人列为重点扶贫群体。2015年，国务院印发《关于加快推进残疾人小康进程的意见》，围绕残疾人基本民生保障、就业创业增收、基本公共服务三大重点领域，提出了一系列重要举措。2015年，《国务院关于全面建立困难残疾人生活补贴和重度残疾人护理补贴制度的意见》正式实施，第一次在国家层面建立残疾人福利补贴制度。通过专项调查，实名获取2660多万持证残疾人和70多万个社区为残疾人提供公共服务状况的基本信息，为向残疾人精准服务提供了可靠的数据支撑。2012年以来，中央安排37.4亿元康复扶贫贴息贷款，扶持21.9万贫困残疾人；累计为145.2万残疾人提供职业培训，城镇新增123.9万残疾人就业，2015年开通全国残疾人网络就业服务平台；国家补助完成117.5万户农村贫困残疾人危房改造，317万农村贫困残疾人得到实用技术培训，496.2万农村贫困残疾人脱贫，因残致贫现象得到有效缓解。截至2015年年底，共有1088.5万城乡残疾人纳入最低生活保障范围，近2230万残疾人参加城乡居民社会养老保险，302.3万残疾人参加城镇居民基本医疗保险。

Better rights for persons with disabilities. In 2012, the General Office of the State Council issued the Outline of Development-oriented Poverty Reduction for Rural Persons with Disabilities (2011-2020), emphasizing that poor disabled people are key targets of poverty alleviation. In 2015 the State Council issued the Opinions on Accelerating the Process of Persons with Disabilities Toward a Comparatively Well-Off Life, outlining a series of important measures in three key fields for persons with disabilities: (1) basic livelihood; (2) employment, entrepreneurship and income growth; and (3) basic public services. In 2015 the Opinions of the State Council on Establishing a Full Scale System of Living Subsidies for Disabled Persons with Financial Difficulties and Nursing Subsidies for Persons with Serious Disabilities came into effect. It was the first national system of welfare and subsidy for persons with disabilities. Through targeted surveys, the government has obtained basic information on more than 26.6 million named and identified disabled persons with certificates and more than 700,000 communities providing public services for the disabled, thus managing to provide accurate services for persons with disabilities based on reliable data support.

Since 2012, the central government has arranged RMB3.74 billion of discount loans for rehabilitation and poverty alleviation of 219,000 poor persons with disabilities. It has provided vocational training for 1.45 million persons with disabilities, and as a result 1.24 million urban residents with disabilities have found employment. In 2015, a national platform of online employment services for persons with disabilities was launched. With government subsides, 1.18 million households of poor rural persons with disabilities have seen their homes renovated, 3.17 million poor rural persons with disabilities have received practical technical training, and 4.96 million poor rural persons with disabilities have been lifted out of poverty. As a result of these initiatives, poverty resulting from disability has been effectively reduced.

As of the end of 2015, a total of 10.89 million urban and rural residents with disabilities had been covered by subsistence allowances, nearly 22.3 million persons with disabilities were covered by social old-age insurance for urban and rural residents, and 3.02 million persons with disabilities were covered by basic medical insurance for urban residents.

少数民族脱贫步伐加快。国家制定一系列特殊扶持政策，加快推进少数民族和民族地区脱贫攻坚。《中国农村扶贫开发纲要（2011－2020年）》确定的14个集中连片特困地区中，分布在民族自治地方的有11个；592个国家扶贫开发工作重点县中，分布在民族自治地方的有263个；扶贫开发整村推进“十二五”规划确定的3万个贫困村中，分布在民族自治地方的有13158个。2012－2015年，中央财政安排少数民族发展资金145.9亿元，专项支持推进兴边富民行动、扶持人口较少民族发展以及开展少数民族特色村寨和少数民族传统手工艺品的保护与发展。国家安排中央预算内投资55亿元，用于帮助边境地区和人口较少民族聚居区的基础设施建设、群众生产生活条件改善和社会事业发展。“十二五”期间，内蒙古、广西、西藏、宁夏、新疆5个自治区和少数民族分布集中的贵州、云南、青海3省的贫困人口从2011年的3917万下降到1813万，减少2104万人，减少幅度为53.7%；贫困发生率从27.2%下降到12.4%，下降了14.8个百分点。

Poverty eradication for ethnic minority groups has been accelerated. The government has developed a series of special support policies to accelerate poverty eradication for ethnic minority groups and regions inhabited by ethnic minorities. The Outline for Development-oriented Poverty Reduction for China’s Rural Areas (2011-2020) maps out 14 contiguous impoverished areas, 11 of which are in ethnic autonomous areas, and 592 key counties for national development-oriented poverty alleviation work, 263 of which are in ethnic autonomous areas. Of the 30,000 poor villages mapped out in the 12th Five-Year Plan for whole-village development-oriented poverty alleviation, 13,158 are in ethnic autonomous areas. From 2012 to 2015, the central government allocated development funds of RMB14.59 billion for ethnic minority groups to advance a special campaign of developing border areas and improving local people’s lives, to support development of ethnic minority groups with a small population, and to protect and develop ethnic minority villages with special features and traditional handicrafts. The central government has worked out a budget to inject RMB5.5 billion to support border areas and areas inhabited by ethnic minority groups with a small population in infrastructure construction, in improving local working and living conditions, and in developing social programs. During the 12th Five-Year Plan period, the impoverished population of the five autonomous regions (Inner Mongolia, Guangxi, Tibet, Ningxia, and Xinjiang) and the three provinces with concentrated ethnic minority groups (Guizhou, Yunnan and Qinghai) had dropped from 39.17 million in 2011 to 18.13 million, a decrease of 21.04 million, down 53.7 percent. The poverty incidence declined from 27.2 percent to 12.4 percent, down by 14.8 percentage points.

图表：人口较少民族聚居区基础设施得到改善

Chart: Infrastructure improvement in areas inhabited by ethnic minority groups with a small population

四、改善贫困地区发展环境

IV. Improving the Development Environment of Impoverished Areas

加强贫困地区基础设施建设，破除发展瓶颈制约，是实现贫困地区群众生存权、发展权的基础和前提。2012年以来，中国政府继续支持贫困地区基础设施建设，切实加大投入力度，贫困地区的基本生产生活条件得到进一步改善。

Strengthening infrastructure construction in impoverished areas to overcome obstacles to development is the basis and premise for realizing local people’s rights to subsistence and development. Since 2012, the Chinese government has supported infrastructure construction in impoverished areas with more funds, further improving basic working and living conditions in those areas.

贫困地区通信基础设施升级改造加快。中国政府发布《“宽带中国”战略及实施方案》，加大中央财政对贫困地区通信设施建设的支持，鼓励企业承担社会责任，努力消除“数字鸿沟”对贫困地区的瓶颈制约。扎实推进贫困村信息化工作，持续深入开展乡镇互联网接入、行政村通宽带、信息下乡等方面建设，有效提升农村及贫困地区的通信基础设施水平。截至2015年年底，实现100%的行政村通电话、100%的乡镇通宽带，农村地区互联网宽带接入端口超过1.3亿个，有效提高了贫困地区的宽带网络普及率，有效改善了当地的生产生活条件，为贫困地区产业发展提供了有力支撑。中央投资92.23亿元，基本完成对20户以下已通电自然村广播电视覆盖。

Upgrading and reconstruction of communications infrastructure in impoverished areas has been accelerated. The government issued its “Broadband China” Strategy and Implementation Plan in 2013. The central government has given more financial support to communications infrastructure construction in impoverished areas, and encouraged enterprises to shoulder social responsibilities, so as to eliminate the “digital divide” in poor areas. It has worked hard to promote IT application in poor villages, grant Internet access to towns and townships and broadband access to administrative villages, spread information in the countryside, and do other work. Thus it has effectively improved communications infrastructure in poor rural areas. By the end of 2015, all administrative villages had telephone access, all towns and townships had broadband access, and the number of Internet access ports exceeded 130 million, effectively enhancing broadband penetration in impoverished areas, improving local working and living conditions, and providing strong support to industrial development in those areas. The central government has injected RMB9.22 billion, basically achieving radio and television coverage in all natural villages with a power supply and fewer than 20 households.

贫困地区水利建设力度加大。国家制定实施《全国水利扶贫专项规划》等10多个水利扶贫规划或方案，贫困地区水利建设明显加快。2011－2015年，中央水利投资用于中西部的比重达84%，用于民生水利建设的比重近70%。“十二五”期间，安排贫困地区中央水利投资2375亿元，累计解决1.15亿贫困地区农村居民和学校师生饮水安全问题，农村集中式供水覆盖率提高到75%以上。已开工的85项重大节水工程中，有60项惠及贫困地区，总投资达5600亿元。贫困地区共完成7700多座病险水库和大中型病险水闸除险，新建或加固江河堤防3900余公里，新增中小河流治理河长1.45万公里。新增农村水电装机750万千瓦，解决44万户农民的生活燃料问题。

Water conservancy in impoverished areas has been intensified. The government has formulated and carried out the Specialized National Plan on Poverty Reduction with Water Conservancy Efforts and more than 10 similar plans or programs, significantly quickening the pace of water conservancy projects in impoverished areas. From 2011 to 2015, 84 percent of central water conservancy funds went to central and western regions, and nearly 70 percent was used in water conservancy projects for improving people’s lives. During the 12th Five-Year Plan period, the government arranged RMB237.5 billion of central water conservancy funds for impoverished areas, providing safe drinking water to 115 million rural residents and teachers and students in poor areas, and increasing the provision of centralized water supplies in rural areas to over 75 percent coverage. Among the 85 major water-saving projects under way, 60 will benefit impoverished areas, representing an aggregate of RMB560 billion. In impoverished areas, risks have been mitigated for more than 7,700 dangerous reservoirs and dangerous large and medium-sized sluices, more than 3,900 kilometers of river embankments have been built or reinforced, and 14,500 kilometers of new medium and small rivers have been improved. The installed hydropower capacity of rural areas has grown by 7.5 million kilowatts, providing energy to 440,000 rural households.

贫困地区电力建设成效显著。2013－2015年，国家共安排投资248亿元，实施无电地区电网延伸和可再生能源供电工程，全国无电人口用电问题得到全面解决。实施农网改造升级工程，中央和地方政府加大了对贫困地区，特别是西藏、新疆及四川、云南、青海、甘肃四省藏区等西部偏远少数民族地区农村电力建设的投资支持力度，共安排农网改造升级工程投资1802亿元，大幅提升了贫困地区的供电能力和电力普遍服务水平。2016年，启动实施新一轮农村电网改造升级工程。

Remarkable progress has been made in electric power provision in impoverished areas. From 2013 to 2015, the Chinese government arranged RMB24.8 billion to extend power grids to areas without electricity and launch renewable energy power projects, fully resolving electricity problems for people without power supply services across the country. A rural power grid upgrading campaign has been launched. Both the central and local governments have given more financial support to rural power construction in impoverished areas, especially in remote western ethnic minority regions such as Tibet, Xinjiang and Tibetan-inhabited areas in the four provinces of Sichuan, Yunnan, Qinghai and Gansu. A total of RMB180.2 billion has been allocated to this work, greatly improving the power supply and the universal services in impoverished areas. In 2016, a new round of rural power grid upgrading has been launched.

贫困地区交通建设速度加快。国家制定实施《集中连片特困地区交通建设扶贫规划纲要（2011－2020年）》，“十二五”期间投入车购税资金5500亿元以上，带动全社会公路建设投入近2万亿元，全面加快了集中连片特困地区国家高速公路、普通国省道、农村公路、农村客运站点和“溜索改桥”的建设步伐，建设了33万公里农村公路，帮助654个乡镇和4.8万个建制村通硬化路。截至2015年年底，集中连片特困地区96.1%的乡镇和86.2%的建制村通硬化路，95.5%的乡镇和83.1%的建制村通班车。交通运输条件的改善，使贫困地区矿产、能源、旅游等资源得到有效开发利用，脱贫致富的步伐进一步加快。2016年，中国实施交通扶贫脱贫“双百”工程，进一步加大对交通扶贫的支持力度。

Transport improvements in impoverished areas have been accelerated. The government has enacted and implemented the Outline on Poverty Reduction with Transportation Construction in Contiguous Impoverished Areas (2011-2020). During the 12th Five-Year Plan period, the government input vehicle purchase tax funds of more than RMB550 billion, and promoted social investment of nearly RMB2 trillion in highway construction. It also accelerated construction of national expressways, general national and provincial highways, rural roads, rural passenger stations, and bridges to replace ropeways in contiguous impoverished areas, building 330,000 kilometers of rural roads, and helping 654 towns and townships, and 48,000 administrative villages to build tarmac and cement roads. By the end of 2015, in contiguous impoverished areas, tarmac and cement roads had been paved in 96.1 percent of towns and townships and 86.2 percent of administrative villages, and shuttle buses served 95.5 percent of towns and townships and 83.1 percent of administrative villages. Improved transport facilities have led to effective development and utilization of mineral resources, energy and tourist potential resources in poor areas, accelerating the pace of poverty eradication. In 2016, China launched a campaign of poverty reduction and eradication involving the construction of one million kilometers of rural roads and 100 major passageway projects.

贫困地区人居环境有效改善。中国政府启动农村危房改造工程，改造资金以农民自筹为主，政府补助为辅，中央补助标准从户均5000元提高到7500元，对贫困地区再增加1000元，帮助住房最危险、经济最贫困农户解决最基本住房安全。截至2015年底，全国累计安排1556.7亿元支持1997.4万户贫困农户改造危房。中国政府将保障基本人居卫生条件作为贫困村改善农村人居环境的首要任务，在传统村落保护、农村垃圾和污水治理等方面对贫困地区倾斜。自2012年起，贫困地区共有1194个村落列入中国传统村落名录，每村安排中央财政补助300万元用于村落保护和人居环境改善。农村垃圾治理全面推进，建立农村生活垃圾逐省验收制度，实现贫困地区和其他地区同步推进。

Living environment of impoverished areas has been improved. The government has launched a project to renovate neglected and dangerous buildings in rural areas, with funds mainly raised by farmers and supplemented by government subsidy. Central finance has increased the subsidy from RMB5,000 to 7,500 per household, and 8,500 for those in impoverished areas, securing the basic housing needs of rural families occupying the most dangerous buildings, and experiencing the greatest financial difficulties. By the end of 2015, a total of RMB155.67 billion had been allocated across the country to support 19.97 million poor rural households in renovating neglected buildings. The government sets ensuring basic sanitary conditions the primary task of improving the living environment of poor villages, and gives preferential support to impoverished areas in protecting traditional villages, and in ensuring rural garbage and sewage treatment facilities. Since 2012, 1,194 villages in impoverished areas have been included in the List of China’s Traditional Villages, each of which receives a grant of RMB3 million from central finance to protect the village and improve the living environment. Waste management is improving rapidly in rural areas, and a system of check and acceptance of treatment of rural household refuse in each province has been established, realizing synchronous progress between impoverished areas and other areas.

五、合力推进减贫事业

V. Concerted Efforts in Poverty Reduction

减贫是一项系统性工程，需要一系列政策机制的支撑保障和全社会的积极参与。2012年以来，中国政府继续加大扶贫减贫投入力度，不断改革创新扶贫减贫工作机制，引导鼓励社会各方面参与支持脱贫攻坚，进一步健全完善民主监督机制，切实提高减贫实效。

Poverty reduction is a systematic project entailing a set of supporting policies and mechanisms as well as full participation of the entire society. Since 2012 the Chinese government has kept up funding for poverty alleviation and reduction, implemented reforms and innovations to the working mechanism, encouraged all sectors of society to participate in poverty alleviation efforts, and improved the democratic supervision mechanism to ensure the effectiveness of poverty reduction.

财政扶贫投入力度不断加大。2012年以来，中国政府积极调整财政支出结构，持续加大投入力度，完善财政扶贫政策体系。2011－2015年，中央财政累计安排专项扶贫资金1898.4亿元，年均增长14.5%，并安排专项彩票公益金50.25亿元，支持贫困革命老区推进扶贫开发。积极创新财政扶贫体制机制，加强财政扶贫资金管理。发挥财政投入的杠杆作用，通过市场化机制撬动金融资本支持易地扶贫搬迁工程。

Government funding for poverty alleviation keeps increasing. Since 2012 the government has proactively adjusted its fiscal expenditure structure to increase funding for poverty reduction and worked to improve the fiscal policy system for poverty alleviation funding. From 2011 to 2015, the government assigned special poverty alleviation funds amounting to RMB189.84 billion, with an average annual growth rate of 14.5 percent; it also assigned RMB5.03 billion from public lottery welfare funds to support anti-poverty development in disadvantaged former revolutionary base areas. Moreover, the government has created innovative fiscal systems and mechanisms for poverty alleviation, strengthened management of government funds for poverty alleviation, and through government funding and the market system leveraged financial capital in support of population relocation projects for poverty alleviation.

图表：中央财政专项扶贫资金历年投入情况（2010—2016年）

Chart: Central government’s special Fund for poverty alleviation from 2010 to 2016

金融扶贫方式创新发展。精准对接脱贫攻坚融资需求与贫困地区发展规划，满足特色产业扶贫、易地扶贫搬迁、贫困人口就业就学的金融需求。创新发展扶贫小额信贷，为建档立卡贫困户提供“5万以下、3年以内、免担保免抵押、基准利率放贷、财政扶贫资金贴息、县建风险补偿金”的扶贫小额信贷产品，支持贫困户发展产业，增加收入，截至2015年年底，已向贫困户发放1200亿元。大力推进贫困地区普惠金融发展，完善农村支付服务环境，推进支付服务进村入户。完善精准扶贫金融支持保障措施，设立扶贫再贷款，实行比支农再贷款更优惠的利率，发挥多种货币政策工具作用，引导金融资源向贫困地区、贫困人口倾斜配置。探索保险扶贫的路径。

Poverty alleviation funding methods have been innovated. The government has taken targeted funding measures to meet both specific financing needs for poverty alleviation and the specific requirements of development programs in impoverished areas. It has also worked to meet the financial needs of poverty alleviation through developing local industries with special characteristics, relocating people from impoverished areas, and providing employment and schooling for the impoverished population. To support the poor in developing their businesses and increasing incomes, the government has developed innovative methods of microfinance that provide registered poor households with collateral-free small loans, up to RMB50,000 on a three-year term, at benchmark interest rates, with interest rates subsidy from government poverty alleviation funds and risk compensation from county-level funds. Poor households had received small loans of RMB120 billion by the end of 2015. China has endeavored to promote inclusive finance in impoverished areas and improve the payment service systems in rural areas to reach out to villages and households. The government has improved targeted financial measures for poverty alleviation, set up a poverty alleviation relending program, which offers loans to the poor at even lower interest rates than those of the agricultural relending program, leveraged multiple financial policy tools, and directed more financial resources to the impoverished areas and people. The government has also explored methods to alleviate poverty through insurance.

扶贫开发用地政策进一步完善。调整完善土地利用总体规划,充分考虑扶贫开发及易地扶贫搬迁需要，统筹安排建设用地规模、结构和布局，优先安排脱贫攻坚用地。出台更加灵活的国土资源管理政策。按照应保尽保要求，加大对扶贫开发及易地扶贫搬迁地区城乡建设用地增减挂钩指标支持，符合条件的节余指标可在省域范围内流转使用。增减挂钩收益按照工业反哺农业、城市支持农村的要求，及时全部返还贫困地区。对中西部少数民族地区和集中连片特困地区利用荒山、荒沟、荒丘、荒滩发展休闲农业，建设用地指标给予倾斜。

Land use policy toward development for poverty alleviation has been further improved. The state has adjusted and improved overall land use planning, taking into full account the need for development-oriented poverty alleviation and the need for population relocation as a method of poverty alleviation, and has taken a holistic approach to planning the scale, structure and distribution of land used for construction, giving priority to land used for poverty alleviation. More flexible policies toward the administration of land resources have been adopted. To ensure all needs relating to poverty alleviation are covered, in the process of development-oriented poverty alleviation and population relocation the government has reinforced support for linking the increase in land quota for urban construction with the decrease in land quota for rural construction, allowing any valid surplus quota to circulate within each province. According to the principle of industry nurturing agriculture and cities supporting rural areas, the benefits from the linking have been promptly returned to impoverished areas. The state has given policy support in terms of construction land quotas to areas in western and central China inhabited by ethnic minorities, and to contiguous impoverished areas with serious difficulties, in order to use unproductive hills, valleys, mounds and wasteland to develop agritourism.

定点扶贫政策有效落实。320个中央单位均承担定点扶贫任务，共帮扶592个国家扶贫开发工作重点县。健全牵头联系机制，明确中央9个单位为定点扶贫牵头部门。68家中央企业在定点扶贫的108个革命老区贫困县开展“百县万村”活动，帮助解决1万多个贫困村的水电路问题。“十二五”期间，中央单位共向592个重点县选派挂职干部1670人次，投入帮扶资金（含物资折款）118.6亿元，帮助引进各类资金695.8亿元，组织劳务输出31万人次。中国人民解放军和武警部队先后建立扶贫联系点2.6万多个，对全国35个贫困县、401个贫困乡镇、3618个贫困村进行定点帮扶。

Targeted poverty alleviation policy has been effectively implemented. A total of 320 units of the central government and the Party have taken responsibility for helping to lift their targeted areas out of poverty, and 592 counties that are key targets in the state poverty alleviation development program have received help from units with which they are paired. The Party and government has improved the leading unit contact mechanism and designated nine units as the leading units responsible for contacts in poverty alleviation pair work. A total of 68 central government-owned enterprises have carried out a campaign in the 108 counties in the disadvantaged former revolutionary base areas with which they are paired, helping more than 10,000 poor villages address water, electricity, road and other infrastructure problems. During the 12th Five-Year Plan period (2011-2015), the Party and government units appointed a total of 1,670 personnel to temporary posts working on poverty alleviation in the aforementioned 592 key counties, sent RMB11.86 billion in poverty alleviation funds and materials into these counties, helped them absorb investments totaling RMB69.58 billion, and organized the export of 310,000 workers from these counties. The People’s Liberation Army and the Chinese People’s Armed Police Force have set up over 26,000 contact outposts in 401 townships of 35 counties with which they are paired, and helped 3,618 poor villages there.

东西部扶贫协助深入开展。东部9个省（直辖市）和9个城市对口支持西部10个省（自治区、直辖市）207个重点县。北京、上海、天津、辽宁、山东5省市建立了对口支援西部地区资金稳定增长机制，每年以8%－10%的幅度增加帮扶资金投入。“十二五”期间，东部省市共向西部贫困地区提供财政援助资金56.9亿元，动员社会力量捐款3.8亿元，引导企业实际投资1.2万亿元；东部派往西部挂职扶贫的党政干部684人次，西部到东部挂职1150人次；为西部地区开展劳动力输出培训77.8万人次，输出劳务240.3万人次。

The eastern region intensifies its assistance in the alleviation of poverty in the western region. Nine provinces (municipalities directly under the central government) and nine cities in eastern China have given support to 207 key counties in ten provinces and equivalent units in western China. Beijing, Shanghai, Tianjin, Liaoning and Shandong have established a mechanism of steadily increasing assistance funds to their target areas in western China, at an annual rate of 8 percent to 10 percent. During the 12th Five-Year Plan period, eastern provinces provided disadvantaged western areas with assistance funds of RMB5.69 billion, donations of RMB380 million from all sectors of society, and investments of RMB1.2 trillion from enterprises. A total of 684 Party and government officials from the east were assigned to temporary posts related to poverty alleviation in the west while 1,150 personnel from the west were assigned to temporary posts in the east; eastern provinces conducted training for 778,000 people from the west on exporting labor services and helped the west export 2.403 million workers.

民营企业、社会组织、公民个人广泛参与扶贫。2014年，国家将每年的10月17日设立为“扶贫日”，在扶贫日前后组织开展系列活动，2014年和2015年共募集资金约150亿元。相继开展全国社会扶贫先进集体和先进个人评选及“中国消除贫困奖”评选表彰活动。启动民营企业“万企帮万村”精准扶贫行动，万达集团、恒大集团等民营企业率先开展包县扶贫行动，苏宁、京东等企业积极参与电商扶贫工作。中国扶贫基金会等社会组织募集大量资金用于精准扶贫项目。成立中国扶贫志愿服务促进会，建设社会扶贫网，着力打造社会扶贫参与平台。

Private enterprises, social organizations and individuals participate in poverty alleviation. In 2014 the state set October 17 as the annual Day for the Eradication of Poverty and has since carried out relevant activities to mark the date, raising funds amounting to RMB15 billion in 2014 and 2015. Campaigns to nominate advanced collectives and individuals for Social Poverty Alleviation Awards and announce the China Poverty Eradication Award have been implemented. The “10,000 enterprises assisting 10,000 villages” campaign was launched, in which private enterprises help targeted poor villages, with Wanda, Evergrande, and some other private enterprises taking the lead in pairing up with poor counties to engage in poverty alleviation actions, and Suning and Jingdong and other E-commerce enterprises becoming actively involved in poverty alleviation. The China Foundation for Poverty Alleviation and other social organizations have raised large amounts of funds for targeted poverty alleviation. The China Association for the Promotion of Poverty Alleviation Volunteer Services and the website of China Social Participation in Poverty Alleviation and Development were founded, aimed at building platforms for the entire society to participate in poverty alleviation.

扶贫工作机制健全完善。实行中央统筹、省（区、市）负总责、市（地）县抓落实的领导责任制，分工明确、责任清晰、任务到人、考核到位。各级党委和政府层层签订脱贫攻坚责任书，将脱贫攻坚任务完成情况作为考核贫困县党政领导的重要指标。建立年度脱贫攻坚报告和督查制度，实施省市县乡村逐级督查问责机制，对落实不力的部门和地区严格追责。完善干部驻村帮扶机制，全国选派机关优秀干部到村任第一书记18.8万人，驻村工作队12.8万个，驻村干部53万人，覆盖所有的贫困村。建立贫困退出机制，制定严格、规范、透明的贫困退出标准、程序和核查办法，贫困村、贫困县以贫困发生率为主要衡量标准，中部地区下降到2%以下、西部地区下降到3%以下才能够退出。

Poverty alleviation working mechanism has been improved. China has adopted a leadership responsibility system with the Central Authorities making integrated planning, governments of provinces and equivalent units taking overall responsibilities, and governments of cities (prefectures) and counties responsible for implementation. The system is characterized by clear roles and responsibilities specific to each individual, and an effective performance review system is in place. Party committees and governments at every level have signed letters of commitment on poverty alleviation, and performance in poverty alleviation has been included as a major criterion in the assessment of leaders in impoverished counties. The state has implemented an annual report and supervision system on poverty alleviation and a level-by-level inspection and accountability mechanism, strictly investigating any ineffective performance of departments and areas at all levels from province, city, county, township to village, and enforcing accountability. The mechanism of stationing officials in villages to work on poverty alleviation has been improved, and 188,000 outstanding officials have been selected from all over the country and sent to serve as first secretaries of Party committees of poor villages. In total 128,000 work teams and 530,000 personnel are involved, covering all poor villages across the country. The state has adopted a poverty exit mechanism that applies strict, standardized and transparent criteria, procedures and verification methods to deregister from the poverty alleviation list all households, villages, and counties that have been lifted out of poverty. The incidence of poverty is the main criterion for this deregistration process, with a threshold set at 2 percent for the central region and 3 percent for the western region.

扶贫民主监督机制不断完善。建立全国扶贫信息网络系统，通过农户申请、民主评议、公示公告、逐级审核的方式，对每个贫困村、贫困户建档立卡，确保群众的知情权和参与权。坚持民主决策、科学决策，充分尊重贫困群众发展意愿，贫困群众参与项目决策、实施、管理和监督全过程。项目资金安排和建设情况向社会公开，实现阳光化运行、常态化公开。委托有关科研机构和社会组织等独立的第三方,对贫困人口识别准确率、贫困人口退出准确率、因村因户帮扶工作群众满意度等指标进行评估。支持各民主党派中央开展脱贫攻坚民主监督工作，8个民主党派中央分别对口脱贫任务重的8个中西部省区，重点就贫困人口精准识别、精准脱贫等情况开展民主监督。加大扶贫领域执纪监督、审计监督力度，开展扶贫领域职务犯罪预防和集中整治专项工作。完善信息披露机制，设立“12317”扶贫监督举报电话，充分发挥社会监督作用。

Democratic supervision mechanism has been continuously enhanced. A nationwide information network for poverty alleviation has been set up and each poor household and poor village has been identified and registered through a process of application, appraisal, announcement to the public, and level-by-level approval, to ensure the public’s right to know and to participate. The state has applied democratic and scientific decision making, given full respect to the development interests of people in need, and invited them to participate in decision-making concerning poverty alleviation, and the implementation, management and supervision of programs. The government publicizes funding arrangements and program updates to ensure transparent operation and institutionalize access to information as a regular practice. The state has entrusted relevant scientific institutions, social organizations and other independent third parties to assess the accuracy of processes to identify and to deregister the poor population, to measure the satisfaction of those receiving assistance tailored to the conditions of their own household or village, and other indexes. Other political parties have been encouraged to exercise supervision over poverty alleviation work. The central committees of China’s eight non-CPC parties have been paired up with the eight poorest provinces and equivalent units in central and western China, their main role being to supervise the activities for identifying the poor, and lifting them out of poverty. The state has strengthened supervision over disciplined execution and auditing in poverty alleviation, and launched a special campaign to prevent and address abuses of power in this field. The government has improved the information disclosure mechanism, and set up the hotline “12317” to allow the reporting of misconduct in poverty alleviation work, giving full play to the role of the public in supervision.

六、减贫进入攻坚阶段

VI. Poverty Reduction at a Crucial Stage

中国的减贫事业取得了举世瞩目的伟大成就，谱写了人类反贫困历史上的辉煌篇章，但同时中国政府也清楚地看到，中国减贫面临的形势依然严峻。贫困人口规模较大，贫困程度较深，减贫成本更高，脱贫难度更大，是当前中国减贫面临的主要问题。中国减贫已进入啃硬骨头、攻坚拔寨的冲刺期。

The remarkable achievements of China’s poverty reduction strategy will figure prominently in the history of mankind’s fight against poverty. However, the Chinese government is fully aware that the fight remains tough as the country still has a large population living in profound poverty, and the solutions to their problems are becoming increasingly costly and complex. Faced with these major problems, China has entered the crucial stage of poverty reduction – this will prove a hard nut to crack.

目前，中国减贫所面对的多数是贫中之贫、困中之困，减贫任务十分艰巨。一是数量多。截至2015年年底，全国还有14个集中连片特殊困难地区、832个贫困县、12.8万个建档立卡贫困村，贫困人口达5575万人，相当于中等人口规模国家的总人数。二是难度大。未脱贫人口大多贫困程度更深、自身发展能力较弱，脱贫攻坚成本更高、难度更大。三是时间紧。中国已提出从2016年起，平均每年要减贫1000万人以上。四是易返贫。不少贫困户稳定脱贫能力差，因灾、因病、因学、因婚、因房返贫情况时有发生，新的贫困人口还会出现。

Most of the targets of China’s poverty reduction efforts are now those living in extreme poverty, and this poses formidable problems for the country. The first issue is the scale of the problem. By the end of 2015, there were still 14 contiguous poor areas with special difficulties, 832 impoverished counties, 128,000 registered poor villages, and 55.75 million people living in poverty – this is the equivalent of the entire population of a medium-sized country. The second problem is the nature of the challenge – the increasing cost and complexity resulting from the extreme degree of poverty afflicting the majority of these people, and their weak capacity for development. The third is time pressure – China has set itself the goal of lifting 10 million people out of poverty every year from 2016. The fourth is the high risk of a return to poverty – a large number of poor households struggle to remain free of poverty, and can be pushed back into poverty as a result of factors such as natural disaster, illness, or issues involving education, marriage and housing; they therefore rejoin the existing impoverished population.

图表：2011—2015年农村贫困人口累计减少10992万人

Chart: Rural population lifted out of poverty from 2011 to 2015 totaling 109.92 million

消除贫困、改善民生、实现共同富裕，是社会主义的本质要求，也是中国共产党的重要使命。党的十八大以来，以习近平同志为总书记的党中央为彻底解决贫困问题，让贫困地区人民群众生存权、发展权有更坚实的保障，坚持创新、协调、绿色、开放、共享的新发展理念，充分发挥政治优势和制度优势，把精准扶贫、精准脱贫作为基本方略，坚持扶贫开发与经济社会发展相互促进，坚持精准帮扶与集中连片特殊困难地区开发紧密结合，坚持扶贫开发与生态保护并重，坚持扶贫开发与社会保障有效衔接，举全党全社会之力，坚决打赢脱贫攻坚战。2015年年底，中共中央、国务院发布关于打赢脱贫攻坚战的决定，提出了“十三五”（2016－2020年）脱贫攻坚的总体目标：到2020年，稳定实现农村贫困人口不愁吃、不愁穿，义务教育、基本医疗和住房安全有保障；实现贫困地区农民人均可支配收入增长幅度高于全国平均水平，基本公共服务主要领域指标接近全国平均水平；确保现行标准下农村贫困人口实现脱贫，贫困县全部摘帽，解决区域性整体贫困。2016年3月，《中华人民共和国国民经济和社会发展第十三个五年规划纲要》发布，对全力实施脱贫攻坚总体目标作出战略部署。

It is an essential requirement of socialism as well as a key mission of the CPC as the ruling party to eradicate poverty, improve people’s living standards, and achieve common prosperity among the people. Since the 18th CPC National Congress held in 2012, aimed at eliminating poverty and better protecting the people’s rights to live and to develop in impoverished areas, the CPC Central Committee led by General Secretary Xi Jinping has committed China to pursuing innovative, balanced and eco-friendly development featuring openness and sharing, to making best use of its political and institutional strengths, and to implementing the basic strategy of taking targeted measures for poverty alleviation. The Central Authorities are determined to mobilize all members of the Party and the society to achieve poverty eradication by ensuring that progress in development-oriented poverty alleviation is coordinated with overall economic and social development, by combining two strategies-applying targeted measures for poverty alleviation and developing contiguous poor areas with special difficulties, by attaching equal importance to poverty alleviation and ecological protection, and by integrating poverty alleviation with social security. The CPC Central Committee and the State Council jointly issued the Decision on Winning the Fight Against Poverty at the end of 2015, and defined the overall goals of poverty eradication for the 13th Five-Year Plan period (2016-2020). By 2020, the state is committed to ensuring that the impoverished rural population has stable access to adequate food and clothing, compulsory education, and basic medical services and housing; to realizing a growth rate of per-capita disposable income in poor rural areas higher than the national average; to achieving indices of major basic public services close to the national average levels; to ensuring that the rural population living below the current poverty threshold and all impoverished counties are all lifted out of poverty; and to solving the problems of regional poverty. In March 2016, the Outline of the 13th Five-Year Plan for National Economic and Social Development was released, laying out strategies for striving toward the overall goals of poverty alleviation.

为实现上述目标，中国政府根据2014年年底贫困人口统计数据，分别制定了不同的脱贫方案。第一，通过产业扶持，帮助有劳动能力和生产技能的3000万贫困人口脱贫。第二，通过转移就业，帮助1000万贫困人口脱贫。第三，通过易地搬迁，帮助“一方水土养不起一方人”地区的约1000万贫困人口脱贫。第四，通过全部纳入低保覆盖范围，实现社保政策兜底脱贫。中国政府承诺，在2015年已经完成1442万人脱贫的基础上，从2016年起每年都要完成1000万以上贫困人口的脱贫任务。

Based on statistics collected at the end of 2014 for the population living in poverty, the government has worked out specific schemes to actualize the overall goals: first, helping 30 million people who have the ability to work and possess productive skills to escape from poverty by supporting them in developing their industries; second, helping 10 million people escape from poverty by transferring them to locations where they can find employment; third, helping 10 million people whose land does not provide subsistence to escape from poverty by relocating them to other places; fourth, bringing all the impoverished population under the coverage of the rural subsistence allowance system and eradicating poverty through the guarantee of social security. The government has pledged to lift 10 million people out of poverty every year from 2016 on the basis of 2015 figure of 14.42 million.

中国政府把脱贫攻坚列为工作重点，编制了全国“十三五”脱贫攻坚规划和年度减贫计划。中央政府各部门制定支持脱贫攻坚的具体方案和指导意见。各省区市全面落实中央减贫决定，编制省级“十三五”脱贫攻坚规划，出台包括一个全面推进脱贫攻坚的文件以及若干个配套文件在内的“1+N”精准脱贫系列文件。各行业部门将扶贫内容纳入“十三五”行业专项规划优先安排。

Based on the National Plan for Poverty Alleviation in the 13th Five-Year Plan Period and the Annual Poverty Reduction Plan, central government departments have drawn up specific schemes and guidance for poverty alleviation. Local governments of the provinces and equivalent units have comprehensively implemented the central government plan, worked out local plans for poverty alleviation in the 13th Five-Year Plan period, and published their “1+N” targeted poverty alleviation policies (one over-all policy plus a number of supporting policies). All sectors have included poverty alleviation into their specialized industrial plans in the 13th Five-Year Plan period, and made poverty reduction a priority in implementation.

中国政府为打赢脱贫攻坚战提供充足的财政支持。今后5年，确保政府扶贫投入力度与脱贫攻坚任务相适应，保证脱贫攻坚的需要。中央财政继续加大对贫困地区的转移支付力度，中央财政专项扶贫资金规模实现较大幅度增长，一般性转移支付资金、各类涉及民生的专项转移支付资金和中央预算内投资进一步向贫困地区和贫困人口倾斜。

The government will provide solid financial support to achieve victory in the fight against poverty. In the coming five years, the state will ensure that its funding keeps pace with the needs of poverty alleviation. The central government will continue to increase transfer payments to impoverished areas and ensure substantial growth in central government funds for poverty alleviation. General transfer payments, specialized transfer payments concerning people’s well-being, and investments within the central budget will be tilted in support of impoverished areas and population.

中国一直是世界减贫事业的积极倡导者，国际人权事业的忠实实践者和有力推动者。中国承诺到2020年实现农村贫困人口全部脱贫，既是全面建成小康社会的必要条件，也是落实联合国《2030年可持续发展议程》的重要一步，体现了中国作为负责任大国的历史担当。中国将继续履行与自身发展阶段和发展水平相适应的国际义务，通过对外援助、项目合作、技术扩散、智库交流等多种形式，加强与发展中国家和国际机构在减贫与人权领域的交流合作，共享先进理念和经验，推动世界减贫和国际人权事业健康发展。

China remains an active advocate of the cause of world poverty alleviation, as well as a faithful practitioner and vigorous promoter of the cause of international human rights. China’s commitment to lifting the entire impoverished population in rural areas out of poverty by 2020 is a prerequisite for completing the building of a moderately prosperous society, and a crucial step in implementing the UN 2030 Agenda for Sustainable Development, embodying its sense of responsibility to the world as a major country. China will continue to honor international obligations commensurate with the stage and status of its own development. It will strengthen exchanges and cooperation with developing countries and international organizations in the fields of poverty alleviation and human rights. It will promote the sharing of advanced concepts and experience in these fields through multiple channels such as foreign aid, project cooperation, technology transfer, and think-tank exchanges, in order to advance the vigorous development of the causes of poverty alleviation and human rights throughout the world.