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The Development-oriented Poverty Reduction Programe for Rural China
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中国的农村扶贫开发
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【法宝引证码】
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Foreword
China is the largest developing country in the world, its population making up about 22 percent of the earth's total. For quite a long time in the past, China was bedeviled by poverty, for various reasons.
Since the founding of the People's Republic of China in 1949, and especially since the end of the 1970s, when China introduced the policy of reform and opening to the outside world, the Chinese Government, while devoting considerable efforts to all-round economic and social development, has implemented nationwide a large-scale program for development-oriented poverty relief in a planned and organized way. With the main objective of helping poverty-stricken people to solve the problem of food and clothing, this program has gone a long way toward alleviating poverty. Between 1978 and 2000, the number of poverty-stricken people without enough to eat and wear in the rural areas decreased from 250 million to 30 million, and the proportion of poverty-stricken people in the total rural population dropped from 30.7 percent to about three percent. The strategic objective set by the Chinese Government for enabling all poverty-stricken people in rural areas to have enough to eat and wear by the end of the 20th century has basically been realized.
The following is an introduction to China's development-oriented poverty relief for the rural areas:
| | 前 言
中国是世界上最大的发展中国家，人口约占世界总人口的22％。在过去相当长的时期里，由于诸多原因，贫困一直困扰着中国。
1949年中华人民共和国成立后，特别是自二十世纪七十年代末实行改革开放政策以来，中国政府在致力于经济和社会全面发展的进程中，在全国范围内实施了以解决贫困人口温饱问题为主要目标的有计划、有组织的大规模扶贫开发，极大地缓解了贫困现象。从1978年到2000年，中国农村没有解决温饱的贫困人口由2.5亿人减少到3000万人，贫困人口占农村总人口的比例由30.7％下降到3％左右，中国政府确定的到二十世纪末解决农村贫困人口温饱问题的战略目标基本实现。
这里就中国农村扶贫开发的有关情况作一介绍。
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I.The Course and Achievements of the Aid-the-Poor Program
Since the founding of New China, the Chinese Government has spared no effort to develop production and eliminate poverty. However, in the strict sense, the help-the-poor program was put forward and implemented on a large scale only after the initiation of the reform and opening-up. From 1978 to 2000, this program largely underwent the following three stages:
The First Stage: Structural Reform Promotes Poverty Relief (1978-1985)
In 1978, the poverty-stricken population numbered 250 million, making up 30.7 percent of the total rural population, according to the poverty standard designated by the Chinese Government. There were many causes giving rise to such a large number of poverty-stricken people, of which the main one was that the operation system in agriculture did not suit the needs of the development of the productive forces, so that peasants lacked the enthusiasm for production. In this way, reform of the system became the main way to alleviate poverty.
The reform that China started in 1978 was, first and foremost, a reform of the land management system, i.e., replacing the collective management system of the people's commune with the household contract responsibility system. This change of the land system kindled the peasants' real enthusiasm for labor, thus greatly liberating the productive forces and improving the land output. Meanwhile, many other reforms, such as gradually relaxing control over the prices of agricultural products and devoting major efforts to developing township enterprises, opened new ways for solving the problem of poverty in the rural areas. These reforms accelerated the development of the national economy, and conveyed benefits on the poverty-stricken people in three ways-raising the prices of agricultural products, transforming the agricultural production structure and orienting it toward higher added value, and employing rural laborers in non-agricultural sectors, thus enabling impoverished people to shake off poverty and become well-off and greatly alleviating poverty in the rural areas.
According to statistics, from 1978 to 1985 grain output per capita increased by 14 percent in the countryside, cotton by 73.9 percent, oil-bearing crops by 176.4 percent, and meat by 87.8 percent; the net income per peasant grew by 3.6 times; the number of poverty-stricken people with problems feeding and clothing themselves decreased from 250 million to 125 million, to shrink to 14.8 percent of the total population in the rural areas; and the number of poverty-stricken people went down by 17.86 million annually on average.
The Second Stage: Large-scale Development-oriented Poverty Relief Drive (1986-1993)
In the mid-1980s, the economy of the overwhelming majority of the rural areas in China, stimulated by the policy of reform and opening-up and relying on their own advantages, grew by leaps and bounds, but a small number of areas still lagged behind somewhat because of economic, social, historical, natural and geographical conditions. The disparity-economic, social and cultural-between the poverty-stricken areas and other areas, especially that between the poverty-stricken areas and the coastal advanced areas in the east, gradually widened. The uneven development in the Chinese countryside became marked. Quite a number of low-income people could not meet their basic needs for subsistence.
To further strengthen poverty relief, the Chinese Government has adopted a series of important measures since 1986, such as setting up special help-the-poor work units, allocating special funds, formulating special favorable policies, thoroughly reforming the traditional relief-type approach, and putting forward the development-oriented poverty reduction policy. Since then, the Chinese Government has set in motion a nationwide development-oriented poverty reduction drive in a big and planned way, and China's help-the-poor work has entered a new historical period. Thanks to the efforts made over the past eight years, the net income per peasant in the poverty-stricken counties to which the Chinese Government had attached special importance increased from 206 yuan in 1986 to 483.7 yuan in 1993; the number of the rural poor dropped from 125 million to 80 million, with an annual decrease of 6.4 million on average, and an average annual decrease rate of 6.2 percent; and the proportion of poverty-stricken people in the total rural population went down from 14.8 percent to 8.7 percent.
The Third Stage: Tackling Key Problems of Poverty Relief (1994-2000)
Along with the deepening of the rural reform and the constant strengthening of development-oriented poverty relief, the number of the poverty-stricken people has shrunk year by year; great changes have taken place in the features of poverty; and the distribution of the poverty-stricken population shows obvious geographical characteristics, i.e. most poverty-stricken people live in central and western China, in the barren rocky mountain area of southwest China, the arid Loess Plateau in northwest China and the impoverished Qinling and Daba mountain areas (which suffer from rugged terrain, a shortage of arable land, poor transportation conditions and serious soil erosion), and the frigid Qinghai-Tibet Plateau. The main factors behind poverty are adverse natural conditions, weak infrastructure and backward social development.
Marked by the promulgation and implementation of the Seven-Year Priority Poverty Alleviation Program (a program designed to lift 80 million people out of absolute poverty in the period of seven years from 1994 to 2000) in March 1994, China's development-oriented poverty-relief work entered the stage of tackling the key problems. The Seven-Year Priority Poverty Alleviation Program clearly stipulated that China should concentrate human, material and financial resources, mobilize the forces of all walks of life in society and work hard to basically solve the problem of food and clothing of the rural needy by the end of 2000. It was the first action program for development-oriented poverty reduction with clear and definite objectives, targets, measures and a time limit.
For three years running (1997-1999), China solved the problem of food and clothing for eight million people a year-a record high in the 1990s. By the end of 2000, the basic objectives of the Seven-Year Priority Poverty Alleviation Program had been realized by and large.
Thanks to the arduous and unremitting efforts in the past more than two decades, China has made tremendous achievements in its drive to assist with the development of the poor areas.
-The problem of food and clothing for more than 200 million rural poor has been solved. The number of poverty-stricken people in rural areas with problems obtaining sufficient food and clothing decreased from 250 million in 1978 to 30 million in 2000; and the impoverishment rate there decreased from 30.7 percent to about three percent. Of this, the number of poverty-stricken people in the impoverished counties to which the Chinese Government gave priority in its poverty alleviation efforts decreased from 58.58 million in 1994 to 17.1 million in 2000, involving mainly the destitute people living in areas with adverse natural conditions, a small number of people receiving social security assistance and some handicapped people.
-Production and living conditions have remarkably improved. During the 15 years from 1986 to 2000, 99.15 million mu (one mu = 1/15 ha) of basic farmland was constructed in poverty-stricken rural areas, and the problem of drinking water for more than 77.25 million people and more than 83.98 million draught animals were solved. By the end of 2000, 95.5 percent of the administrative villages in the poverty-stricken areas had electricity, 89 percent were accessible by road, 69 percent had postal service, and 67.7 percent could be reached by telephone.
-Economic development has been speeded up remarkably. During the implementation of the Seven-Year Priority Poverty Alleviation Program, the agricultural added value of the poverty-stricken counties to which the Chinese Government gave priority in poverty alleviation went up by 54 percent, with an average annual growth rate of 7.5 percent; their industrial added value grew by 99.3 percent, with an average annual growth rate of 12.2 percent; their local financial revenue almost doubled, with an average annual growth rate of 12.9 percent; grain output rose by 12.3 percent, with an average annual growth rate of 1.9 percent; and the net income per peasant increased from 648 yuan to 1,337 yuan, with an average annual growth rate of 12.8 percent.
-Social undertakings have developed quickly. The hitherto-rapid population growth in the poverty-stricken areas has been on the whole put under control, and the population's natural growth rate has decreased. The conditions for running schools have improved, and remarkable progress has been made in the work for basically popularizing nine-year compulsory education and that for basically eliminating illiteracy among the young and middle-aged. Of the 592 poverty-stricken counties to which the state gives priority in poverty relief, 318 have attained the aforementioned two objectives. Both vocational and adult education has progressed at seven-league strides, thus effectively improving the quality of workers. The town and township hospitals in most of the poor areas have been revamped or rebuilt. As a result, the shortage of doctors and medicines has been alleviated. A large number of practical agrotechniques have been popularized, and the level of scientific farming has improved remarkably. Ninety-five percent of administrative villages in poor areas can receive radio and TV programs; the cultural life of the people in these areas has improved; and their mental outlook has changed tremendously.
-Some poverty-stricken areas which lie in vast, contiguous stretches have solved the problem of food and clothing as have the Yimeng, Jinggang and Dabie mountain areas, southwest Fujian and other old revolutionary base areas. Great changes have taken place in some remote mountain areas and areas inhabited by ethnic minority people. Dingxi Prefecture in Gansu Province and Xihaigu Prefecture in the Ningxia Hui Autonomous Region, once known as the "poorest places on earth," have vastly improved their infrastructure facilities and basic production conditions after many years of effort, and their poverty-stricken state has been greatly alleviated.
| | 一、扶贫开发的历程与成就
新中国成立后，中国政府一直致力于发展生产、消除贫困的工作。但真正严格意义上的扶贫，是在改革开放以后提出并大规模实施的。从1978年到2000年，中国的扶贫开发大致经过了三个阶段。
第一阶段：体制改革推动扶贫阶段（1978-1985年）
1978年，按中国政府确定的贫困标准统计，贫困人口为2.5亿人，占农村总人口的30.7%。导致这一时期大面积贫困的原因是多方面的，主要是农业经营体制不适应生产力发展需要，造成农民生产积极性低下。因此，制度的变革就成为缓解贫困的主要途径。
中国自1978年开始的改革，首先是土地经营制度的变革，即以家庭承包经营制度取代人民公社的集体经营制度。这种土地制度的变革极大地激发了农民的劳动热情，从而极大地解放了生产力，提高了土地产出率。与此同时，在农村进行的农产品价格逐步放开、大力发展乡镇企业等多项改革，也为解决农村的贫困人口问题打开了出路。这些改革，促进了国民经济快速发展，并通过农产品价格的提升、农业产业结构向附加值更高的产业转化以及农村劳动力在非农领域就业三个方面的渠道，将利益传递到贫困人口，使贫困农民得以脱贫致富，农村贫困现象大幅度缓解。
据统计，从1978年到1985年，农村人均粮食产量增长14%，棉花增长73.9%，油料增长176.4%，肉类增长87.8%；农民人均纯收入增长了2.6倍；没有解决温饱的贫困人口从2.5亿人减少到1.25亿人，占农村人口的比例下降到14.8％；贫困人口平均每年减少1786万人。
第二阶段：大规模开发式扶贫阶段（1986-1993年）
二十世纪八十年代中期，在改革开放政策的推动下，中国农村绝大多数地区凭借自身的发展优势，经济得到快速增长，但少数地区由于经济、社会、历史、自然、地理等方面的制约，发展相对滞后。贫困地区与其他地区，特别是与东部沿海发达地区在经济、社会、文化等方面的差距逐步扩大。中国农村发展不平衡问题凸现出来，低收入人口中有相当一部分人经济收入不能维持其生存的基本需要。
为进一步加大扶贫力度，中国政府自1986年起采取了一系列重大措施：成立专门扶贫工作机构，安排专项资金，制定专门的优惠政策，并对传统的救济式扶贫进行彻底改革，确定了开发式扶贫方针。自此，中国政府在全国范围内开展了有计划、有组织和大规模的开发式扶贫，中国的扶贫工作进入了一个新的历史时期。经过八年的不懈努力，国家重点扶持贫困县农民人均纯收入从1986年的206元增加到1993年的483.7元；农村贫困人口由1.25亿人减少到8000万人，平均每年减少640万人，年均递减6.2%；贫困人口占农村总人口的比重从14.8%下降到8.7%。
第三阶段：扶贫攻坚阶段（1994-2000年）
随着农村改革的深入发展和国家扶贫开发力度的不断加大，中国贫困人口逐年减少，贫困特征也随之发生较大变化，贫困人口分布呈现明显的地缘性特征。这主要表现在贫困发生率向中西部倾斜，贫困人口集中分布在西南大石山区（缺土）、西北黄土高原区（严重缺水）、秦巴贫困山区（土地落差大、耕地少、交通状况恶劣、水土流失严重）以及青藏高寒区（积温严重不足）等几类地区。导致贫困的主要因素是自然条件恶劣、基础设施薄弱和社会发育落后等。
以1994年3月《国家八七扶贫攻坚计划》的公布实施为标志，中国的扶贫开发进入了攻坚阶段。《国家八七扶贫攻坚计划》明确提出，集中人力、物力、财力，动员社会各界力量，力争用七年左右的时间，到2000年底基本解决农村贫困人口的温饱问题。这是新中国历史上第一个有明确目标、明确对象、明确措施和明确期限的扶贫开发行动纲领。
在1997年至1999年这三年中，中国每年有800万贫困人口解决了温饱问题，是进入二十世纪九十年代以来中国解决农村贫困人口年度数量最高水平。到2000年底，国家"八七"扶贫攻坚目标基本实现。
经过20多年不懈的艰苦奋斗，中国的扶贫开发取得了巨大成就。
解决了两亿多农村贫困人口的温饱问题。农村尚未解决温饱问题的贫困人口由1978年的2.5亿人减少到2000年的3000万人，农村贫困发生率从30.7％下降到3％左右。其中，国家重点扶持贫困县的贫困人口从1994年的5858万人减少到2000年的1710万人。这些人主要是生活在自然条件恶劣地区的特困人口、少数社会保障对象以及部分残疾人。
生产生活条件明显改善。1986年到2000年的15年间，在中国农村贫困地区修建基本农田9915万亩，解决了7725万多人和8398万多头大牲畜的饮水困难。到2000年底，贫困地区通电、通路、通邮、通电话的行政村分别达到95.5%、89％、69％和67.7％。
经济发展速度明显加快。"八七"扶贫攻坚计划执行期间，国家重点扶持贫困县农业增加值增长54％，年均增长7.5％；工业增加值增长99.3%，年均增长12.2％；地方财政收入增加近1倍，年均增长12.9％；粮食产量增长12.3％，年均增长1.9％；农民人均纯收入从648元增加到1337元，年均增长12.8％。
各项社会事业发展较快。贫困地区人口过快增长的势头得到初步控制，人口自然增长率有所下降。办学条件得到改善，"两基"工作（即基本普及九年义务教育和基本扫除青壮年文盲）成绩显著，592个国家重点扶持贫困县中有318个实现了"两基"目标。职业教育和成人教育发展迅速，有效地提高了劳动者素质。大多数贫困地区乡镇卫生院得到改造或重新建设，缺医少药的状况得到缓解。推广了一大批农业实用技术，农民科学种田的水平明显提高。贫困地区95％的行政村能够收听收看到广播电视节目，群众的文化生活得到改善，精神面貌发生了很大变化。
解决了一些集中连片贫困地区的温饱问题。沂蒙山区、井冈山区、大别山区、闽西南地区等革命老区群众的温饱问题已经基本解决。一些偏远山区和少数民族地区，面貌也有了很大的改变。历史上"苦瘠甲天下"的甘肃定西地区和宁夏的西海固地区，经过多年开发建设，基础设施和基本生产条件明显改善，贫困状况大为缓解。
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II.Policy Guarantee for the Aid-the-Poor Program
The poverty of China's rural areas is a problem that arose over long years in the past. Impoverished regions in China are characterized mainly by a large area and population sunk in poverty. Based on its understanding of the basic national conditions, especially the reality of the poverty-stricken areas and people, the Chinese Government has formulated a policy for development-oriented poverty alleviation that conforms to the reality in China. It sets mainly solving the problem of food and clothing of the rural poor as its basic objective and central task in this regard, starting from the most urgent problems, acting according to its capability, giving priority to key areas, and advancing step by step.
Defining the Standard of Poverty in Conformity with the National Conditions
China is a developing country with a large population, a meager heritage and an underdeveloped economy, especially in the rural areas. In terms of the poverty-stricken areas in China, the underdevelopment is mainly reflected in the following: First, weak infrastructure. In the western region, where most of these areas are located, although the territory is over two-thirds of the nation's total, the proportions of railways, highways and civil aviation facilities are relatively low. Second, a rapidly growing population, and the low level of education, public health and other basic social services. In contrast to the backward economy, the poverty-stricken areas are usually noted for their rapidly growing populations. Due to the poor conditions for running schools and backward education facilities, a great number of school-age children are unable to go to school or obliged to discontinue their studies, and the illiteracy rate of the young and middle-aged is high. These areas are also characterized by a very low level of health care work. Third, poor agricultural production conditions, low revenue, and seriously inadequate public input. In 1986, the per-capita motive power of agricultural machinery in the counties on the state's priority poverty relief list accounted for only 50 percent of the national average. In 1993, the per-capita revenue in these counties was 60 yuan, only about 30 percent of the national average.
In accordance with the above-mentioned actual conditions, it is necessary to fix a realistic standard of poverty for China's help-the-poor work. The earliest standard was calculated by the relevant government departments in 1986, on the basis of the investigations of the consumption expenditures of 67,000 rural households, i.e., the standard of 206 yuan in per-capita net income in rural areas in 1985. It was equivalent to 300 yuan in 1990 and 625 yuan in 2000.
China's standard of poverty is the standard of the lowest expense to maintain one's basic subsistence. It can guarantee the basic living needs of the rural poor in China and, therefore, is an objective standard and also one that conforms to the reality in China.
Defining the Key Poverty-stricken Counties to Be Aided by the State
To use poverty relief funds in a unified way, and effectively aid the poor and needy, the Chinese Government has formulated the standard of the key poverty-stricken counties to be aided by the state, and identified a number of such counties.
．．．．．． | | 二、扶贫开发的政策保障
中国农村的贫困问题是历史上长期形成的。贫困面积大、贫困人口多、贫困程度深是过去相当长一个时期中国贫困地区的主要特征。基于对本国国情的把握，特别是对贫困地区和贫困人口实际情况的认识，中国政府制定了符合国情的扶贫开发政策，把扶贫开发的基本目标和中心任务放在主要解决农村贫困人口的温饱问题上，从最紧迫的问题入手，量力而行，确保重点，分阶段推进。
制定符合国情的贫困标准
中国是一个发展中国家，人口多，底子薄，经济不发达，农村尤其不发达。就中国的贫困地区而言，这种不发达主要表现在：一是基础设施薄弱。贫困地区较为集中的西部地区，虽然土地面积占全国的三分之二以上，但铁路、公路和民航设施所占比重却相对偏低。二是人口增长过快，教育、卫生等基本社会服务水平低。与经济落后成为对比的是，贫困地区往往又是人口增长最快的地区。办学条件差，教育设施落后，适龄儿童失学和辍学率较高，青壮年文盲比例较大。卫生保健水平也很低。三是农业生产条件差，财政收入水平低，公共投入严重不足。1986年国家重点扶持贫困县人均拥有农业机械总动力仅为全国平均水平的50％。1993年国家重点扶持贫困县人均财政收入仅为60元，只相当于全国平均水平的30％左右。
上述贫困地区的实际情况，决定了中国扶贫工作要有一个比较现实的贫困标准。中国贫困人口的标准最初是1986年由中国政府有关部门在对6.7万户农村居民家庭消费支出调查的基础上计算得出的，即1985年农村人均纯收入206元的标准。到1990年这一标准相当于300元，2000年为625元。
中国的贫困标准是一个能够维持基本生存的最低费用标准，可以确保农村贫困人口最基本的生存需要，因而是客观的，也是符合中国实际的。
确定国家重点扶持贫困县
为了集中使用扶贫资金，有效地扶持贫困人口，中国政府制定了国家重点扶持贫困县的标准，确定了一批国家重点扶持贫困县。
中国政府于1986年第一次确定了国家重点扶持贫困县标准：以县为单位，1985年农民年人均纯收入低于150元的县。此后，随着经济的发展，特别是贫困地区经济状况的不断改善，对贫困县的标准也及时作出调整。1994年，中国政府重新调整了国家重点扶持贫困县的标准。具体标准是：以县为单位，凡是1992年农民人均纯收入低于400元的县全部纳入国家重点贫困县扶持范围；凡是1992年人均纯收入高于700元的原国家重点扶持贫困县，一律退出国家扶持范围（根据当时的典型测算，凡是超过700元的县，90%以上的贫困人口基本上解决温饱问题）。依据这个标准，列入《国家八七扶贫攻坚计划》的国家重点扶持的贫困县共有592个，分布在27个省、自治区、直辖市，涵盖了全国72%以上的农村贫困人口。此后，中央政府采取的一系列扶贫开发政策措施，主要是围绕解决国家重点扶持县贫困群众温饱而制定的。
通过对贫困县的集中有效扶持，带动了全国农村贫困问题的解决。特别是在扶贫资金方面，国家明确要求，中央的各项扶贫资金都用于这些贫困县。1996年中央政府又进一步对各省、自治区、直辖市提出了最低配套资金比例（30%至50%），以保证地方配套的扶贫资金用在国家重点贫困县。
扶贫重点向中西部贫困地区倾斜
向中西部地区重点倾斜是中国扶贫开发的一项重要战略举措。中国经济发展的区域特征十分明显，东部沿海地区充分利用自身优势率先发展，中部次之，西部相对落后。与此相关，中国农村贫困人口的绝大多数集中在中西部，尤其是西部，并呈块状、片状分布在高原、山地、丘陵、沙漠等地区。这些地区是中国贫困人口最多、贫困程度最深、贫困结构最复杂的地区。在1994年中国政府确定的592个国家重点扶持贫困县中，中西部地区占82%。
从1994年起，中国政府开始调整国家扶贫资金投放的地区结构：把用于沿海经济比较发达省的中央扶贫信贷资金调整出来，集中用于中西部贫困状况严重的省、自治区；中央新增的财政扶贫资金只支持中西部贫困地区。同时，国家从全局着眼，制定优惠政策，积极推动东部地区与西部地区的横向联合和对口扶贫协作。
为加快西部地区的发展，缩小地区间发展差距，近年来中国开始实施西部大开发战略。国家在西部地区优先安排基础设施、生态环境和资源开发等建设项目，并不断加大对西部地区的投入和财政转移支付力度，为推动西部地区发展和贫困人口解决温饱问题发挥了重要作用。
加大扶贫开发投入力度
近20年来，随着国家财力的增强，中国政府安排的专项扶贫投入不断增加。2000年中央各项扶贫专项资金达到了248亿元，与1980年相比，增加了30倍。中国政府安排的扶贫专项资金累计达到了1680多亿元，其中财政资金800多亿元（含以工代赈资金390多亿元），信贷扶贫资金880亿元。按照中央要求的配套比例（1996年以后为30%至50%），地方政府扶贫投入的力度也相应加大。
中国政府专项扶贫资金主要包括两大类：财政扶贫资金和信贷扶贫资金。财政扶贫资金又包括支援不发达地区发展资金、新增财政扶贫资金、以工代赈资金等。1997年，国务院为了加强对各类扶贫资金的管理，提高使用效益，制定了统一的《国家扶贫资金管理办法》。该办法对各类扶贫资金的扶持对象、条件等作了明确规定，强调各类扶贫资金要根据扶贫攻坚的总体目标和要求，配套使用，形成合力，发挥整体效益。不同渠道的扶贫资金的投入重点是：财政扶贫资金主要用于建设基本农田、兴修小型水利工程、解决人畜饮水困难、修建乡村道路、科技培训和推广农业实用技术等；扶贫信贷资金主要用于增加贫困户当年收入的种养业项目。同时，各级扶贫工作专门机构加强对扶贫资金管理使用的检查、监督。审计部门对扶贫资金的使用情况严格审计，发现问题及时查处。这些措施，对提高扶贫资金使用效益、如期实现基本解决贫困人口温饱问题的目标发挥了关键作用。
制定支持贫困地区、贫困农户发展的优惠政策
中国扶贫开发的优惠政策包括帮助贫困户解决温饱和支持贫困地区经济开发两个方面。
帮助贫困农户发展的优惠政策有：对尚未解决温饱问题的贫困户，免除粮食定购任务；根据实际情况，适当延长扶贫贷款的使用期限，放宽抵押和担保条件；按照农业税条例的有关规定，减免农业税和农业特产税。
支持贫困地区经济开发的优惠政策有：中央政府逐步加大对贫困地区的财政转移支付力度，各有关省、自治区、直辖市建立二级转移支付制度，为贫困地区提供财力支持。对贫困县新办企业和发达地区到贫困地区兴办的企业，在三年内免征所得税；根据谁受益、谁负担的原则，适当提高库区建设基金和库区维护基金标准，专项用于解决水库移民的温饱问题。
落实扶贫工作责任制
为使扶贫开发工作得到有效开展，中国政府于1986年6月成立了国务院贫困地区经济开发领导小组（1993年更名为国务院扶贫开发领导小组），专门负责组织、领导、协调、监督、检查贫困地区的扶贫开发工作。一些省、自治区、直辖市和地（市）、县级政府也成立了相应的组织机构，负责本地的扶贫开发工作。
中国的扶贫开发实行分级负责、以省为主的行政领导扶贫工作责任制。各省、自治区、直辖市，特别是贫困面积较大的省、自治区，都把扶贫开发列入重要议程，根据国家扶贫开发计划制定本地区的具体实施计划。各省、自治区、直辖市的主要负责人亲自抓扶贫工作，并负总责。中央的各项扶贫资金在每年年初一次下达到各省、自治区、直辖市，实行扶贫资金、权力、任务、责任"四个到省（自治区、直辖市）"。所有到省的扶贫资金一律由省级人民政府统一安排使用，并由各有关部门规划和实施项目。
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