“兩線合一”

2007年1月，中央一號(hào)文件要求“在全國(guó)范圍建立農(nóng)村最低生活保障制度”，中國(guó)自此形成了以低保和扶貧開(kāi)發(fā)兩大制度為主干的農(nóng)村扶貧新格局。低保與扶貧開(kāi)發(fā)都是農(nóng)村扶貧減貧和脫貧工作的基本制度安排，兩項(xiàng)制度各具特點(diǎn)和制度優(yōu)勢(shì)，可以形成政策效應(yīng)互補(bǔ)的幫扶合力，在整體上提升農(nóng)村反貧困效果。

然而，低保和扶貧開(kāi)發(fā)是兩項(xiàng)不同的制度安排，兩項(xiàng)制度形成的歷史路徑不一，且有著不同的政策目標(biāo)和政策手段。因此，切實(shí)做好低保和扶貧開(kāi)發(fā)兩項(xiàng)制度的分工協(xié)調(diào)和有效銜接，成為打贏脫貧攻堅(jiān)戰(zhàn)的重要決策部署。《關(guān)于做好農(nóng)村最低生活保障制度與扶貧開(kāi)發(fā)政策有效銜接的指導(dǎo)意見(jiàn)》要求，農(nóng)村低保標(biāo)準(zhǔn)低于國(guó)家扶貧標(biāo)準(zhǔn)的地方，要按照國(guó)家扶貧標(biāo)準(zhǔn)綜合確定農(nóng)村低保的最低指導(dǎo)標(biāo)準(zhǔn)，農(nóng)村低保標(biāo)準(zhǔn)已經(jīng)達(dá)到國(guó)家扶貧標(biāo)準(zhǔn)的地方，要根據(jù)動(dòng)態(tài)調(diào)整機(jī)制科學(xué)調(diào)整。

所謂“兩線合一”，就是實(shí)現(xiàn)低保標(biāo)準(zhǔn)和扶貧標(biāo)準(zhǔn)的統(tǒng)一。自2016年1月起，農(nóng)村低保標(biāo)準(zhǔn)達(dá)到每人每年2808元，與扶貧標(biāo)準(zhǔn)相一致，實(shí)現(xiàn)了“兩線合一”，并根據(jù)物價(jià)上漲水平每年進(jìn)行調(diào)整。農(nóng)村低保標(biāo)準(zhǔn)與扶貧標(biāo)準(zhǔn)同步提高，保障貧困家庭基本生活水平與全面建成小康社會(huì)相適應(yīng)，主要是通過(guò)以下三條途徑來(lái)實(shí)現(xiàn)的：一是對(duì)有一定收入的低保家庭，據(jù)實(shí)核算家庭成員年人均收入，按照人數(shù)足額補(bǔ)差；二是對(duì)無(wú)勞動(dòng)能力、無(wú)任何收入的低保對(duì)象，按照當(dāng)?shù)氐捅?biāo)準(zhǔn)全額補(bǔ)助；三是對(duì)充分享受低保政策，足額領(lǐng)取低保補(bǔ)助金后，生活仍有較大困難的家庭，通過(guò)臨時(shí)救助幫助解決生活困難。

Unifying Two Standards

The No.1 Document issued by the central leadership in January 2007 required the establishment of a rural subsistence allowance system nationwide. This launched a new rural poverty alleviation structure supported by both the subsistence allowance system and development-oriented poverty alleviation.

These two systems have different features and strengths, and their integration will build synergy in providing assistance to those in need, and enhance the impact of anti-poverty efforts in rural areas. As they were originally formed in different historic conditions with different policy goals and means, good planning is needed to coordinate the two systems for effective results.

According to a document released by the central authorities on linking these two systems, where the rural subsistence allowance is lower than the national poverty alleviation allowance, the former will be raised to the level of the latter; where the former has reached the level of the latter, rational adjustments may be made if necessary. In this way, the two standards will be roughly unified.

Since 2016, the level of rural subsistence allowance has been raised to 2,808 yuan per person per year, the same as the national poverty alleviation allowance, and the figure will be adjusted in accordance with price rises every year. The living standards of poor households thus will grow in parallel with the country's overall progress in building a moderately prosperous society.

There are three ways to synchronize these measures.

(1) For households living on subsistence allowances despite other income, the per-capita yearly income of their family members will be calculated and any of the deficit will be made up;

(2) For people living on subsistence allowances who have no ability to work and no income at all, full allowances will be provided in line with local subsistence allowance standards; and

(3) For those who still experience severe difficulties even after receiving the subsistence allowances, temporary assistance will be provided to mitigate their problems.