从“救济”到“治理手段”？——当前农村低保政策的实践分析：以河南F县C镇为例

作为国家推行的一项福利政策，农村低保要实现对农村贫困人群的救助。然而，在现实中，低保政策经历了从“绝对贫困”到“相对贫困”、从以户为单位到以人为单位的扭曲和变通，以至低保政策在某种程度上成为了基层政权的一种治理手段，从而背离了政策的本意。事实上，低保政策执行中出现的种种问题既是监管力度不够及制度建设不到位所导致，更与税费改革后乡村组织的治理困境密切关联。在这个意义上，基层政权的治理状况既是保障低保政策能否顺畅执行的根本，也是一个现代国家基本治理能力强弱的重要体现。

From the "Relief" to "Governance Tool"——The Practice Analysis of Current Rural Minimal Assurance Policy: Taking C Town,F county,Henan Province as an Example

As a welfare policy introduced by China, the rural minimal assurance policy should be used to achieve relief for the rural poor people. However, in reality, the policy is distorted and modificated from ＂absolute poverty＂ to ＂relative poverty＂, from the household as a unit to the individual as a unit, as well as the policy , to some extent , became a governance tool of grass -roots governments, which deviated from the policy$ intention. In fact, problems of implementation of the minimal assurance policy resulted from lack supervision, absent system construction, but also closely linked with the governance plight of rural organizations after tax reform. In this sense, the governance of grassroots political power is not only the foundation of guaranteeing the policy smoothly implemented 1, but also an important manifestation of a modern state＇s basic governance capacity.