县域精准扶贫规划编制方法与规划管理路径

[摘　要]贫困地区作为我国社会经济发展的“洼地”，其“社会—经济—生态”等多维度复合贫困特征深刻影响了地区间的社会公平与城镇化进程。我国长期以来的扶贫开发绩效不佳，其症结在于行为主体单一、政策维度单一、缺乏综合统筹和未能精准施策。文章结合云南省临翔区的扶贫实践，基于县域范围内不同贫困单元表现出的差异化特征及诉求，科学制定精准扶贫规划，从建设开发、资源配置、环境整治和公众参与等方面建立精准管理机制以提升精准扶贫规划的实施绩效，并对规划实施、脱贫建设等环节进行长效跟踪反馈，动态考核规划实施成果，以实现贫困地区精准脱贫发展。
[关键词]贫困单元；精准扶贫规划；公众参与；长效跟踪；动态考核
[文章编号]1006-0022(2018)12-0018-08　[中图分类号]TU984　[文献标识码]B
[引文格式]耿虹，李彦群，周博为，等．县域精准扶贫规划编制方法与规划管理路径[J]．规划师，2018(12)：18-25．
                                                                                                                                                                                                                                                           
County Level Accurate Poverty Alleviation Planning Compilation and Management/Geng Hong, Li Yanqun, Zhou Bowei, Chen Shi
[Abstract] Poverty-stricken region has complex characters in society-economy-ecology, and it has affected social equity and urbanization process. The bad performance of poverty alleviation in China can be attributed to single subject, single policy, and lack of integration or accurate policy. With poverty alleviation practice in Linxiang district, the paper concludes different characters of poverty stricken units within a county, proposes strategies of planning from construction and development, resource configuration, environmental remediation, and public participation for accurate poverty alleviation, and sets up long-term feedback mechanism in planning implementation and construction, in order to realize dynamic assessment of planning implementation and accurate poverty alleviation.
[Key words] Poverty stricken unit, Accurate poverty alleviation planning, Public participation, Long term monitoring, Dynamic assessment

1贫困现象与精准扶贫规划

1.1贫困与贫困现象
自1978年开展应对经济体制改革的扶贫工作以来，在快速城镇化及各项扶贫政策推动下，我国城乡贫困现象得到显著缓解，绝对贫困人口减少近2.2亿，贫困发生率同步大幅下降。囿于庞大的人口基数特征，我国贫困人口数量仍居高不下，依据国家划定的人均年纯收入2　300元的贫困线标准，截止到2017年底，我国仍有3　046万贫困人口，而根据联合国及世界银行划定的国际贫困线标准①，我国贫困人口总数接近1.2亿，贫困形势仍十分严峻。
受困于自然环境条件恶劣、物质资源分配不均和自主发展意识薄弱等条件，我国中西部出现了大面积团块式集中连片贫困地区，且呈扩大化发展态势。贫困现象的发生使本就落后地区的社会经济发展缺乏内生动力，普遍呈现出基础设施匮乏、教育医疗