In response to the emergence of urban poverty since the mid-1990s, the Government has shifted its emphasis to means-tested social assistance programmes as a major tool for combating poverty and maintaining social stability. As a result, the coverage of the Minimum Living Standard Guarantee System has been growing since the late 1990s, particularly in the coastal areas. In the western and central provinces, however, a significant proportion of the eligible population remains uncovered owing to insufficient funds at the disposal of local governments (Tang, Shaand Ren, 2003). Meanwhile, there is some support for housing, health care, education, employment and social services, but some argue that it needs to be further institutionalized (Leung, 2006).