城市贫困人口社会救助主体的救助责任研究

发布时间：2018-04-23 10:20

  本文选题：城市贫困人口 + 社会救助主体　； 参考：《山东大学》2016年博士论文

【摘要】：当前中国城市当中存在着大量贫困人口,并且有些贫困家庭已经出现了贫困的代际传递现象。为救助城市贫困人口,中国政府一方面建立了综合性的社会救助体系,另一方面又积极动员其他的社会主体积极介入城市贫困治理。虽然政府及学界均主张社会救助主体应当多元化,但对社会救助主体所应承担的责任,尤其是社会组织、家庭承担何种救助责任又疏于研究。基于此,本文以福利组合理论为基础,通过文献法、访谈法、问卷法,以山东省为例,分析了城市贫困人口社会救助主体——国家、社会组织与家庭的救助现状、救助困境等,并就救助主体的救助责任及其实现问题做了研究。另外,本文对社会救助主体如何实现衔接的问题也进行了探索。具体而言,本文的主要内容如下：首先,社会救助主体的救助责任现状表现为：(1)国家业已建立了综合性的社会救助体系,并投入了大量救助资金。低保制度救助了大量城市绝对贫困人口并解决了他们的温饱问题,低保水平呈现逐年增长的趋势；医疗救助行为愈加规范化且医疗救助的对象比较公平,医疗救助制度给贫困人口产生了综合性的福利效应；就业援助制度呈现了法制化、多样化、社会化的特点；在住房救助方面,各级政府投入了大量住房保障资金以保障贫困人口的住房权利,住房救助减轻了贫困人口的住房负担,并在一定程度上提升了贫困人口的住房福利水平。总之,国家的救助责任是一种法律责任,并且国家的救助责任应当处于绝对的主导地位。(2)社会组织的救助责任主要基于道义责任,是对国家救助的重要补充。调查显示,女性、健康状况不好、残疾者等贫困人口更容易获得社会组织的救助；近四成的贫困人口获得过社会组织的救助；社会组织遵循着严格的选择性的救助原则,并在一定程度上缓解了贫困人口的经济压力,也能够为贫困人口提供专业化的服务。(3)以伦理为本位的中国社会,赋予了家庭较多的责任。家庭的救助责任主要出于伦理责任。调查发现,向城市贫困人口提供帮助的个人中,前三位均是直系亲属；有超过一半的受访者认为,家庭救助“非常重要”；生活照顾、借钱和帮助看病为家庭救助的主要内容；从个人救助的角度看,对城市贫困人口的救助仍然带有“家庭化”的倾向。其次,社会救助主体面临的救助困境为：(1)整体而言,社会救助制度存在着救助水平低、社会救助覆盖范围下、社会救助法律效力不强等方面的问题。具体看,低保制度存在着配套政策不完善、低保工作效率低、城市间的低保水平差距明显等问题。医疗救助制度则面临着医疗救助对象少、救助病种范围小、医疗救助的金额少、慢性病得不到救助等问题,并且医疗救助制度侧重事后补救型而非事前预防。就业救助制度对贫困人口及其家人的再就业发挥的实际作用并不显著,尤其是难以解决他们的结构性就业问题；政府不够重视贫困人口再就业后的劳动关系；在特定时期,贫困人口的再就业问题还会受到政府的严格管控。在住房保障制度方面,保障性住房存在着供给量不足以及空间隔离现象。另外,保障房还存在着分配的不公平性以及一些住房保障资金被挪用等问题。(2)社会组织面临的救助困境为：宗教组织受制于身份属性,致使它们的救助行为受到一定的限制；民办慈善组织经济实力不强,难以扩大社会救助对象；官办慈善组织的公信力受到严重质疑,影响着整个慈善救助事业的发展；社工机构面临着资金匮乏的问题,以及某些社工机构在着救助的自主性与专业性方面存在着不足。(3)由于家庭关系发生变迁,家庭救助的可持续性面临着严峻挑战；当前以核心家庭结构为主的家庭形态,致使家庭的救助网络缩小；家庭成员的救助意愿和经济条件影响着家庭的救助功能。再次,本文梳理了英美两个发达国家的社会救助主体所承担的救助责任,并从中得到了如下启示：国家应通过法律的方式,规范社会救助行为；国家需要对贫困人口进行分类救助；国家应鼓励有劳动能力的贫困人口树立以工作代替福利的就业援助理念；应合理划分中央政府与地方政府的救助责任；国家应为社会组织创造便利条件,以救助贫困人口；国家要强化家庭的救助责任。然后,本文提出了中国社会救助主体救助责任的发展取向及其实现的问题。其中,国家要承担扩大社会救助对象范围的责任以及提高社会救助水平的责任,国家还应当积极承担社会救助领域立法的责任、转变社会救助制度价值理念的责任、中央政府承担较大社会救助财政支出的责任、承担对贫困人口精准救助的责任、承担提高贫困人口家庭发展能力的责任。国家救助责任的实现,需要各级政府在救助贫困人口时,树立契约型的救助理念；并且需要人们由感恩型的救助观转向问责型的救助观。社会组织承担着补缺或补充的救助责任,承担向贫困人口提供物质救助、资金救助、劳动技能培训的责任,以及向贫困人口传递“助人自助”理念以及赋权的责任。社会组织救助责任的实现,既需要国家从法律、资金等方面支持社会组织开展社会救助,也需要社会组织加强自身的社会救助能力建设。家庭承担着向贫困人口进行日常生活的帮扶责任、向贫困家庭老年人照顾的责任、对困境家庭儿童的监护责任和对贫困残疾人的保护责任。家庭救助责任的实现,一方面国家需要做好家庭伦理责任的宣传,另一方面需要国家对家庭的救助行为采取相应的激励措施。最后,为实现社会救助主体救助效应的最大化,社会救助主体之间需要做好合作与衔接,并需加强如下四个方面的机制建设：社会救助主体间的平等协商机制建设、社会救助信息的共享机制建设、社会救助资源的互补机制建设和社会救助项目的协作机制建设。
[Abstract]:In the current Chinese cities, there are a large number of poor people, and some poor families have appeared intergenerational transmission of poverty. In order to save the urban poor, the Chinese government has established a comprehensive social assistance system on the one hand, and on the other hand, it actively mobilize other social organizations to actively intervene in urban poverty control. Although the government has been actively involved in urban poverty control. And the academic circles all claim that the main body of social assistance should be diversified, but the responsibility that the main body of social assistance should bear, especially the social organization, and what kind of relief responsibility of the family should be neglected. Based on this, this article, based on the theory of welfare combination, through the literature, interview and questionnaire, takes Shandong Province as an example to analyze the urban poor population society. It will help the main body - the state, the status of the social organization and the family, the rescue plight and so on. It also makes a study on the relief responsibility and the realization of the salvation subject. In addition, this paper also explores the problem of how to achieve the cohesion of the social assistance subject. In particular, the main contents of this article are as follows: first, the rescue of the main body of social assistance. The status of the assistance responsibility is as follows: (1) the state has established a comprehensive social assistance system and invested a large amount of aid funds. The low insurance system has saved a large number of urban absolute poverty population and solved their food and clothing problems. The level of low insurance has been increasing year by year; medical assistance is becoming more standardized and the target of medical assistance. It is fairly fair that the system of medical assistance has produced a comprehensive welfare effect to the poor; the employment assistance system presents the characteristics of legalization, diversification and socialization; in housing assistance, the governments at all levels have invested a large number of housing security funds to protect the housing rights of the poor, and housing assistance alleviated the housing burden of the poor. In a word, the relief responsibility of the state is a legal responsibility, and the responsibility of the state should be in an absolute dominant position. (2) the responsibility of the social organization is mainly based on the moral responsibility, which is an important supplement to the national salvation. Poor people, such as the disabled, are more likely to get assistance from social organizations; nearly 40% of the poor have been saved by social organizations; social organizations follow a strict and selective principle of assistance, and to a certain extent alleviate the economic pressure of the poor and provide professional services for the poor. (3) The ethics based Chinese society gives the family more responsibility. The responsibility of the family is mainly due to ethical responsibility. The survey found that among the individuals who provide help to the urban poor, the top three are all direct relatives; more than half of the respondents believe that family assistance is "very important"; living care, borrowing money and helping see a doctor. For the main content of family assistance; from the point of view of personal assistance, the relief to the urban poor still has the tendency of "family". Secondly, the rescue plight of the main body of social assistance is as follows: (1) as a whole, the social assistance system has a low level of relief, under the coverage of social assistance, the legal effect of social assistance is not strong. In particular, there are some problems in the low insurance system, such as imperfect supporting policies, low efficiency of low insurance work, and obvious gap between the low level of the city. The medical assistance system is faced with the problems of fewer medical assistance objects, small scope of medical assistance, less amount of medical assistance, and the lack of assistance in the medical assistance, and the medical assistance system. The actual effect of the employment assistance system on the reemployment of the poor and their families is not significant, especially it is difficult to solve their structural employment problems; the government does not pay enough attention to the labor relations after the reemployment of the poor; the problem of the reemployment of the poor in the special time period will be Under the strict control of the government. In the housing security system, there is a shortage of supply and space isolation in the housing security system. In addition, the unfairness of the distribution and the misappropriation of some housing security funds are also existing in the guarantee housing. (2) the rescue dilemma faced by the social organization is that the religious organization is subject to the identity attribute, Their rescue behavior is limited; the economic strength of private charitable organizations is not strong, it is difficult to expand the object of social assistance; the credibility of the official charitable organizations is seriously questioned, affecting the development of the whole cause of charity assistance; the social workers are facing the question of lack of funds, and some social workers are in the rescue. There are shortcomings in the main and professional aspects. (3) because of the changes in family relations, the sustainability of family assistance is faced with severe challenges; the family form, which is the main family structure based on the core family structure, reduces the family assistance network; the willingness and economic conditions of family members affect the family assistance function. Again, this article combs The relief responsibility for the social assistance subjects of the two developed countries in Britain and the United States has been taken as the following enlightenment: the state should standardize the social assistance behavior through the way of law; the state needs to classify the poverty-stricken population by classification; the state should encourage the poor people with the ability to work in place of employment assistance instead of welfare. Assistant thoughts; the responsibility of the central government and the local government should be rationally divided; the state should create the convenient conditions for the social organization to help the poor; the state should strengthen the responsibility for the relief of the family. Then, this paper puts forward the development orientation and the realization of the relief responsibility of the main body of social assistance in China. The responsibility of the scope of the object of social assistance and the improvement of the level of social assistance, the state should also actively undertake the responsibility of the legislation in the field of social assistance, change the responsibility of the value concept of the social assistance system, the central government bear the responsibility of the financial expenditure of the greater social assistance, bear the responsibility for the accurate assistance to the poor, and raise the poverty. The responsibility of population family development ability. The realization of state assistance responsibility requires governments at all levels to help the poor people, set up a contractual relief concept, and need people to shift from gratitude to the view of accountability based assistance. Social organizations undertake the relief and supplement responsibility and provide material assistance to the poor. Financial assistance, the responsibility of the training of labor skills, and the transfer of the concept of "helping people self-help" and the responsibility of empowerment to the poor. The realization of the responsibility for social organization assistance not only needs the state to support social organizations from the laws and funds, but also needs the social organizations to strengthen their own social assistance capacity. The responsibility of helping the poor people in daily life, the responsibility of caring for the elderly in the poor families, the guardianship responsibility of the children in the plight and the protection responsibility for the poor, the realization of the responsibility of the family assistance. On the one hand, the state needs to do the propaganda of the family ethical responsibility, and on the other hand, the state's assistance to the family is needed. In the end, in order to maximize the relief effect of the social assistance subject, the main body of social assistance needs to cooperate and link up, and should strengthen the following four aspects: the construction of equal consultation mechanism between the social assistance subjects, the construction of the sharing mechanism of social assistance information, and the mutual resources of social assistance. Construction of complementary mechanism and coordination mechanism of social assistance projects.

【学位授予单位】：山东大学
【学位级别】：博士
【学位授予年份】：2016
【分类号】：D632.1
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本文编号：1791542