基于发展的贫穷观:东西部社会救助基层服务能力比较研究

发布时间：2019-02-09 08:19

【摘要】：在新贫穷理论视角下,政府保障弱势社群基本生活的责任底线也在提高,社会救助制度的内容不断扩展。然而,作为政策执行者的基层部门,其服务能力与日益完善的社会救助制度相比,还存在一定的不适应,处于明显的"福利非均衡"状态。本研究基于东西部4县调查资料的对比分析,发现东部地区虽然在救助对象人数上少于西部,但是反常识的是在供给层面的实际工作经费(非项目经费)、工作人员工作荷载(每一个工作人员对应的低保对象)、工资待遇等方面的服务能力却低于西部。然而,东部地区较低的基层服务能力却被社会救助制度创新与发展所掩盖。本研究综合量化与质化的研究结果,揭示了东部地区制度发展与人力资源、组织机制等支撑体系之间的矛盾,特别是处于县区级与村/社区级之间的镇/街道级组织的服务能力最为薄弱。因此,要想加强社会救助服务能力建设,一方面需要优化地区间资源配置,依据能级对应理论改革基层组织;另一方面需要整合外部社会资源,依托社区能力建设,发挥社会力量参与的"借力"功能,以缓解政府为建构责任底线而产生的压力。
[Abstract]:From the perspective of the new poverty theory, the bottom line of the government's responsibility to protect the basic life of the disadvantaged groups is also increasing, and the content of the social assistance system is expanding. However, as the policy executor, the service capacity of the grass-roots department is still not adapted to the increasingly perfect social assistance system, and it is in a state of "welfare disequilibrium". Based on the comparative analysis of the survey data of the four counties in the east and the west, it is found that although the number of the aid recipients in the eastern region is less than that in the western region, what is contrary to common sense is the actual work expenses (non-project funds) in the supply level. The working load of the staff (the minimum living standard for each staff member) and the salary are lower than those in the west. However, the lower basic-level service capacity in the eastern region is masked by the innovation and development of social assistance system. Based on the quantitative and qualitative results, this study reveals the contradictions between the institutional development in the eastern region and the supporting systems of human resources, organizational mechanisms, etc. In particular, the service capacity of the town / street level organizations located between the county level and the village / community level is the weakest. Therefore, in order to strengthen the capacity construction of social assistance services, on the one hand, it is necessary to optimize the allocation of resources among regions, and to reform grass-roots organizations according to the theory of energy level correspondence; On the other hand, it is necessary to integrate external social resources, rely on the construction of community capacity, and play the "borrowing" function of social power participation, in order to alleviate the pressure generated by the government to construct the bottom line of responsibility.
【作者单位】：浙江大学公共管理学院;
【基金】：民政部委托项目“社会救助基层服务能力建设研究”(MSJ13-ZH01)资助
【分类号】：D632.1

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