莱芜市农村最低生活保障制度问题研究

发布时间：2018-09-06 09:52

【摘要】：农村最低生活保障是政府针对生活在贫困线以下的农村居民提供的生活救助制度,是农村社会救助制度的重要组成部分,为农村生活困难的弱势群体扩展了生存的空间,是政府执政为民,切实维护人民权益,维护社会公平正义的具体体现,不仅对于改善农村困难家庭的生活状况具有重要意义,而且对于完善农村社会保障体系,缩小城乡社会差距,促进社会经济发展,维护社会和谐稳定都具有深远影响。它实际上充当着农村社会保障体系、同时也是我们国家整个社会保障体系的最后一道防线。农村最低生活保障制度运行至今已有十多年的时间,但是在制度设计方面仍存在许多不够完善的地方。例如,作为社会保障制度的最后一道防线,最低生活保障制度究竟应该与整个保障制度怎样接轨?最低生活保障到底该怎样定位?它与一般的社会救助、与普通的慈善事业有什么区别?它们之间该怎样协调?特别是在我国,目前还没有系统权威的法律法规,仅靠各级政府或者民政部门出台的规范性文件作为制度运行依据,缺乏法律后盾的坚强支撑,更使得农村最低生活保障制度实施起来困难重重,缺乏全面系统性,且稳定性差,权威性不足,各地出台的制度标准要求不一而足,致使农村低保出现各种各样的问题,如受制于各地财政压力,资金筹集困难,农村低保制度普遍存在保障水平低,保障面窄的问题;低保核定标准模糊加之居民家庭收入核实困难,致使低保难以准确覆盖家庭困难群众,难以达到“应保尽保”的制度设定目标;低保退出机制不健全,对于低保“老赖”缺乏严肃有效的处理措施,农村低保出现“有进难退”的现象。正是由于低保制度本身存在一些不够完善的地方,在具体实施过程中,农村社会保障制度容易出现制度落实不到位,执行走样的问题,如低保制度规定的“三级公示”制度落实困难,甚至在某些地方形同虚设,难以及时发挥群众监督的积极作用,使制度难以精准惠及家庭困难人群。在低保人员审核审批环节,工作量大、任务重、时间紧,工作力量明显不足,加之低保经办人员素质参差不齐,不同程度的存在人为制度曲解,低保制度成为某些地方政府及官员进行政治利益交换的工具,致使这一关口的筛选机制失灵,许多本应排除在外的人群进入低保行列,引起群众广泛不满。针对当前农村低保制度存在的诸多问题,莱芜市立足当地实际,探索实施了一系列解决对策,摸索出了一些切实可行的作法,但仍存在一些问题,本文在对农村低保制度进行全面阐述基础上,对照国内外先进经验,针对存在的现实问题,寻求更加积极、全面的解决措施,如健全农村低保制度的法律基础,完善农村社会救助网络,探索实物配给方式,提高低保队伍建设水平,建立健全社会监督网络,使农村低保制度“依法、规范、阳光”运行,确保这一惠民措施真正落到实处,收到实效。
[Abstract]:Rural minimum living security is a subsistence assistance system provided by the government for rural residents living below the poverty line. It is an important part of the rural social assistance system. It expands the living space for the vulnerable groups living in poverty in rural areas. It is a concrete body of the government in power for the people, earnestly safeguarding the people's rights and interests, and safeguarding social fairness and justice. Nowadays, it is of great significance not only to improve the living conditions of rural poor families, but also to perfect the rural social security system, narrow the social gap between urban and rural areas, promote social and economic development, and maintain social harmony and stability. Rural minimum living security system has been in operation for more than ten years, but there are still many imperfections in the system design. For example, as the last line of defense of the social security system, how should the minimum living security system integrate with the whole security system? What is the orientation of security? What is the difference between it and the general social assistance and the general charity? How should it be coordinated? Especially in China, there are no systematic and authoritative laws and regulations, which only rely on the normative documents issued by governments at all levels or civil affairs departments as the basis for the operation of the system, and lack of strong legal backing. Support, but also make the implementation of the rural minimum living security system difficult, lack of comprehensive and systematic, and poor stability, lack of authority, the system standards issued by various places are not enough, resulting in a variety of problems in rural minimum living security, such as constrained by local financial pressure, financing difficulties, rural minimum living security system exists universally. The low level of security and the narrow scope of security; the vague standard of low-income insurance and the difficulty of household income verification make it difficult for the low-income insurance to accurately cover the people with family difficulties, and it is difficult to achieve the goal set by the system of "full coverage"; the withdrawal mechanism of low-income insurance is not perfect, there is a lack of serious and effective measures to deal with the "Lao Lai" of low-income insurance, and the rural low-income insurance is difficult to achieve the goal of "minimum coverage" It is precisely because there are some imperfections in the system itself, that the rural social security system is prone to fail to implement the system in place, and that the implementation of the system is out of order. For example, the implementation of the "three-level publicity" system stipulated in the system is difficult, even in some places it is in vain. It is difficult to give full play to the positive role of mass supervision in a timely manner, making it difficult for the system to accurately benefit the families with difficulties. Many people who should have been excluded have entered the ranks of the low-income security system, causing widespread discontent among the masses. In view of the problems existing in the current rural low-income security system, Laiwu City, based on local conditions, has explored and implemented a series of countermeasures to solve them. Some practical methods, but there are still some problems. This paper, on the basis of a comprehensive exposition of the rural subsistence allowance system, compares the advanced experience at home and abroad, aims at the existing practical problems, and seeks more active and comprehensive solutions, such as improving the legal basis of the rural subsistence allowance system, improving the rural social relief network, and exploring the physical allocation. In this way, we should improve the construction level of the low-income insurance team, establish and improve the social supervision network, and make the rural low-income insurance system run in accordance with the law, norms and sunshine, so as to ensure that this measure of benefiting the people is truly implemented and effective.
【学位授予单位】：山东大学
【学位级别】：硕士
【学位授予年份】：2017
【分类号】：F323.89

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