南京国民政府社会救济制度研究

发布时间：2018-07-20 20:04

【摘要】：自古以来，社会阶层中的弱势群体因种种原因陷入生活危机，需要政府、社会及民间救助才能摆脱生活的困境。作为近代社会保障制度中的最次层次的保障——社会救济是发生最早的社会保障范畴，而近代社会保障制度的诞生则是随着近代工业社会的逐步推进，以近代社会保险制度在德国的出现为标志。在此之前，作为一种仍不成熟的制度安排，社会保障仅限于社会救济制度的积累。所谓社会救济制度是指国家和社会对无劳动能力的人或因自然灾害以及其他经济、社会原因导致无法维持最低生活水平的社会成员给予救助，以保障其最低生活水平的一项社会保障制度。西方社会立足于慈悲为怀的宗教慈善事业与《济贫法》颁布后政府介入的济贫事业，历史相当悠久。而在中国，以互助、他助等为基本特征的原始社会救济活动，存在了3000年之久，家庭成员之间的互助及宗族组织内的守望相助成为传统社会中人的生存方式。在从晚清到民国的社会大变革中，携带更多现代社会保障制度特征的社会救济制度从一种非正式制度安排转变为一种正式制度安排，其功能逐渐扩充，不仅为统治者服务，而且救济制度具有了促进社会公平、缓解社会风险、促进和谐稳定的作用。社会救济制度有广义、狭义之分，广义的社会救济包括国家或政府的救济和社会主体的救济，前者是基于法定的权利义务关系而进行的救济，后者是基于道德上的权利义务关系而进行的救济，而狭义的社会救济仅指国家或政府提供的救助。本文选取的是后一种社会救济的定义，描述南京国民政府时期社会救济制度的形态和样貌。南京国民政府成立后，科层化的行政管理体系以及立法的深入推进，使得社会救济的制度化水平达到前所未有的水平，从制度设计、安排、实施、成效等内容来看，政府的社会救济更具意蕴，内容博大，成为吸引学者们广泛研究的缘由。 1928年，南京国民政府成立后，形成了专门的社会救济行政组织系统，抗战期间，政府为了适应社会救济的制度化要求，又公布了专门的《社会救济法》，每个重要社会救济项目大多都有相关法律法规的约束和指导，形成政府负责、社会倡导协助、民众参与的社会救济格局。南京国民政府的社会救济制度包括了灾害救济制度、难民救济制度、失业救济制度、儿童救济制度等内容，在不断摸索经验教训的基础上，南京国民政府将社会救济制度逐渐推进到更高一级的社会保障制度——社会保险及社会福利制度。我国也在逐步完善现代社会保障制度，尤其是在社会转型时期，现代社会保险制度在中国还在铺展阶段，城市最低保障制度全面建立，但应该说，从社会救助制度方面看，保障立法还相当滞后，现代社会保障制度的责任主体为政府，那么如何发挥政府的社会控制机能，使最低层次的保障制度发挥其最大的功效和作用，建设公平的、合理的、高效的保障制度是我们必须深入思考的问题。同时这个制度虽然源于西方，但制度本身要符合中国的实际情况，中国人对于家庭保障的相当依赖，中国独有的互助传统，社会保障的历史发展等情况都是我们今天在建立完善此制度的同时应该研究与深思的。本文在整理大量档案、文献汇编及文史资料、报刊的基础上，运用多学科分析方法对南京国民政府时期的社会救济制度作一综合论述，本文分作六章：第一章主要分析南京国民政府时期的弱势群体及社会救济对象构成，作者通过对造成社会成员生活危机诸种因素的分析将社会救济对象划分为灾民、难民、失业者、老幼病残等。第二章为社会救济制度组织研究。本章对南京国民政府时期社会救济各类组织，包括行政组织、专项组织、救济设施作一总结，从而分析社会救济制度的组织体制。作者认为，社会救济制度运行方式为集权式，而社会救济组织存在着首长制和委员会制混合的体制。第三章为社会救济制度法律法规研究。主要论述社会救济法律制度的三大层次：根本法、专门法、专项法规。同时以大量列表形式分析了南京国民政府时期社会救济司法状况。由此作者认为：南京国民政府时期社会救济立法相对完备，而社会救济司法也较其他领域司法状况稍好一些。第四章为社会救济经费研究。作者分析了南京国民政府时期社会救济的备灾经费、赈济经费、救济设施经费的筹措、使用、发放等情况，，综合大量史料以展现社会救济经费概况及经费筹措使用问题。第五章为社会救济制度实施研究。通过对社会救济制度的程序、措施与方法、救济设施之“教养”分析，作者力图展现社会救济制度实施的立体概貌，并分析社会救济制度实施中存在的诸多问题。第六章为社会救济管理。本章对社会救济监管内容、人才管理实践及社会救济人员的失职与腐败进行分析。通过分析，作者认为，社会救济制度实施的诸多问题是由南京国民政府政治经济体制的腐败落后与人员素质低下造成的。由此，作者得出结论，南京国民政府制度设计的初衷不仅在于救济弱势群体、实现人类守望相助的要义，而且社会救济制度是为实现政府保障人类生存权的重要责任，但救济制度运行的诸多问题却与政府之主旨背道而驰，恰恰削弱了政府执政的合法性基础。
[Abstract]:Since ancient times, the disadvantaged groups in the social stratum have been in a life crisis because of various reasons. They need the government, social and folk assistance to get rid of the plight of life. As the most important guarantee in the modern social security system, social relief is the earliest social security domain, and the birth of modern social security system is along with the social security system. The gradual advance of modern industrial society was marked by the emergence of modern social insurance system in Germany. Before this, social security was limited to the accumulation of social relief system as a kind of still immature system arrangement. The so-called social relief system refers to the state and Society for people with no labor capacity or because of natural disasters and other economies, Social reasons lead to a social security system that can not maintain the minimum living standard of social members in order to guarantee the minimum living standard. The history of the western society, based on the religious philanthropy and the poverty law, has a long history. The characteristics of the original social relief activities have existed for 3000 years. The mutual assistance between family members and the support of the patriarchal clan organization have become the way of living in the traditional society. In the social change from the late Qing Dynasty to the Republic of China, the social relief system with the characteristics of more modern social security system has changed from an informal institution arrangement. For a formal system, its functions are gradually expanded and not only serve the rulers, but the relief system has the role of promoting social equity, alleviating social risks and promoting harmony and stability.
The social relief system has a broad sense, a narrow sense, and a broad sense of social relief, including the relief and social remedies of the state or government, the former is based on the legal rights and obligations, and the latter is based on the moral rights and obligations, and the narrow sense of social relief only refers to the rescue of the state or government. This article selects the definition of the latter social relief, describes the form and appearance of the social relief system in the period of the Nanjing national government. After the establishment of the national government of Nanjing, the administrative system of bureaucracy and the deepening of legislation have made the level of the social relief institutionalized to an unprecedented level, from the design, arrangement and implementation of the system. In terms of effectiveness and so on, the government's social relief is more meaningful, and its content is extensive, which has attracted scholars' extensive research.
In 1928, after the establishment of the Nanjing national government, a special social relief administrative organization system was formed. During the war of resistance against Japan, the government announced a special "social relief law" in order to meet the requirements of the institutionalization of social relief. Most of the important social relief projects have the constraints and guidance of relevant laws and regulations, which form the responsibility of the government and the social advocacy Association. Help, the social relief pattern of the public participation.
The social relief system of the Nanjing national government includes the disaster relief system, the refugee relief system, the unemployment relief system, the child relief system and so on. On the basis of the continuous exploration of the experience and lessons, the Nanjing national government has gradually advanced the social relief system to the higher level social security system, the social insurance and the social welfare system.
Our country is also gradually perfecting the modern social security system, especially in the period of social transformation. The modern social insurance system is still spreading in China, and the system of urban minimum security is fully established. But it should be said that the legislation of the guarantee system is still lagging behind in the view of social assistance system. How to give full play to the government's social control function so as to make the lowest level of the security system play its greatest effect and function, to build a fair, reasonable and efficient guarantee system is a problem we must think deeply about. Very dependent, China's unique mutual aid tradition, the historical development of social security, and so on, we should study and ponder at the same time in establishing and perfecting the system today.
This paper makes a comprehensive discussion on the social relief system in the period of the national government of Nanjing on the basis of a large number of archives, literature compilation, literature and history data and newspapers and periodicals. This article is divided into six chapters.
The first chapter mainly analyzes the disadvantaged groups and social relief objects in the period of the Nanjing national government. The author divides the social relief objects into the victims, the refugees, the unemployed, the disabled and the disabled through the analysis of the factors that cause the life crisis of the members of the society.
The second chapter is the study of social relief system. This chapter summarizes the social relief organizations in the period of Nanjing national government, including administrative organizations, special organizations and relief facilities, so as to analyze the organizational system of social relief system. The author believes that the operation of social relief system is centralized, and the social relief organization has the system of the first system. A system of mixing with the committee system.
The third chapter is the study of social relief system laws and regulations. It mainly discusses the three levels of social relief legal system: the root law, special law, special laws and regulations. At the same time, it analyses the social relief and judicial situation in the period of Nanjing national government in a large number of forms. Thus the author thinks that the social relief legislation in the period of the national government of Nanjing is relatively complete, And social relief justice is slightly better than other areas.
The fourth chapter is the study of social relief funds. The author analyses the funds for the preparedness of social relief, relief funds, the financing of relief facilities, the use and distribution of relief facilities during the period of the national government of Nanjing. A large number of historical materials are integrated to show the general situation of social relief funds and the question of the use of funds. The fifth chapter is a study of the social relief system. The procedure, the measures and methods of the social relief system, the analysis of the "rearing" of the relief facilities, the author tries to show the stereoscopic outline of the implementation of the social relief system, and analyses the problems in the implementation of the social relief system.
The sixth chapter is the social relief management. This chapter analyzes the content of social relief supervision, the practice of talent management and the loss of the social relief personnel and corruption. Through the analysis, the author thinks that many problems of the social relief system are caused by the corruption of the political and economic system of the Nanjing national government and the low quality of the personnel.
Therefore, the author draws the conclusion that the original intention of the design of the system of Nanjing national government is not only to relieve the disadvantaged group, to realize the important meaning of the human being, but also to realize the important responsibility of the government to guarantee the right to survive the human existence, but many problems of the relief system run counter to the government's main purpose and weaken the politics exactly. The legitimacy foundation of the government.
【学位授予单位】：吉林大学
【学位级别】：博士
【学位授予年份】：2012
【分类号】：D632.9;K262.9

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