中国临时救助制度的实践挑战与对策分析——基于北京市的研究

The Practical Challenges and Countermeasures of the Temporary Assistance System in China:Based on the Research of Beijing

当前中国面临的风险环境复合特征明显,以"救急难"为特色理念的临时救助制度发挥的作用日益突出。本文通过对北京市及其16个区临时救助制度运行现状的分析,对五个代表区78名救助对象、30名区级和基层一线工作人员,以及2家社工机构的访谈,发现中国临时救助制度实践中的挑战具体表现为"三大冲突",即,临时救助制度与传统"事后救助""科层制"和"单一主体"的冲突。在结合风险社会理论、发展型社会政策理论和福利多元主义理论主要思想的基础上,本文从"明确临时救助在社会救助制度体系中的功能定位""提升基层部门在政策执行过程中的救急能力""推动多元主体在临时救助服务递送中的协同参与"三方面探讨了相关对策。

At present,China is faced with an obvious risk environment,and the temporary assistance system featuring the concept of"emergency relief"is playing an increasingly prominent role.This article tends to analyse the current situation of temporary assistance operation in Beijing and its 16 districts based on the data from interviews with 78 recipients,30 front-line workers at the district level and street level,and 2 social work institutions,all from five representative districts.It is found that the challenges of"emergency relief"in the practice of China’s temporary assistance system are embodied in"three major conflicts",namely,the conflicts between the temporary assistance system and the traditional"after-event relief","bureaucratic system"and"single participant".Based on the theories of risk society,developmental social policy and welfare pluralism,this article puts forward the countermeasures from three aspects:defining the function orientation of temporary assistance in the system of social assistance,enhancing the capacity of grass-roots sectors to respond to emergencies in policy implementation,and promoting the cooperative participation of multiple actors in the delivery of temporary assistance services.