就业救助的对象界定与路径选择:工作福利的视角

Th e Target Group Defi nition and Path Selection of Unemployment Assistance: From the Perspective of Work-fare

本文基于对上海市的调研,认为当前的就业救助中政策对象模糊、政策目标偏离、政策效果不足,造成政策定位与实践效果的错位。就业救助的目标人群为就业困难群体,包括城市贫困群体中的失无业者和非正规的灵活就业者,以及非贫困群体中的低就业质量者。借鉴工作福利的理念和路径,就业救助应注重积极救助。本文认为,应针对不同程度就业困难的失无业群体提供相应强度的就业救助。在实践路径中,就业困难群体依据就业困难程度由低到高分别为:有就业意愿且技能较高、有就业意愿但技能较低、缺乏就业意愿三类,其中贫困者构成二三类群体之间的夹层。三类就业困难群体分别对应长期促进模式、快速就业模式、工作体验模式三类工作福利实施路径。就业救助的相关主体包括:以政府为责任主体、以社会组织为主的服务提供主体、以企业及专业机构为主的服务支持主体,主体间宜采取"混合—合作"式的管理模式。

Based on in-depth interviews in Shanghai,this thesis investigated the major problems of current unemployment assistance system,which included fuzzy target group,deviated policy aim,and inadequate policy effectiveness.Such problems resulted in unmatched policy orientation and policy effects.The target group of unemployment assistance is people with difficulty in employment,including the unemployed and the informal flexible employed people among urban poor groups,as well as low-income workers among non-poor group.From the perspective of work-fare,unemployment assistance should focus on active assistance.This thesis deems that,the level of unemployment assistance should be accordant with the in degree of employment difficulty.According to willingness to work and employ-ability,the disadvantaged group of employment could be divided into3main categories and2sub-categories.Accordingly,they are matched with3types of unemployment assistance paths:long-term promotion model,fast employment model and job experience model.Stakeholders includes government for responsibility supervision,social organizations for service delivery“enterprises”as well as professional organizations for service support.This paper suggests the“mixed-cooperative"management mode to be adopted in working with all the stakeholders.