“一揽子”打包,还是单项分类推进?——社会救助立法的路径选择

A Package or Split System?The Study of the Path of Legislation on Social Assistance

在推进社会救助立法的过程中,无论是实践部门还是理论界均认同基于现行《社会救助暂行办法》框架,采取"一揽子"打包的方式,将所有社会救助项目纳入到社会救助法。本文认为,社会救助项目多、稳定性差、各项目差异明显,"一揽子"打包立法方式易导致"三低"现象,即项目整合度低、立法专业性低和法律的可操作性低,且在短时间内对财政带来较大压力。为此,本文提出社会救助的分类立法思路,包括整合最低生活保障、特困人员供养救助、受灾人员救助和临时救助等制度,建立基本生活保护制度,推进基本生活保护立法;将医疗救助、住房救助、就业救助分别纳入医疗保障、住房保障、就业促进等立法之中;其余社会救助无需纳入立法范畴,可继续沿用行政法规的形式开展工作。

In the process of promoting social assistance legislation,the majority of officials and scholars agree to take a"package"approach—namely,to incorporate all the social assistance programs into one social assistance law based on the framework of the current Interim Measures for Social Assistance.However,this approach has the disadvantages of poor integration of different assistance programs,unprofessional legislation and poor practical applicability,and application of great pressure on government finances.Given the characteristics of the variability and diversity of social assistance programs,and with reference to international experience,this paper proposes a new approach to promoting social assistance legislation:(ⅰ)to integrate programs of Dibao,Wubao,temporary assistance and disaster relief into a basic livelihood protection program,and introduce legislation on basic livelihood protection accordingly;(ⅱ)to include housing assistance,medical assistance and employment assistance into housing benefits law,healthcare law and employment promotion law respectively,and(ⅲ)other social assistance programs can be regulated by administrative regulations.