贫困治理背景转换下的社会救助转型:从保障生存到促进发展

The Transformation of Social Assistance under the Changed Background of Poverty Governance:From Ensuring Survival to Promoting Development

贫困具有绝对性和相对性,是一个"持续—波动"的连续谱系。伴随着贫困状态在平缓与波动之间的循环演变,贫困治理也在以社会救助为主体的常规性治理和以反贫困运动为主体的突击性治理之间不断转化。基于"对象—需求—目标—体系—机制"的贫困治理分析框架,研究发现:伴随着改革开放以来经济社会的快速变迁和贫困治理的系统开展,中国贫困对象及其需求已经发生了质的转换,贫困对象从绝对贫困群体向相对贫困群体扩展,贫困对象的需求则从基本生存需求向多维发展需求延伸。随着贫困治理背景的全方位转换,社会救助作为"后扶贫开发"时代贫困治理的主要措施,也需要实现制度转型:确立保障生存与促进发展相结合的目标定位;在补齐社会救助制度短板的基础上,构建保障生存型和促进发展型救助制度体系,并加强二者的联动;在对象识别、分类救助、管理协调和业务经办等方面改进和创新社会救助运行机制。

Poverty has the characteristics of absoluteness and relativity,which is a continuous spectrum of"continuous fluctuation".Along with the cyclic evolution of poverty state between stability and fluctuation,poverty governance is also changing between the conventional governance with social assistance as the focus and the unconventional governance with the anti-poverty movement as the main player.Based on the poverty governance analysis framework of"object-demand-target-system-mechanism",the study finds that with the rapid economic and social changes and the systematic development of poverty governance since the reform and opening up,China’s poverty groups and their needs have undergone a qualitative transformation.The poverty group has expanded from absolute poverty group to relative poverty group,and their needs has extended from basic survival needs to multi-dimensional development needs.With the all-round transformation of the background of poverty governance,social assistance,as the main measure of poverty governance in the era of"post poverty alleviation and development",also needs to realize the institutional transformation:establishing the goal of ensuring survival and promoting development;constructing the system of ensuring survival and promoting development on the basis of making up for the shortcomings of the social assistance system and strengthening the linkage between them;improving and innovating the operation mechanism of social assistance in the aspects of object identification,classified assistance,management coordination and business handling.