中国社会救助统筹整合研究

Research on the Coordination and Integration of Social Assistance in China

随着社会救助的保障水平稳步提高,项目种类不断丰富,社会救助统筹整合问题日渐突出。在微观层面,社会救助项目之间缺乏协同造成低保家庭和其他困难群体之间的福利待遇出现较大差距;在中观层面,社会救助向其他社会保障领域快速扩展,出现社会救助“综合保障化”;在宏观层面,“兜底”定位导致社会救助分配功能减弱,地区差距拉大,服务共同富裕发展战略的力度不够。上述问题的产生原因主要有三个方面:社会救助政策的“自下而上”和问题触发式发展路径;社会救助管理的科层制发展与专业化分工之间的矛盾;社会救助的政治属性与政府职能的变动。在走向共同富裕的进程中,亟待加强社会救助统筹整合,提升社会救助的公平性;建立国家低收入线制度,形成分层救助体系;明确福利发展模式,限定社会救助边界;提升社会救助分配功能,夯实基本生活救助。

With the gradual enrichment of social assistance projects and the steady improvement of social assistance security levels,the problem of social assistance coordination and integration is becoming increasingly prominent:at the micro level,the lack of coordination between social assistance projects leads to the rise of the“welfare cliff”;At the meso level,social assistance is rapidly expanding to other areas of social security,with the emergence of“comprehensive security”;At the macro level,the positioning of“bottom line”has led to a weakening of the distribution function of social assistance and widened regional disparities,which is deviated from the development strategy of common prosperity.The reasons for the integration of social assistance are multifaceted and can be summarized into three main aspects:the“bottom-up”and“patching”development paths of social assistance policies;The trend of hierarchical development and specialized division of labor in social assistance management;The political nature of social assistance and the uncertainty of government functions.In the context of achieving common prosperity,it is urgent to strengthen the overall integration of social assistance,enhance the fairness and distribution function of social assistance,including:establishing a national low-income line system and forming a hierarchical assistance system;Clarify the welfare development model and define the boundaries of social assistance;Enhance the distribution function of social assistance and strengthen basic living assistance.