新中国农村特困供养的制度演变与专业化逻辑——基于行政性社会工作的考察

The Institutional Evolution and Professionalization Logic of Rural Extremely Poor Support System since the Founding of the People Poor Support System since the Founding of the People’s Republic of China s Republic of China:Based on an Examination of Administrative Social Work

行政性社会工作的发展与演变是中国社会工作专业化的重要组成部分。本研究以新中国成立以来特困供养的制度演变为例分析行政性社会工作的专业化逻辑。本文详细梳理了新中国成立初期农村特困供养制度的起源(1949—1952年)、合作化运动时期形成阶段(1952—1958年)、人民公社时期的发展阶段(1958—1978年)、改革开放后恢复与法制化阶段(1978—2000年)、农村税费改革后蜕变与财政供养阶段(2000—2014年)、社会救助与城乡统并轨特困人员阶段(2014年至今),尝试勾勒出农村特困供养制度从联合安置、合作互助、集体福利、统筹供养、国家供养到救助供养的“自下而上”的制度化与国家化过程。基于制度的演变探讨了特困供养的专业化发展逻辑,包括从救济到救助的理念上突破,国家、社会与社区关系理论视角的转换,从政治动员到社会行政方法的规范化。在当前改革完善社会救助制度的背景下,积极发展服务类社会救助,为行政性社会工作与“专业”社会工作的融合探索新的道路,从而推进中国社会工作专业化的发展。

Due to the differences in social structure,cultural traditions,and economic and political environments among various countries,there are also differences in the origin,mode,logic,and path of the professionalization of social work. Regarding social work in China,its extension encompasses both imported Western social work and local social work,and its professionalization includes the process of localizing Western social work and professionalizing local social work. Local social work refers to effective and institutionalized modes of assistance that are adapted to the economic,political,and social systems,as well as cultural traditions,of the local community. In practical terms,it primarily refers to administrative social work,which is carried out by government organizations to provide services to the public and community members in accordance with national policies or organization regulations. These individuals essentially assume certain social work functions by providing specific,particularly material,assistance to eligible workers and families according to the state's policies or organization's regulations.There has been extensive academic research on the localization of Western social work imported into China,with the“embedding theory”serving as a representative example summarizing a wealth of theoretical and practical experience. However,all of these studies have been conducted from the perspective of“professional social work”,which has prevented a comprehensive depiction of the full picture of Chinese social work.This study,from the perspective of administrative social work,takes the practice of rural extremely poor support,which was established earliest,has the best continuity of development,and has the longest duration since the founding of the People's Republic of China as a case,to sort out and reflect on the professionalization process of administrative social work,with the aim of exploring local resources for constructing an independent knowledge system of social work in China.This article details the origin of the rural extremely poor support system in the early days of the founding of the People's Republic of China(1949-1952),the formation stage during the Cooperative Movement period(1952-1958),the development stage during the People's Commune period(1958-1978),the recovery and legalization stage after the Reform and Opening Up(1978-2000),the transformation and financial support stage after the rural tax and fee reform(2000-2014),and the stage of integrating and providing assistance to extremely poor people in both rural and urban areas(2014 to the present),revealing the“bottom-up”institutionalization and nationalization process of the rural extremely poor support system from joint resettlement,cooperative mutual assistance,collective welfare,overall support,state support to assistance and support. Based on the institutional evolution,the professional development logic of extremely poor support is discussed from the perspectives of professional concepts,theories,and methods of social work,including the“shift from relief to assistance”in concepts,which has brought about the realization and promotion of formal institutionalized helping for rural extremely poor support;in the theoretical perspective of the“transformation of the relationship between the state,society,and community”,it is necessary to handle the relationship among the“provider at the bottom line,executor,and service provider”well,and form a new model of community-based social assistance under the cooperation of the state,community,and society;in terms of methods,“from political mobilization to the standardization of social administrative methods”,the assistance work for extremely poor support has formed a professional division of labor management among different departments,improving the refinement level of extremely poor support.The extremely poor support system originating from rural areas and having the longest history of continuation serves as a representative and typical case for studying the development of administrative social work. Currently,reform and improvement of the social assistance system calls for the establishment of a multi-layered and classified social assistance system,the active development of service-based social assistance,and the formation of a“material + service”assistance mode. This points the way for the integration of administrative social work and“professional”social work,and explores the possibility of providing necessary home visits and care services to the target population of special poverty relief through government procurement of services. Strengthening professional social work services and drawing on the excellent experiences of collective mutual aid support,social service support,and national bottom-up support can also contribute to the development of a collaborative support model,in which multiple stakeholders,including the government,society,and community,can leverage their respective advantages.