我国农村五保供养对象的需求及其保障研究
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摘要
任何社会都有部分社会成员不具备自给自足的能力——例如孤儿、残疾人、年老无依的长者等,他们是人类历史上长期存在的弱势群体,也是跨文化存在的弱势群体,所以每个社会都有责任制定一套满足他们实际需要的方法并逐渐形成为一种社会制度。在工业革命以前,该责任主要由家庭、家族、邻里乃至社区以及各种宗教组织、民间团体等承担,工业革命之后,政府在保障这一群体中的责任逐步加强。为了回应社会生活中的现实需求,真正从制度上保障农村最困难群体的基本生活,满足他们最基本的需求,从上世纪五十年代开始,我国逐渐建立了对农村无劳动能力、无经济来源、无依无靠的成员保吃、保穿、保住、保医、保葬等基本保障,实现了对农村社会中“无经济能力、无生活来源又无法定赡养、抚养、扶养义务人,或者其法定赡养、抚养、扶养义务人无赡养、抚养、扶养能力的老年人、残疾人或者未满16周岁的未成年人在吃、穿、住、医、葬等方面给予生活照顾和物质帮助的一项农村社会救助制度”,即五保供养制度。回顾总结五保供养制度建立以来的发展变迁和经验教训,并在此基础上提出进一步完善五保供养制度的思考,对于构建适合中国具体国情的农村社会保障体制,保证农村经济可持续性发展和促进农村和谐社会的发展具有重要意义。
学术界对五保对象的相关研究主要是社会学和社会保障两个学科领域,主要聚焦在五保对象供养政策和实施现状方面。其中社会学专业多是建立在实证调查的基础上,分析五保对象的生活状况,进而提出完善相关政策的理论反思;社会保障专业通常运用文献分析的方法,从制度层面出发,阐释五保制度的发展、完善与未来发展趋势。多数研究基于两个共同认识:一是认为“五保对象的真正问题就是经济需求的满足”这一潜在假设;二是认为五保对象的需求满足途径主要表现为对政府和政策的依赖性,主张政府是保证五保对象需求满足的强大后盾,应该由政府承担主要责任。因此,以往的研究更侧重政策的规定性而忽视了五保对象需求的差异性。本文通过对农村五保供养制度的形成与发展、新旧《农村五保供养工作条例》比较、农村五保供养制度实施的现状分析,认为当前五保供养制度主要侧重供给角度,侧重自上而下的政策制定与执行,尤其是侧重供养资金的保障,虽然一定程度上满足了五保对象最重要、最基本的生存需求,但是忽略了五保对象自身的主观能动性和作为政策保障客体的需求性。因此,自下而上的把握五保对象的实际需求,依循该群体的实际需求进一步完善五保供养制度具有重要意义。
本文基于五保供养对象需求的视角,以需求理论、社会公正理论为指导,运用个案访谈、文献研究等方法,通过对四川省成都市WC镇和湖北省宜昌市BY镇等四个镇部分五保对象的访谈资料的分析,从经济需求和非经济需求两方面考察了农村五保对象的生活现状,主要是五保对象在保吃、保穿、保住、保医、保葬等五保内容所涵盖的经济需求和以照顾需求、精神需求、自主性需求为代表的非经济方面的需求表现。并从需求保障的角度探讨了2006年中国新《农村五保供养工作条例》实施后五保对象的需求及其满足状况,对我国的五保供养制度提出了思考。
本文指出,为了更好地保障五保对象的基本生活,政府、村委会和社区、福利院、非政府组织等部门应该有明确分工,还要协调好五保供养制度和农村社会养老制度、农村合作医疗、计划生育奖励政策等相关制度之间的关系,要建立具体、可行的五保供养制度的指标评估体系。认为在当前将五保供养工作纳入农村最低生活保障制度会将五保对象的供养降低为单纯的物质支持,一方面会降低五保对象的生活质量,另一方面会促使社会各界更加忽视五保对象的非经济需求。社会保障制度不仅仅是完善的资金保障,还应该包括服务传递,才能够真正保障目标群体的实际生活,体现社会正义与公平,新兴的职业群体社会工作者可以在五保对象的生活保障中发挥一定的作用。
Since there are always certain members in society, such as orphans, the disabled, old men without dependent, who are vulnerable group and existing in long history and have diverse culture, we should shoulder the responsibility of meeting their requirements in accordance with social systems which evolve from unsystematic measures. These responsibilities are undertaken by the household, family, neighbor, community, religion and civil society organization before the industrial revolution. However, the government plays a crucial role in shouldering the responsibilities that are mentioned above. In order to ensure the basic lives of the most poorest group in rural area, Chinese government built the five-guarantees subsistence system in 1950s which was one of the most critical social assistance system in rural area that provided livelihood support and material aid to the villagers in terms of food, clothing, housing, medical care, and burial expenses for the beneficiaries including senior citizens, handicapped persons, villagers below sixteen years old, persons who have lost the ability to work, persons who have no source of income, persons who have no legal guardians whatsoever to support them, or whose guardians do not have the ability to do so. And it has crucial significance of constructing social security system in rural area which is suit to Chinese status, ensuring the sustainable development of rural economy, prompting the development of harmonious society to analyze the way of development, experience and lessons of the five-guarantees subsistence system.
The research on beneficiaries of five-guarantees emphasize on the five-guarantees subsistence policy and its state of implementation in perspective of sociology and social security. While the lectures of sociology always put forward the theoretical analysis about the five-guarantees system on the basis of survey and discussing the lives’situation of the beneficiaries of five-guarantees, the lectures of social security explain the development, consummation and trend of development of the five-guarantees system in perspective of system by using the method of literature analysis. There are two consensuses in most researching process. While one is that the true problem that the beneficiaries are facing is the demand of economy, the other is that since meeting the requirements of beneficiaries rely on the financial and system’s support, the government should undertake the responsibilities of ensuring the demands of beneficiaries. So we can get that the previous study emphasize on the system itself, but ignore the diversity of demands of beneficiaries. The basic idea of the paper is that although the five-guarantees system have ensured the most basic requirements of survival by underlining the supplies, especially emphasizing on the financial supply to beneficiaries, formulating and implementing policy top-down, it ignore the subjective initiative and the requirements of beneficiaries who are as the object of policy. So it is significant to get the suggestion of consummating the five-guarantees system in perspective of seizing the actual demands of the beneficiaries down-top.
The paper discusses the economic requirements included in the content of the five-guarantees which is providing livelihood support and material aid to the villagers in terms of food, clothing, housing, medical care, and burial expenses and the non-economic requirements which are represented by demand of care, spirit and self-determined in the perspective of the beneficiaries’demands, directed by the theories of requirement and social justice, by using the methods of interviews and studying on literature and analyzing the interview data of parts of five-guarantees Beneficiaries in W and C town, Chengdu city, Sichuan province and B and Y town, Yichang city, Hubei province, discusses the status quo of guaranteeing the beneficiaries of five-guarantees system after the implementation of“Five-Guarantees Subsistence Program in the Rural Areas”in the perspective of security of demand, and explores the way for consummating the five-guarantees subsistence system in the rural areas of China.
The study show that in order to ensure the basic lives of the five-guarantees beneficiaries, it should divide the work reasonably among the government, villagers’committee, community, welfare house and non-governmental organization, coordinate he relationships among five-guarantees system, new–type rural social pension system, new rural cooperative medical system, the rewards and assistance policy of family planning, construct specific and feasible evaluation index system of five-guarantees system. And it is shown that the system will only provide economic security to five-guarantees beneficiaries if the work of five-guarantees is in line with the minimum life security system in rural areas which will not only lower the living level, but also make the whole society ignore the non-economic requirements of the five-guarantees beneficiaries. It should always keep in mind that social security could not only provide sufficient financial security, but also would include service security. Only by this way, can social security system ensure the lives of beneficiaries and embody social justice and fairness. And the social workers who are a new type occupational group could play a critical role in the process of ensuring the lives of five-guarantees beneficiaries.
学术界对五保对象的相关研究主要是社会学和社会保障两个学科领域,主要聚焦在五保对象供养政策和实施现状方面。其中社会学专业多是建立在实证调查的基础上,分析五保对象的生活状况,进而提出完善相关政策的理论反思;社会保障专业通常运用文献分析的方法,从制度层面出发,阐释五保制度的发展、完善与未来发展趋势。多数研究基于两个共同认识:一是认为“五保对象的真正问题就是经济需求的满足”这一潜在假设;二是认为五保对象的需求满足途径主要表现为对政府和政策的依赖性,主张政府是保证五保对象需求满足的强大后盾,应该由政府承担主要责任。因此,以往的研究更侧重政策的规定性而忽视了五保对象需求的差异性。本文通过对农村五保供养制度的形成与发展、新旧《农村五保供养工作条例》比较、农村五保供养制度实施的现状分析,认为当前五保供养制度主要侧重供给角度,侧重自上而下的政策制定与执行,尤其是侧重供养资金的保障,虽然一定程度上满足了五保对象最重要、最基本的生存需求,但是忽略了五保对象自身的主观能动性和作为政策保障客体的需求性。因此,自下而上的把握五保对象的实际需求,依循该群体的实际需求进一步完善五保供养制度具有重要意义。
本文基于五保供养对象需求的视角,以需求理论、社会公正理论为指导,运用个案访谈、文献研究等方法,通过对四川省成都市WC镇和湖北省宜昌市BY镇等四个镇部分五保对象的访谈资料的分析,从经济需求和非经济需求两方面考察了农村五保对象的生活现状,主要是五保对象在保吃、保穿、保住、保医、保葬等五保内容所涵盖的经济需求和以照顾需求、精神需求、自主性需求为代表的非经济方面的需求表现。并从需求保障的角度探讨了2006年中国新《农村五保供养工作条例》实施后五保对象的需求及其满足状况,对我国的五保供养制度提出了思考。
本文指出,为了更好地保障五保对象的基本生活,政府、村委会和社区、福利院、非政府组织等部门应该有明确分工,还要协调好五保供养制度和农村社会养老制度、农村合作医疗、计划生育奖励政策等相关制度之间的关系,要建立具体、可行的五保供养制度的指标评估体系。认为在当前将五保供养工作纳入农村最低生活保障制度会将五保对象的供养降低为单纯的物质支持,一方面会降低五保对象的生活质量,另一方面会促使社会各界更加忽视五保对象的非经济需求。社会保障制度不仅仅是完善的资金保障,还应该包括服务传递,才能够真正保障目标群体的实际生活,体现社会正义与公平,新兴的职业群体社会工作者可以在五保对象的生活保障中发挥一定的作用。
Since there are always certain members in society, such as orphans, the disabled, old men without dependent, who are vulnerable group and existing in long history and have diverse culture, we should shoulder the responsibility of meeting their requirements in accordance with social systems which evolve from unsystematic measures. These responsibilities are undertaken by the household, family, neighbor, community, religion and civil society organization before the industrial revolution. However, the government plays a crucial role in shouldering the responsibilities that are mentioned above. In order to ensure the basic lives of the most poorest group in rural area, Chinese government built the five-guarantees subsistence system in 1950s which was one of the most critical social assistance system in rural area that provided livelihood support and material aid to the villagers in terms of food, clothing, housing, medical care, and burial expenses for the beneficiaries including senior citizens, handicapped persons, villagers below sixteen years old, persons who have lost the ability to work, persons who have no source of income, persons who have no legal guardians whatsoever to support them, or whose guardians do not have the ability to do so. And it has crucial significance of constructing social security system in rural area which is suit to Chinese status, ensuring the sustainable development of rural economy, prompting the development of harmonious society to analyze the way of development, experience and lessons of the five-guarantees subsistence system.
The research on beneficiaries of five-guarantees emphasize on the five-guarantees subsistence policy and its state of implementation in perspective of sociology and social security. While the lectures of sociology always put forward the theoretical analysis about the five-guarantees system on the basis of survey and discussing the lives’situation of the beneficiaries of five-guarantees, the lectures of social security explain the development, consummation and trend of development of the five-guarantees system in perspective of system by using the method of literature analysis. There are two consensuses in most researching process. While one is that the true problem that the beneficiaries are facing is the demand of economy, the other is that since meeting the requirements of beneficiaries rely on the financial and system’s support, the government should undertake the responsibilities of ensuring the demands of beneficiaries. So we can get that the previous study emphasize on the system itself, but ignore the diversity of demands of beneficiaries. The basic idea of the paper is that although the five-guarantees system have ensured the most basic requirements of survival by underlining the supplies, especially emphasizing on the financial supply to beneficiaries, formulating and implementing policy top-down, it ignore the subjective initiative and the requirements of beneficiaries who are as the object of policy. So it is significant to get the suggestion of consummating the five-guarantees system in perspective of seizing the actual demands of the beneficiaries down-top.
The paper discusses the economic requirements included in the content of the five-guarantees which is providing livelihood support and material aid to the villagers in terms of food, clothing, housing, medical care, and burial expenses and the non-economic requirements which are represented by demand of care, spirit and self-determined in the perspective of the beneficiaries’demands, directed by the theories of requirement and social justice, by using the methods of interviews and studying on literature and analyzing the interview data of parts of five-guarantees Beneficiaries in W and C town, Chengdu city, Sichuan province and B and Y town, Yichang city, Hubei province, discusses the status quo of guaranteeing the beneficiaries of five-guarantees system after the implementation of“Five-Guarantees Subsistence Program in the Rural Areas”in the perspective of security of demand, and explores the way for consummating the five-guarantees subsistence system in the rural areas of China.
The study show that in order to ensure the basic lives of the five-guarantees beneficiaries, it should divide the work reasonably among the government, villagers’committee, community, welfare house and non-governmental organization, coordinate he relationships among five-guarantees system, new–type rural social pension system, new rural cooperative medical system, the rewards and assistance policy of family planning, construct specific and feasible evaluation index system of five-guarantees system. And it is shown that the system will only provide economic security to five-guarantees beneficiaries if the work of five-guarantees is in line with the minimum life security system in rural areas which will not only lower the living level, but also make the whole society ignore the non-economic requirements of the five-guarantees beneficiaries. It should always keep in mind that social security could not only provide sufficient financial security, but also would include service security. Only by this way, can social security system ensure the lives of beneficiaries and embody social justice and fairness. And the social workers who are a new type occupational group could play a critical role in the process of ensuring the lives of five-guarantees beneficiaries.
引文
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