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1、城市贫困的社区社会救助研究 以徐汇区凌云街道社区为例 城市贫困的社区社会救助研究 以徐汇区凌云街道社区为例 摘 要 摘 要 社区社会救助是社会保障体系的一个重要组成部分， 而且是最终落实和托底的基础部分，其功能包括以社区为依托的保障功能、服务功能和管理功能。积极发展社区社会救助，顺应我国社会结构的转型，适应我国现阶段社会经济发展水平，也适应我国强调社区价值的文化传统和道德观念。 目前正在中国城市社区形成的社会救助体系，功能上是政府职能的下延，组织上依托政府支持下的新事业单位，服务形式上以行政化服务为主，这种社会救助体制的特点可以概括为行政化社会救助体制，社区（街道）居于这个体系的末端。这一体系
2、所存在的问题是：社会救助体系运行成本较高，资源组织动员能力较差，社会救助项目的协同度较低。这些问题虽然与现有制度和政策的具体缺陷不无关系，但从根本上说只有通过社区化的社会救助体系才能解决。社区化的社会保障区别于现行体制的体制特征， 是在现行社会保障制度的总目标和操作目标之下，给予社区根据自身的需要构建补充保障项目和选择操作方式的权力，推动社区自行调集配置各种资源，形成由政府、企业和非营利组织共同参与的社区合作机制，提供社会保障补充项目的供给。社区化的社会救助体系的特点有三：第一，其运作基础是非营利性组织；第二，其救助目标是既包括物质救济也包括精神援助的全面的救助； 第三， 它依托社区的自我治理
3、机制而具有较高的运作效率。 徐汇区凌云街道的社区社会救助体系具备社区化救助雏形， 但又尚未完全摆脱行政化救助体系缺陷。从正式制度即救助与就业联动制度的运行来看，面临着收入测算和对保障对象的资格认定难问题、 被救助人员的“隐性就业”问题和长期福利依赖问题，这些问题在某种程度上都是行政化救助体系所必然遇到的问题。从非正式制度即社区社会支持网络来看，发挥了一定的功能，但其发育仍然是初步的。 进一步完善社区社会救助工作的政策建议：首先，完善社区社会救助管理体制。一是按照“重心下移、一口上下”的原则，健全社区社会救助的运作机制。二是加强甄别机制和社区公益服务组织建设，完善低保与就业服务的联动机制；三是拓
4、展社区社会救助资金的渠道。第二，推进社区救助平台建设。一是完善社区救助的基础设施；二是畅通社区救助的信息通道；三是推进救助工作的网络化管理。第三，完善社区救助项目体系，构建包括特困对象救助、医疗救助、就业援助、教育援助、老年救助目等在内的社区救助项目体系。第四，推进社区救助队伍建设。一是建设专业化救助队伍；二是推进志愿者队伍建设；三是大力发展社区慈善事业；四是发挥“两新”组织的社会救助作用。 关键词关键词：城市贫困，社区，社会救助，政策建议 A STUDY ON COMMUNITY RELIEF AGAINST URBAN POVERTY A CASE STUDY ON LINGYUN COM
5、MUNITY IN XUHUI DISTICT Abstract The community relief is an important part of the social security system; furthermore, it is the basic part for implementation or practice of the above system. Its functions include protection, service and management based on the community. The robust development of c
6、ommunity relief is in compliance with the transformation of Chinas social structure, in line with social and economic development on Chinas current stage and also in harmony with cultural tradition and moral conception stressed by China. At present, the community relief system being formed in Chinas
7、 urban community with functions as the extension of the government, systematically depends on the support of the government as a new institution and develops administrative services as a primary pattern of service. Therefore this community relief system is characterized by administrative system and
8、the community (street) is located at the end of such system. The problems of this system remain that the cost of community relief system is too expensive; such system is lack of the capability to organize or operate resources, and projects of community relief are in low collaboration. Although these
9、 problems have certain connection with the specific defects of the current system and policies, fundamentally speaking, the problems can only be settled through the community relief system. The differences between the community relief system and the current system are that on the basis of the genera
10、l goal and operation target of the current system, the community is empowered to constitute the supplement security projects and choose methods of operation according to the requirements of the community in order to promote all resources of the community to be concentrated and collocated, to form a
11、cooperative system jointly participated in by the government, enterprises and non-governmental organizations, and to provide the aid for supplementary project on social security. The community relief system is characterized by the following three points: firstly, its operation depends on the non-pro
12、fit organization; secondly, the object of relief includes all the material and spirit relief; thirdly, it is based on the system of self-governance of the community with high efficiency. The community relief system of lingyun Community in Xuhui District has developed into the initial stage, but has
13、not been free from the defect of administrative relief system completely. As for operation of the formal system (namely a linkage between aid and employment), it faces with following problems including that income evaluation and qualification of relief subject are verified difficultly; the problems
14、relate to the recessive employment of the person assisted and dependence of benefit and welfare in a long run. All those problems will necessarily occur in the development of administrative relief system to some extent. With respect to the informal system (namely supported by community), it develops
15、 with some function to some extent, but is still on the initial stage. Suggestions on how to improve the community relief system make as follows: firstly, the management system is to be improved: (1) to perfect the community relief system on the basis of the principle of “Focus Shift-Down”; (2) to s
16、trengthen the distinguishing system and development of welfare organization for communities and to perfect the minimum living guarantee and employment services; (3) to expand the capital channel of community relief. Secondly, the establishment of relief platform based on communities is to be advanced: (1) to improve the infrastructure of community relief; (2) to smooth the information channel of community relief; (3) to perfect the network management of community relief. Thirdly
