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社会工作参与社会救助的模式建构

2017-08-17 13:11:28   中国青年网

原标题:马凤芝:社会工作参与社会救助的模式建构

一、引 言

2014年我国颁布的《社会救助暂行办法》(以下简称《暂行办法》)规定,县级以上地方人民政府应当发挥社会工作服务机构和社会工作者作用,为社会救助对象提供社会融入、能力提升、心理疏导等专业服务。2015年民政部和财政部联合下发的《关于加快推进社会救助领域社会工作发展的意见》(以下简称《意见》)在《暂行办法》基础之上又增添了为社会救助对象提供资源链接服务和宣传倡导服务,并提出建立健全社会工作服务需求发现报告机制、社会工作服务承接机制,以及社会工作服务转介机制。

与我国以往的社会救助政策相比,《暂行办法》和《意见》的最大亮点是把社会工作服务机构和社会工作者引入社会救助领域。我国的社会救助从一开始就将社会工作排除在外,主要由政府承担责任,且以直接的现金救助为主,忽视了社工服务的价值和功能,使得政府救助仅关注物质层面的帮扶,少有心理抚慰,救助对象的发展问题无暇顾及,贫困家庭的生活质量难以提高。[1]《暂行办法》颁布以来,虽然有一些学者开始探讨把社会工作引入社会救助领域,但许多研究都主要针对社会工作介入社会救助的必要性和主要服务内容,[2]鲜有从社会政策执行的角度讨论把“服务保障”和“经济保障”结合起来的研究。从这种意义上来说,如何把“服务保障”和“经济保障”结合起来是摆在我们面前的一个全新课题。

本文根据《暂行办法》和《意见》的要求,针对我国社会救助与社会工作发展的现状,并参考社会工作参与社会救助的国际经验,[3]建构我国社会工作参与社会救助的模式,以推进《暂行办法》和《意见》的实施和落实。由于《暂行办法》所规定的社会救助涉及最低生活保障、困难人员供养、受灾人员救助、医疗救助、教育救助、住房救助、就业救助、临时救助等,不但内容较广,且各种救助亦具有自身特点,本文从重要性和行文方便的角度选择以城市最低生活保障为案例来建构我国社会工作参与社会救助的模式。

二、社会工作参与社会救助的三个模式

从社会工作参与社会救助的国际经验来看,社会工作参与社会救助理论上至少有三个模式。麦肯泰尔和霍沃思(McEntire,Davis and Haworth,Joanne)指出,经济援助的功能实际上与社会服务的供给的联系程度,将取决于行政机构所采取的组织结构。这至少有三种可能的选择:第一,把两种功能安排在同一个行政管道里,并由同一个社会工作者面向服务对象执行;第二,用分离的管道、由分离的工作人员,但配合必要的沟通,来组织这种运作;第三,作为一种内在的中间可能性,两种功能可以在同一管道里、在同一个基层督导者之下,但每个功能由不同工作者负责来实施。[4]本文基于麦肯泰尔和霍沃思提出的这三个理论模式,并结合我国社会救助与社会工作发展的现状,把我国社会工作参与社会救助的模式建构如下:

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