【作者】 王红兵；

【导师】 李京文； 李华燊；

【作者基本信息】 华中科技大学 ， 社会保障， 2012， 博士

【摘要】 随着最低生活保障制度建设的深入,城乡“二元”制度的弊端愈加显露,制度的公平问题已成为社会各界最迫切的诉求。城乡最低生活保障制度的统筹发展研究,对于丰富社会保障理论、化解社会矛盾、实现党的社会保障制度建设的宏伟蓝图具有重要意义。我国社会保障制度的城乡统筹,突破口在于社会救助制度的城乡统筹；而社会救助制度的城乡统筹,核心在于最低生活保障制度的城乡统筹。本文对城乡最低生活保障制度的不同发展道路进行了梳理,总结了我国最低生活保障制度的发展特点。城乡二元经济社会结构、转型背景下低保建制目的的不同、农村传统的土地和家庭保障观念以及农村反贫困方式的影响等因素造成了城乡低保制度在法律制度、保障标准及给付水平、资金投入、筹资方式、管理体制等方面的差异。农村最低生活保障制度的发展远远滞后于城市,这使得最低生活保障制度的公平性显著下降,同时也形成了城乡最低生活保障制度的统筹发展的障碍。在国家大力推进城乡统筹发展以及工业化的加快带来城乡大融合的背景下,统筹城乡最低生活保障制度成为必然。城乡最低生活保障制度的统筹发展要根据其所依存的各种条件逐步推进。我国经济总量的持续增大、经济发展方式的加快转变、财政支出结构的加速优化,构建和谐社会的政治目标特别是“以人为本”执政理念的确立,城市和农村最低生活保障制度的发展与完善以及非政府组织的发展,为城乡最低生活保障制度的统筹发展提供了经济、政治和社会条件。美国、瑞典在社会救助制度设计时直接针对全民建立统一的救助制度,日本针对各地经济发展的不同步及生活水平的差异,采取分地区、分档次的办法规定有差异的最低生活标准,上海、浙江等地以立法的方式统筹城乡低保制度发展的经验,为我国统筹城乡低保制度建设提供了重要的实践经验。在分析城乡最低生活保障制度统筹发展条件的基础上,借鉴国内外制度统筹发展的经验,我国城乡最低生活保障制度统筹发展的目标应设定为：从城乡最低生活保障制度的分割分治,到统一制度、标准有别,再到制度和标准的城乡统一。鉴于目前城乡之间、地区之间的经济发展的不平衡,对最低生活保障的需求也存在一定的差距,还不可能用统一的标准在全国范围内为城乡居民提供最低生活保障。在城乡最低生活保障制度统筹发展的初期,可先实行“制度统一、标准有别”。可采取以下措施推进城乡最低生活保障制度的统筹发展：统筹城乡低保立法、统一城乡低保动态调整机制、整合城乡低保管理体制和运行机制、构建城乡低保合理的责任分担机制、构建城乡低保制度的内部衔接机制、推进城乡低保制度与其他保障制度的协调发展。更多还原

【Abstract】 With China’s exploring minimum living security system, the binary system in urban and rural areas exposes more and more deficiencies. Fairness has already become the most urgent appeal of rural residents. The research on the coordination development of minimum living security system in urban and rural areas can enrich the social security theory, ease off social contradiction, and assist to implement the grand blueprint of the party’s construction of social security system.The breakthrough of China’s urban-rural social security system coordination development lies in the coordination development of social assistance system, and the key to the coordination development of social assistance system is the coordination development of the minimum living security system. In this paper, the author presents different paths of rural-urban minimum living security system, and summarizes the characteristics of the system in China. The differences in law system, security standards, payment level, capital investment and financing mode in rural-urban minimum living security system are caused by rural-urban binary social and economic structure, different purposes in the context of economic transformation, traditional ideas of land and family security in rural areas and its anti-poverty methods and so forth. Rural minimum living security system lags far behind the urban’s which discounts the fairness in minimum living security system and blocks the coordination development of the minimum living security system in both rural and urban areas.In the setting of our nation’s promoting coordinating development of urban-rural areas which is caused by accelerating industrialization, it is inevitable to coordinate the urban-rural minimum living security system. The development of the system depends on various conditions:building a harmonious society especially the establishment of people-oriented administrative notion; the development and improvement of the urban-rural minimum living security system; the economic output increases continually; the transformation of economic development model; the improvement of financial expenditure structure and the further development of non-governmental organization. These provide political, economic and social conditions of the coordination development of minimum living security system in urban and rural areas.The United States and Sweden design a unified social assistance system directly for the whole people, while Japan adopts different minimum living standards according to different economic conditions and living levels. Shanghai and Zhejiang coordinate the rural-urban minimum living security system through legislation which provides an important reference for the construction of the system in China. On the basis of the construction conditions and the experiences in home and abroad, the objectives of the system should be:from a binary urban-rural minimum living security system to a unified one with different standard, and then to a unified system with same standard.In view of the unbalanced economic development in rural and urban areas and different requirements from the minimum living security, it is imposible to apply a unified standard for rural and urban residents. In the primary stage of the development, a unified system with different standards can be carried out. The following measures can be adopted:coordinating the legislation of rural-urban minimum living security system, integrating the management system and operational mechanism, building reasonable burden-sharing mechanism, paying attention to the relationships within the system, and coordinating the system with other security systems.更多还原