长春市流浪乞讨人员社会救助问题的研究

摘要城市流浪乞讨人员的社会救助是我国社会保障保障体系中的重要的组成部分。我国正处于快速社会转型期，各种制度处于转变过渡阶段之中，流浪乞讨现象非常严重，所以流浪乞讨人员的社会救助管理制度具有重要的研究意义。《救助管理办法》实施以来，取得了明显的效果，缓解了长春市流浪乞讨现象，但仍然存在问题。本文通过问卷调查和访谈的方式收集资料，了解长春市流浪乞讨人员的分布及救助实施现状，分析在其实施过程中存在的问题包括：救助主体不明确导致社会救助混乱；救助内容单一导致社会救助难以标本兼治；救助制度和政策的宣传力度不够导致流浪乞讨人员错过了很多次救助机会。针对长春市流浪乞讨人员社会救助问题，提出了对策建议包括：明晰救助主体，实施分类管理；救助形式的多元化；加大救助政策的宣传力度。关键词长春市城市流浪乞讨人员社会救助救助站ChangchunCityisofGreatImportancetoSolvetheProblemofSocialAssistanceforVagrantsandBeggarsAbstractChinaisfacedwithmanynewsocialproblems,inordertoensurethelivelihoodofthepeople,thegovernmentbegantoattachtoomuchimportancetothedevelopmentofsocialassistance.Cityofreliefforvagrantsandbeggarsisanimportantpartofsocialreliefsysteminourcountry.Isintherapidsocialtransition,thefloatingpopulationscaleishuge,andbeggarsphenomenonisveryserious,so,inthefaceofthesocialassistanceforvagrantsandbeggarsmanagementsystemhasimportantsocialsignificance.Inthemeasures,hasmadegreatachievement,isthechangchunstreetbeggingeased,butalongwithsocialdevelopment,theproductionofnewproblems,systemofreliefforvagrantsandbeggarsinchangchunalsoneedstobeimprovedandperfected.Inthispaper,basedontheexplorationofreliefforvagrantsandbeggarssystemofchangchuncity,collectdata,bymeansofquestionnairesandinterviewstounderstandthecurrentchangchuncitypresentsituationandthedistributionofreliefforvagrantsandbeggarsimplementationpresentsituation,theanalysisontheproblemsexistingintheimplementationprocess,andputsforwardcountermeasuresandSuggestions.KeywordsVantsandBeggarsinCitySocialAssistanceRescueStation目录绪论······································································································1（一）研究背景·····················································································1（二）研究意义·····················································································2（三）研究方法·····················································································2（四）文献综述·····················································································2一、基础理论概述····················································································3（一）流浪乞讨人员的概念······································································3（二）城市流浪乞讨人员的社会救助··························································4（三）流浪乞讨的相关政策介绍································································4二、长春市流浪乞讨人员现状·····································································5（一）长春市流浪乞讨人员构成现状··························································6（二）长春市流浪乞讨人员分布情况··························································7（三）长春市流浪乞讨人员对救助方式和内容的满意度现状····························7（四）长春市救助站对流浪乞讨人员的接收现状···········································8三、长春市流浪乞讨人员社会救助存在的问题···············································8（一）救助内容单一，救助力度不足··························································8（二）救助对象范围和延期条件规定不明确·················································9（三）救助对象存在抵抗心理··································································10（四）救助制度和政策的宣传力度不够······················································10四、完善长春市流浪乞讨人员社会救助的建议··············································10（一）实现流浪乞讨人员的多元化救助······················································10（二）明晰救助对象，实施分类管理·························································11（三）让被救助者得到“体面”救助·························································12（四）加大社会救助政策的宣传力度·························································12结语·····································································································13注释···································································································14参考文献·······························································································15附录1································································································16附录2···································································································181绪论（一）研究背景流浪乞讨人员是指在城市生活无着的流浪、乞讨人员，这些人员游走在城市里，以桥洞、公园、街道为栖息地，以捡拾垃圾或向人们乞讨生存，因其本身素质低，行为有违社会规范，给城市带来众多不安定因素，受到人们乃至政府的冷遇。流浪乞讨现象的严重化对城市的安定、社会成员的正常生活等都带来危害，流浪乞讨现象逐渐成为社会各界普遍关注的焦点问题。面对日益庞大的流浪乞讨队伍和日趋紧迫城市环境管理问题，中国最初对流浪乞讨人员依照的是《收容遣送办法》，即依据国务院相关法规的一种强制行政措施，由民政机关、公安机关实行限制人身自由、收容遣返等。这此措施在建国初期在某种程度上说成效是显著的，强制收容遣送能在短时间内将多数流浪乞讨人员归于政府控制，但是这种政策忽略了“以人为本”，以牺牲弱势群体来谋取城市发展。《收容遣送办法》的意义在于维护社会秩序与安定团结，在实施收容遣送办法时，被收容遣送者往往被执法者粗暴对待，而随着收遣适用对象的扩大，收容站亦都以生活费、遣送费、城市增容费等名目收费，被滥用于乱收费、勒索、非法拘禁、强制劳动，《收容遣送办法》日趋显现其弊端。2003年3月的孙志刚这一事件引起了社会的关注，直接催生了《城市生活无着流浪乞讨人员救助管理办法》（以下简称《救助管理办法》）出台。新法取代了原有的收容遣送制度，对救助的宗旨、范围、措施、管理等作了大幅调整，标志着我国对流浪乞讨人员的政策进入自愿救助时期。随后，《城市生活无着的流浪乞讨人员社会救助管理办法实施细则》(以下简称《实施细则》)和各地政府相关政策措施相继出台，各大城市救助站大量建立，中国流浪乞讨人员社会救助框架逐渐形成。党十八大报告指出：“筹推进城乡社会保障体系建设。完善社会救助体系，健全社会福利制度，支持发展慈善事业，做好优抚安置工作。”[1]流浪乞讨人员的社会救助问题在《救助管理办法》实施之后再次引起人们的关注。2013年3月13日，在十八大新闻中心举行的主题为“保障基本民生，发展社会服务”的集体专题采访中，民政部门部长李立国表示，城市生活无着的流浪乞讨人员社会救助逐步实现了自愿救助和人性化救助，《救助管理办法》经过几年的实践，效果明显，但是有很多问题仍需要解决的，例如长春市的公共场所的流浪乞讨人员不减反增，主动求助的流浪乞讨人员成果过少；钱财花光、物品丢失和被偷抢骗等造成生活无着人员占救助对象大多数，而这些人本来是不属于《救助管理办法》最初所规定的救助对象；重复救助现象严重；受助人员身份难以核实；救助站环境差，经费紧缺等。这些现象都是流浪乞讨人员社会救助必须要