“救助不足”与“泛福利化”:我国低保制度的两难困境与出路  

“Insufficient Assistance”and“Generalization of Welfare”:The Dilemma and Outlet of Minimum Living Security System

作　　者：邵亚萍 Shao Yaping

机构地区：[1]天津理工大学社会发展学院

出　　处：《社会建设》2025年第2期142-160,共19页Social Construction

基　　金：天津市社会科学基金项目“‘高质量发展’背景下社会救助服务提升路径研究”(TJSRQN22-003)。

摘　　要：低保制度作为兜底性民生保障体系,对推进中国式现代化进程有重要意义,但其在迈向“高质量”发展的过程中面临着“救助不足”和“泛福利化”并存的两难困境。其中,覆盖面窄、救助保障力度较低和赋能缺位是低保救助不足的典型表现。而泛福利化倾向主要表现为救助资源的叠加和福利捆绑。从制度嵌入的理论视角来看,制度化救助体系的内生简约特性与复杂贫困问题之间的张力是诱发低保制度异化的内在动因。以收入贫困为核心的低保认定标准、“保生存”的制度路径依赖与政策执行偏差三个特征互相形塑,诱发了制度偏差。打破低保制度的两难困境需要通过“软环境”加“柔制度”建设进行制度重塑,实现合理提标和扩围;同时,聚焦“分层分类化”救助,为低保制度松绑;政策执行应注重精准性和自主性相结合,促进低保制度提质增效。The minimum living security system(Dibao)is a safeguard measure in the process of Chinese-style modernization.However,Dibao faces the dilemma of“insufficient assistance”and“generalization of welfare”now.Among these issues,the narrow coverage,lower benefits,and absence of empowerment are typical manifestations of the insufficient level of Dibao assistance.The generalization of the welfare is mainly manifested in the superposition and bundling of assistance resources.From the perspective of institutional embeddedness theory,the tension between the endogenous simplicity of the institutionalized assistance system and the complex poverty problem is the internal motivation that induces the alienation of Dibao.In particular,the identification standard of Dibao based on income poverty and the institutional path dependence of“survival protection”as well as the deviation of policy implementation have shaped and interacted with each other,which has induced the institutional deviation of the Dibao.To break the dilemmas of the Dibao system,it is necessary to reconstruct the system through the construction of“soft environment”and a“flexible system”,and to realize the reasonable expansion of the Dibao.Secondly,we need to clearly focus on“stratified and classified”assistance and optimize the allocation of assistance resources.In the implementation of policies,we should pay attention to the combination of precision and autonomy,and promote the quality and efficiency of the Dibao.

关 键 词：最低生活保障制度 救助不足 泛福利化 制度嵌入 

分 类 号：D63[政治法律—政治学]