目 录
1 导论 ······················································································································· 1
1.1 研究的缘起与意义 ························································································ 1
1.1.1 社会福利制度转轨呼唤构建新型乡村干部福利角色 ······················· 1
1.1.2 取消农业税后乡镇政府的社会管理职能要求乡村干部向福利
角色转型 ····························································································· 1
1.1.3 当前学界对乡村干部的福利角色关注较少是本研究的直接动因 · 2
1.2 文献回顾 ······································································································ 2
1.2.1 国外有关研究的综述 ········································································· 3
1.2.2 国内有关研究的综述 ········································································· 4
1.3 研究思路与样本介绍 ·················································································· 5
1.3.1 研究思路 ····························································································· 5
1.3.2 研究样本介绍 ····················································································· 7
1.4 相关概念界定 ································································································ 9
1.4.1 乡村干部 ····························································································· 9
1.4.2 社会福利 ····························································································· 9
1.4.3 乡村干部福利角色 ··········································································· 10 2 农村低保政策与乡村干部福利角色 ··································································11
2.1 我国农村最低生活保障制度的历史演变与转型 ·····································11
2.1.1 我国农村社会救助制度的转型 ························································11
2.1.2 我国农村最低生活保障制度的发展 ··············································· 12
2.1.3 永丰县农村最低生活保障制度建设 ··············································· 13
2.2 农村低保政策执行过程中的乡村干部福利角色 ···································· 14
2.2.1 乡村干部福利角色的运行模式 ······················································· 15
2.2.2 乡村干部福利角色的介入过程 ······················································· 16
2.2.3 乡村干部福利角色在农村低保政策执行过程中的独到作用 ········· 18
2.3 现阶段乡村干部福利角色扮演的逻辑 ···················································· 23
2.3.1父爱主义 ······························································································ 23
2.3.2 施恩图报 ··························································································· 25
2.3.2 对上负责 ····························································································· 26 3 农村低保政策执行中的乡村干部福利角色困境 ··············································· 28
3.1乡村干部福利角色困境的表现 ··································································· 28 I
3.1.1 面对低保“应退尽退”困难无力应对 ··········································· 28
3.1.2 面对低保成“唐僧肉”无计可施 ··················································· 29
3.1.3 面对低保引发新的干群关系紧张无力化解 ··································· 32
3.1.4 面对低保养懒汉现象无可奈何 ······················································· 33
3.2 乡村干部福利角色困境的形成原因 ·························································· 34
3.2.1低保对象收入确定缺乏标准化 ·························································· 35
3.2.2 乡村干部福利角色丛效应 ································································· 37
3.2.3 中国式办事潜规则 ··········································································· 41
3.2.4 监督机制的软弱化 ··········································································· 41
3.3 乡村干部福利角色走出困境的现实要求 ················································ 42
3.3.1 乡村干部的自我清白人期待 ··························································· 43
3.3.2 困难群体的保护人期待 ··································································· 44
3.3.3 政府的经纪人期待 ··········································································· 45
3.3.4 社会公正人期待 ················································································· 46 4 以专业社会工作再造乡村干部福利角色 ························································· 47
4.1 专业社会工作再造乡村干部福利角色的优势 ········································ 47
4.1.1 社会工作价值观为乡村干部福利角色再造提供精神动力 ··········· 47
4.1.2 社会工作理论体系可以弥补当前乡村干部知识结构的不足 ······· 48
4.1.3 社会工作方法有利于当前乡村干部粗放的服务手段得到改善 ··· 48
4.2 社会工作视角下的新型乡村干部福利角色的基本内涵 ························ 49
4.2.1 以民为本的价值观 ··········································································· 49
4.2.2 推动农村社会福利制度改革的创新力 ··········································· 52
4.2.3 增强困难群体福祉的执行力 ··························································· 52
4.3 社会工作再造乡村干部福利角色的途径 ················································ 53
4.3.1 在农村社会福利制度层面确定社会工作的地位 ··························· 54
4.3.2 以行政力量推动农村社会工作人才队伍发展 ······························· 54
4.3.3 营造乡村干部福利角色的成长环境 ··············································· 55 小结 ··························································································································· 57 参考文献 ··················································································································· 58 附件 ··························································································································· 62 个人简历 ··················································································································· 71 在读期间发表的论文与研究成果 ··········································································· 72 致 谢 ······················································································································· 73
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Contents
1 Introduction ··············································································································································1
1.1 Reasons and Significance of Research ························································· 1
1.1.1 Transition of Social Welfare System Calling for Constructing Rural
Cadres’ New Social Welfare Role························································ 1
1.1.2 After Abolition of Agricultural Taxes Social Administrational Functions
Need the Transition of Rural Cadre’s Social Welfare ·························· 1
1.1.3 Contemporarily Academic Community’s Neglecting on the Problem
is the Direct Motivation Triggering this Article ·································· 2
1.2 Reviews of Literature ··················································································· 2
1.2.1 Summaries Concerned Abroad ·························································· 3
1.2.2 Summaries Concerned in Our Country·············································· 4
1.3 Research Thoughts and Samples Introduction·············································· 5
1.3.1 Researching Thoughts········································································ 5
1.3.2 Introduction of Researching Samples ················································ 7
1.4 Definition of Related Concepts ···································································· 9
1.4.1 Rural Cadre ·························································································· 9
1.4.2 Social Welfare ······················································································ 9
1.4.3 Social Welfare Roles of Rural Cadres ··············································· 10 2 Rural MLSS Policy and Welfare Roles of Rural Cadres··········································· 11
2.1 Rural MLSS in our Country ········································································11
2.1.1 Historical Development and Transition of Rural Social Assistance
System in our Country ········································································11
2.1.2 Development of Rural MLSS in our Country···································· 12
2.1.3 Implementation of Rural MLSS in Yongfeng County ······················· 13
2.2 Rural Cadres’ Welfare Roles in the Implementation of Rural MLSS········· 14
2.2.1 Operational Mode of Rural Cadres’ Welfare Roles ··························· 15
2.2.2 Intervening Process of Rural Cadres’ Welfare Roles························· 16
2.2.3 Particular Functions of Rural Cadres’ Welfare Roles in the
Implementation of Rural MLSS ························································ 18
2.3 Logics of Rural Cadres’ Welfare Roles’s Playing at Present Stage ············ 23
2.3.1 Paternalism ························································································ 23 III
2.3.2 Bestowment for Payment··································································· 25
2.3.3 Responsible for the Superiors ···························································· 26 3 Dilemmas of Rural Cadres’ Welfare Roles in the Implementation of Rural
MLSS ························································································································································· 28
3.1 Representations of Dilemmas of Rural Cadres’ Welfare Roles ·················· 28
3.1.1 Being Powerless when Face Ineligible MLSS Recipients················· 28
3.1.2 Having Nothing to Do when Minimum Allowance become “Flesh
of Monk Tang” ··················································································· 29
3.1.3 Feeling Helpless when Face the Tentional Relationship between
Cadres and Masses············································································· 32
3.1.4 Having No Alternative when Face MLSS Sluggard Phenomenon ···· 33
3.2 Reasons for the Dilemmas’ Formation ····················································· 34
3.2.1 Authentication of Minimum Allowance Recipients’ Income Lacks
Standarization ···················································································· 35
3.2.2 Cluster Effect of Rural Cadres’ Welfare Roles ·································· 37
3.2.3 Underlying Rules of Chinese Handling Affairs ································· 41
3.2.4 Softening and Weakening of Oversight Mechanism ························· 41
3.3 Realistic Requirements for Rural Cadres’ Welfare Roles to Get out
Dilemmas ····································································································· 42
3.3.1 Role Expection of Ego Innocency ····················································· 43
3.3.2 Role Expection of Vulnerable Group’s Protector ······························ 44
3.3.3 Role Expection of Governemental Agent ···································· 45
3.3.4 Role Expection of Public Justness ····················································· 46 4 Reconstituting Rural Cadres’ Welfare Roles with Professional
Social Work ············································································································································ 47
4.1 Advandtages of Professional Social Work’s Intervening in Reconstitution
of Rural Cadres’ Welfare Roles ··································································· 47
4.1.1 Social Work Value System Provide Spiritual Motivation for
Reconstitution of Rural Cadres’ Welfare Roles ································· 47
4.1.2 Social Work Theoretical System Can Compensate for the
Deficiency of Rural Cadres’s Knowledge Structure ·························· 48
4.1.3 Social Work Methods Is favorable for the Perfection of Rural
Cadres’s Raw Service Means····························································· 48
4.2 Basic Connotations of New Type of Rural Cadres’ Welfare Roles from IV
the Perspective of Social Work ···································································· 49
4.2.1 People-Oriented Value System ························································ 49
4.2.2 Creativity to Promote the System Reform of Countryside Social
Welfare ······························································································· 52
4.2.3 Executive Forces to Boost up the Well-being of Vulnerable Group·· 52
4.3 Approach of Social Work’s Intervening in the Reconstitution of Rural
Cadres’ Welfare Roles·················································································· 53
4.3.1 Ascertain the Important Position of Social Work in Rural Welfare
System Level ························································································· 54
4.3.2 Reinforce the Talent Team Construction of Rural Social Work through
Government-led Powers4.3.3 Build an Approriate Growth
Environment for Perfection of Rural Cadres’ Welfare Roles ·············· 54
Brief Summaries ········································································································································· 55 References ······················································································································································· 58 Appendix·························································································································································· 62 Acknowledgements···································································································································· 73
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