【作者】 王浩；

【导师】 刘玉安；

【作者基本信息】 山东大学 ， 社会保障， 2025， 博士

【摘要】 在人口流动加速、家庭核心化、少子化与老龄化叠加的背景下,社会支持服务发展滞后,且家庭照料功能弱化,导致儿童群体面临更严峻的多维困境风险挑战。在中国式现代化全面推进的历史方位下,面对扎实推进共同富裕战略的时代要求,传统生存型救助制度与困境儿童基本发展需求的结构性矛盾凸显。《中国儿童发展纲要(2021—2030年)》确立“对儿童发展的优先保障”原则,要求“加大困境儿童保障力度”。困境儿童社会救助制度改革已纳入国家议程,成为健全社会保障体系的关键性制度安排。国外学者基于发展型社会政策理论,聚焦困境儿童发展与社会投资层面研究成果丰富。国内学者侧重运用儿童权利和儿童福利视角进行研究。现有成果在制度转型方向、内在机理等制度分析层面相对薄弱。那么,发展型社会政策视角下,困境儿童社会救助制度如何突破生存型路径依赖,实现向发展型制度转型?本文在梳理困境儿童社会救助制度的历史演进后,分析制度变迁的逻辑和发展趋势,并依托典型案例的深度访谈数据,从发展型社会政策理论视角揭示制度转型困境。结合发达国家政策实践经验,提出向发展型困境儿童社会救助制度转型的规范建构路径与实施优化策略。首先,通过文献梳理与分析,阐释发展型社会政策理论的基本主张和适用性。从政策理念、政策目标、政策对象、政策主体和干预策略五个维度,提炼发展型社会政策理论架构内涵,作为核心理论基础框架。基于发展型社会政策理论,诠释困境儿童社会救助制度的基础概念。将困境儿童界定为:因自身、家庭或社会因素,其基本生存、发展和安全需求难以实现,临时或永久性陷入经济、生理、心理、行为、能力和社会性困境,需要政府和社会力量予以制度化帮扶的儿童。从“理念—规范—实施”要素三方面界定困境儿童社会救助制度的概念。处于制度内核的理念要素是指促使制度形成和运行的价值目标、制度基础等一系列观念组合;处于中间层次的规范要素属于制度的核心内容,是从静态层面分析正式制度的基本框架;制度最外层的实施要素则从动态层面分析制度,是制度理念和规范实现的必要手段。其次,通过对229份国家层面困境儿童救助相关政策文本分析,研究发现困境儿童社会救助制度呈现显著的演进特征,其政策重心正从生存保障向发展赋能转型。依据政策理念、政策目标、政策对象、政策主体和干预策略等关键维度是否发生重大变化,结合重要体制变革、核心政策颁布等关键节点,将困境儿童社会救助制度演进划分为应急型集体救济(1949—1977)、管理型补缺救助(1978—2009)、适度普惠型制度构建(2010—2019)和普惠发展型保障深化(2020年至今)四个阶段,但国家保障困境儿童基本生存的主导模式始终延续。从历史性逻辑维度分析,在制度变迁的关键节点,困境儿童社会救助制度的路径依赖发生历史性重构,由此塑造了渐进式的制度变迁规律。从结构性逻辑维度分析,制度变迁是宏观历史情境、中观观念结构和微观多元行为主体等多种结构要素相互作用的结果。再次,通过文本分析和深度访谈法,对包括困境儿童、寄养家庭、家属、民政部门、群团组织、福利机构、救助机构、社区工作者等在内的困境儿童救助相关主体进行访谈分析发现,困境儿童社会救助制度主要存在以下问题:其一,制度体系碎片化,法律与政策、统合救助与分散救助、生存救助与发展救助以及区域救助结构性失衡,导致“救助盲区”与“叠加救助”并存的非均衡格局。其二,制度规范发展性功能缺失,包括救助目标局限于生存兜底、对象识别局限于经济维度、内容供给过度依赖物质帮扶、救助方式局限于被动响应、救助主体存在协同治理困境等。其三,制度实施效能较低,被动响应机制难以匹配困境儿童的动态性和异质性需求,救助监管精准性和整合性不足以及权利救济渠道不畅削弱了制度公信力。从发展型社会政策理论视角分析,基于传统风险应对逻辑建立的救助制度,难以适配新风险情境,呈现出明显的滞后性。传统生存型救助观念的路径依赖,以及缺乏统合的法律保障,共同构成制度困境的根源。全面建成小康社会后,困境儿童社会救助制度处在变革关键期,这为打破制度路径依赖提供了重要机遇。在关键节点上,制度转型动因包括:社会主要矛盾转化等宏观历史情境决定转型方向。普惠共享观念的提出以及新儿童福利观激发了制度改革探索。困境儿童及其家庭的发展需求增加、政府职能转变以及社会参与能力提升助推制度转型。发展型社会救助制度的国际示范效应推动制度创新。鉴于困境形态日益复杂和多元化,加之社会救助制度应对新社会风险和社会主要矛盾转变而面临历史定位调整,借鉴发达国家转型发展的经验和教训,我国亟须构建发展型困境儿童社会救助制度。最后,在案例分析基础上,基于规范分析方法,提出“转变理念—重构规范—优化实施”的发展型困境儿童社会救助制度构建路径。一是转变制度理念。从消极被动转向积极预防,确立底线保障、风险预防和发展赋能的复合目标。二是重构制度规范。政策对象上,将困境儿童分为经济、生理、心理、行为、社会和能力困境六类,推动救助对象向所有困境儿童拓展。政策内容上,制定综合性救助清单,兼顾生存保障与发展性服务赋能,分层供给救助内容。政策主体上,通过政府主导、家庭赋能和“五社联动”(社区、社会组织、社会工作者、社区志愿者、社会慈善资源),实现多元主体协同治理。三是优化制度实施。从被动受理向主动识别转变,精准调查评估和差别化回应需求,激发困境儿童自我增能的动力。构建整合式行政监管机制、灵活经办服务机制、追踪式监测评估体系,实现精细化救助监管。通过制定《儿童福利法》实现制度整合,明确困境儿童救助的责任类型,拓宽发展型救助权的救济渠道,依法将所有困境儿童纳入制度化救助体系。更多还原

【Abstract】 Against the backdrop of accelerated population mobility,family centeredness,declining birth rates,and aging population,the development of social care services lags behind,and the family care function weakens,lead to more severe multidimensional growth risks and challenges for children.In the historical context of Chinese path to modernization,and in the face of the requirements of the times to solidly promote the common prosperity strategy,the structural contradiction between the traditional survival based social assistance system and the basic development needs of disadvantaged children is prominent.The "Outline for the Development of Chinese Children(2021-2030)" establishes the principle of "prioritizing the protection of children’s development" and requires "increasing the protection of disadvantaged children".The reform of the social assistance system for disadvantaged children has been included in the national agenda and has become a key institutional arrangement for improving the social security system.The foreign academic community focuses on the development of disadvantaged children and social investment based on the theory of developmental social policy.Domestic scholars focus on using the perspective of children’s rights and welfare for research.The existing achievements are relatively weak in terms of systematic institutional analysis,such as the direction of institutional transformation and internal mechanisms.So,from the perspective of a developmental social policy,how can the social assistance system for disadvantaged children break through the path dependence of survival and achieve the transformation of a developmental system?After reviewing the historical evolution of the social assistance system for disadvantaged children,this article analyzes the logic and development trends of institutional changes,and relies on in-depth interview data from typical cases to reveal the dilemma of institutional transformation from the perspective of developmental social policy theory.Based on the policy practice experience of developed countries,propose a standardized construction path and implementation optimization strategy for the transformation towards a development oriented social assistance system for disadvantaged children.Firstly,through literature review and analysis,explain the basic propositions and applicability of the theory of developmental social policy.Extract the theoretical framework of a developmental social policy from five key dimensions:policy philosophy,policy objectives,policy targets,policy subjects,and intervention strategies.Based on the theory of developmental social policy,interpret the basic concepts of the social assistance system for disadvantaged children.Children in difficult situations are defined as those whose basic survival,development,and safety needs are difficult to meet due to their own,family,or social factors.They are temporarily or permanently trapped in economic,physiological,psychological,behavioral,ability,and social difficulties and require institutionalized assistance from the government and social forces.Attempt to construct a four level conceptual system for disadvantaged children.Define the conceptual scope of the social assistance system for disadvantaged children from three aspects:concept,norm,and implementation.The conceptual elements at the core of the system refer to a combination of values,institutional foundations,and a series of concepts that promote the formation and operation of a social assistance system for disadvantaged children;The normative elements at the intermediate level belong to the core content of the system and are the basic framework for analyzing formal systems from a static perspective;The outermost implementation elements of the system are analyzed from a dynamic perspective,which is a necessary means of implementing institutional concepts and norms.Secondly,through the analysis of 229 policy texts,the study found that the social assistance system for disadvantaged children has shown significant evolutionary characteristics,and its policy focus is shifting from survival guarantee to development empowerment.Through policy text analysis,this article mainly divides the evolution process of the social assistance system for disadvantaged children in New China into four stages:emergency collective relief(1949-1977),management based supplementary assistance(1978-2009),moderate inclusive system construction(2010-2019),and deepening of inclusive development guarantee(2020 present),based on whether there have been significant changes in key dimensions such as policy concepts,policy objectives,policy objects,policy subjects,and intervention strategies,combined with important institutional changes,major conferences,and core policy issuances.This article analyzes from a historical logical dimension that at a critical juncture of institutional change,the path dependence of the social assistance system for disadvantaged children undergoes a historic reconstruction,thereby shaping a gradual pattern of institutional change.From the perspective of structural logic,it is proposed that institutional change is the result of the interaction of various structural elements such as macro historical context,meso conceptual structure,and micro diverse behavioral subjects.Thirdly,through text analysis and in-depth interviews,interviews were conducted with relevant parties involved in the assistance of disadvantaged children,including foster families,family members,civil affairs departments,mass organizations,welfare institutions,rescue agencies,community workers,etc.It was found that the current social assistance system for disadvantaged children mainly faces the following problems:firstly,institutional fragmentation,imbalance between laws and policies,integrated and decentralized assistance,survival and development assistance,and regional assistance,resulting in an unbalanced pattern of "blind spots" and "overlapping assistance" coexisting.The second is the lack of developmental functions of institutional norms,including rescue targets limited to survival support,object identification limited to economic dimensions,excessive dependence on material assistance for content supply,rescue methods limited to passive response,and collaborative governance difficulties among rescue entities.Thirdly,the implementation efficiency of the system is relatively low,and the passive response mechanism is difficult to match the dynamic and heterogeneous needs of disadvantaged children.The precision and integration of rescue supervision are insufficient,and the obstruction of rights relief channels weakens the credibility of the system.From the perspective of developmental social policy theory,the rescue system established based on traditional risk logic has shown significant lag in responding to new risks.However,in practice,the traditional survival oriented rescue concept still dominates,coupled with the lack of unified and standardized legal protection,which together constitute the root cause of institutional difficulties.After the comprehensive construction of a moderately prosperous society,China’s social assistance system for disadvantaged children is in a critical period of reform,which provides an important opportunity to break the path dependence of the system.At critical junctures,the driving forces of institutional change include:the transformation of the main social contradictions and other macro historical contexts that determine the direction of institutional change;The proposal of the concept of universal sharing and the new concept of child welfare have stimulated the exploration of institutional reform;The increasing development needs of disadvantaged children and their families,the transformation of government functions,and the enhancement of social participation capabilities are driving institutional transformation;The external demonstration effect of developed countries’ institutional shift towards development has promoted institutional innovation.Given the increasingly complex and diverse forms of difficulties faced by disadvantaged children,as well as the historical positioning adjustment of the social assistance system in response to new social risks and changes in the main social contradictions,and drawing on the experience of developed countries’ development and transformation,it is necessary to timely construct a developmental oriented social assistance system for disadvantaged children that meets the requirements of the new era.Finally,based on the case analysis and normative analysis method,a construction path for integrating "concept norm implementation" developmental social assistance for disadvantaged children is proposed.One is to transform the institutional concept.From passive to proactive prevention,establish a composite goal of bottom line protection,risk prevention,and development empowerment.The second is to reconstruct institutional norms.At the policy target level,from the six identification dimensions of economy,physiology,psychology,behavior,society,and ability,disadvantaged children are divided into six categories:economic dilemma,physiological dilemma,psychological dilemma,behavioral dilemma,social dilemma,and ability dilemma,promoting the expansion of assistance targets to all disadvantaged children.In terms of policy content,a comprehensive assistance list should be formulated,taking into account both survival security and development oriented service empowerment,to achieve the integration of the supply of assistance content.In terms of policy entities,through government leadership,family empowerment,and the "Five Society Linkage"(community,social organizations,social workers,community volunteers,and social charity resources),multiple entities can achieve collaborative governance.The third is to optimize the implementation of the system.Transitioning from passive acceptance to active identification,precise investigation and evaluation,and differentiated response to rescue needs,to stimulate the motivation of disadvantaged children to self empower.Build an integrated administrative supervision mechanism with clear responsibilities,a flexible handling service mechanism,and a tracking based monitoring and evaluation system to achieve refined rescue supervision.By formulating the Child Welfare Law,institutional integration can be achieved,clarifying the legal responsibility types for social assistance for disadvantaged children,expanding the relief channels for developmental assistance rights,and legally including all disadvantaged children in the institutionalized assistance system.更多还原