我国社会福利的发展过程和改革方向

1 社会福利的涵义及本质特征
社会福利的内涵及外延随着时代的发展而演变。从发达国家的历史来看，社会福利的重心经历了从社会救助到社会保险再到普遍性的社会服务的过程。时至今日，在发达国家，各种名目繁多的社会补贴和社会服务项目成为最受关注的社会福利项目。在我国，一方面随着社会经济的发展，社会福利已逐渐脱离了社会救济的范畴；另一方面，由于受到发达国家社会福利观念的影响，对于社会福利的看法也发生了显著的变化，并且同时出现了多种多样的观点和主张。笔者把它界定为，社会福利是国家和社会为满足社会成员基本的生存需求之上的需求，运用社会互助的机制来提高他们的生活质量的活动。在现实中，社会福利通常包括满足人们在生活照顾、护理保健、文化娱乐、精神慰藉等方面需求的活动，此外在广义上亦包括住房、教育、医疗等内容。社会福利有三个本质特征：
(1) 脆弱群体优先。在任何时代、任何社会中都存在着老人、儿童、残疾人等社会脆弱群体，他们存在一些特殊的需求，由于自身能力的不足，需要来自社会的保护和满足，其中主要是生活照顾服务，也包括身体康复、教育、就业、权益保护等方面的需求。国家和社会应该首先满足这个群体的需求，并随着社会经济的发展不断地提高他们的生活质量。
(2) 福利性。对受益者个人来说，社会福利具有福利性。面向脆弱群体提供的社会福利服务，因为他们的经济收入和支付能力有限，常常是免费或者是象征性的收费，这无疑具有福利性。即使收取的费用比较高，但只要未达到该项服务的市场价格，则仍然存在着福利性，属于社会福利的范畴。“市场价格是判断是否存在社会福利的标尺。”如果按照市场价格收费，就超出了社会福利领域而属于经济领域。
(3) 服务性。“社会福利侧重于满足社会成员较高水平或较高层次的社会保障需求”，这些需求大多是以服务的形式提供的，因此社会化的服务是社会福利主要的实现方式和表现形式。社会福利的特点是为个人提供服务，以满足他们各方面的需求。因此，福利服务的主体和资源是社会化的，但服务的对象和方式却是个体化的，必须针对每个服务对象具体的特点和情况，灵活多样、因地制宜地开展福利服务。
2 我国传统的社会福利制度及其改革
我国传统的社会福利制度是指改革开放之前计划经济时代的社会福利制度。它呈现出一种制度性供给与补缺型福利并存的二元格局。这种福利模式是与我国城乡分割的二元经济体制相适应的。在城市，社会福利属于制度化再分配型福利，是保障程度和福利水平很高的国家福利模式。这种模式与充分就业的就业制度紧密相联。绝大多数城市居民通过自己就业的单位得到全面而优厚的社会福利待遇。从衣食住行到生老病死，人们生活中几乎一切方面都得到了单位的关怀与保障。这种制度的福利水平即使比起西方的福利国家来，也有过之而无不及。因为传统体制下的国有单位并不自负盈亏，和国家财政实际上是“一本账”，所以国家和单位具有同一性。单位只是国家向城市居民提供各种福利的工具和途径。此外，城市里也存在一些非就业人口如孤老残幼等“三无”对象，接受着国家民政部门的收养和救济，属于补缺型的福利模式，但因为覆盖的人数极少，在我国城市的社会福利体系只是处于附属和补充的地位。在农村，我国的社会福利是典型的补缺型的集体福利模式。国家基本上不对农村的社会福利承担责任，而是由农村的集体组织（如人民公社、生产队等）承担有限的责任，即对农村的孤老残幼等“三无”人员实行“五保”供养。由于当时农村的经济发展十分落后，又很少得到来自国家的财政支持，因此农村集体所办的福利只能覆盖少数“三无”人员，而且福利待遇处于社会救济层次。在计划经济时代，国家包揽、高水平的城市福利与项目残缺、救济型的农村福利相互分割，形成了鲜明的对比。
20世纪70年代末，中国进入了改革开放的新的历史时期。为适应社会经济结构的日益改变，社会福利制度也于20世纪80年代中期走上了改革之路。到今天，在社会福利领域已初步形成了一套“社会福利社会化”的改革思路和方针政策。“社会福利社会化”萌芽于20世纪80年代初期，明确提出是在1990年，在2000年的全国社会福利社会化工作会议上得到系统阐述。在实践中表现为原有的以社会救济为特征、政府包办、只面向“三无”对象和“五保户”的模式向政府负责社会福利费用、全社会兴办社会福利、面向社会上有需求的所有公民、福利机构市场化经营的新型社会福利模式转变。这个过程由国有社会福利机构的改革发端，然后开展面向社会全体公民的社区服务，之后逐步形成一套社会福利社会化的思路。然而从总体上看，社会福利领域的改革与发展是渐进而缓慢的，新型的社会福利制度至今并未出现。
3 对我国社会福利制度改革目标模式的构想
根据本文对社会福利涵义的界定，充分借鉴和学习以上几种制度的优点，笔者初步形成了对于我国社会福利改革目标模式的构想。它包含下面五个方面的内容：
3.1 政府办福利机构民营化
在现有体制下，政府办的社会福利机构成为政府部门的附属机构，缺乏人、财、物等方面的经营自主权，诸如机构臃肿、人浮于事、态度恶劣、效率低下等成为官办福利机构的通病。要根本改变这种状况，必须采取釜底抽薪的办法，即将大多数的官办福利机构民营化。当然民营化不等于私有化。作为非营利机构，最关键的问题是经营权而不是所有权。所有权的模糊性是所有非营利机构的共同特征。民营化的方法有很多，比如可以实行委托经营的办法，这方面的探索也是上海首先进行的。但要注意的是，既然委托经营的是非营利的福利事业，政府就不应该再收什么经营承包费用，否则这种费用最终会转嫁到福利服务的对象头上，这与政府介入社会福利的目的是根本相悖的。当然，根据香港的经验，有一小部分政府办的福利机构是不能民营化的，因为这些机构提供的是需要借助行政权威的具有强制性或者政策性较强的服务。这些服务是民间机构做不好或不愿做的，因此必须由政府直接提供

1 the meaning of social welfare and the essential character of
The connotation of social welfare and outreach with the times and the evolution of the development. From the history of developed countries, the focus of social welfare through social assistance from social insurance to social services to the universality of the process. Today, in developed countries, a variety of numerous social benefits and social services to become the most talked about social welfare projects. In our country, on the one hand with the socio-economic development, social welfare has gradually deviated from the scope of social assistance; On the other hand, developed countries due to the impact of the concept of social welfare, for social welfare have taken place in view of significant change, and At the same time, a wide range of views and ideas. Defined as the author put it, the social welfare state and social members of society to meet basic needs for survival on the needs of the community and mutual assistance mechanisms to improve their quality of life activities. In reality, the social welfare often meet people in life, including care, health care, culture, entertainment, spiritual comfort needs, such as activities, in addition to the broad sense, including housing, education, medical care and so on. Social welfare has three essential characteristics:
(1) give priority to vulnerable groups. In any era, in any society there are the elderly, children, the disabled and other vulnerable groups of society, they have some special needs, because of their lack of ability, need protection from society and to meet, mainly living care services, also include physical rehabilitation, education, employment, rights and interests of the protection needs of the community. State and society should first meet the needs of this group and socio-economic development with continuously enhance their quality of life.
(2) welfare. Of the individual beneficiaries of social welfare with welfare. Vulnerable groups for the provision of social welfare services, because their income and capacity to pay is limited, often for free or a nominal fee, which is undoubtedly of welfare. Even if the relatively high fees charged, but as long as the service does not meet the market price, then there are still welfare, social welfare. "The market price is to determine whether there is a yardstick of social welfare." If the market price in accordance with the charges on the field of social welfare beyond the economic sphere belonging.
(3) service. "Social Welfare to meet members of society to focus on higher level or a higher level of social security needs," Most of these requirements is provided in the form of services, therefore, the socialization of social welfare services are the main ways and forms. Characterized by social welfare services provided for individuals to meet their various needs. Therefore, the main body of welfare services and resources of the community, but the object and manner of service is individual and must be tailored to each client's specific characteristics and circumstances, flexible and diverse, in line with local conditions to carry out welfare services.
2 China's traditional social welfare system and its reform
China's traditional social welfare system means that before the reform and opening up the planned economy era, the social welfare system. It presents a system of supply and filled both the binary-type pattern of benefits. Such welfare model is the division of China's urban-rural dual economic system to adapt. In the cities, the redistribution of social welfare-type benefits are institutionalized, is the level of protection and welfare of countries with high levels of welfare model. This model with full employment are closely linked to the employment system. The vast majority of urban residents in employment through their own units to be comprehensive and generous social benefits. To sickness and death from life, it is almost all aspects of life have been the care and protection units. Such a system even if the level of benefits compared to the western welfare states, but also beyond. Because under the traditional system is not self-financing state-owned units, and the state finance is "an account", so the national and unit identity. Units only country to provide various benefits to the residents the tools and means. In addition, the city, there are some non-employed persons such as David孤老residues, such as "three noes" of the object, the national civil affairs departments to accept the adoption and relief, are filled-based welfare model, but because the number of people covered by very few cities in China only at the social welfare system and to add the status of a subsidiary. In rural areas, the social welfare of our turnover is a typical type of collective welfare model. Countries are basically social welfare in rural areas do not take responsibility, but by the rural collective organizations (such as people's communes, production teams, etc.) is limited to assume the responsibility, that is, rural areas, such as David孤老residual "three noes" personnel "Five" dependent. At that time, the economic development of rural areas are very backward, and rarely from the State financial support to do so by the rural collective well-being can only cover a small number of the "three noes" of personnel, but also the level of social assistance benefits are. Under the planned economy era, the state won, a high level of urban well-being with the project incomplete, relief of the rural-based segmentation of mutual benefits, in sharp contrast.
70's at the end of the 20th century, China's reform and opening up has entered a new historical period. In order to meet the ever-changing socio-economic structure, social welfare system in the 20th century, the mid-80's embarked on reform. Today, in the field of social welfare have begun to take shape a set of "socialization of social welfare" reform ideas and principles and policies. "Socialization of social welfare" in its infancy in the early 20th century, 80, made clear in 1990, in the 2000 National Social Work Conference of the welfare society has been systematically expounded. In practice, the original performance is characterized by social relief, the Government arranged, only for the "three noes" of the object and the "Five Guaranteed" model to the Government for social welfare costs, the whole society to set up social welfare, community-oriented there is a demand of all citizens and welfare institutions run by the new market-oriented model of social welfare. This process of state social welfare institutions by the reform of the originator, and then all the citizens of the community-oriented community service, followed by the gradual formation of a socialization of social welfare ideas. Overall, however, the field of social welfare reform and development is the gradual and slow, the new social welfare system has not yet appeared.
3 on the country's social welfare system, the idea of the objectives of the reform model
According to this article on the meaning of the definition of social welfare, and learning to fully draw on the advantages of the above system, I initially formed for the welfare of our society the idea of the objectives of the reform model. It contains the following five aspects:
3.1 Privatization of government-run welfare institutions
Under the existing system, government-run social welfare institutions to become a subsidiary body of government departments, lack of human, financial, and material aspects of operational autonomy, such as the institutions are overstaffed overstaffing, poor attitude, inefficient government-run welfare institutions, such as becoming a common problem . To fundamentally change this situation, must take drastic approach, the majority of the forthcoming privatization of government-run welfare institutions. Of course, privatization does not mean privatization. As a non-profit institutions, the most critical issue is not ownership of the franchise. The ambiguity of ownership of all the common features of non-profit organization. There are many methods of privatization, for example, can be entrusted with the operation of the ways to explore this area is carried out first of all, Shanghai. Yet it must be noted that since the commission is a non-profit operation of welfare services, the Government should not close any further contract the cost of the operation, otherwise such costs will ultimately be passed on to the object of his head of welfare services, which government intervention in social welfare purpose is contrary to the fundamental. Of course, the experience of Hong Kong, only a small part of the government is not the privatization of welfare agencies, because these institutions is provided by the administrative authority require mandatory policy or more services. These services are poor or non-governmental organizations do not want to do so, and therefore must be provided directly by the Government

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