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1、“十三五”时期的社会救助与兜底脱贫,蒋玮 Jiang Wei民政部社会救助司,Social Assistance and Poverty Alleviation Under the Security of Basic Life Needs During the Period of the“13th Five-year Plan”,Department of Social Assistance Under the Ministry of Civil Affairs Sep 29,2016,一、社会救助与脱贫攻坚战略的关系,I.Relationship between social assista
2、nce and poverty alleviation strategy,一、社会救助与脱贫攻坚战略的关系,（一）社会救助的概念社会救助是国家对依靠自身能力无法维持基本生活的公民给予的物质帮助和精神扶助，是我国社会保障的重要组成部分，发挥着托底保障的作用，对于促进社会公平正义、维护社会和谐稳定具有重要意义。,I.Relationship between social assistance and poverty alleviation strategy,（I）Concept of social assistanceSocial assistance refers to material and
3、 spiritual supports granted by the state to its citizens unable to maintain their basic life relying on themselves,and it is an important part of social security in China playing the role of securing the basic life needs of people,thus of important significance in promoting social equality and justi
4、ce and maintaining social harmony and stability.,一、社会救助与脱贫攻坚战略的关系,（二）关于脱贫攻坚战略脱贫攻坚的总体目标：围绕全面建成小康社会，通过扶贫开发，做到“两不愁三保障”、“一高于一接近”和“两个确保”。,I.Relationship between social assistance and poverty alleviation strategy,（II）About poverty alleviation strategyOverall objective of poverty alleviation:achieve such o
5、bjectives as“two carefreenesses and three securities”,“one higher and one approximation”and“two ensurances”through poverty alleviation and development surrounding the final objective of establishing a well-off society in an all-around way.,一、社会救助与脱贫攻坚战略的关系,（二）关于脱贫攻坚战略“两不愁三保障”：不愁吃、不愁穿；保障义务教育、保障基本医疗、保
6、障住房安全。,I.Relationship between social assistance and poverty alleviation strategy,（II）About poverty alleviation strategy“Two carefreenesses and three securities”：Be carefree of food and cloth；Secure compulsory education,basic medical care and housing safety.,一、社会救助与脱贫攻坚战略的关系,（二）关于脱贫攻坚战略“两个确保”：确保贫困人口实
7、现脱贫；确保贫困县全部摘帽。,I.Relationship between social assistance and poverty alleviation strategy,（II）About poverty alleviation strategy“Two ensurances”：Ensure that poor people can throw off poverty；Ensure that all the poverty-stricken counties can get out of poverty.,一、社会救助与脱贫攻坚战略的关系,（二）关于脱贫攻坚战略“一高于一接近”:贫困地
8、区农民人均可支配收入增长幅度高于全国平均水平；基本公共服务主要领域指标接近全国平均水平。,I.Relationship between social assistance and poverty alleviation strategy,（II）About poverty alleviation strategy“One higher and one approximation”:The amplification of per capita disposable income of farmers in poverty-stricken areas is higher than nation
9、al average level The indexes in main basic public service fields approximate to national average level.,一、社会救助与脱贫攻坚战略的关系,（二）关于脱贫攻坚战略基本方略：做到“六个精准”实施“五个一批”。“社会保障兜底一批”：针对丧失劳动能力的贫困人口通过社会保障实施政策性兜底扶贫。,I.Relationship between social assistance and poverty alleviation strategy,（II）About poverty alleviation s
10、trategyBasic strategy:achieve“six precisions”and implement“five one batch”.Ensure the basic life needs of a batch of poor people through social security”:implement policy poverty alleviation based on the security of basic life needs through social security for poor people physically unable to work.,
11、一、社会救助与脱贫攻坚战略的关系,（三）社会救助在脱贫攻坚战中发挥基础性作用,.社会救助是“大扶贫”工作的重要组成部分，是我国应对贫困问题的重要政策工具。Social assistance is an important part of“great poverty alleviation”work,and also an important policy tool adopted by China to cope with the problem of poverty.,.在贫困对象中，总有一部分家庭因为自身或社会原因无法通过产业扶持获得收入，只能依靠政府现金补助或物质帮助等方式维持生活。这是
12、脱贫攻坚的底线，也是社会救助在脱贫攻坚中的具体任务。.Of all the poverty alleviation objects,there are surely a part of households unable to acquire income through industry support for reasons of their own or the society,and they have no choice but rely on cash or material supports from the government to maintain their life,w
13、hich is the bottom line for poverty alleviation and also the specific task borne by social assistance in poverty alleviation.,.社会救助制度体系的完善以及相关救助政策的落实，其本身就是在参与脱贫攻坚、实施兜底脱贫。.The improvement of social assistance system and the implementation of relevant assistance policies actually represent the partici
14、pation in poverty alleviation and the implementation of poverty alleviation based on the security of basic living needs.,I.Relationship between social assistance and poverty alleviation strategy,（III）Fundamental role of social assistance in the battle of poverty alleviation,二、“十三五”时期社会救助在脱贫攻坚战略中的作用发
15、挥,II.The Role of Social Assistance in Poverty Alleviation Strategy During the Period of the“13th Five-year Plan”,二、“十三五”时期社会救助在脱贫攻坚战略中的作用发挥,（一）“十二五”时期社会救助事业的发展，为其在脱贫攻坚战略中实施兜底脱贫奠定了重要基础。1.“十二五”时期社会救助制度体系不断健全。,II.The Role of Social Assistance in Poverty Alleviation Strategy During the Period of the“13t
16、h Five-year Plan”,（I）The development of social assistance course during the period of the“12th Five-year Plan”laid an important basis for its role of poverty alienation based on the security of basic living needs in poverty alienation strategy.1.Social assistance system acquired continuous improveme
17、nt during the period of the“12th Five-year Plan”.,2012年9月 September 2012,2014年2月 February 2014,2014年10月 October 2014,2015年4月 April 2015,国务院关于进一步加强和改进最低生活保障制度的意见,社会救助暂行办法,国务院关于全面建立临时救助制度的通知,国务院办公厅转发民政部等部门关于进一步完善医疗救助制度全面开展重特大疾病医疗救助工作意见的通知,2016年2月 Feb.2016,国务院关于进一步健全特困人员救助供养制度的意见,Opinions of the State
18、Council on Further Strengthening and Improving the System of Subsistence Allowances,Temporary Measures for Social Assistance,Notice of the State Council on Comprehensively Establishing Temporary Assistance System,Notice of Opinions Transmitted by the State Council to the Ministry of Civil Affairs an
19、d Other Relevant Ministries on Further Strengthening Medical Assistance System and Comprehensively Implementing Medical Assistance Work Against Serious Diseases,Opinions of the State Council on Further Improving Assistance and Support System for Especially Poor People,Social power participation,二、“十
20、三五”时期社会救助在脱贫攻坚战略中的作用发挥,（一）“十二五”时期社会救助事业的发展，为在脱贫攻坚战略中实施兜底脱贫奠定了重要基础。1.“十二五”时期社会救助制度体系不断健全。2.社会救助暂行办法明确了“十三五”社会救助发展方向。,II.The Role of Social Assistance in Poverty Alleviation Strategy During the Period of the“13th Five-year Plan”,（I）The development of social assistance course during the period of the“1
21、2th Five-year Plan”laid an important basis for its role of poverty alleviation based on the security of basic living needs in poverty alleviation strategy.1.Social assistance system acquired continuous improvement during the period of the“12th Five-year Plan”.2.Temporary Measures for Social Assistan
22、ce defines the development direction of social assistance during the period of the“12th Five-year Plan”.,暂行办法：综合救助格局,Temporary measures:comprehensive assistance layout,Underpinning the bottom line,granting assistance for emergencies and being sustainable,暂行办法：注重落实,Temporary measures:emphasizing impl
23、ementation,Township acceptance,information checking and unified acceptance by a single department,Charity power,social work and purchasing service,Handling organization,work expenditures and information system,Administrative sanction,administrative penalty and criminal responsibilities,二、“十三五”时期社会救助
24、在脱贫攻坚战略中的作用发挥,（一）“十二五”时期社会救助事业的发展，为在脱贫攻坚战略中实施兜底脱贫奠定了重要基础。1.“十二五”时期社会救助制度体系不断健全。2.社会救助暂行办法明确了“十三五”社会救助发展方向。3.以最低生活保障为代表的社会救助制度“托底保障”作用日益显著。,II.The Role of Social Assistance in Poverty alleviation Strategy During the Period of the“13th Five-year Plan”,1.Social assistance system acquired continuous imp
25、rovement during the period of the“12th Five-year Plan”.2.Temporary Measures for Social Assistance defines the development direction of social assistance during the period of the“12th Five-year Plan”.3.The role of securing basic living needs played by social assistance systems represented by the syst
26、em of subsistence allowances is increasingly distinctive.,城乡低保“托底保障”的作用显著,城市低保标准从1999年的月人均149元增长到2015年的451元；补助水平从月人均45元增长到2015年的303元。,Urban and rural subsistence allowances play a distinctive role in securing basic living needs,Urban subsistence allowance standard and subsidy level,The standard of u
27、rban subsistence allowances increased from monthly RMB 149 Yuan(per person)in 1999 to RMB 451 in 2015 Subsidy level increased from monthly RMB 45 Yuan(per person)to RMB 303 Yuan in 2015.,城乡低保“托底保障”的作用显著,农村低保标准从2007年的月人均70元增长到2015年的265元；补助水平从年人均39元增长到2015年的147元。,Urban and rural subsistence allowances
28、 play a distinctive role in securing basic living needs,Urban subsistence allowance standard and subsidy level,The standard of rural subsistence allowances increased from monthly RMB 149 Yuan(per person)in 2007 to RMB 265 Yuan in 2015 Subsidy level increased from annually RMB 39 Yuan(per person)to R
29、MB 147 Yuan in 2015.,城乡低保“托底保障”的作用显著,中央财政低保补助资金从4亿元增加到2015年1171.48亿元（全部支出1650.8亿元）。基本占资金支出总量的70.9%。,Urban and rural subsistence allowances play a distinctive role in securing basic living needs,Capital investment in subsistence allowances from central and local finances,The amount of capital subsidi
30、zed for subsistence allowances from central finance increased from RMB 0.4 billion Yuan to RMB 117.148 billion Yuan in 2015(totally RMB 165.08 billion Yuan),basically 70.9%of the total amount of capital expenditure.,近年来社会救助资金支出情况（包括城乡低保、医疗救助、农村五保以及临时救助支出）,单位：亿元,全国社会救助资金支出从2007年的539亿元增长到2015年的2233.1亿
31、元。,Expenditures of social assistance capital in（including expenditures on urban and rural subsistence allowances,medical assistance,five guarantees in rurrecent years al areas and temporary assistance）,National capital expenditures on social assistance increased from RMB 53.9 billion Yuan to RMB 223
32、.31 billion Yuan in 2015.,二、“十三五”时期社会救助在脱贫攻坚战略中的作用发挥,（二）“十三五”时期社会救助发展目标：围绕着“托底、精准、规范”，实施兜底脱贫，更好地发挥社会救助在脱贫攻坚中的基础作用。托底保障,II.The Role of Social Assistance in Poverty alleviation Strategy During the Period of the“13th Five-year Plan”,（II）Development of social assistance during the period of the“13th Fiv
33、e-year Plan”Objective:implement poverty alleviation based on the security of basic living needs surrounding the principle of“securing basic living needs and being precised and standard”,so as to play the role of social assistance in poverty alleviation in a better way.Secure the basic living needs o
34、f the poor,添加标题,线上托住底,面上托住底,点上托住底,突出重点精准施救，把有限的资金瞄准最困难群众，突出重点，实施差异化救助，对救助对象中的老年人、残疾人、未成年人、重病患者等特殊困难群众作为重点救助对象，不断提高救助水平，同时有服务方式上为他们提供更多的个性化、差别化服务。,托底保障,提高制度的可及性，针对不同需求，调整政策目标，逐步拓展制度覆盖范围，做到不同类别、不同需求的困难群众都有制度安排，遭遇困难、陷入困境时，救助制度“公平可及”。,提高标准的科学性，根据制度的功能定位，科学合理确定救助标准，划定救助水平线，使之与经济社会发展水平相适应，使救助安全网网底牢固。,Secu
35、re the basic living needs of the poor at the grassroots level,Increase the accessibility of systems,adjust policy objectives according to different demands,gradually expand the coverage scope of the systems,so as to ensure that all masses in difficulty can be covered by the systems regardless of the
36、ir various types or demands,and they can be equally accessed to the systems when trapped in difficulty.,Secure the basic living needs of the poor at the poverty line level,Increase the scientificity of relevant standards;scientifically and reasonably determine assistance standards and delimit assist
37、ance level line according to the function positioning of relevant systems,and adapt them to economic and social development level,so as to secure the bottom of assistance safety network.,Secure the basic living needs of the poor at the target level,Precisely implement assistance through highlighting
38、 key points,centrally devote limited capital to masses trapped in the largest difficult,highlight key points and implement differential assistance and regard the old,disabled,juveniles,and severe cases and other masses with special difficulties as key assistance objects,so as to continuously increas
39、e assistance level and supply them with personalized and differential services in terms of service methods in the meantime.,Secure the basic living needs of the poor,二、“十三五”时期社会救助在脱贫攻坚战略中的作用发挥,（二）“十三五”时期社会救助发展目标：围绕着“托底、精准、规范”，实施兜底脱贫，更好地发挥社会救助在脱贫中的基础作用。托底保障：面上托底、线上托底、点上托底精准救助：更加精准地实施分类救助规范运行：公平公正、快捷便
40、民,II.The Role of Social Assistance in Poverty alleviation Strategy During the Period of the“13th Five-year Plan”,（II）Development of social assistance during the period of the“13th Five-year Plan”Objective:implement poverty alleviation based on the security of basic living needs surrounding the princ
41、iple of“securing basic living needs and being precised and standard”,so as to play the role of social assistance in poverty alleviation in a better way.Secure the basic living needs of the poor at plain,line and point levels respectivelyPrecise assistance:implement classified assistances in a precis
42、er way Standard operation:being equal and fair and rapid and convenient,二、“十三五”时期社会救助在脱贫攻坚战略中的作用发挥,加强与扶贫开发政策的衔接,完善低保动态调整机制,改进低保对象认定办法,加强分类施保,改变单纯核对家庭收入、财产状况的认定办法，统筹考虑家庭生活必需支出状况。,通过“低保兜底”对无法通过产业扶持脱贫的完全或部分丧失劳动能力的贫困人口“应保尽保”。Try the best to implement securities for the poor who are partially or complete
43、ly disabled and unable to get out of poverty through industry support by means of“securing their basic living needs”.,建立与居民人均消费支出水平相挂钩的量化调整机制。,对低保家庭中的老年人、未成年人、重度残疾人等重点救助对象，提高救助水平，确保基本生活,1.最低生活保障Subsistence allowances,II.The Role of Social Assistance in Poverty alleviation Strategy During the Period
44、of the“13th Five-year Plan”,Strengthen the cohesion with poverty alleviation and development policies,Transform the original determination method of purely checking household income and financial situations into considering the situations of household necessary expenditures in an integrated way,Impr
45、ove subsistence allowance object determination method,Improve dynamic adjustment mechanism for subsistence allowances,Establish quantified adjustment mechanism matched with residents per capita consumption expenditure level,Strengthen classified implementation,Increase assistance level for the old a
46、nd severely disabled as well as juveniles and other key assistance objects in subsistence allowance households,and ensure their basic living needs.,二、“十三五”时期社会救助在脱贫攻坚战略中的作用发挥,加强医疗救助与医疗保险的衔接,全面开展重特大疾病医疗救助,资助低保对象、特困人员、农村贫困人口参加基本医疗保险。坚持“保险+救助”的托底保障机制。,提高制度的可及性：救助对象由重点救助对象（低保对象、特困人员）、低收入对象（低收入家庭中的老年人、重度
47、残疾人、重病患者、未成年人）拓展到“因病致贫”家庭和农村建档立卡贫困人口。提高救助的靶向性：实行分类分段的梯度救助。,2.医疗救助 Medical assistance,II.The Role of Social Assistance in Poverty alleviation Strategy During the Period of the“13th Five-year Plan”,Strengthen the cohesion between medical assistance and medical insurance,Subsidize subsistence allowance
48、 objects,especially poor people and rural poor population,to attend basic medical insurance.Adhere to the mechanism of securing the basic living needs of the poor integrating“insurance and assistance”,Comprehensively implement medical assistance against serious diseases,Increase the accessibility of
49、 the systems:in addition to key assistance objects(subsistence allowance personnel and especially poor personnel),low-income objects(the old and severely disabled as well as juveniles in low-income households),incorporate households trapped in poverty because of diseases and rural poor populations r
50、egistered with corresponding certificates into the scope of assistance objects.Increase the targeting of assistance:implement classified and segmented gradient assistance,二、“十三五”时期社会救助在脱贫攻坚战略中的作用发挥,推进制度城乡统筹发展,改善供养条件、提升供养水平,3.特困人员供养 Support for specially poor persons,II.The Role of Social Assistance
