The elder sister mentioned earlier is about 50 years old. Her two children are studying in universities in other places, and her husband is over 60 years old. Because she had a serious stroke before, she couldn't take care of herself, and she had to rely on drugs for a long time, so she has always been the eldest sister, relying on the money she got from selling newspapers every morning to maintain the living expenses of this family. Their family is also a difficult low-income household in the community.
Half a month ago, disaster came to my sister's house again. Her husband went to the hospital for examination and found that ascites due to cirrhosis was still malignant. Subsequent medical expenses, hospitalization expenses and other expenses have dealt a great blow to this already poor and difficult family.
During her husband's few days in hospital, she spent 1700 yuan. Because she didn't have free medical reimbursement, she could only give the hospital more than 500 yuan at a time, and the rest was a notice of arrears given to her by the hospital. In the case that the elder sister really couldn't raise cash, the hospital said: If there is no money, we can't continue to use drugs. Only when we pay all the money can we continue to use drugs!
This time, I am worried about my sister. Where can she find the money? On the one hand, the seriously ill husband is constantly moaning and suffering, and on the other hand, the rising medical expenses and hospital reminders are completely at a loss.
Later, the desperate elder sister came to the community and got the above scene.
Because I am in charge of community civil affairs (low-income assistance, disabled assistance, urban medical assistance, urban low-rent housing, special care assistance, etc. ), after I finished talking with my elder sister, according to the relevant policies, I immediately filled out a form for her and made a (medical assistance for major diseases of urban poor residents). This measure can reimburse 25% of the hospitalization expenses spent by patients during hospitalization. But this policy is very strict, and the required procedures are not easy to get. It must be audited by the community, reported to the street office for approval, and then reported to the District Civil Affairs Bureau by the street office, which passed after verification and audit. Therefore, it takes a long time. However, it is difficult to help my sister in time. It is still necessary for the elder sister to communicate with the hospital, save lives first, and then pay off the expenses. However, the result was not so smooth. Sister said that the hospital has its own regulations, and it is necessary to pay the owed fees before continuing treatment!
As a result, the elder sister's husband left her forever, leaving this world without money and timely treatment! Before her husband died, she once said to her husband: It's not that I don't want to save you, it's that this family is too poor, and I really can't help it!
Here, it is very urgent to call for the medical system to be built quickly and economically so that everyone can afford the disease and medicine! ~~
1. Description of research background value
Since Shanxi Provincial Civil Affairs Department started the rural social security construction pilot in Yangquan City on 1994, the rural minimum living security in China has been gradually established throughout the country. From 65438 to 0997, Guangdong Province tried out the rural minimum living security system (hereinafter referred to as the minimum living security system), which has been fully rolled out and achieved remarkable results.
The implementation of the rural minimum living security system is a basic project in the construction of rural social security system and should be the "last line of defense" in building rural social stability. The purpose of this topic is to investigate the implementation status of rural minimum living security system in Qingyuan City, Guangdong Province, objectively reflect the pilot situation of rural minimum living security system in this city, and explore the experience and lessons in the pilot work of minimum living security system. This study has obvious practical significance for understanding the current rural development and maintaining rural stability, improving the rural minimum living security system and its implementation. At present, there are few surveys on the implementation of the rural minimum living security system in Guangdong, and this survey also has certain reference value for the theoretical construction of sociology and social work. The title of this topic is relatively novel, and the text layout of the article is mainly from "macro" analysis to "micro" analysis.
Members of our investigation team went to the provincial civil affairs department and the civil affairs bureaus in Qingyuan, Guangzhou and Foshan to learn about the policy and its implementation. During the period from 10 to10 in 2004, the investigation team conducted a comprehensive investigation on the implementation of the minimum living security system in Qingyuan City and collected a lot of first-hand information. On this basis, under the guidance of sociological theory and research methods, this paper makes a descriptive analysis of macro and micro, and then reflects on the current situation of rural minimum living security system in China.
2. Description of the low-level and narrow-range implementation of the minimum living security system.
2. 1, the establishment of rural minimum living security system
The exploration of the rural minimum living security system began with the initial idea of establishing the rural social security system in Yangquan City, Shanxi Province, from 65438 to 0994. At the end of 1996, the Ministry of Civil Affairs formally formulated the guiding scheme for the construction of rural social security system and began to carry out pilot work nationwide. From 65438 to 0997, Guangxi promulgated the Administrative Measures for Rural Social Security System, which is the first administrative measure for rural minimum living security system promulgated by the provincial government in China. Guangdong also established the province's rural minimum living security system on 1997, and promulgated and implemented the Regulations on Social Relief in Guangdong Province on 1999. Because the 200 1 year Measures for the Implementation of the Minimum Living Security System for Urban and Rural Residents in Guangdong Province was implemented in three steps. Therefore, the rural minimum living security system
* The survey report was funded by the 2004 Science and Technology Innovation Fund for College Students of South China Agricultural University.
It was incorporated into the legal system in Guangdong.
Yingde County, Qingyuan City (now the city) issued the Interim Measures for the Rural Minimum Living Security System in yingde city according to Fu Ying [1997] No.36, which is the beginning of the implementation of the rural minimum living security system in Qingyuan. In the same year, other counties (cities) in Qingyuan successively established the rural minimum living security system. In the process of building the minimum living security system in recent ten years, Qingyuan City has promulgated some local laws and regulations according to the national and provincial laws and regulations on disaster relief and combined with the local actual situation, mainly including 1999 "Measures for the Implementation of the Minimum Living Security for Urban and Rural Residents in Qingyuan City" and "Measures for the Implementation of the Rural Five Guarantees Support System in Qingyuan City" issued in 2000. The promulgation and implementation of the legal system has enabled the rural minimum living security system to develop healthily along the track of standardization and legalization.
2.2, the minimum target, standard and its structure
2.2. 1, the number of low-income recipients has increased, but the coverage of low-income is still narrow. General situation of the number of insured persons and households since the implementation of the subsistence allowance system in Qingyuan City (see table 1).
Table1:rural minimum living security assistance in Qingyuan city in 2004 from 65438 to 0997.
Annual number (person) and number of households (household)
1997 563 1 2 126
1998 7587 383 1
1999 9825 42 10
2000 20 125 9072
200 1 23235 945 1
2002 3 1228 1092 1
2003 36820 13975
2004 (as of May) 39858 156 19
(Source: Civil Affairs Data of Qingyuan Civil Affairs Bureau-May 2004)
As can be seen from the data in the table, on the whole, the number of rural residents in Qingyuan City has greatly increased. Especially after 2000, the Civil Affairs Department of Guangdong Province put forward efforts to expand the coverage of subsistence allowances, so that eligible farmers can be guaranteed as soon as possible, and the situation of "should be guaranteed but not guaranteed" can be reduced. Under the guidance of superiors, the coverage rate of rural subsistence allowances has increased rapidly. 65438-0997 Qingyuan subsistence allowance system began to be implemented on a pilot basis. Due to imperfect policies and other aspects, the subsistence allowance coverage rate is very low. By 1999, the Measures for the Implementation of the Minimum Living Security System for Urban and Rural Residents in Guangdong Province was promulgated and began to be implemented, and the rural residents in the province increased rapidly compared with 1997. 199 In Qingyuan, the number of rural subsistence allowances reached 9,825, and the cumulative number of assisted families reached 42 10. By 2000, the number of rural residents in the city had rapidly increased to 20 125, an increase of 102% compared with 1999. The rapid expansion of the scope of subsistence allowances stems from the promulgation and implementation of relevant relief laws and the strong support of provincial finance. Before 2000, the city's rural minimum living security funds mainly came from the city and town levels. After 2000, the provincial finance provided about 60% of the funds for Qingyuan subsistence allowance, which ensured the sustained and steady growth of subsistence allowance funds to a certain extent.
However, at present, only 53,082 people in the city are included in the subsistence allowance, accounting for only 1.52% of the city's total population. Therefore, Qingyuan's subsistence allowances are still relatively few, and the coverage is narrow.
2.2.2, low security standards. As for the rural minimum living standard, all parts of Guangdong refer to the implementation method of urban residents' minimum living standard, which is reasonably determined by all parts of Guangdong according to the expenses necessary for local rural residents to maintain the most basic living needs such as clothing, food and shelter in the previous year, and taking due account of factors such as water and electricity, coal burning and compulsory education for minors. For low-income objects with special difficulties, all localities also expressly stipulate that the level of protection should be appropriately raised on the basis of the local low-income line.
Guangdong rural subsistence allowances are divided into full enjoyment and differential enjoyment. Among them, those who have no source of income, no ability to work and can't determine the relationship of maintenance, support and support can enjoy it in full; Others still have a certain income, and enjoy the "differential subsidy" according to the local minimum living standard. The so-called differential subsidy, in terms of mathematical formula, is:
Per capita monthly payment of family members = local monthly minimum living standard-(annual per capita income of family members/12). For example, the family income of four people in a village in 2003 includes: two pigs were raised at home, and the net income at the end of the year was 830 yuan; Zhang's net income from going out to work for one year is 1 100 yuan; Other income totals 420 yuan, so Zhang's total annual income is: 830+1100+420 = 2600 (yuan), and the average monthly family income is: 54.2 yuan. Assuming that the local minimum living standard is 78 yuan, the monthly difference subsidy amount of the Zhang family is: (78-54.2) * 4.
According to statistics, at present, the minimum living allowance recipients who have been given assistance receive monthly subsidies from 30 yuan. Among them, the average monthly compensation for urban and rural residents is 5 1 yuan, and the rural residents are 23 yuan. In addition, as can be seen from Table 2, up to now, the average security standard in Qingyuan City is only 1, 3 1.8 yuan/person/month, and it is even less in rural areas, with a maximum of 1 ,000 yuan.
Table 2: Qingyuan Minimum Living Security Assistance Standard (2004)
kind
Regional minimum standard line (unit: yuan)
Urban and rural areas
Qingcheng District 195 90
Yangshan Qingxin 180 90
Liannan, 180 100
Yingde 182 78
Lianshan 156 80
Lianzhou 180 100
Average 87 176.6
The total average value is 13 1.8.
(Source: provided by Qingyuan Civil Affairs Bureau)
However, according to China Civil Affairs Data -2003, the security standards of 36 major cities (municipalities directly under the central government, provincial capitals and cities with separate plans) in China are roughly as follows: Shenzhen 3 19 yuan, Xiamen 3 15 yuan, Guangzhou 28 1 yuan, Shanghai 280 yuan, Beijing 273 yuan and Tianjin 24655. Other cities with standards above 200 yuan include Dalian, Haikou, Hangzhou, Ningbo, Jinan and Qingdao. The security standards of other cities are all below 200 yuan, and the lowest standards are Hohhot, Nanchang and Yinchuan, all of which are 143 yuan. It can be seen that the security standard of Qingyuan City is quite low, which can not completely solve the living problems of low-income objects.
2.2.3. The distribution of urban and rural poor population in Qingyuan City is very uneven. As can be seen from Table 3, the poverty-stricken population in rural areas accounts for 78% of the total poverty-stricken population, so the focus of poverty alleviation in Qingyuan City should be in rural areas.
Table 3: Urban and Rural Distribution of Poverty Population in Qingyuan City
Total urban (people) and rural (people) (people)
Number of families 42361561919855
Proportion (%) 2 1% 78% 100%
Number of people (persons) 13224 39858 53082
Proportion (%) 25% 75% 100%
(Source: Civil Affairs Data of Qingyuan Civil Affairs Bureau, May 2004)
2.2.4, the structure of the security object is obviously different from the traditional social relief. According to the standards set by Qingyuan City, by May 2004, there were 53,082 eligible poor people in the city. The composition of these members is shown in Table 4.
Table 4: Composition of Poverty Population in Qingyuan City
Proportion of population
369 employees, 0.70%
Retirees 106 1 2.00%
Laid-off workers 43 18 8. 13%
Unemployed persons 3302 6.22%
Original civil administration object 239 0.45%
Other personnel (mainly farmers) are 43,793, accounting for 82.50%.
Total 53082 100.00%
(Source: Civil Affairs Data of Qingyuan Civil Affairs Bureau, May 2004)
As can be seen from Table 4, among the minimum living security objects, the original civil affairs objects only account for 0.45% of the total number, while those who are on-the-job, laid-off and unemployed account for 99.55%, which shows that the implementation of the minimum living security system has changed the traditional social assistance pattern focusing on "three noes". This feature of Qingyuan City is also in line with the national trend. By the end of 1999, a total of 28 10000 recipients in China had enjoyed the minimum living allowance, of which 2 1% were former civil servants and 78% were poor people in the families of on-the-job, laid-off, unemployed and retired people. This is mainly due to the rapid expansion of the rural minimum living standard after 2000.
2.3. Case: Three levels of direct analysis and reflection.
During the investigation, we visited the civil affairs departments at all levels in Qingyuan City and visited the subsistence allowances in several typical villages. We classify and sort out many case materials obtained from interviews with some low-income households, civil affairs leaders and village Committee staff in Qingyuan and other counties and cities, and then select 1-2 typical case materials from each category as case descriptive analysis.
2.3. 1, interview with the person in charge of the municipal (district) civil affairs department
Interview location: Qingyuan Civil Affairs Bureau
Interviewee: Director Liu of Disaster Relief Department of Qingyuan Civil Affairs Bureau.
Interview content: As of May, 2004, there were 15, 6 19 households in Qingyuan, and a total of 39,858 people enjoyed the rural minimum living standard, mainly the old, the weak, the sick or the farmers with few sources of livelihood, and the traditional "three noes". Qingyuan city began to implement the rural minimum living security system on 1997, and has made great achievements in recent years. The implementation of the rural minimum living security has indeed guaranteed the normal life of some rural residents, which embodies the Theory of Three Represents of the Party. At that time, due to the limitations of manpower, material resources and financial resources, the scope of subsistence allowances was still quite limited. At first, the low-income households can only provide assistance according to the annual standards of 720 yuan. Because of the differential subsidies, basically, there is little money. In 2000, the Measures for the Implementation of Minimum Living Security for Urban and Rural Residents (Villages) in Guangdong Province was implemented. With the support of higher-level finance, the scope of minimum living security has been continuously expanded, and now basically the most difficult people have been rescued.
At present, the rural minimum living standards in various districts and counties of our city are somewhat different. The lowest is yingde city, and the minimum living standard is 78 yuan every month, and the better is not more than 90 yuan. Relatively speaking, the standard is still relatively low, mainly because of our limited financial resources. Qingyuan belongs to a poor mountainous area in northern Guangdong. Although the province allocates some funds every year, there are relatively many poor people here, so the standard is not set too high.
At present, the management of low-income households in our city is mainly reflected in the following aspects: first, dynamic management is implemented, and the staff of townships or village committees visit villagers regularly or irregularly to keep abreast of their living conditions and increase or decrease the payment of low-income allowances in time; Second, how to define the hidden income of low-income families by setting up special low-income accounts and managing them by special departments has always been a difficult problem. At present, mainly through the posting of township offices and the supervision of the masses. We also work with relevant departments to calculate actual income in strict accordance with relevant regulations. However, there are also some problems in practice: some families are very difficult, but it is not easy to count the money and things sent by relatives and friends on holidays, and some people who go out to work can't really count their actual income. We still strictly control this aspect. In addition, the municipal government also subsidizes some families to prevent accidents. At the same time, the civil affairs department also signed an agreement with the departments of industry and commerce, education, etc., and the low-income households can enjoy certain preferential treatment in enrollment and business license as long as they hold the certificate of the civil affairs department.
At present, the main source of our funds is paid by the municipal and local county-level finance. As Qingyuan has four state-level poverty-stricken counties, the provincial finance gives some support. In addition, some philanthropists donated money to set up foundations to raise some funds in the society. The rural minimum living security system has made remarkable achievements, but we will be more operable in the future work; Strengthen the allocation of low-income management institutions and personnel; Implement the minimum living allowance staff to increase wages, mobilize the enthusiasm of all staff, and strive to do better.
2.3.2, interviews with township residents.
Interview Location: Dazhan Town, yingde city, Qingyuan
Interviewee: Director Wang in charge of social security in Dazhan Town.
Interview content: At present, there are 42,298 residents (villages) in our town, of which 32,808 are engaged in agriculture, accounting for almost the vast majority of the town. Among them, there are 250 households with 687 people enjoying rural subsistence allowances. By1October 9, there were 1 19 new households in our town. They originally belonged to other towns, and these people only crossed there because of the merger of towns and villages.
Among these low-income families, about 1/5 are disabled families, and the rest include some elderly people who have no economic income and their children have no ability to support them, single-parent families and families with serious diseases or patients at home.
As far as our town is concerned, the proportion of low-income assistance is not high, mainly due to two reasons: First, the government has no money, especially in national poverty-stricken counties like ours, it is difficult to afford more low-income households. The standard of rural assistance in yingde city is 78 yuan per person per month, and the difference subsidy is implemented. As far as our town is concerned, almost everyone just wants 20 yuan. To tell the truth, more than 20 yuan is hard to help. If there are patients at home, it's just medicine.
Second, the superior has designated a strict examination and approval procedure, which requires layers of examination and approval and takes a long time. Many people say that it will take a long time to get the money. Although the government shouted the slogan of "all the insured should be insured", with the expansion of the jurisdiction of towns and villages, most of the newly built towns and villages are poor and have inconvenient transportation. It takes a day to get there, and almost everyone has to walk, really! Those places are so poor that some people are really pitiful. (Director Wang shakes his head here. ) Now a lot of land in our town has been destroyed by the construction of Beijiang levee. Many people have lost most of their land, and the state only subsidizes 200 yuan per person every year. Some people are fine. The younger ones go to work in Dongguan, Guangzhou. The older ones don't talk about the source of income, and their mouths are not enough. In our town, another colleague and I are responsible for the minimum living allowance, implementing the "three lists" for low-income families, trying our best to "ensure all the insurance" and supervising some unqualified families. Sometimes it's a bit harsh, but it's more needed than their poverty.
One difficulty in our work is that it is difficult to accurately calculate whether the villagers have hidden income, mainly because we go to the village to find out. Some people who are not at ease have to personally investigate and visit the surrounding people. We spend almost two months every year on research, and it was really tiring at that time. We have to do this because of limited manpower.
In addition to subsistence allowances, our town implements some temporary or one-off relief activities for families with financial difficulties or accidents. Families enjoying subsistence allowances, whose children have certificates, can apply to the school for tuition fee reduction in compulsory education.
I also think that the current rural subsistence allowance system is still a little narrow in coverage and strict in examination and approval. Many families do have financial difficulties, but they have never enjoyed the minimum living allowance. In addition, I think there are too few people engaged in subsistence allowances now, and we are now under increasing pressure. We must do the things explained above well, and then we must explain the related problems to those people. Sometimes it's really hard. We don't have much money now, so it's sometimes difficult to get a deep understanding in the investigation and verification of low-income households. I suggest that the government should increase the human, material and financial support for subsistence allowances in the future and improve the operation and management mechanism of subsistence allowances.
2.3.3, low-income interviews
Case 1:
Interview location: Li Moujia, Nanshe Village, Shahe, Qingxin County, Qingyuan City
Interviewee: the grandmother of a seriously ill child.
Interview: Now it's just me and Xiaobai at home. Xiaobai has a brain problem (cerebral palsy). His mother was crushed to death by a car accident last year. My son is working in the city now, and I take care of him. His mother was bitten by a cat when she was pregnant with him, and then she went to the barefoot doctor for a tetanus shot. After the baby is born, he can't talk and it's not convenient to walk. Later, I also went to see a doctor and spent a lot of money (later we learned that it cost less than 1000 yuan to treat Xiaobai), so I borrowed money. After his mother died, there was no planting in the field. The rice and rice I ate were given by my daughter, who married in a foreign country. Dong Chang (Xiao Bai's father) has no choice but to help people do odd jobs. He brought me 50 yuan when he came back, and I didn't use him for a penny. He just bought some sugar for Xiao Bai. My son seldom gives me money. The government gives me twenty or thirty yuan a month, which I use to buy some fertilizer. I'm still walking. I grow some vegetables in the garden. With this money, our life is a little better. I am too old to get sick. I'm fine. I can't walk when I am sick. I was in good health last year and didn't spend much money. This year, I also spent my eyes. Sometimes if you have a cold, you can put it off, but if you can't, you can get an injection. Medicine is so expensive, a few dollars at a time, I despise it. You asked me how I applied for this money. I am the captain of our team. He's fine. I can't read. He helped us do all this. I don't know about subsidies. Anyway, the village chief brings me money every month. You asked me about the policies implemented by the government. I don't know. All I know is that without these twenty or thirty dollars, my life with him (Xiaobai) will definitely be more sad.
Case 2:
Interview location: Xiaojia Tiandi, Huangmiao Village, Dazhan Town, yingde city (he was digging when he was interviewed).
Interviewee: Xiao who lost his land.
Interview: There are four people in my family, my wife, a son and my mother. My wife has emphysema now, and she hardly comes out at home. She felt tired from work, so she cooked some rice. My son is still studying, and now he is a sophomore, and his grades are OK. My mother has been ill for a long time, and I am the only one at home to support the elderly.
I am doing farm work at home now. I'm also a stonemason. I was told to hit rocks and make some money. Generally speaking, odd jobs can earn twenty or thirty dollars a day. Now go out and play with stones, and you can earn three or four hundred a month. My family can now receive tens of dollars in relief every month.
My daughter-in-law, she always takes medicine. Everyone knows that it is expensive to see a doctor now! The medical expenses are so expensive that we are afraid to go to the hospital. She usually takes Chinese medicine. According to Earthwork, if I have time, I will go to the hillside to help her get it back. If you really can't, go to our village health station.
My son is now a sophomore in Qingyuan, and his monthly living expenses are very expensive. He often takes rice to school to eat rice by himself. Tuition is reduced, because we are low-income households, but there is a large amount of information fee and medical examination fee every year. I can't afford his tuition soon. I want to borrow money, but I have nothing as collateral. Credit cooperatives don't lend money.
Now the government has built a flood control levee on the Beijiang River, which has caused my family to lose a lot of land. Now the rice planted in the remaining fields is just enough to live almost every year, and sometimes it can't last until the second season when the years are bad. The state gives me 800 yuan every year. To tell the truth, although I haven't read any books, I know that the levee is built for the good of our country and we are afraid of being flooded, but the money is really a little less. In the past, when the harvest was good, I sold some food and raised some living expenses for my son. I really feel a little sad now.
Now our monthly subsidy is almost 100 yuan. Although the money is not much, it is enough for us ordinary people. However, on the other hand, the money is still a little tight for my family. What we are getting now is the so-called "differential subsidy". When the government settled accounts, my income was also included. The biggest expense of my family now is my daughter-in-law's medical treatment and my son's schooling. Now the poor are most afraid of seeing a doctor, and the medical expenses are really too high. There are patients at home, so we really can't delay.
I am most worried about my son's study. You said you wouldn't let him study, but I don't want him to be as poor as me. I still hope he can study. This place is too poor. My son is a senior three next year, and I don't know what to do if he is admitted to the university. Anyway, he is capable. Even if I borrow it, I will let him go.
After my family became a low-income household, the life at home improved slightly, but I was afraid that the villagers would joke if I could save it at ordinary times. If I buy a new pair of rubber shoes, I'm afraid people will gossip. I think the subsistence allowance system should be improved. We have too many application procedures, and it takes a long time to get many people to stamp and sign, and we have to do this once a year. In addition, I think the government can give us more money, but it is actually less. At the same time, I also think that the government can control medical expenses. We really look down on this disease. Finally, I thank the government for giving us subsidies.
(Note: The above interview dialogue is basically a summary of the interviewee's original words, with some modifications)
3. Problems and suggestions
3. 1, the reflection of the problems existing in the construction of rural minimum living security in Guangdong Province
3. 1. 1, the implementation scope of rural subsistence allowances is narrow and the coverage is small, so it cannot be fully guaranteed.
At present, rural areas are basically some traditional rural assistance targets, and a considerable number of poor rural villagers have not received assistance and subsidies, especially the poor people who have difficulties in life due to new situations have not been included in the protection targets. For example, farmers face difficulties due to fierce competition in agricultural products market and poor production and management; Farmers who have closed down due to operational difficulties of some township enterprises, work in township enterprises and have difficulties in living; There is a certain source of income, but life is difficult because of sudden illness of family members. Our investigation in Yingde Dazhan Town of Qingyuan found that many local villagers lost a large area of land because of the government's construction of Beijiang levee, and farmers who lost their land can only receive subsidies from 200 yuan every year. These people face difficulties in life because they have lost their land, but the local government has not included some poor families who have lost their land in the minimum living allowance. In our interviews with farmers, many farmers said that they also met the minimum living standard, but they were not included in the minimum living standard because of limited places. According to the investigation in Qingyuan in 2003, there are still 1000 people whose income is less than 1000 yuan. If these people are included in the minimum living allowance, 30 yuan needs 50.4 million yuan per person per month, but at this stage, the financial resources of Qingyuan City are obviously insufficient.
3. 1.2. It is difficult to define the object of low barriers and the subsidy difference.
At present, the only basis for all localities to identify as poor farmers is that the annual per capita income level is lower than the minimum living standard stipulated by local rural areas. How to calculate the per capita net income of farmers is a headache. Because farmers, unlike workers, have a fixed wage income. Now the civil affairs department adopts the calculation standard of "rural per capita net income" provided by the statistics department. However, due to many regulations, the minimum living allowance object belongs to dynamic management, and it is difficult to grasp the operation and prevent the phenomenon of being too wide or too strict. In addition, the subsidy difference is difficult to define, mainly because in most cases, the minimum living allowance only subsidizes the part below the local rural minimum living allowance standard, and it is difficult to accurately grasp the difference. In May, 2004, Qingyuan subsidized 22 yuan on average every month, but the standards of different counties and cities were quite different.
3. 1.3, lack of full-time staff, low-income management lags behind.
In the investigation, we deeply feel that it is quite difficult to implement the rural minimum living security at this stage due to the lack of full-time staff and backward management. At present, the rural minimum living security work has always been the responsibility of the Disaster Relief Office of the Civil Affairs Bureau and the huge disaster relief units in counties and cities, while the relief office is responsible for the disaster relief, urban and rural poverty alleviation, five guarantees, the construction of nursing homes, disaster relief donations, urban residents' minimum living security and other work in this city (county). The work content is very complicated, so it is difficult to have enough time and energy to investigate and verify one by one. Due to the wide coverage of rural subsistence allowances, it takes several months to review and approve certain subsistence allowances every year. It can be seen that the task of rural minimum living security construction is very heavy at present, but the staffing, institutional setup and management are relatively backward. For example, from 1996 to now, with the continuous improvement and development of the minimum living allowance in Qingyuan, the number of people with minimum living allowance increased from several thousand in 1996 to 39,858 in 2003. The work of subsistence allowances is managed by the civil affairs departments from beginning to end, but the tasks of civil affairs departments at all levels are particularly heavy and lack of full-time staff. Some counties and cities have only 1 to 3 staff members, while township civil affairs offices have only 1 to 2 staff members, and most of them hold several posts. There are only two people working in the relief office of yingde city Civil Affairs Bureau. As far as we know, both of them have low academic qualifications and non-professional backgrounds. For nearly 1 10,000 poverty-stricken counties, it is obviously difficult to do a good job in rural subsistence allowances.
3. 1.4, the rural minimum living security system is not well connected with other rural social security systems and lacks coordination.
China's rural security system is a complete system composed of many systems, each of which has different functions and functions and is indispensable. China's rural social security system includes: social relief system, rural pension system, rural insurance system, rural cooperative medical system and rural special care and resettlement system. However, due to the different establishment, implementation and strength of various social security systems in rural areas, it is difficult to connect with the rural minimum living security. For example, in the survey, it was found that some farmers were included in the security object because of illness, and some rural elderly were included because there was no old-age security. Imagine that if the medical security system and the old-age security system are effectively implemented in rural areas, then some of these objects can be solved, thus freeing up corresponding funds to protect other farmers who need security and expanding the effective scope of security.
3. 1.5, the source of subsistence allowances is absolutely dependent on the higher government, and it is difficult to make a difference in the socialization of funds.
The funds for rural residents' living security in China come from three levels: county, township and village, and are included in the fiscal budget every year. However, under the background of rural tax and fee reform, it will inevitably have a great impact on the security fund undertaken at the township and village levels. Relatively developed areas can effectively solve the problem, and underdeveloped areas can't afford it, so relying on higher-level governments will undoubtedly increase the financial burden. So how can the government solve this burden? We believe that the principle of combining government funding with fund socialization should be realized. The higher-level government mainly allocates funds, and the county and township governments take socialization as a supplement to solve the problem of insufficient funds. However, in our investigation, we found that there is a huge gap between them.