Xahpihpc sol (137) 2017 NGHIEN CUU CHINH SACH AN SINH XA HOI CHO GIA DINH: THT/C TRANG VA CACH TIEP CAN' DANG NGUYEN ANH* Tdm tat: Nghien cdu an sinh xa hdi bdi cdnh hi^n dat hoa vd hpi nhpp qudc te a Viet Nam doi hoi phdi chu y din ehinh sdch an sinh ddi vol cdc gia dinh Tuy nhien, cd rdt il chinh sdch an sinh xd hpi ddnh rieng cho gia dinh, Idy gia dinh tdm don vi Ihu hudng hay can thiep Trong do, cdc ehinh sdch an sinh xd hdi ddnh cho ddi tuong cu the hay nhirng thdnh vien xdc djnh moi gia dinh Igi co khd nhiiu Thuc liphdn dnh sif thieu hut cdc chinh sdch an sinh cho gia dinh hi^n Bdi viit chi thuc Irgng nghien cuu an sinh xd hpi cho gia dinh hien nay, tir ddi yeu cdu can thiep chinh sdch an sinh doi vdi ho gia dinh vd gai md mpl so hudng tiep cdn phii hpp vdi chu de nghien cuu cdp thiil ndy Tu khda: an sinh xa hpj, gJa dinh, chinh saeh an sinh gia dinh, phat ttien bdn virng, Dat van de An sinh xa hpi (ASXH) duoc xay dyng tren md hinh quan ly rui ro, dd c6 ba chiln luoc: phdng ngda nii ro, giam nh? riii ro va khie phyc rui ro (Ngan hang Th^ gidi, 2014) H? thdng ASXH dupe hieu la toin bp cic chinh saeh nhi nude nhSm giup dd cac ca nhan, gia dinh va cac nhdm xa hpi quin ly cac rui ro, bat trie cua minh va ho tro cho nhung ngudi ngheo, ylu thi nhat Mpt h? thdng ASXH tdt sS gop phin quan trpng vao sy phai trien ciia qudc gia Mat khie, Ihdng qua cac chinh saeh ASXH, nha nuoc cung thuc hien phan phdi lai ihu nhap vi djch vu cho cac nhdm xa hpi dS bi tdn thuong va cic gia dinh thu nhap thip, gop phan giim ngheo va chong nguy co tai ngheo, tiln tdi thu hep bit binh ding xa hpi Co thi nhan thay ASXH la mpt nhiing hpp phin quan trpng cac chuang trinh xi hpi cua cac qu6c gia nhim muc dich dn djnh xa hpi, giam phan hoi giau ngheo, dieu tiel qua trinh phan ling xa hpi, tao nen sy ddng ihuan giiia cac giai tang, cic nhdm din cu • Vien Xa hdl hpc ' Bii viei la sin phim cua dg tai, "Chlnh sich an sinh xa hgi cho cSc gia dinh Vi?t Nam thin ky cBng nghigp Ii6a hign dgi hda", ma so KHXH-GD/16-19, V chinh sdch an smh xa hpi cho gia dinh ttong tien trinh phat trign Do dd ASXH vira cd tinh kinh te, vda mang tinh x i h^i va nhin vin siu sic, Co sy nhit tri ring mpt he ihong an sinh x3 hpi t6t dupe the hi?n kha ning va cic bien phip bao vg cac ci nhan va cac nhom xa hpi trudc nhimg nil ro, tdn thuong tic ddng thign tai, hay nhimg tic dpng bit loi vg kinh te - xa hpi, nhim tri dui?c mdc song va digu kien sinh kl thigt ylu (Nguyen Hiiu Dung, 2014) ASXH la mpt chinh sich xa hpi CO ban cua nha nude nhim thyc hign cac chdc nang phdng ngua, hgn che vi khac phuc rui ro, bao dim an loan thu nhap va cupc sdng cho ngudi dan Chien luoc ASXH cua Vigt Nam giai doan 2011 -2020 ngu ro: "An sinh xa hoi la su bao dam mi x i hpi cung cip cho mpi vign trpng xa hdi thdng qua viec thuc thi he thdng cic co chl, chinh sich va bign phip can thiep trudc cic nguy ca, riii ro co the dan den suy giim ho^c mit di nguon sinh ke" (Vien Khoa hpc Lao dpng va Xa hoi, 2009), Dam bao an sinh xi h^i cho gia dinh 2.1 An sinh xa hpi cho gia dinh Cic nghien ciiu xa hpi hpc quoc te da chi vai tro cua gia dinh nhu mpt ngu6n ASXH dinh cho cac vien cua minh Cherlin (1999) da xem xdt sy tuang trp lan gia dinh, dgc bigt giiia cha me vi eon cai Con cai trudng se giiip dd cha me, nhung nhin chung cai cung itiiin duac sy cham sde td phia cha m? Theo tic gia, mdi quan hg tuang trp !an Ihl hien su thda thugn "bao cap ngim" cua gia dinh, cha me ddi vdi cii Tuy nhien Cherlin ciing luu y ring quS trinh cdng nghigp hda mgnh me vao eu6i thg ky XIX d Tay Au da keo cae vien, ma trudc tien la nam gidi roi sau li phu nu, khdi gia dinh Cupc sdng gia dinh phu thupe vap lien cong lao dpng mang lai Nhiing su kien nhu dau 5m, tai ngn, hogc mat vi|c lim, sinh ke khign cho eac ci nhan va gia dinh roi vao tinh trgng khon khd, tac dpng tigu cyc dgn cupc song ciia cac vign Parson va Bales (1955) xem xgt qui trinh chuyin giao hg thOng chiic ning ASXH vi cham soc cua gia dinh tniyen thong sang cac thilt ehg xa hpi chuygn nghigp nhu tnrdng hpc, benh vien, nhi duong lao, tnmg tim ttdng giii tre Qua ttinh niy duoc Ihuc hien hieu qua sS gdp phin giam nhe ginh ning cho cac gia dinh vi tgo dilu kign cho thill chl thuc hign tit han cic chuc nang edn lai, Gia dinh la mot tiiilt chl ASXH ttuygn thfing, cd vai tto quan trpng ttong vigc chim sde vi dam bio ddi sdng cho cic tiianh vien Ngudi dan Viet Nam luon dua vao cac quan he gia dinh vi ngudi tiian dl tim sy ttp giup nil ro (Vu Manh Lpi va ddng nghigp, 2006) Dd c6n la trach nhigm vi bdn phan ciia vp ching, cha m? va cai, ttich nhigm cua ngudi ldn doi vdi tire em, ngudi khoe vdi ngudi ylu, ngudi khuylt tat, ngudi trg vdi nguoi gia, ngudi co kha nang lao d§ng, cp tiiu nhap dli vdi ngudi mit kha nang lao dpng, khong CO thu nhip ttong gia dinh (Lg Ngpe Vin, 2002) Dpng Nguyen Anh Ngudn trp giiip trudc tien gip khd khan ttong cupc sdng la lit nhiing ngudi Ihin gia dinh, sau mdl md rpng hp hang, be ban, roi mdi din cpng ding va nhi nude Nha nude thyc hifn phuc Ipi xS hSi thong qua phuong thuc phin phdi va tai phan phoi ngudn lyc, dudi cac hinh thuc ttp cip, ho trp, djch vy xa hpi dli vdi cac thinh vign va nhom xi hpi ylu the Do vgy, noi nao gia dinh hd ttp tit cho nhdng vign khong tu lo duac cho ban than, noi ginh ngng ciia hg thing ASXH sS dupe giam bdt dl chia se Mdi quan hg giOa gia dinh va hg thong ASXH kha phuc tgp, bdi d6 khong ehi don thuan la moi quan hg bo sung cho ma cdn co tic dpng qua lai vdi Nhdng thay ddi ddi song gia dinh sg co nhung tac dpng din ASXH, khiln cho he thong phai cd nhfing dieu chinh tuong dng, va ngupc lai, su van hanh eua hg thing ASXH cung tic dpng dSn cic quan h^ gia dinh, nhat la khudn mau phan cong lao dong theo gidi ciing nhu giira cac vien, ke ca tte em vi ngudi cao tuoi, Ngudi gia va tre em ciing co nhiing ddng gdp nhat dinh doi vdi phtic loi gia dinh va cua cac vien khac Day la ea ehg gidp cho hoat dpng ASXH cua cac vien dupe lien tuc va bin vung (Vii Manh Lai va ding nghiep, 2006) Tuy nhign, theo thdi gian, thiet che ASXH ttuygn thdng bi suy ygu bdi qui ttinh cong nghiep hoa, thi hda Digu co thi thiy qua cic bieu hign: I) cang cd nhilu thilu nien rdi nong thon phi hpc tap va lao dpng kiem sdng, va phan ldn so khong quay vl ndng thon; 2) di#n tich dit canh tic ngiy cang hi thu hep khien cho s6 luang lao dpng bi rait vigc lam tang len; 3) qua trinh cdng nghiep hda tiiuc diy cac dong di cu nude va quoc tl, khiln cho ty trpng cac gia dinh thigu khuygt ting lgn, 4) xu hudng hat nhin hoa gia dinh eing tang gay nen hien Hrpng gia dinh co cha me di lam in xa chi lai ong ba va cic chau Nhiing ylu tl tten khien cho thg hi cai gap nhilu kho khin ttong viec cham soc cha me gia (Hoing Ba Thinh, 2013), Nhu vay, gia dinh - nguin "an sinh" truyin tiiong - dang bi pha vd ciu tide tac dpng cua biln dli kinh tl - xa hoi va nhan khau (Giang Thanh Long, 2010; D ^ g Nguyen Anh, 2012), Mang ludi ASXH tmyln thing cua Viet Nam dang cd xu huong suy giam chiic nang va vai tro, song he thing ASXH hign dai lai chua hinh ding bp, chua dap dng dupe nhu ciu cua xa hpi, nen viec cung c6 Iai chdc ning ciia gia dinh viee dam bao ASXH cho cac vien van rit cin thilt, hoic cin phai chuyen hudng Mpt nhiing giai phap la diu tu ASXH tir cip ci nhin len cip hp gia dinh va cpng dSng, nhit li vdi nhiing dli ttipng khdng cd kha ning thay dli hoan cinh va dieu kien song Nai nao gia dinh ho trp tot cho nhimg ngudi khong ty lo dupe cho ban than, nai ginh nang cua he thing ASXH se dupe giam bdt dl chia se cho nhihig ngudi kem may hon, Viec cac gia dinh ty an sinh cho chinh minh thong qua ning lyc ty phong ngua, thich dng va'khic phyc mi ro cho thiy vai trd quan trpng cua gia dinh doi vdi an sinh xa h§i Tuy nhien, s\r qui tii vl tiidi gian, ngudn luc doi vdi gia dinh cung bpc Ip rat ro, nhat la dli vdi cac vien nii phai lo toan, cham soc cho cac vien khac, Chuc Nghien cuu chinh sdch an sinh xd hpi eho gia dinh nang kinh tl, chdc ning thda nhu ciu tinh cam dupe nhan manh cic gia finh hign dai Tuy nhign, khong phai thinh vien nao gia dmh cung dupe thy hudng vi chia se tinh tiiuong va phiic Ipi m^t cich cong bing Nguy co dl vS gia dinh lu6n tiem in bit binh ding gidi, xung dpt thi hg, tranh chip kinh tl va nhihig miu thuin Irong cupc song hon nhan 2.2 Chinh saeh an sinh xd hpi cho gia dinh Nghign cihi ASXH ttong boi canh hign dai hda vi hpi nhap quoc le doi hdi phai chii y den cac vin dl chlnh saeh cung nhu thyc tien ASXH ddi vdi cac gia dinh Tuy nhien, cho din c6 rit it chinh sich ASXH danh rieng cho gia dinh (theo nghia toan bp gia (finh, liy gia dinh lam don vi thy hudng hay can can thigp), ngoai trd m§t so chinh sich ddi vdi gia dinh cd cdng, cae hp ngheo, ho ngudi dan tpc thi^u so, hp cd hoan canh d^c bigt kho khin (nhu chinh saeh xoa doi giim ngheo, cho vay von, tgo vigc lam, chim soc siic khoe, tgo dyng sinh ke, cho hp) Trong do, cac chinh sich an sinh xa hpi dinh cho ddi tupng cy thi hay ca nhan nhung vign lgi co nhieu Vi dy nhu chinh saeh Irp giiip ngudi cao tuoi, Icham chfla bgnh mien phi cho tth em dudi tudi, chinh sich h i trp ngudi khuylt tgt, ngudi cd HIV, phy ntt don than nuoi nho, v.v Viec thyc thi cac chinh saeh ho ttp danh rieng cho doi tupng ca nhan da gop phan giai quyet nhihig khd khan chung ciia gia dinh, song neu chinh sich dupe ip dyng thyc hien d cip hd gia dinh thi se hpp ly vi higu qua han Vigt Nam, hiu hit chinh sich ASXH hien chua tilp can theo hO gia dinh Cac try cpt an sinh xi h§i nhu bao hilm, vige lam lien quan chu ylu din ca nhin vien ttong hp, Trong dd, nhilu linh vyc trp giiip xa hpi nhu cham soc ngudi cao tudi, tre em, ngudi nghign hiit deu cd till Hep can higu qua tu gdc dp gia dinh Nhiing tieu chi ngheo da chieu hign nhu giio dye, thong tin, cham s6c sire khoe, nha d, nude saeh, nlu xic djnh tren co sd ca nhan thi rit bit hpp ly va co thi khdng cong, va phu hpp hon xic djnh tren co sd hp gia dinh Dilu cho thiy can phai bl sung, dilu chinh cac can tiu?p chinh sich ASXH cho gia dinh va lay hp gia dinh lam don vj Chinh sich ASXH cho gia dinh li ein thill, song can dupe xem xgt, danh gia ttong moi quan hg vol nha nude vdi ttr each la ehii thi chinh ban hanh co chl, chinh saeh quin ly xa hpi, Khi nhu cau ASXH d muc vupt qua kha ning dap ung ciia cic gia dmh thi sy can tiugp, ho trp eiia nhi nude la cin thilt Tuy nhign, cau hoi dit la nha nude nen can tiuep dgn mdc dp nio va cac chinh sich ASXH can uu tign va tap tnmg vio cic nhdm gia dinh nao, doi tupng nao, phin nao, ciu phin nio? Nha nude cin c6 nhung can fliigp chinh saeh gi de cd thi phat huy dupe vaiti-6ciia gia dinh ttong dam bio ASXH cho cac tiianh vign? Rit kho tta ldi cho cic cau hdi tir cic cong ttinh nghien cuu hign cd vi cang kho tim dupe ciu tta ldi dimg nlu nhu khong dya tren cac nghien ciru khoa hpc vdi phuong phip tilp can phu hpp Bang Nguyen Anh 3, Phirong phdp tiep can nghiSa cihi Nghien ciiu ASXH v i ehinh sich ASXH cho gia dinh ddi hoi nhiing phuong phap tilp c ^ khac nhau, va cd the vin dung linh hoat va thich hpp vdi doi tupng va n^i dung nghien ciru Sau day la mpt so hudng tiep cin ngtiien ciiu chii ylu Tiep CQtt h^ thong Nhu de cap d tren, c6 nhieu chu the tham gia vio dim bio ASXH ma ttong dd gia dinh cd vai tto quan trpng, dgc bi^t moi tuong lac vdi nhi nude, Nhiing chu the tten cd quan h? tirong tac, hd tig lan nhau, moi chu the la digu kien dam bio cho sy vgn hanh v i phat trien ben vung cua he thong ASXH Co the tham khao vg moi quan he tac dong giQa cac ylu to so "Care Diamonds"ciia Ochiai Emiko (2009) vg chu thi chim s6c nhu mpt h^ thing (xem so dudi day) Hinh MS binh chii the chSm s6c (Care Diamonds) cac djch vy, chlnh s^ch cfla NN Cic l6 chftc HI nguyjn d^c I5p, phi chinh phu, phi 1^ nhu^, to chirc xa hpi cac nhfim lu luong KT thi?n nguylji cac ta chiic Hi thisn lin nguOng Ngudn- Ochiai, 2009 Quan he dl cap din gia dinh ttong mii ttrong tac vdi cac chu thi lai, d|c biet la Nha nude Cac chinh saeh vl an sinh gia dinh d Vigt Nam dudng nhu ehua can dli tiiilu ttong tam theo so dl Hi?n co sy nhin mgnh nhieu hon tifn vai tto/ chuc nai^g cua chu thi nha nude Xet theo muc toan dign, diy du ciia hg tiiong chinh sich ASXH cho gia dinh thi d day tin tai nhiing "khoang trong" hoic nhung han che nhat dinh TTieo each tilp can nay, gia dinh va cpng ding la hai chii the khong kem phan quan trpng dli vdi cic dli tupng cin cham sde 8 Nghien cuu ehinh sdch an sinh xd hpi cho gia dinh Tiep cdn ehu trinh vong ddi gia dinh Ben cgnh cich tilp can ting the ndi tten, cd thi sii dyng each tilp cin chu tiinh vdng diri gia dinh, gin lien vdi nhiing riii ro cua cac vien ttong tirng giai doan vong ddi gia dinh Thuat ngir "chu tiinh" mo ti nhiing giai doan thay doi ciia gia dinh trii qua thdi gian, mang tinh dpng vi lien tuc Thdng thudng, cac giai dogn cua gia dinh dya tten nhiing bien c6/sy kien chinh ciia cic vien nhu ket hon, sinh de, trudng thanh, di lim va su thoat ly khdi gia dinh ciia dda eon So lupng cic vien gia dinh thay doi vi moi vien dgu trii qua mpt qua trinh phat trien ve tuoi tic, nil ro va thach thuc khac Nhu cau ASXH ciia gia dinh bien thien khdng chi theo sy thay doi giai doan cupc sing cua tCmg vign ma cdn phu thupc vao mdc tang giam nhan khau gia dinh Hinh M6 hinh an sinh xS h$i theo Chu Irinh vimg d&i gia dinh '*" -Thai ngliifp v i Ihiiu H J • l u o i glihangiia -Np -Car : h ^ sde c^ v^ rhn -KJiO gchamsflcdwcco - Fliln biSl giei linh - B a o l^ic gia dinh Tiep can van hoa cong ddng Do tinh da dang ciia gia dinh Vi?t Nara gin voi cac djc trang phong phil ciia van hoa dan toe, tjp quan, ioi s6ng vung raifc, doi s6ng xa h^i, nen cac nghiSn ctiu &n cSn chli y dSn yeu to van hoa danh gia thiic ttang vS luan chiing c4c muc tieu, dinh g Nguyen Anh huong, gia, phap ciing v6i ItiSn nghi chmh saeh Cach tiSp can vin hoa o ejp cong d6ng can ehu to, nhimg djc dilm da dang vim hoa cua Viit Nam eimg vtii su chenh lech Icha ion trinh dp phdt tri& giOa cae vung miln, khu vire hien Tiep can lien nganh Cac hpp phin an sinh xa hpi vda co quan hS tuong h i vdi nhau, vira co mdi quan he vol nhung irnh vyc khac (nhu kinh tl, xi hpi, dan s6, sue khde, tam ly hpc ) Su phat ttien (hay suy giam) cua mii ITnh vyc (ylu tl) diu tic dpng din ylu tl (li nguyen nhan va he qua hogc song hanh diln biln) Tilp cgn x i hpi hpc la rit phi biln vi higu qua cao nghien cuu ve gia dinh va ASXH cho gia dinh, Ben canh dd, nhin hoc vi dan tpc hpc chophep tim hieu tap tyc ASXH ttuyln thing gia dinh ding bao ngudi dan tpc Kinh tS hpc giup udc lupng va giii tiiich cac md hinh thing kg dinh lupng vl tic dpng ciia chinh sdch ASXH cho gia dmh ciing nhu xac dinh cac ylu tl anh hudng din an sinh gia dinh Dan so, sire khoe cho phgp dinh gia, phin loai chu ttinh vdng ddi cua gia dinh va cac vien, gin vdi nhu ciu an sinh xa h§i ciia timg giai doan cupc song Gin day, tiep can xuyen nganh (ttansdiscipline) xoa bo ranh gidi va su tich bift giita cic chuyen nganh nhim dua dupe giii phap chinh saeh ding bp, kha thi Tiep cdn so sank Viec so sanh chinh saeh giua cac thdi ky va giai doan sg giup cho viec phin tich, danh gia, de xuat sau sic hon, r5 ring hon vi khach quan hon Cac chinh sich an sinh xa hpi (bao hiem, dich vu cong, luong, ttp cip, ) cho cac gia dinh cin dupe nhgn dign vi phan tich theo nhung heui ehg, tdn tai vi nhiing nguygn nhan va co thi so sanh theo cic kilu loai gia dinh K^t Iu|n Mac dii he thong ASXH Vi?t Nam da va dang timg budc dupe md rpng vl phgm vi, ddi tupng va mdc thu huiimg, song chua phat ttien dong bp va chua dap img dupe nhu ciu xa hpi Muc dp bao phii thuc tl thip, kha nang tilp cgn cac nhom dan cu ttong mpt si chuong trinh, dy an cdn han che Cic chinh saeh dupe ban hanh nhieu vl si lupng, song bat cap, tliieu ddng b§, thieu su lien ket, chua huy dpng nguon Iuc va chua bao dam dupe tinh ben vimg cua ASXH Mpt nhiing nguygn nhin cua hgn che noi ttSn li cac chinh saeh ASXH van thien ve cac ca nhan mi chua xem x^t hp gia dinh nhu dli tupng can thiep hay thy hudng Dudi tac dong cda qui Irinh c6ng nghiep h6a, hiSn dai hda va hpi nhap quoc tl, cua thuc ttgng giam muc sinh va di dan - tiii hda gia lang, quy md gia dinh Viet Nam khong chi cang nho hon, dong ihdi cie quan hg giiia cac the h§ va cic Ihinh vien ciing ttd nen Idng leo hon (Bing Nguyen Anh, 2012) Su suy giim chuc ning truyen thing ciia gia dinh ttong vigc chim sde va bio vg cac thinh vien di dan den nhiing khd khan, thich thdc vl chinh saeh nhim dira bio ASXH cho gia dinh liign Dien hinh li •u ehinh sdch an sinh xa hpi cho gia dinh cong tic cham sde va ttp giup xa h^i, dam bao ddi song vat chat, tinh than v i ch^m sde sde khoe cho ngudi cao tuoi - nhom din khiu co tic dp gia tang nhanh nhat cac nhdm dan so hien Budc sang giai doan 2016-2020, yeu ciu hoan thien chinh sich ASXH ttd nen buc thilt nhim tiiyc hign muc lieu phat trien nhanh v i ben vimg dat nude Cin di siu nhan dign vi tim hilu cac vin dl lien quan din ASXH cho gia dinh thupc cic phin khac nhau, tu dd dg xuit cac giai phap chinh sich phu hpp nhim phat huy higu qua, dp che phii va hoan thign he thing chinh saeh ASXH cho gia dinh Viet Nam, t3ng cudng tinh bgn viing eiia thilt chl xa hpi quan Tuy nhign, cic ngluen cuu can tilp tyc lim ro vi vgn dung cic each tiep can nghign citu phii hop Cic chinh sich ASXH cho gia dinh phii hudng tdi phuc vu tryc tigp cho nhu cau phat trien cua gia dinh va cac vien, thdng qua gdp phan on djnh xa hpi, Vdi muc dich do, bai viet budc dau ciua se kinh nghigm, gdp phin md mpt gdc nhin mdi ve chinh saeh ASXH cho gia dinh ttong thdi ky eong nghiep hoa, hien dai hoa va hpi nhap quoc tl d Viet Nam Tai ligu tham khao Cherlin, J Andrew, 1999, Public and Private Families - An Introduction The McGraw - Hill Companies, Inc DJng Nguyen Anh 2014 Dam bao an sinh xi hgi vi mvc lieu phil Inln ngudi Vi?! 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