社會救助法上「擬制收入條款」之問題及其調整建議－以「生存權」與「補充性」理念衝突為中心

The Questions and its Amendment of the ＂Putative Income Provision＂ in the Public Assistance Act--Focusing on the Conflict Between the ＂Right of Subsistence＂ and ＂Supplementary＂

高稹(Chen, Kao)

《法令月刊》 69卷1期 (2018/01) Pp. 90-116

https://doi.org/10.6509/TLM.201801_69(1).0005

摘要

本文以「從憲法第15條生存權保障觀點，探討擬制收入條款之妥適性，與條款適用之精緻化」為問題意識，檢視社會救助法第5條之1第1項第1款第2目（簡稱擬制收入條款）之立意，並提出適用與修正建議。本文認為，社會救助制度旨在實現人民之生存權。擬制收入條款汲取「補充性」概念，對於「有工作能力未就業者」依基本工資核算「工作收入」，致使部分家戶無法取得低收入戶資格、或者受扶助範圍縮減，使申請戶之生存權受到不利限制；因此，本文認為應更謹慎操作擬制收入條款。此舉得以下述二種方式實踐：一為依據社會救助法第5條第3項第9款之規定，地方主管機關得為申請戶之最佳利益，將有工作能力未就業者排除於家戶之人口計算範圍外；二為增訂概括條款，授權地方主管機關擴大容認人民不限於擬制收入條款但書規定之其他未就業態樣，使未就業者有主張免除計算擬制收入之可能。

關鍵字

社會救助 ； 社會救助法 ； 生存權 ； 補充性原則 ； 擬制收入 ； 有工作能力未就業者

並列摘要

This paper purports to visit Article 5-1 paragraph 1 sub-paragraph 1 item 2, per Public Assistance Act (hereinafter referred to as ＂the putative income provision＂) for its legal inception and implementation, from the view of the Right of Subsistence prescribed in Article 15 of the Constitution. This paper proffers that the concept of the putative income provision in its application has caused hindrance for certain households in their access to the benefit of social assistance and therefore has created a contradiction to the right of subsistence that the explicitly expressed in the Article 15 of the Constitution that the government has to comply. That is to say, the putative income provision stipulates that the person who is ＂capable of working but unemployed＂, his income shall be assumed as basic wage, and thus the application of such putative income provision has caused part of households cannot pass the broad sense poverty test. And the consequence is that they will not be eligible for low income status to receive the whole of or only to accept lesser amount of the nominal subsidies ordained in relevant acts and decrees. Considering the applicant’s right of subsistence, this paper offers to mitigate the putative income provision in two ways: (1) the municipal and the county governments may interpret Article 5 paragraph 3 sub-paragraph 9 in Public Assistance Act in a way to exclude the unemployed person from the household for income calculation, then the household can pass the poverty test more favorably; (2) Public Assistance Act shall be amended with clauses that will delegate full power to the municipal and the county governments to make evaluation and adjudication to exempt an unemployed person from being calculated for putative income.

並列關鍵字

Social Assistance ； Public Assistance Act ； Right of Subsistence ； Supplementary Principle ； Putative income ； Person who is Capable of Working butUnemployed

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