社會救助法以工代賑方案之研究-以臺北市為例

臺北市政府於民國106年修正執行以工代賑方案的自治條例，是希望能達成協助臨時工避免福利依賴及脫貧自立的政策目標，本次修法有3個重點，第一個是回歸社會救助法的精神，將申請資格限縮在低收及中低收入戶，第二個是增訂工作年限，避免臨時工福利依賴及增加未就業受助者有參加以工代賑方案的工作機會，第三個是增訂及修正管理、監督及輔導機制，課予需用機關管理與輔導的責任，並保障臨時工的工作權益。本研究欲瞭解修法後的內容是否提高臨時工參加就業自立措施的意願與能力，增設工作年限能否增加未就業受助者使用方案的工作機會及協助受助者脫貧自立，方案設計時是否有落實積極促進就業的政策理念鼓勵臨時工透過就業自立，以及是否針對臨時工的不同樣貌及福利需求設計出適切的方案內容及配套措施。為回應研究問題及目的，將深度訪談資料進行分析，歸納出6個研究發現：1.方案宜帶入積極促進就業政策理念；2.工作年限對加速汰換及脫貧自立有待商榷；3.受助者參加就業自立措施意願薄弱；4.臨時工具多元性樣貌有不同的福利需求；5.規劃六大配套措施因應方案變革；6.社政和勞政部門整合不易。從研究發現可得知，臺北市政府在制定方案時深受自立自助、家庭責任、行為品性等社會價值觀念牽制，使得修法後的方案仍停留在提供受助者所得維持層面。據此，提出3點政策建議：1.運用積極促進就業政策理念策畫方案；2.方案轉型為培力計畫協助家戶脫貧自立；3.自治條例增訂家庭照顧假及特別休假；後續研究建議為探究臺北市臨時工陷入貧窮困境的原因、探討現行長期照顧或托育照顧資源對受助者的適用性、檢視3加1條款作為強化工作誘因及鼓勵資產形成合適性、追蹤受助者離開方案後的狀況。

關鍵字

以工代賑；脫貧自立；福利依賴；工作福利；積極促進就業

並列摘要

The Taipei City Government revised the self-government regulations governing the work relief scheme in 2017, aim to achieve the policy goal of helping temporary workers avoid welfare dependence and get rid of poverty and become self-reliant. This revision of the act has three key points. The first is to return to the essence of the "Social Assistance Act" to limit the eligibility for applications for low-income and low-middle-income households.The second is to add the limitation of working years, to avoid reliance on temporary workers on welfare and to increase the opportunities for the unemployment receipts to participate in the work relief scheme.The third is to update and revise management, supervision and counseling mechanisms, and assigning the responsibilities of management and guidance to the required agencies, and safeguarding the work rights and interests of temporary workers. The purpose of this study is to find out whether the content of the revised act can improve the willingness and capabilitty of temporary workers to participate in employment self-reliance measures, whether the add the limitation of working years can increase the job opportunities of the unemployment receipts to use the program and help the recipients get rid of poverty and become independent, and whether the scheme design has implemented and actively promoted the concept of employment encourages temporary workers to become self-reliant through employments,and whether appropriate scheme content and supporting measures are designed according to the different appearances and welfare needs of temporary workers. In response to the research questions and purpose of this study, the in-depth interview data were analyzed. There are six research findings are summarized: 1. The schemef should bring in the concept of actively promoting employment; 2. The limitation of working years is debatable for accelerating replacement and poverty alleviation and self-reliance; 3. Weak willingness of recipients to participate in employment self-reliance measures; 4. Temporary workers are diversified appearances have different welfare needs; 5.Six supporting measures are planned to react to the changes in the scheme; 6. It is not easy to integrate social and labor departments. It can be seen from the research findings that the Taipei City Government is deeply restrained by social values such as self-reliance, family responsibility, and behavioral character when formulating acts. As a result, the act after the amendment still remains at the level of providing income and maintenance for the recipients. Based on this, three policy suggestions are put forward. 1.Use the concept of active employment promotion policy to make the plan; 2. the plan should be transformed into a training plan to help households get rid of poverty and become self-reliant; 3. the act should add family care leave and personal leave. Follow-up research suggestions are to explore the reasons why temporary workers in Taipei city fall into poverty, explore the applicability of existing long-term care or child care resources to recipients, examine the 3 plus 1 clause as a motivation to strengthen work and encourage the suitability of asset formation, and track the poverty alleviation status of recipients after leaving the scheme.