社安網 8 年後：超載的社福中心與社工

Abstract

強化社會安全網計畫是由時任政務委員林萬億所提出之社福政策，期許透過從政府各部會、民間社福單位到全民一同合作，接住社會中每個需要被接住的人。三期計畫分別花費68億元（2018年-2020年）、407億元（2021年-2025年）及未來的819億元（2026年-2030年）。 本報導分成五篇，嘗試在第二期計畫即將結束的2025年，回答以下問題：一、社安網遇到的困境是什麼？為什麼形成？二、實務社工人力與案件量的狀況為何？若不佳恐會造成什麼負面後果？三、社安網期許讓各網絡合作的理想備受肯定，這樣子的理想在被正確執行下是什麼樣貌？ 透過採訪社家署副署長、社工科科長、學者、公私部門社工、社工系學生，發現隨著交遞給公部門社工的任務漸多、個案狀況越加複雜，且社安網要求公部門社工整體評估案家需求時，公部門社工恐因網絡單位協助意願低，加上自身及網絡單位人力不足，導致案家的需求被淡化，或無法走最佳方式服務個案。 社工人力短缺是社安網前既有的問題。但中央政策調高公私部門社工薪資，卻造成兩者薪資差距擴大，加上社安網大開缺，讓許多年輕畢業生湧入工作複雜性、難度高的社安網。社工經驗少，對案家的評估便可能不到位，服務量能也較低。年資高的社工也反應工作量多讓自己只能當60分的社工。 在那山麻谷部落的社安網公私合作中，讓社區由下而上，提出自身需求、公部門協助連結資源，並培養社區有意識地自行解決自身問題的能力，是合作成功關鍵。然在社區還未具備足夠能力時，若欠缺足夠經費挹注人力，恐造成合作出現難關。 本報導提出解決社安網問題解方：如喊話社政以外的各部會積極合作、簡化社工個案紀錄要求、放寬部分工作資格不僅限於社工。而讓年輕社工可以被妥善培訓，願意在原單位留任久職，經驗傳承不中斷是社工界現行問題之一。剴剴案後，社會對社工的誤解加深，社工們表示擁有熱情、提高薪水、受尊重及被正確理解是留下社工的誘因。

The Strengthening Social Safety Net, proposed by the then Minister without Portfolio Lin Wan-i, aims to ensure that every individual in need can be supported through cooperation among government agencies, non-profit organizations, and the public. The three phases of the initiative involve budgets of NT$6.8 billion (2018–2020), NT$40.7 billion (2021–2025), and a projected NT$81.9 billion (2026–2030). This report consists of five parts, completed as the second phase of Social Safety Net nears its end in 2025, seeks to answer the following questions: (1) What obstacles has the Social Safety Net encountered, and why have they emerged? (2) What are the conditions of frontline social workers in terms of staffing and caseloads, and what negative consequences may arise if these conditions worsen? (3) Agencies’ collaboration is a core vision of the Social Safety Net, and is also widely recognized. What would this ideal collaboration look like when properly implemented? Interviews with officials from the Ministry of Health and Welfare, Section Chief of Social Work, scholars, social workers from public and private sectors, and social work students reveal that public-sector social workers are facing increasing tasks, more complex cases, and rising expectations for comprehensive needs assessment. Low willingness among some network units to collaborate, combined with limited manpower both within the government and across partner agencies, often results in diminished attention to clients’ needs or suboptimal service pathways. Manpower shortages predate the Social Safety Net. The central government raised salaries for both public- and private-sector social workers. However, this policy ultimately widened the pay gap between them. At the same time, the expansion of Social Safety Net positions drew many new graduates into highly complex and demanding work. Limited experience may lead to inadequate assessment and lower service capacity. Senior social workers also reported heavy workloads that leave them feeling just able to perform “60 points” of their professional expectations. A successful example of public–private collaboration can be seen in the Ngasanl-Maku tribe, where bottom-up engagement allowed residents to articulate their needs, while government agencies helped link resources and strengthen the community’s ability for self-problem-solving. Yet before such ability fully developed, insufficient funding for staffing may interfere with collaborative progress. This report proposes several solutions: encouraging stronger participation from ministries beyond social affairs, simplifying case documentation requirements, and loosening job qualification rules so that certain tasks are not restricted to social workers alone. Ensuring adequate training and retention for young social workers is also crucial to maintaining continuity of expertise. Following the Kae-Kae case, public misunderstanding of social work deepened. Social workers emphasized that passion, fair compensation, respect, and accurate public understanding are key factors in sustaining the social work workforce.