河南兰考民办托儿所火灾，引发了社会对孤残儿童救助的关注。本应由地方政府承担的救助职责，为何落到了个人头上?细究之下，人们发现，袁厉害收养的弃婴无一是法律意义上的“孤儿”，也从未获得附属在“孤儿”身份上的救济资金。有专家认为，这一问题并非个案，相关政策规定的对“孤儿”身份认定的程序难以操作，导致弃婴被挡在国家救济的大门之外。

Henan LanKao private nursery fire,From the society to gu incomplete children salvage attention.The local government should take responsibility of the rescue,Why fell on personal head?Canvass under,People found,Yuen badly adopted abandoned baby there is no legal significance"orphan",Never get attached in"orphan"The identity of the relief fund.Some experts think the,This problem is not the case,The provisions of the relevant policies to"orphan"Identity program is difficult to operate,Cause abortion is blocked in the national relief out of the gate.

　　袁厉害收养的7个弃婴，至死也没能获得一个“孤儿”的身份。

Yuen badly adopted seven abortion,To the death also can't get a"orphan"identity.

　　国家民政部近日对外发布称，我国现有失去父母、查找不到生父母的未满18周岁的未成年人61.5万名，其中民政部门儿童福利机构养育的孤儿仅10.9万名。

The ministry of civil affairs said recently released,China's current lost their parents/It cannot find under his or her parents and a minor under the age of 615000,Departments of civil affairs of child welfare agencies raising orphans only 109000.

　　2010年，国务院办公厅《关于加强孤儿保障工作的意见》出台，被视为中国儿童福利事业进入一个新阶段的里程碑。该意见提出了“建立孤儿基本生活保障制度”、“提高孤儿医疗康复保障水平”、“扶持孤儿成年后就业”等一系列利好政策，对孤儿保障工作进行了制度安排。

In 2010,,The general office of the state council[On strengthening the orphan security work opinion]issued,Be regarded as Chinese children welfare to enter a new phase of the milestone.The opinions put forward"Establish the orphan basic life safeguard system"/"Improve the orphan medical rehabilitation security level"/"Support orphan adult employment"And a series of good policy,To guarantee the orphan the system arrangement.

　　然而这一切的前提是，获得一个孤儿身份。尽管在许多法律文书中，孤儿和弃婴都被并列提及，但在具体的操作中，孤儿和弃婴往往被割裂开来。弃婴如果被认定为“孤儿”，即意味着能够获得一本《儿童福利证》，享受国家的儿童福利政策，而未能获得这一身份，则难以得到相应的救济。

But all this is the premise of,Get a orphanage.Although in many of the legal documents,Orphans and abandoned babies were tied for mention,But in the specific operation,Orphans and abandoned babies tend to be apart.If abortion is considered"orphan",That means to get a book[Child welfare card],Enjoy the national child welfare policy,But failed to get the identity,It's hard to get the corresponding relief.

“孤儿”弃婴优惠政策不同 "orphan"35 different preferential policies

　　据袁厉害回忆，20余年来，她一共收养过100余名弃婴，但没有一个人享受到孤儿保障政策所规定的待遇

According to yuen bad memories,Twenty years,She adopted a total of more than 100 abandoned babies,But no one enjoy the orphan security policy specified treatment

　　在2010年国务院办公厅《关于加强孤儿保障工作的意见》出台后，国家民政部、财政部又下发了《关于发放孤儿基本生活费的通知》。

The general office of the state council in 2010[On strengthening the orphan security work opinion]Issued after,The ministry of civil affairs/The ministry of finance also issued[About the issue of orphans basic living expenses of notice].

　　2011年5月，河南省也下发了《河南省政府办公厅关于加强孤儿保障工作的意见》。按照该意见，河南省孤儿基本生活最低养育标准为:社会散居孤儿每人每月不低于600元，机构养育孤儿每人每月不低于1000元。

In May 2011,Henan province also issued[General office of henan provincial government on strengthening the orphan security work opinion].According to this opinion,Henan orphan basic life minimum standards for raising social scattered orphan not less than 600 yuan per month,Institutions raising orphans not less than 1000 yuan per month.

　　河南省民政厅随后也发文，要求加强孤儿指导养育工作。在这份文件中，河南省民政厅对孤儿养育的管理进行了明确的规定。

The department of civil affairs in henan province and outgoing mail,To strengthen the guidance for orphans raising work.In this document,Henan province bureau of civil affairs for the management of raising orphans are clear rules.

　　文件要求，建立“一书一协议一记录”工作机制。其中“一书”内容包括“与社会散居孤儿监护人(单位)签订指导养育协议，对孤儿养育状况进行定期巡查和监督评估，对监护人(单位)进行指导和培训，负责代理孤儿权益的相关事务，协助所属民政部门与相关部门协调，落实孤儿优惠政策”。

Documents require the,To establish"A record book agreement"Work mechanism.the"book"Content includes"And social scattered orphan guardian(unit)Sign guidance raising agreement,To raise the orphan in regular patrols and supervision and evaluation,The guardian to(unit)Provide guidance and training,Responsible for agency orphan rights and interests of the related affairs,Assist belongs to civil affairs departments coordinate with related departments,Implement the orphan preferential policies".

　　“一协议”内容包括:“县级人民政府民政部门与社会散居孤儿的监护人或通过儿童福利指导中心与社会散居孤儿的监护人签订指导养育协议，明确监护人监护职责和抚养义务，对监护人领取、使用孤儿基本生活费、提高孤儿养育质量提出要求。”“一记录”则要求各级民政部门要对孤儿养育情况进行定期巡访，建立巡访记录和巡访档案。

"An agreement"Contents include:"The people's government at or above the county level civil affairs departments and social scattered orphan's guardian or through the child welfare guidance center and social scattered orphan guardian sign guidance raising agreement,Clear guardian monitoring duty and obligation to support,The guardian to/Use the orphan basic cost of living/Improve the orphan raising quality request.""A record"Insist on civil affairs departments at various levels to raising orphans regularly visit,Establish visit the records and visit the file.

　　如果袁厉害收养的孩子们也被列入这一系列文件照顾范围，意味着其收养弃婴的行为将被纳入管理，孩子们将享受到每人每月不低于600元的基本生活费，并在教育、住房、就业等一系列问题上有所保障。

If yuen badly adopted children were included in the scope of this series of documents to take care of,Means that the adoption of the abandoned baby behavior will be included in the management,Children will enjoy not less than 600 RMB every month, the basic cost of living,In education and/housing/Employment and so on a series of problems have security.

　　据袁厉害回忆，20余年来，她一共收养过100余名弃婴，其中被官方登记在册的34名，其中大部分人获得了户籍登记，20人享受了低保。但没有一个人，享受到上述政策所规定的待遇。

According to yuen bad memories,Twenty years,She adopted a total of more than 100 abandoned babies,The official registered name of 34,Most people get the household registration,Twenty people enjoy the subsidies.But no one,Enjoy the above policy specified treatment.

　　据兰考县民政局公布的数据显示，全县已经认定的孤残儿童共有595人，其中残疾孤儿4人。这些孤儿，由外祖父母养育的472人，由其他亲属养育的123人。“这指的是孤儿，或者是父母双亡，或者其他原因，由家人、亲属照顾的，和弃婴不同。”兰考县民政局一名干部向记者解释，“按照省民政厅有关规定，袁厉害等人个人收养的弃婴，不在上述统计之列”。

According to LanKaoXian civil affairs bureau figures showed,The county has already decided that the disabled children of a total of 595 people,The disabled orphans 4 people.These orphans,The grandparents raising of 472 people,By other family foster 123 people."This refers to the orphans,Or parents,Or any other reasons,The family/Kinship care,And 35 different."LanKaoXian civil affairs bureau a cadre to reporters,"In accordance with the relevant provisions of the provincial civil administration office,Yuen badly, personal adoption of abandoned babies,Not in the above statistics list".

“孤儿”身份难认定 "orphan"Identity that difficult

　　按照政策要求，审核认定孤儿身份时申请人要出具孤儿父母死亡证明或人民法院宣告孤儿父母死亡或者失踪证明，但在实际工作中这些材料很难出具

In accordance with the policy requirements,Audit that orphan identity certificate issued by the applicant to the orphan parents death certificate or the people's court to declare the orphan parents dead or missing proof,But in the practical work of these materials is difficult issue

　　国务院《关于加强孤儿保障工作的意见》规定:“孤儿是指失去父母、查找不到生父母的未满18周岁的未成年人，由地方县级以上民政部门依据有关规定和条件认定。”

The state council[On strengthening the orphan security work opinion]Regulation:"An orphan is refers to lose their parents/It cannot find an under a minor under the age of eighteen,By the local civil affairs departments at or above the county level in accordance with the relevant regulations and conditions determination."

　　一名民政系统官员向记者解释，按照这个概念，失去父母应理解为父母双亡，查找不到父母应理解为被遗弃的婴儿。

A civil official system to reporters,According to this concept,Lost parents should understand for parents,It cannot find parents should understand for abandoned baby.

　　而收养法中规定，孤儿指的就是父母双亡的儿童。

To adopt method specified in the,The orphan is refers to the parents of children.

　　对这一问题，民政部曾下发过一则《关于在办理收养登记中严格区分孤儿与查找不到生父母的弃婴的通知》，其中称，为了严格执行收养法，维护当事人的合法权益，现就此问题，特做如下通知:我国收养法中所称的孤儿是指其父母死亡或人民法院宣告其父母死亡的不满14周岁的未成年人。

To this problem,Issued by the ministry of civil affairs has had a[About the adoption registration for strictly distinguish between orphans and it cannot find the notice of reach the age of 35],The said,To enforce the law of adoption,Maintain the lawful rights and interests of parties,This problem is,Especially the following notice: our country adopt method mentioned in the orphan refers to his parents died or the people's court to declare their parents of death with a minor under the age of 14.

　　“国家对孤儿的认定这块有一个很明确的规定，但是对弃婴则没有。”开封市民政局社会福利科科长韩付平对《法制日报》记者表示。

"The state of the orphans that have a very clear rules,But for abortion is not."Kaifeng city civil affairs bureau of social welfare FuPing superintendent of Korea to[Legal daily]reporters.

　　2011年，河南省民政厅曾下发过一个《关于做好孤儿身份核查及登记管理工作的通知》，对全省孤儿身份认真工作进行部署。该通知将“查找不到生父母的弃婴和未满18周岁的未成年人”列为可以被认定为孤儿的人群之一。

In 2011,,Henan province bureau of civil affairs has issued a[About do orphanage verification and registration management of the notice],For the orphanage serious work deployment.This notice will be"It cannot find reach the age of 35 and under a minor under the age of eighteen"As can be recognized as one of the orphans.

　　然而接下来对“社会散居孤儿”的认定程序却极为复杂，包括申请、审核、审批三个环节。仅在申请环节，就要求孤儿监护人提供以下三类证明材料之一:公安部门、民政部门、医疗机构出具的孤儿父母死亡证明，包括户籍注销证明、火化证明、病故证明；人民法院出具的孤儿父母宣告死亡判决书原件或加盖法院公章的复印件；人民法院出具的孤儿父母宣告失踪判决书原件或加盖法院公章的复印件。

However the"Social scattered orphan"The cognizance of the program is very complicated,Including application/audit/The examination and approval three links.Only in the application link,Requires the orphan guardian provide the following three types of documents of the ministry of public security/Civil affairs departments/Issued by the medical institution orphans parents death certificate,Including cancellation of census register proof/cremation/Die of illness that;Issued by the people's court of the orphan parents declared dead judgment with the original or copy of the official seal of the court;Issued by the people's court of the orphan parents declared missing judgment with the original or copy of the official seal of the court.

　　民政部社会福利和慈善事业促进司副司长徐建中在一次关于孤儿生活保障的会议上表示:“按照政策要求，审核认定孤儿身份时申请人要出具孤儿父母死亡证明或人民法院宣告孤儿父母死亡或者失踪证明，在实际工作中，大部分地区尤其是山区、牧区和少数民族地区，农村孤儿父母失踪或一方死亡一方远走他乡杳无音信后，孤儿实际监护人举证困难，得不到法院的证明文件且该类诉讼要产生约千元的费用，监护人不愿意承担或者无力承担，从而造成相应证明材料出具难，直接制约了孤儿身份认定。”

The ministry of civil affairs to promote social welfare and charity XuJianZhong vice general director in a about orphan life to ensure meeting said:"In accordance with the policy requirements,Audit that orphan identity certificate issued by the applicant to the orphan parents death certificate or the people's court to declare the orphan parents dead or missing proof,In the practical work,Most of the area especially mountain/Pastoral areas and ethnic minority areas,Rural orphans parents missing or a party death party away after gone with the wind,Orphan actual guardian burden difficult,Get the court documents and the action to produce the cost of about $one thousand,The guardian is not willing to accept or cannot afford,Resulting in a corresponding certificate issued by difficult material,Directly restrict the identity of the orphan."

　　徐建中对于这一困境下的工作开展提出要求，县以下基层民政部门，要加强与公安、法院等相关部门协调，创造条件为每个孤儿办理相应手续，既要做到审核把关严格，维护政策严肃性；又要做到应保尽保，确保每个孤儿享受到国家的保障政策。

XuJianZhong for this crisis job request,The departments of civil affairs at the grass-roots level county,To strengthen and public security/Courts and other related departments coordination,Create conditions for each orphan the corresponding formalities,Not only to do audit guard a pass strictly,Maintenance policy seriousness;And to do should defend the,To ensure that every orphan enjoy national security policy.

　　但兰考县在能够给袁厉害收养的孤儿办理了户籍登记、低保等情况下，并未将他们登记为孤儿。

But LanKaoXian in can give yuen badly to adopt orphans to deal with the household registration/Residents under such circumstances,They did not register as orphans.

相关法律有待完善 Relevant laws to be perfect

　　针对孤残儿童这一特殊群体法律法规政策应进一步完善，建立起一套专门保护孤残儿童权利的法律法规体系

According to gu incomplete children this special group policy laws and regulations should be further perfect,Set up a special protection gu incomplete children rights system of laws and regulations

　　在2011年河南省进行的孤儿身份核查及登记管理工作中，袁厉害的“孩子们”，被排除在核查范围之外。

Henan province in 2011 the orphan identity verification and registration management work,Yuen smart"The children",Check out beyond.

　　韩付平科长告诉记者，按照通知，该次核查的范围为:包括城市、农村散居的孤儿和民政部门兴办或民政部门认定的福利机构养育的孤儿，非民政部门认定的民间组织和个人收养或抚养的孤儿不属于本次核查范围。

Korea FuPing section chief told reporters,According to the notice,This time the scope of inspection for: including city/The scattered rural orphans and civil affairs departments run or civil affairs departments that welfare agencies raising orphans,The civil affairs departments that folk organizations and individuals to adopt or raising orphans does not belong to the scope of inspection.

　　“就是因为这一条，所以我们没有给袁厉害收养的孩子作登记。”韩付平说。

"It is because this one,So we don't have to yuen badly adopted children for registration."Korea FuPingShui.

　　曾任民政部社会福利和慈善事业促进司司长、现为北京师范大学中国公益研究院院长的王振耀曾向媒体表示，由于一些残疾儿童的父母无法将孩子送到福利院，导致一些孤残儿童流落社会，由于领养孤儿也执行严格的户籍登记制度，一些拿不出父母死亡证明的孩子无法得到合法领养。

Once was appointed the ministry of civil affairs to promote social welfare and charity company priests/Now Beijing normal university institute of China's public welfare of shi had to the media said,Because some disabled children parents can't send their children to welfare homes,Cause some gu incomplete children went into the society,Due to adopt orphans also perform strict household registration system,Some don't have parents death certificate children can't get legal adoption.

　　而目前，地方民政部门还没有一个专职部门依据有关条例对不合法的收养进行管理。

And at present,Local civil affairs departments have not a full-time department in accordance with relevant regulations of illegal adoption for management.

　　民政部相关负责人近日公开表示，兰考事件表明我国儿童救助保护体系还不尽完善:有些法规需要修订，如公民收养条件过高；相关法规宣传普及不够；孤儿、弃婴的发现、报案、移送的网络体系不够健全；多数县(市、区)没有专门的儿童社会福利机构等。

The relevant person in charge of the ministry of civil affairs has openly,LanKao event shows that our children's rescue protection system is still imperfect: some regulations need to be revised,Such as citizens to adopt high condition;Relevant laws and regulations is not enough publicity and popularization;orphan/Abandoned baby found/report/Transfer network system is not perfect;Most of the county(city/area)No special children's social welfare institutions, etc.

　　西南政法大学教授袁林在2010年曾撰写《关于加强孤残儿童救助和权利保护的立法建议》、《关于加大孤残儿童救助财政投入的建议》两份提案，作为民革中央2010年全国两会集体提案提交全国政协，最后推动了《关于加强孤儿保障工作的意见》的出台。

Southwest university professor YuanLin in 2010 was writing[On strengthening the gu incomplete children aid and rights protection legislation Suggestions]/[About increasing gu incomplete children rescue financial investment advice]Two proposals,As director of the central 2010 CPPCC national collective proposal submitted to the Chinese people's political consultative conference,Finally promote the[On strengthening the orphan security work opinion]appearing.

　　然而，袁林认为我国的法律法规及相应的政策措施对孤、残儿童这一特殊群体上尚需完善。袁林告诉记者，她更加希望得到的结果是，建立起一套专门保护孤残儿童权利的法律法规体系。

however,YuanLin think the laws and regulations of our country and the corresponding policies and measures to solitary/Residual children this special group is the need to be perfected.YuanLin told reporters,She was more hope to get results,Set up a special protection gu incomplete children rights system of laws and regulations.