扩大我国养老保障覆盖面的思路及政策分析

【作者】 王之佼；

【导师】 林义；

【作者基本信息】 西南财经大学 ， 社会保障， 2005， 硕士

【摘要】 一、选题 社会养老保障制度是现代国家社会稳定与和谐发展的重要基石。世界各国都在程度不同的进行养老保障制度改革。在改革中各国都涉及到如何扩大社会保障覆盖面的问题,都在努力实现全国民的覆盖。该问题的解决已成为衡量社会保障制度改革成败的一个标准。而且扩大社会养老保障覆盖面也是产业化社会发展变化的必然要求。 对我国来讲,扩大社会养老保障制度覆盖面对农村有特别重要的意义。第一是打破我国城乡壁垒的突破口;第二是农村经济再次飞跃的必然选择;第三是我国社会发展的大势所趋。但我国扩大社会养老保障覆盖面这一巨大工程才刚刚拉开序幕。 鉴于世界各国对扩大养老保障覆盖面的重视度和其对我国的重要意义,笔者又恰在我国扩面的起步阶段时机选择扩大养老保障覆盖面作为论文题目,使论文更具探索的意义。写作的最终目的是期望通过对国内外扩面的系统研究,为我国扩大养老保障覆盖面提供新的、可实施的、有建设性意见的思路和政策建议,构建我国覆盖全民的养老保障框架,解决现阶段农民工、失地农民、农民及城镇人口中未被保障群体的养老保障问题。 二、论文的主要内容和观点 论文分三大部分,下面对论文的主要内容和观点进行阐述: (一) 第一部分 社会保障覆盖面现状及其原因分析 1、社会保障覆盖面现状分析。不仅分析了全球社会保障覆盖面的现状,更对我国社会保障覆盖面的现状做出了详细分析。 论文分析得出的结论是:从全球范围来看,社会保障覆盖面分布极不平衡。发展中国家的社会养老保障覆盖水平普遍低。在中欧和中亚国家的社会养老保障覆盖水平虽较高,但在政治经济的变革过程2中,就业愈来愈非正规化,使得覆盖率有所下降。全球化带来的竞争压力,不仅使中等收入国家甚至工业化的覆盖水平有所下降,而且保障能力也受到了影响。我国的社会保障覆盖面现状直观反映出我国社会保障制度发展的不平衡,特别突出在对三类群体的覆盖率比较低。第一类群体,是农民,占总人口 70%。目前,只有局部地区进行农民养老保险的试点,大多数农民未被社会保障制度覆盖。第二类群体,是进城务工农民和失地农民。农村产生了大量的富余劳动力,形成了进城务工的农民工,其中只有少数进入城镇社会保障计划。在城镇化过程中,城市近郊出现了 4000 多万被征地农民,失去土地保障的他们,又未得到相应养老保障制度的保障,处于尴尬境地。第三类群体,是非公有制经济组织从业人员和灵活就业人员。由于产业结构和所有制结构的重大调整,该群体本是各项社会保障计划必须承保的重要群体,但实际被社会保障覆盖的人数极少。通过对社会保障覆盖面现状的分析,笔者认为:养老保障与非正规就业之间、养老保障与农业人口之间的关系及其协调,是扩大养老保障覆盖面的中心问题!2、制约社会养老保障覆盖面的原因分析。简要分析了各国社会养老保障覆盖面存在差异的普遍原因,详细分析了未保障群体产生的原因。未保障群体产生受三方面影响:一是养老保障模式的影响。普遍养老保障模式没有未保障群体,但受财政负担加重的影响,该模式已开始向缴费型模式转变。缴费型养老保障模式被大多数国家采用,但恰恰是最易产生未保障群体的模式。家庭养老保障模式是最古老的保障模式,但随着家庭养老保障功能及家庭成员责任的衰弱和淡化,也导致产生未保障群体。二是制约未保障群体参保的若干因素。从未保障群体来说,他们面临更多的是生存,强迫以现有收入满足当前的生活需要,比为将来养老进行储蓄更有意义。另一方面,从雇用未保障群体的雇主来说,雇主基于经济利益存在严重的违法、逃费行为。主客观因素都制约了3未保障群体参保。三是法律制度建立的滞后和管理的局限性。我国目前尚未建立社会保障方面的法律体系,因此社会保障法制建设的滞后成为影响我国养老保障覆盖面的又一个重要因素。现行企业职工基本养老保险制度设计缺乏弹性,不适应对农民工就业不稳定、流动性大、收入水平低这些特点的管理。(二)第二部分 养老保障扩面的实践及经验教训1、近年来各国的扩面实践总结。OECD 国家采取了三种措施扩面,一是国家财政支持;二是为未保障群体建立低费率或非缴费的养老保障制度;三是依法明确其他家庭成员照顾贫困和残疾家庭成员的法律义务。经济实力较薄弱的发展中国家采取的措施有:继续完善正规部门覆盖面;逐渐向全体雇员延伸,并改善管理服务能力,为自雇者设计特殊的制度;依法扩大覆盖面,增强守法的水平。通过对各国扩面实践的总结,我国获得了扩面方面的可贵经验和教训。2、我国养老保障扩面的实践。重点以四川省为研究对象,来说明我国在扩大农民工和失地农民社会养老保障覆盖面方面的实践情况。但扩面实践也同时暴露出扩面的问题。问题涉及到我国农村社会养老保险改革、农民工社会保险计划和失地农民社会保险计划。3、我国扩面实践应遵循的一些原则。在扩面实践中应遵循的原则有:一是建立多层次多方位的养老保障体系,扩大养老保障覆盖面;二是养老保障制度的构架应保持相对稳定,制定的扩面政策需具有可持续性;三是强化政府对扩大养老保障覆盖面的主导作?更多还原

【Abstract】 Ⅰ.Topic The social security system is an important sill of modern nation society stability and harmonious development. The international countries all carry on social security system’s reform in different degree. All countries involve in the reform how to extend the social security coverage, and try to carry out all people coveraged. The problem has become to a standard of success or failure of the social security system reform. Furthermore, the extension of social security coverage is inevitable to the development of industrialization. To our country, there is special and important meaning to extend the social security system coverage for the agriculture. The first, break through the barracks of our country and city; The second, it is inevitable choice of the village economy re-development; The third, it is the trend of the social development. But this huge engineering just begin. Because the international countries attach importance to social security coverage, have important meaning for our country and expand coverage just begin , the writer choice the thesis topic that is how to extend social old security coverage, which even have the meaning of the quest. The purpose of the thesis is expect to provide some new, operable, constructive policy suggestions of coverage, through research home and abroad ,and set up a old safeguard frame to resolve the coverage of the farmer worker, farmer of lose a ground, farmer and the urban informal sectors. Ⅱ Main contents and standpoints of the thesis The thesis divides three big parts. 1.The first part is present condition of social security coverage and its reason analysises. (1) Not only analyzed the present condition of the global social security coverage, more to our country’s the present condition of social security coverage. Conclusion that gets from the thesis is: See from global scope, social security coverage distribute unbalance. Social security coverage of the developing country is widespreadly low. At in the Europe and Central Asia countries, social security coverage is higher, but with political economy change, employment is becomeing more and more irregular, and coverage is descended. Because of competition pressure, not only medium income nation but also modern countries face the coverage descended, and the ability of guarantee also be influenced. The social security coverage of the our country is unbalance. Three groups are outstanding low coverage. The first group is farmer, occupied 70% of population. The second group is farmer worker and farmer of lost ground. The third group is worker of informal economy organization. (2) The thesis analyzes the cause of the difference of all countries’ social security coverage, and detailed analyses the cause of produce of uncoverage groups. Uncoverage groups are subjected to three aspects influences. One is the mode of society security . Two is that uncoverage groups face more existence, so income is more important for now than for old. On the other hand, employers break the law and escape fee. Three is the lag of establishment of the law system and the limit of management. 2.The second part is practice of extend old safeguard coverage and the experience. (1)There is some practices of extend old safeguard coverage from all countries in recent years. The nation of OECD adopt three kinds of measure to expand the coverage, which the frist is a national public finance support, the second is to establish old safeguard system with no or lower fee for uncoverage groups, the third is a law duty that family memberses look after each other. The developing countries adopt other measures. Such as, continue to extend regular section’s coverage, try to expand for all employee, improve the ability of manage and service,extend to coverage by law and strengthen the law-abiding level. (2)Specially taken Sichuan province for research object, explain the our country’s practises of extend coverage. But the practices also expose some problems that involve the reform of village social insurance, and plan of the social ins更多还原