(II) Construction of rural social security system
The existing literature on the construction of rural social security system has different research angles:
The first angle, starting from the differences of rural economic development, the basic idea of establishing and perfecting rural social security system is to carry out classified design and implementation according to the economic development level of different types of rural areas. In poverty-stricken rural areas, we should establish a relief social security system with basic living security as its content, a social security system with basic living needs in well-fed rural areas and an insurance social security system in well-off rural areas. According to different content designs, it is classified and implemented in management system, implementation breakthrough, financing mode and system guarantee. Different scholars have different views on whether to establish a relatively independent social security system for migrant workers in cities and towns, or to incorporate it into the social security system for urban residents or into the rural social security system. (Ren Baoping, Rebecca, 23)
Secondly, the rural social security system should take into account the differentiation and stratification of rural residents, and the system design is different due to the different nature and needs of the stratified objects. Traditional farmers have been divided into traditional farmers and industrial workers, including various non-agricultural industries. Migrant workers can be divided into three parts: some are migrant workers who have become citizens, and their professional identity has completely changed. It is necessary to integrate them into the city and into the social security system that integrates citizens through institutional reform. The second part is the seasonal workers who come out to work during the slack season. The social security they need is completely different from that of urbanized people. The third part is migrant workers, who account for the majority of migrant workers. They work outside the home all the year round, and their social security system is different from the first two (Zheng Gongcheng, 2 obstacles). When designing the rural social security system, we must consider the different needs of different groups of rural population for social security at this stage, and consider that the rural population is increasingly diversified: some rural population has actually realized non-agriculture (institutional channels should be designed to enter the urban social security system), some are still engaged in traditional agricultural production (the level of protection provided by land is still to be improved), and some are the poorest rural population (what they need most is the "bottom" function of the social security system) (Fan Xiaogang, 24)
From the third angle, based on China's economic and cultural foundation, it is believed that the construction of rural social security system with China characteristics cannot and should not copy the western model. China's rural social security system is a unified whole based on the household contract responsibility system, with rural family security as the main line, supplemented by family members' mutual assistance, and combining government and social forces. (Yang Fuxing, Zhao Wanshui, 24)
Third, the financing mode of social security-the dispute over fees and taxes
First, the reform of social security tax system is an important and complicated difficulty in the reform of social security system. The function of social security tax is that it is the pillar of social security building; The essence of implementing the tax system is to promote the transition from welfare social security to real social insurance model; The relationship between social security tax rate and social security financing mode is the relationship between function and reaction; The main measures to establish a social security tax system with China characteristics are comprehensive levy, reasonable levy, encouraging levy and ensuring levy (Z-mouth Dasong, 1997). This can truly reflect the fairness principle of basic pension, help solve the current payment crisis of basic pension, and help build a unified, standardized and perfect basic old-age security system (Gong Xiuquan and Huang Shengkai, 22).
the second view is against "changing fees into taxes". It is considered that the change of social security fee to tax is in contradiction with the current operation mode of social insurance system. The reasons are as follows: First, the publicity of tax revenue conflicts with the private nature of social security personal accounts. The second is the conflict between the indirect repayment of taxes and the specificity of social security. Thirdly, it is difficult to connect with the current social security policy and operate it (Wang Zeying, 22). In addition, levying social security tax to solve the problem of charging difficulties and financing will make the government fall into a situation of increasing financial burden (Li Shaoguang, 22).
the third point of view is that the change from social security fees to taxes should be postponed. The reason is that the goal of changing fees into taxes is vague, there are many restrictive factors, there are many technical obstacles, the expected effect is uncertain, and it is not consistent with the international social security reform and development trend (Zheng Gongcheng, 2). Similarly, it is believed that since China's fiscal and taxation system is tax-sharing, the matching of administrative power and financial power must be considered in the collection of social security tax, so there are only two possibilities. One is that the established pension insurance plan can only be local, and local governments need to face great financial risks. The other is that there are still many left-over problems in the national pension insurance plan. Therefore, the establishment of a government in China does not yet have the conditions for levying social security tax (Deng Ziji, 22).
the fourth view is to adopt an alternative way of non-designated tax or quasi-designated tax. This view holds that it is difficult to avoid the "crowding-out effect" caused by the pay-as-you-go financing method adopted in China before by levying social security tax, and it is also impossible to ensure that an optimal tax rate can be determined. However, the alternative financing method, that is, a certain amount of total fiscal revenue is regularly allocated to the special fund for old-age insurance, can not only reduce the crowding-out effect of pay-as-you-go system on total savings, but also not hinder the collection of social security tax at a suitable time in the future. Adopting this method is consistent with the present situation of China's pension insurance reform and the reform of financial and tax systems (Cheng Zhigang, 22).
the fifth point of view is that the financing mode of social security in China in the future should be compound, and the relationship between charging and tax collection is not mutual substitution. No financing mode can independently meet the huge capital demand of social security, and charging or tax collection is related to the mode and project selection of social security. Taxes and fees have their own basis for existence and cannot be substituted for each other. However, levying social security tax is an irreversible trend, and fees can only be a supplement to tax collection (wangyi and Liu Jing, 24).
iv. fund operation mode
with the transformation of China's social security fund raising from pay-as-you-go system to partial accumulation system, the investment and operation of pension funds is an important topic in the reform of social security system (Cai Xingyang, 1997). At present, the main investments of China's social security funds are still bank deposits, national debt and social security oriented bonds, and a small part is invested in corporate bonds, stock markets and other securities markets. While ensuring the safety, maintaining and increasing the value has become a difficult and challenging issue in the management of social security funds, and the operation mode of social security funds has always been one of the hot issues, involving social security funds' entry into the capital market, diversification of investment operation, marketization, management mode, choice of surplus financing tools and other issues. Several typical views are as follows:
The first view is that pension funds should become institutional investors. Institutional investors are large in scale, and their investment tends to be long-term, which can stabilize the stock market while maintaining and increasing the value of social security funds. However, pension funds need to meet four conditions. First, they must have a capital scale that can bear certain risks; Second, it should be based on more developed financial markets; Third, there must be a professional fund custodian; Fourth, pension funds should adopt an indexed investment policy (Cheng Hongye, 21).
the second view is that social security funds should be invested in open-end funds. This view holds that, firstly, the open-end fund is a variety with relatively low risk and relatively high income. As a collective investment tool with * * * benefits and * * risks, it can neither guarantee investors a certain profit nor a minimum income. From the perspective of the operation of mature social security funds abroad, it is more common to invest in open-end funds. Second, when investing, we need to pay attention to controlling the quota to avoid liquidity risk and make payment difficult. Third, due to the price risk of open-end funds, social security funds should adhere to the principle of long-term investment and choose income-making funds for investment (Zhang Shuyuan and Du Aiping, 21).
the third point of view is that the pension is the final choice to enter the capital market, but the conditions are not yet mature. This view holds that theoretically, a fully accumulated pension plan must become an institutional investor in the capital market in order to get a long-term and stable return on investment. A stable and prosperous capital market can transform pension savings into efficient investment through this channel, and share the benefits of investment, so that China's social security system reform can maximize the overall efficiency of economic growth. However, in our country, because the capital market has been in a high-risk state for a long time, and at the same time, because no fully accumulated pension fund has entered the capital market legally and carefree, its theoretical role cannot be played. If the fund accumulation system can continue and become a long-term main goal in the reform of China's pension system, then the pension plan will enter the capital market sooner or later. However, the institutional system suitable for the fund to operate in the capital market has not yet been finalized, the organizational structure has not yet been formed, and the operating rules are still unclear (Li Shaoguang, 22). Specific to the discussion of social security funds entering the stock market, there is a similar view that social security funds of pay-as-you-go nature should not enter the stock market in a hurry, because it is not mature to enter the stock market in terms of capital market or institutional conditions of social security funds (Zheng Bingwen, 23).
the fourth view is that according to the basic characteristics, goal orientation, fund management and the present situation of capital market of China's social security system, China's social funds should be divided into three funds with different properties, namely, reserve funds (national social security funds), account funds (individual account accumulation) and overall funds (social pooling part accumulation). And set up three independent corporate institutions to invest and manage it. For reserve funds, we should completely break away from the domestic capital market and go to the international market; Account funds are managed and invested by the central government; Co-ordinating funds implement provincial-level co-ordination and investment management (Zheng Bingwen, 24).
the fifth view is that social insurance funds should choose the money market as the main place for liquidity management. It is believed that the social security fund can increase the supply of funds in the money market and activate the transactions in the money market. On the other hand, it also helps to promote competition in the money market, promote the innovation of financial instruments, and then improve the liquidity and operational efficiency of the money market. The entry of social security funds also puts forward higher requirements for financial supervision, because the special requirements of social security funds require a good order and high efficiency in the money market, which can objectively promote the regulatory authorities to improve their supervision level. The short-term effect and long-term effect of the change of money market interest rate on social security fund are different. The interaction between money market and social security fund has a positive effect on the development of a country's financial market and social security (Yang Bo, 25).
v. management mode-the role of the government
the prominent feature of modern social security system lies in the leading position of the government in the construction and operation of social security system. The government's different social security management modes directly determine and reflect the types of social security systems. Since the beginning of social security reform, the management mode has gone through the process of decentralized management of enterprises-decentralized management of government-centralized management of government. At the beginning of the reform, most of the debates about the management mode focused on the unified or divided responsibility of the national social security management institutions. For example, with the establishment and improvement of China's socialist market economic system, this management mode is increasingly unable to meet the needs of economic and social development, and must be reformed, from the current multi-department management to unified management by one department (Tian Jiaguan, 1997). Resolutely reverse the fragmented situation of "Five Dragons for Water Control" and implement unified management. The social security management system is characterized by the separation of government affairs, politics and economics, administration and supervision, and the government management departments only care about policies, supervision and inspection regardless of their operations (Feng Lanrui, 1994 and 1996). Regarding the specific role of the government in the management of the social security system, there are the following views:
The first view advocates autonomous management. It is believed that China should establish a social security management system that combines distribution and distribution, implement autonomous management, and not be subordinate to government agencies. The highest leadership of insurance institutions belongs to the congress, with employers and employees accounting for half. The Council is elected by the Congress, and the Council is a management mode of combining distribution and collection. According to the differences in various social insurance management requirements, those projects with strong * * * are centralized and unified management is implemented, while some projects with outstanding particularity are listed separately and decentralized management is carried out by relevant departments. This management model actively promotes an integrated security system, which is conducive to establishing an efficient and capable social security management network on the principle of clear responsibilities (Sun Jiupeng, 1996). In addition, based on the different characteristics of social insurance, social assistance, social welfare and other projects, management models should be different. The management mode of social insurance in China should be transformed from centralized government management to autonomous management mode of multi-cooperation, and a social insurance management committee (3+1 mode) composed of government, employer representatives, labor representatives and experts should be established to implement autonomous management (Zheng Gongcheng, 24).
The second view advocates the government-led social security model. It is believed that the various security measures provided by the social security system to members of the society are "public products" that meet the needs of the society and have certain financial characteristics. Therefore, financial dominance should be the basic model of China's social security system reform (Ma Caichen, 1999). The choice of social security mode in China should be led by the government and managed directly for a long time to come. There are two reasons. First, from the perspective of historical and cultural traditions, China has long implemented a centralized government management system, with high authority and high recognition of the government by members of society. The implementation and development of social security by the government has less resistance and higher efficiency; Secondly, judging from the actual national conditions, the scale of our government is relatively large, and the government is responsible for the specific implementation of the social security system, and the cost is also low. In a short period of time, in order to meet the needs of system transition, we should increase the government's pre-planning for social security. At the same time, corresponding to the leading role of the government, the market plays a supplementary role in the management mode of social security system (Song Wenbin and Zhang Qiang, 24). This view is the mainstream view at present.
the third viewpoint is the mixed management mode. It is believed that the Chinese government should bear the overall responsibility of direct management of public social security plans, while the fund-based social security plans should mainly bear the responsibility of external supervision and coordinate different social security plans. The long-term goal of the government should be to develop competitive social security funds, and in the near future, the government should assume the leading responsibility of the public social security plan, clarify the responsibilities of the state, enterprises and employees through legislation, and establish an effective, scientific and feasible fund-raising system (Li Shaoguang, 22).
There is another international model about the government's role in social security, that is, the social security system management ceremony is mainly managed indirectly through the market, and the government only acts as a legislator and supervisor. There are few similar views in the practice of social security system reform in China.
VI. Comprehensive Evaluation
In fact, although China's social security system reform has developed to this day, the institutional framework has been basically established.