195 1 After the promulgation of the Regulations on Labor Insurance in People's Republic of China (PRC), a labor insurance system for employees was established in cities and towns, covering employees of urban organs, enterprises and institutions and supporting immediate family members; At the same time, the "five guarantees" system for rural elderly and disabled children and the rural cooperative medical system for farmers have been established in rural areas. During the Cultural Revolution, the labor insurance system was abolished and evolved into "enterprise insurance".
1978 in order to meet the needs of reform and opening up, China has reformed the traditional social security system. By 2008, the coverage of social insurance is expanding day by day, the treatment level is improving year by year, the scale of fund income and expenditure is growing rapidly, and the system is running smoothly. Take the endowment insurance as an example. In 2007, the number of people covered reached 20 1 10,000, and the fund income and expenditure reached 783.4 billion yuan and 596.5 billion yuan respectively.
Strive to achieve the goal of "basically establishing a social security system covering urban and rural residents by 2020" proposed by the 17th National Congress of the Communist Party of China.
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At present, according to the objectives, key points and major policy measures of social security system reform in different periods, the course of social security system reform in China can be divided into three stages: reform exploration, initial formation of institutional framework and overall planning of urban and rural development.
According to the objectives, key points and main policy measures of social security system reform in different periods, the process of social security system reform in China can be divided into three stages: reform exploration, initial formation of institutional framework and overall planning of urban and rural development.
The exploration period of the reform is from 1978 to 1992.
During this period, the core of China's economic system reform is to transform the operating mechanism of enterprises, enhance the vitality of enterprises, and implement various forms of economic responsibility system based on contracting. Under this background, the guiding ideology of social security reform is to serve the needs of enterprise reform. The state regards social security reform as a supporting measure for enterprise reform and personal system reform as a breakthrough.
In terms of reform steps, we should first reform the endowment insurance system of urban enterprises and establish the unemployment insurance system, and then formulate other relevant social security reform measures with the introduction of relevant enterprise reform policies. In terms of old-age insurance, from 65438 to 0984, the state began a pilot project of social pooling of retirement expenses for enterprises owned by the whole people and collectively; 199 1 the State Council issued the decision on the reform of the old-age insurance system for enterprise employees, and implemented the old-age insurance system combining basic old-age insurance, enterprise supplementary old-age insurance and employee personal savings old-age insurance. The cost of basic old-age insurance is shared by the state, enterprises and individuals, and social planning is implemented, which is first coordinated at the city and county level, and then gradually transferred to the provincial level. In terms of unemployment insurance, 1986, in order to cooperate with the labor contract system of state-owned enterprises, the State Council promulgated the Interim Provisions on Unemployment Insurance for Employees of State-owned Enterprises, and established the unemployment insurance system for employees of enterprises for the first time in China; 1993, the State Council revised this provision, and issued the Regulations on Unemployment Insurance for Employees of State-owned Enterprises, which further expanded the coverage of unemployment insurance, and proposed that enterprises should set up an unemployment insurance fund to ensure the basic livelihood of unemployed employees.
The initial period of institutional framework was from 65438 to 0993 to 2004.
1992 The 14th National Congress of the Communist Party of China proposed that the goal of China's economic system reform is to establish a socialist market economic system. 1993 The Third Plenary Session of the 14th CPC Central Committee adopted the Decision of the Central Committee on Several Issues Concerning the Establishment of the Socialist Market Economy System, which regards the establishment of the social security system as one of the five components of the basic framework of the socialist market economy and defines the basic contents of China's social security system. Subsequently, according to the objectives, tasks and basic principles set by the Third Plenary Session of the 14th CPC Central Committee, the urban social security system was reformed, focusing on the old-age insurance, medical insurance and unemployment insurance systems and aiming at establishing a social security system that meets the requirements of the socialist market economy. In the aspect of endowment insurance, from 65438 to 0995, the State Council issued the Notice on Deepening the Reform of Endowment Insurance System for Enterprise Employees. The basic old-age insurance adopts the system mode of combining social pooling with individual accounts and is piloted nationwide, and the expenses are shared by enterprises and individuals. In terms of medical insurance, 1995 carried out pilot projects in Zhenjiang City, Jiangsu Province and Jiujiang City, Jiangxi Province to explore the establishment of a medical insurance system combining social pooling with individual accounts; 1996 was expanded to 38 cities. In terms of industrial injury insurance, from 65438 to 0996, the former Ministry of Labor issued the Trial Measures for Industrial Injury Insurance for Enterprise Employees, which standardized the identification conditions, treatment standards and management procedures of industrial injury insurance and established the industrial injury insurance fund. 65438-0994 The former Ministry of Labor promulgated the Trial Measures for Maternity Insurance for Enterprise Employees, which standardized the implementation scope, overall planning level, fund raising and treatment payment of maternity insurance.
Since 1997, the pace of social security reform in China has been accelerated. 1997, the State Council issued the Decision on Establishing a Unified Basic Old-age Insurance System for Enterprise Employees, which unified the basic old-age insurance system for urban enterprise employees. 1998 "decision on establishing the basic medical insurance system for urban workers" was issued, which clarified the mode and reform direction of the basic medical insurance system; 1999 promulgated the unemployment insurance regulations, which further clarified the coverage, financing methods, payment ratio, enjoyment conditions and security level. In the same year, the State Council promulgated the Regulations on Minimum Living Security for Urban Residents and the Provisional Regulations on Collection and Payment of Social Insurance Fees, which further standardized the social assistance and collection and payment of social insurance fees for urban poor residents. In 2004, the Regulations on Industrial Injury Insurance was promulgated, which further clarified the scope of participation, financing methods, payment ratio, enjoyment conditions and security level.
In order to cooperate with the reform of state-owned enterprises, properly handle laid-off workers and ensure the basic livelihood of the urban poor, the policy system of "one center, two guarantees and three guarantee lines" was gradually established after 1998. In 2000, the State Council issued the Notice on Printing and Distributing the Pilot Scheme for Improving the Urban Social Security System, which was piloted in Liaoning Province to explore the experience of the transformation of the social security system from a single system to system construction and from covering state-owned enterprises to covering urban workers. The three-year pilot project has achieved great success.
By the end of 2004, a framework of social security system was initially formed, with pension insurance, medical insurance, unemployment insurance and the minimum living security system for urban residents as the main contents, which met the basic requirements of the socialist market economy.
The period of coordinated development of urban and rural social security system after 2005
Since 2005, "Several Opinions of the Central Committee of the State Council on Promoting the Construction of a New Socialist Countryside" and other documents have been issued, which indicates that China's economy and society have entered a period of putting people first, implementing Scientific Outlook on Development and coordinating urban and rural development.
In this context, the development of China's social security system has entered the stage of overall planning of urban and rural areas, comprehensive coverage, comprehensive support and unified management. In 2005, the State Council promulgated the Decision on Improving the Basic Old-age Insurance System for Enterprise Employees, which expanded the coverage of old-age insurance from employees to flexible employees in cities and towns, reformed the pension calculation and payment methods, strengthened the incentive and restraint mechanism and established a long-term mechanism; In 2006, the State Council promulgated "Several Opinions of the State Council on Solving the Problem of Migrant Workers", and the General Office of the State Council forwarded "Notice of the Ministry of Labor and Social Security on Doing a Good Job in Employment Training and Social Security for Land-expropriated Farmers" to promote the construction of social security system for migrant workers and land-expropriated personnel; In 2007, the State Council promulgated the Notice of the State Council on Establishing the Rural Minimum Living Security System in China and the Guiding Opinions of the State Council on Launching the Pilot Project of Basic Medical Insurance for Urban Residents, establishing a comprehensive urban and rural minimum living security system nationwide, and expanding the medical insurance from the professional population to the non-professional population in cities and towns.
Second, realize two innovations and a breakthrough.
Realize the transformation from enterprise security to social security, and initially establish a social security network that adapts to the socialist market economy; Innovating the basic living security policy for laid-off workers with China characteristics; Put forward the theory of establishing a multi-level, diversified and diversified social security system with China characteristics.
1. System, mechanism and institutional innovation. The transformation from enterprise security to social security has been realized, and a social security network adapted to the socialist market economy has been initially established. Innovate the old-age insurance and medical insurance systems, and implement the system model of combining social pooling with individual accounts. Five social insurances have achieved overall social co-ordination, and a fund-raising mechanism has been established, in which employers, workers pay jointly and the government gives subsidies. Social insurance agencies have been set up, policies and systems have been separated from management, the overall planning level has been improved, and territorial management and socialized management services have been implemented.
2. Innovating the basic living security policy for laid-off workers with China characteristics. In order to change the management mechanism of state-owned enterprises, reduce staff and increase efficiency, the minimum living security, unemployment insurance and basic living security for laid-off workers have been established for the weak in market competition. More than 40 million laid-off workers from state-owned enterprises have entered the re-employment service center, successfully left state-owned enterprises and entered the labor market, without causing huge social shock, which has created a miracle in the world.
3. Theoretical breakthrough. In view of the serious problem of enterprise retirees' pension arrears under the balance management of pension insurance in the late 1990s, this paper puts forward the theory of establishing a social security system independent of enterprises and institutions. In 2008, aiming at the goal of "establishing a social security system covering urban and rural residents", the theory of establishing a multi-level, diversified and diversified social security system with China characteristics was put forward, including the following five aspects: First, combining fairness with efficiency; Second, the combination of basic insurance and supplementary insurance; The third is the combination of unity and particularity. The social security system covering urban and rural areas must be considered as a whole, designed as a whole and managed in a unified way to prevent the fragmentation of system design and increase friction in operation. At the same time, we should face up to the imbalance of economic and social development between urban and rural areas and between regions in China, fully consider and reflect this difference under the unified system and legal norms, and give local flexibility. Especially in rural areas, we should continue to play the role of family and land security and implement different social security projects and methods in urban and rural areas. The fourth is the combination of history, reality and future. We should gradually repay the historical debt of system transition; It is also necessary to protect the vital interests of the people who enjoy the existing treatment, and gradually narrow the interest gap between the guaranteed groups and the unprotected groups and the groups with high and low levels of protection; We must also prepare for the future peak of population aging.
The third experience of social security system reform
Adhere to the party's line and principles and serve the overall situation of economic and social reform and development; Based on the national conditions, adhere to the policy of "wide coverage, basic protection, multi-level and sustainable"; Pay equal attention to system construction, legal system construction and service management.
1. Adhere to the Party's line and principles and serve the overall situation of economic and social reform and development. The social insurance system is an important social and economic system, and the Party's line, principles and policies are programmatic documents, which determine the ultimate goal of social and economic development and the organizational concept and phased goals of China's social insurance system. One of the important factors is that the management mechanism of state-owned enterprises was successfully transformed before 1992, and the market economy system was established after 1993. Since 2005, the overall planning of urban and rural development has achieved initial results. The construction of social security system is to serve the Party's line and principles, that is, to handle the relationship between social insurance as a part and economic and social development as a whole. It not only promotes the transformation mechanism of enterprises, gives full play to the basic role of the market in resource allocation, reduces the surplus staff of enterprises, but also adheres to the party's purpose of serving the people. It does not simply push the surplus personnel to the market, but adheres to the people-oriented concept, establishes a laid-off and re-employment service center, guarantees the basic livelihood of laid-off workers, provides training, job transfer and re-employment capabilities, helps them re-enter the labor market, buffers the impact on society and individuals from employment to unemployment at that time, establishes an unemployment insurance system, and improves unemployment insurance policies. Economic and social development needs to reform the social security system, and the construction of social security system further promotes economic and social development and realizes the interactive development of social insurance and social economy.
2 based on the national conditions, adhere to the principle of "wide coverage, basic protection, multi-level and sustainable". Under the background that economic benefits are the center and the overall level of economic development is still low, we are committed to ensuring the basic livelihood of employees, adhering to the principles of low level, wide coverage and basic protection, and avoiding the tendency of high welfare; Considering the economic development gap between urban and rural areas and between regions, systems and policies should not be across the board. We advocate the establishment of multi-level institutional arrangements, the issuance of guiding documents by the central government, and the independent adjustment and implementation of local governments to meet the security needs of some developed regions, enterprises with good benefits and high-income groups, expand the development space of enterprise annuity system and supplementary medical insurance, and basically form a multi-level social insurance system consisting of basic social insurance, supplementary insurance and commercial insurance. Considering the system transition and social transformation, historical issues, development issues and practical issues are considered as a whole, avoiding the great trauma brought by the "shock" reform of the former Soviet Union to the people, economy and society. In policy formulation and improvement, it is necessary to strengthen the government's responsibility and fulfill the obligations of units and individuals, highlight the fair effect of social security, give consideration to the operational efficiency of the system, and attach importance to the construction of long-term mechanism and sustainable development.
3. Pay equal attention to system construction, legal system construction and service management. Pay attention to system construction and strengthen handling management, scientifically formulate service standards for social insurance agencies, strengthen the construction of urban communities and township social security organizations, enrich the handling service team, and improve handling conditions; Promote the standardization, informationization and specialization of handling management services, focus on the interests of insured persons and convenient services, continuously improve the level of social security management services, and change from paying attention to economic security to paying equal attention to economic security and service security. Actively promote the construction of the legal system, strengthen supervision and law enforcement, expand the scope of supervision and law enforcement, improve supervision procedures, improve law enforcement agencies, strengthen the construction of law enforcement teams, and provide legal protection for the social security system.
Fourth, challenges and future development.
At present, it is necessary to improve the social security system with social insurance as the main body in accordance with the requirements of "establishing a social security system covering urban and rural residents" at the 17th National Congress of the Communist Party of China. Endowment insurance and medical insurance have the characteristics of covering many groups, large amount of funds and complex system, and are the key points of construction.
Challenges and outstanding problems faced by social security system
At present, there is a gap between the construction of social security system and the goal of the 17th National Congress of the Communist Party of China, and it faces a series of outstanding problems, which are mainly manifested in four aspects: First, the system is lacking, and there is no old-age security system arrangement for farmers, most migrant workers and urban and rural elderly residents without income. The medical care for retirees has not been socialized yet. Second, the coverage is narrow. In 2007, among the 6.5438+53 million elderly people over 60 in China, only 44 million people, less than one third, could enjoy regular treatment. Of the 770 million working people, only 200 million participated in the old-age insurance, accounting for 26.5%; Of the 590 million urban population, only 240 million people, and less than 40% people participated in medical insurance. Third, the management system is not smooth. Social security affairs management is scattered in many departments, which is not conducive to the unified standardization of policies. The local management of funds is difficult to improve the level of overall planning, and it is difficult to adjust funds and renew insurance across overall planning areas. Fourth, the historical burden is heavy. About 20 million employees and retirees of bankrupt state-owned enterprises and difficult enterprises were closed, but they were not included in the medical insurance system due to financial problems.
At the same time, we are also facing the challenges of aging population, diversified employment forms and urbanization. At present, China has entered an aging society. Compared with western aging countries, China has the characteristics of getting old before getting rich, large-scale elderly population, rapid aging and long peak duration. It is predicted that in 1930s, the elderly population will reach 350-450 million, the burden coefficient will increase greatly, and the pension expenditure will increase sharply. The per capita medical expenses of retirees are four times that of on-the-job employees. Aging leads to a sharp increase in medical insurance expenditure, and the risk of fund payment is high. China is in the accelerated stage of industrialization and urbanization, and a large number of migrant workers will be employed for a long time. The number and proportion of flexible employment have increased, and the traditional social system aimed at "units" cannot adapt to this decentralized and mobile employment pattern.
The future development direction of social security system
At present, China's economy and society have entered the development stage of "promoting agriculture through industry, urban and rural areas feeding back rural areas, and industry feeding back agriculture", and social security has entered the stage of coordinating urban and rural development. The development of social security system should not only follow its own laws, but also serve the overall economic and social situation. Therefore, we must do the following two things.
1. Adhere to the correct guiding ideology, fully implement the spirit of the 17th National Congress of the Communist Party of China, hold high the great banner of Socialism with Chinese characteristics, thoroughly implement Scientific Outlook on Development under the guidance of Deng Xiaoping Theory and Theory of Three Represents, adhere to the policy of "wide coverage, basic protection, multi-level and sustainable" around the overall requirements of building a harmonious society in an all-round way, and establish a social security system with China characteristics covering urban and rural residents. On the basis of social insurance, social assistance and social welfare, focusing on basic old-age care, basic medical care and minimum living security system, supplemented by charity and commercial insurance, we will accelerate the improvement of the social security system.
2. To establish the concept of social security system reform, we should adhere to pluralism, diversification and multi-level. Diversification system should conform to the characteristics of floating groups in cities, rural areas and between urban and rural areas. Diversification system should meet the different characteristics and needs of regular employees, flexible employees, civil servants, employees of public institutions and unemployed residents in cities and towns. Multi-level refers to the structure of combining national basic insurance, unit supplementary insurance, commercial insurance and government welfare projects to meet the security needs of different income groups. Establish the concept of developmental social security, based on the establishment of long-term sustainable development mechanism. In the choice of basic social security mode, the social insurance system of units and individuals should be the main body, supplemented by other welfare systems, the corresponding relationship between payment obligations and treatment rights should be strengthened, and the burden sharing mechanism of the state, units and individuals should be established.
Reform goal
To improve the social security system with social insurance as the main body, the focus of reform is medical care and endowment insurance system.
1. Pension insurance
Adhere to the institutional model of combining social pooling with personal accounts. The countermeasures to improve the old-age security system are mainly embodied in three aspects: "comprehensive, unified and practical"
"Full coverage" is to achieve full coverage of urban and rural areas, with the focus on establishing rural old-age insurance system and old-age subsidy system. The rural old-age insurance system implements the model of "basic pension plus personal account", covering employees. The old-age subsidy system covers the insecure low-income elderly people over 60 in urban and rural areas.
"Unification" means improving the level of overall planning, realizing the national overall planning of basic pensions, and rationalizing the responsibilities of the central and local governments. The central government collects old-age insurance premiums from units according to a certain proportion of total wages, and is responsible for issuing basic pensions. The central government is responsible for this gap. Transitional pension and personal account pension are managed and responsible by provincial agencies.
"Real" means to make a real personal account, and the overall fund and the personal account fund are managed separately, and the accounts are established separately without crowding each other, thus truly realizing part of the accumulation and part of the pay-as-you-go. Adhere to the market-oriented investment and operation direction of individual account funds, strengthen the fund supervision system, legal system, organizational team and capacity building, and realize the preservation and appreciation of funds.
2. Medical insurance
Improve the basic medical insurance policy for the unemployed, and reduce the burden of medical insurance payment for the unemployed through financial subsidies and adjustment of unemployment insurance funds; Through multi-party financing, we will properly solve the problem of retirees from difficult state-owned enterprises and closed bankrupt enterprises participating in basic medical insurance.
Explore the establishment of a stable, reliable and reasonable growth financing mechanism, rationally adjust the payment policy of medical insurance fund, improve the level of security, innovate the management mode of medical settlement, and gradually solve the problem of outpatient medical insurance for insured personnel.
At present, the unemployment, industrial injury and maternity insurance policy system has been basically established, and mainly covers professionals. The next task is to continue to improve policies and regulations, expand coverage, improve management services and raise the level of treatment.
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