Provincial co-ordination of endowment insurance system is an important way to improve the level of co-ordination, strengthen system mutual assistance, improve financial coverage and fund payment ability, and finally realize system unification. 1987, China first put forward the concept of provincial overall planning of endowment insurance. The State Council once requested that the goal of provincial overall planning of endowment insurance be1the end of 998, but the final goal failed. In 2007, the State Council requested to complete the provincial overall planning of endowment insurance by the end of 2009. In July 2009, the Ministry of Insurance revealed that 25 provinces across the country have established a provincial-level overall planning system. 20 1 1 Minister Yin Weimin of Ministry of Human Resources and Social Security held a press conference at the Fourth Session of the Eleventh National People's Congress, announcing that the construction of China's social security system has made "breakthrough progress" during the Eleventh Five-Year Plan period, and the overall level of pension funds is still low. It is necessary to realize the national overall planning of basic pensions during the Twelfth Five-Year Plan period, adjust funds on a larger scale and resolve risks.
Unified planning and development methods and overall planning projects, unified business handling institutions and procedures, unified computer information management system and other "five unification" standards. The work of coordinating the endowment insurance at the provincial level has been started for more than 20 years, and many arrangements have been made, but in the end there is no result. See table 1 for details.
Two, the institutional obstacles to the overall planning of old-age insurance at the provincial level and the difficulties in the overall development of basic pensions nationwide
The government has put forward the timetable of provincial overall planning again and again, and set goals again and again, but the implementation effect always falls short of expectations. According to the statistical bulletin of resources and social security in 20 12, 3/kloc-0 provinces and Xinjiang production and construction corps have established a provincial-level co-ordination system for old-age insurance, but in fact, only a few provinces in China have achieved provincial-level co-ordination of basic pensions, and the overall level of old-age insurance in most provinces remains at the county and city level, with as many as 2,000 national co-ordination units. Why is it so difficult to coordinate at the provincial level in the true sense? The main reasons are:
1. Due to local interests, the resistance to improving the overall planning level lies in the government itself.
The most important issue in the overall planning of endowment insurance is the direct interest relationship. No matter between cities in the province, or between provinces, as long as the interests of pension funds cannot be balanced, it is difficult to implement the task of provincial or national overall planning. Realizing provincial overall planning is an effective way to improve the ability of endowment insurance, but provincial governments have some concerns. Traditionally, which level of overall planning is responsible for which level of finance. The upward shift of financial responsibility undoubtedly increases the financial burden and more administrative responsibilities of provincial governments. Except for the four municipalities directly under the central government, most of the places that achieve provincial-level overall planning belong to underdeveloped areas, such as Gansu, Qinghai, Ningxia and Xinjiang. Most places that do not fully implement provincial-level overall planning belong to developed areas. This phenomenon is mainly due to the fact that the central government gives certain subsidies to underdeveloped areas for provincial co-ordination, coupled with provincial financial subsidies, the provincial level has enough funds for provincial co-ordination of endowment insurance, and the provinces and cities are willing to shift their responsibilities up because of the small balance. However, developed provinces can't get the central financial subsidy from the endowment insurance fund, and the balance of the endowment insurance fund in the province is stranded at the prefecture level. If there is a big economic difference in the province, cities and regions are reluctant to hand over the pension insurance to the provincial level to make up the difference, which leads to the phenomenon that the more developed areas are, the more difficult it is for the provincial level to make overall plans.
For cities in the province, due to the territorial management rules of endowment insurance, the fund is limited to each administrative region, and the settlement of the fund may lead to loss of interests, involving local fiscal revenue and political achievements. Cities with good economy are worried that the provincial level will reduce the level of old-age care for local residents and damage local interests; The depressed cities hope to get foreign aid to relieve their spending pressure. When local interests conflict with those of the whole province, cities and counties often choose to protect local interests.
The difficulty of provincial overall planning of endowment insurance is not a theoretical or technical difficulty, but a balance of interests. At present and for a long time to come, the huge economic gap between provincial administrative regions will continue to exist, the competition for their own interests and local protectionism will continue, and it is difficult for the central government to fully coordinate the interests of provincial administrative regions in a short time.
2. Fragmentation management makes it impossible to unify the old-age insurance system.
According to the design rules of China's public policy system, the central government is often only responsible for formulating and guiding the macro policies of the old-age insurance system, and the specific rules are formulated by local governments according to their own characteristics, economic conditions and the income level of local residents, which leads to the fragmentation of the old-age insurance system, which is not only different among provinces, but also among cities in the province, making it difficult to carry out unified management. Taking Guangdong Province as an example, the Pearl River Delta region has a large number of migrants, a high coverage rate and a large fund balance. The unit payment is generally around 9% ~ 12%, Shenzhen, Zhuhai and Foshan are 10%, and Dongguan is only 9%. The payment wage is relatively low, generally lower than 60% of the average wage of employees in the province, and the burden on enterprises is relatively light. However, in underdeveloped areas, the coverage rate is low, the number of insured people is small, and the fund balance is small. Some cities have current deficits, and the unit payment ratio is generally higher than 15%. The contribution rate of basic old-age insurance enterprises in Shaoguan, Heyuan and Shanwei reached 18%, with a maximum of 22%. Payment wages generally reach or approach 60% of the average wage of employees in the province, and the burden on enterprises is heavy.
5. The overall adjustment fund is partly used for personal accounts, and municipalities actively participate in provincial overall planning. Land reduction.
All provincial endowment insurance plans in China require that the endowment insurance transfer payment be raised from various cities. For example, as stipulated in Guangdong Province, from June 5438+1 October12009, the proportion of provincial-level pension insurance transfers was adjusted from 3% paid by enterprise pension insurance units to g%, and the pension fund transfers were moved to the provincial level, mainly to make up for the fund payment gap in underdeveloped cities. When the old-age insurance system changed from pay-as-you-go system to partial accumulation system, the overall account occupied the personal account, which led to the "empty account" operation of the personal account. City as a whole account fund, in addition to pay transfers to the provincial people's insurance, but also for personal accounts. After 2006, the new policy of endowment insurance was implemented, and the central government required to actively make personal accounts. In addition to financial subsidies and transfer payments, funds are also being raised to make up for the unpaid part of personal accounts. This further affects the enthusiasm of more developed municipal governments for provincial overall planning, and tends to intercept funds locally.
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