Based on the analysis of the current situation and problems of social security fund raising in China, this paper points out that it is necessary to establish a fund-raising model in which the state, enterprises and individuals jointly undertake social security funds, and further analyzes their respective positions and responsibilities in fund raising, and clarifies their respective ways and shares, as well as financial management issues in fund raising.

As an important part and symbol of modern market economy, the social security system with social assistance, social insurance and social welfare has been widely recognized and accepted. Looking at the countries that have successfully implemented market economy today, they all have relatively complete social security systems without exception. The reform of China's social security system started late, which once became a lagging factor restricting the reform of state-owned enterprises and the development of the whole national economy. The primary link and core issue of the reform of social security system is to establish a channel for raising social security funds that meets the overall requirements of the market economy system, because raising and establishing social security funds according to certain principles and models is the premise and financial guarantee for the establishment and normal operation of the social security system.

First, the current situation and problems of fund raising in China

Looking back on the development of China's social security system, it can be roughly divided into two stages: the first stage is from the founding of New China to the Third Plenary Session of the Eleventh Central Committee, which began with the promulgation of the Regulations on Labor Insurance of the People's Republic of China by the State Council in 1951, and gradually established a social security system with labor insurance as the core content in enterprises and administrative institutions owned by the whole people in cities and towns. In the second stage, since the reform and opening up, especially after the Third Plenary Session of the 14th Central Committee put forward that the establishment of social security system should be the content and goal of economic system reform, China has carried out the social security system reform with emphasis on pension, medical care and unemployment step by step, issued a series of temporary regulations on pension, unemployment and employee medical care, and successively selected a number of cities throughout the country as pilots to accumulate experience and find problems, laying the foundation for nationwide promotion. At this stage, the fund-raising mode has been reformed step by step, and various fund-raising schemes have been implemented successively. Later, the social pooling method for enterprise employees' pensions was implemented on a large scale throughout the country. At the initial stage, cities and counties were taken as the basic units of overall planning, and enterprises participating in overall planning adopted the method of "fixed income by support and pay as you go". By the end of 1993, all state-owned enterprises had achieved overall planning at or above the county level; The endowment insurance for employees of collective enterprises reached 1927 counties as a whole; Foreign-invested enterprises have reached more than 8 counties as a whole. On this basis, the state has decided to gradually improve the level of social overall planning in various places, and gradually transition from city-level overall planning to provincial-level overall planning.

It can be seen that after several years of reform, the sources and financing methods of China's social security funds are currently at a special stage of alternation between old and new. On the one hand, the fund-raising mode under the old traditional planned economy system has gradually disintegrated, while on the other hand, the new fund-raising mode that meets the requirements of the market economy system has just started, far from meeting the requirements of standardization and systematization. This alternation of the old and the new has led to the coexistence of various contradictory practices at this stage, with unique characteristics and obvious problems in the transitional stage.

first of all, although the state no longer monopolizes all the financing of social security funds, the burden of the state and enterprises is still very heavy. The national burden is heavy not only because the projects supported by the national finance, such as social relief, social welfare, special care and resettlement, continue to be borne by the state, but also because the state still bears a part of the social insurance expenses that should be shared by the three parties. For example, at present, the retirement expenses of retirees in administrative institutions are actually borne by the state finance; Although the employee medical system reform has been carried out in "Two Rivers" and other places, the basic framework of the public medical system has not changed substantially nationwide. The burden of enterprises at this stage is still too heavy. According to statistics, by the end of 1993, there were 59, enterprises of various ownership, more than 8 million employees and nearly 2 million retired workers in China, accounting for 6% of employees in urban enterprises and 8% of retirees respectively. However, as far as the sources of expenses are concerned, most of them are co-ordinated by enterprises, and the individual contribution rate is less than 1.5%.

Secondly, it is related to the heavy burden of the state and enterprises, especially because of the heavy burden of enterprises, which makes it difficult to collect social security funds. In some places, compulsory overall planning even evolved into "friendship" collection. Taking the collection of endowment insurance funds in 1993 as an example, the national average collection rate was 86%, which was 7%-8% lower than that in previous years, and the situation in some cities and counties was more serious. There are objective reasons for the difficulty in fund collection. At present, state-owned enterprises are suffering from serious losses. Under such circumstances, it is really unbearable to bear the excessive social insurance fees. However, under the circumstances that the state administration forces the overall collection of fees, enterprises can only adopt the method of arrears.

Third, due to the administrative method, pooling funds are levied according to the specific conditions of different localities, and the scope and level of pooling are mainly cities and counties, with various specifications at the provincial, prefectural and county levels. The proportion and calculation method of pooling funds are different in different regions and different ownership properties, which leads to a prominent problem, that is, each locality is fragmented, and the burden level of local finance and enterprises is extremely unbalanced, thus the sociality of social security has not been fully reflected.

Fourth, many funds are responsible for raising funds, the management system is not smooth, and the fund raising is not standardized. At present, the collection of social security funds in China involves labor, personnel, health, civil affairs, finance, and industry system coordination departments and insurance companies. In particular, many departments mistakenly regard endowment insurance as a piece of fat meat, each vying for a piece, resulting in a "multi-dragon swimming" situation with multiple policies, different standards and overlapping businesses, which directly affects the reputation of the social security system. The establishment of the Ministry of Labor and Social Security this year indicates that the social security work will be gradually unified, and this problem will be solved accordingly.

it can be seen that in order to overcome the shortcomings in raising social security funds in China, standardize the channels for raising social security funds, and reduce the burden on the state and enterprises, China should learn from foreign experience and establish a fund-raising model in which the state, enterprises and individuals share the burden, so as to provide a reliable source of funds for China's social security cause.

second, the financing channels for the three parties (state, enterprise and individual) to raise funds

According to the principle that the three parties share the same burden, the state, enterprise (the economic unit where the workers work) and individual workers should bear the social insurance fund raising in a certain way and proportion, and it is usually clarified in the form of national legislation.

(a) the position and role of state finance in raising social security funds. In the process of raising social security funds, the position and role of state finance cannot be ignored. For a long time, the raising of social security funds in China mainly depends on the state finance and enterprises. Under the condition of planned economy, enterprises are unified in revenue and expenditure, so it is still a financial burden. One of the directions of social security system reform is the socialization of social security, which should gradually reduce the heavy burden of national finance. Therefore, in the future, the role of national finance in raising social security funds should be mainly manifested in the following aspects: < P > First, it plays the role of organizer and manager. Its primary task is to establish and improve the social security system as soon as possible, do a good job in the legislative work of social security so as to dredge and straighten out the channels for raising social security funds and provide a stable source of funds with legal basis for social security funds. In addition, as organizers and managers, we should give appropriate preferential treatment to social security in related economic policies, such as taxes and interest rates, so as to promote the development of social security. For example, according to the Basic Plan of Rural Social Endowment Insurance at the County Level of the Ministry of Civil Affairs (Trial), the state should give policy support to the raising of rural endowment insurance funds, and its support method is mainly reflected by paying collective subsidies to township enterprises before tax.

Secondly, we should take part in the collection of social security funds. In raising social security funds, the government should mainly undertake those security projects that can only be supported by finance, including social relief, social welfare, special care and resettlement, and community service. Because social relief, special care, resettlement and social welfare belong to the category of national income redistribution, it reflects the state's responsibility to help people who can't reach the basic living standard and the principle of fairness, and can only be paid by the state finance. The initial stage of community service is also a project supported by finance. Raising funds for the above-mentioned security projects is the main part to be undertaken by the state finance.

in addition, from the perspective of state financial support for social insurance, the state finance mainly bears the following two aspects: first, the administrative expenses for managing social insurance expenditures, which is because social insurance management institutions belong to non-profit institutions, and their personnel expenses and public expenses should naturally be borne by financial expenditures. The second is to make up for the shortage of social insurance expenses through financial allocation, that is, in the process of raising social insurance funds, the state finance plays the role of "last appearance" and is the backing of social insurance. In the case of difficulties in the various projects of the social insurance fund, the state finance, including local finance at all levels, should give appropriate subsidies. It is true that the social insurance fund should be raised in accordance with the principle of insurance, mainly by enterprises and individuals. At present, most countries in the world adopt this method. However, once the income of social insurance fails to meet the expenditure, the finance must give subsidies. Because the management of social insurance funds is not allowed to appear unbalanced income and expenditure, specifically, when the pension insurance fund has difficulties in payment. Give appropriate subsidies by the finance at the same level; When the unemployment insurance plan is in trouble, it will be subsidized by the local finance.

the government's share of the above social security fund is carried out through budgetary allocation. That is to say, it is completed through the transfer expenditure project of the national budget, the source of which is the general tax of the government, and the expenditure belongs to the national budget expenditure project. At present, there is no separate social security budget and the national financial resources are insufficient, so the social security funds that can be allocated by the finance are also affected by the financial revenue and expenditure of the whole country. However, from the perspective of standardizing the financing methods of social security funds, it should be clear how much share the state finance should bear, what aspects should be given the final subsidy, and calculate the proportion of this part. This is of great help to overcome the shortcomings of lack of rigidity and non-standardization in the current social security fund raising in China. At present, experts in our country believe that the share of the state finance is about 3%-4% of the total social security expenses (including social welfare and social relief fund expenditures). If it is between this ratio, the burden on the state should be reduced. It is also worth explaining that the share of social security undertaken by the finance office not only refers to the central finance, but also includes local finance at all levels. If unemployment relief is difficult, local finance will subsidize it.

It can be seen that in raising social security funds, the state mainly undertakes those security projects that can only be supported by the state finance, such as social relief and social welfare. As for raising social insurance funds, the state only plays the role of supporter and backing, mainly relying on enterprises and individual employees.

(II) Responsibilities and obligations of enterprises and individuals in raising social insurance funds

Under the principle that the social security funds are shared by all three parties, the economic unit (enterprise) where the workers belong and the individual workers must bear the corresponding social insurance fund shares according to their own affordability. According to the overall objectives and requirements of China's social security system reform, China should gradually adopt the method that enterprises and individuals share the social security fees (taxes), and combine social pooling of pension and medical insurance with individual accounts. Social security fee (tax) will become the main source of social insurance fund in China.

Social insurance premiums are shared by enterprises and individuals. The specific operation methods are as follows: First of all, the employees' business units and employees themselves pay social insurance premiums to the social insurance management institutions in accordance with the prescribed proportion based on the total wages. Then, a certain proportion of the social insurance premiums paid by enterprises for employees is extracted to form a pooling fund to reflect the social mutual assistance nature of social insurance, and the social insurance premiums paid by individual employees and the other part of the social insurance premiums paid by enterprises for employees are credited to individual employees' accounts. Among them, the overall fund is mainly used for the pension or medical expenses of the elderly who have retired or are about to retire before the implementation of individual accounts. Personal accounts are mainly used for the payment of employees' personal pensions or medical expenses. As for the specific proportion of enterprises and individuals, the funds are different:

1. Raising proportion of endowment insurance funds In March 1995, the State Council issued the Notice on Deepening the Reform of Enterprise Employees' Endowment Insurance System, requiring all regions to reform the basic endowment insurance system of enterprise employees in their own regions according to one of the two reform schemes of urban enterprise employees' endowment insurance system recommended by the State Council. The two schemes made specific provisions on the raising channels and fund establishment of China's endowment social insurance fund. All localities quickly organized fund-raising work according to the proportion stipulated in the selected plan. So far, 22 provinces, municipalities and districts have introduced the reform plan of combining social pooling with individual accounts, and 617, enterprises, 87.382 million employees and 22.412 million retirees have participated in the social pooling of local retirement expenses, with a total coverage of about 12 million people. According to incomplete statistics, in 1996, the income of the basic endowment insurance fund for urban enterprises reached 12 billion yuan. However, the implementation of the two schemes has also led to differences in the proportion of individual accounts, the proportion of enterprise contributions, the management level and the standard of payment. For this reason, in August 1997, the State Council promulgated the "Decision on Establishing a Unified Basic Old-age Insurance System for Enterprise Employees", and all localities should be merged as soon as possible according to the new unified scheme. The plan redefines the proportion of enterprises and individuals.

according to the new scheme, the proportion of the basic old-age insurance premium paid by an enterprise shall not exceed 2% of the total wages of the enterprise (including the part transferred to individual accounts), and a few provinces and autonomous regions. Municipalities directly under the central government should report to the Ministry of Labor and the Ministry of Finance for approval if it is really necessary to exceed 2% of the total wages of enterprises because of the large number of retirees and the heavy burden of old-age insurance. The proportion of individuals paying the basic old-age insurance premium shall not be less than 4% of their contribution wages in 1997, and will be increased by 1 percentage point every two years from 1998, eventually reaching 8% of their contribution wages. In areas where conditions permit and in years when wages increase rapidly, the rate of increase in the proportion of individual contributions should be appropriately accelerated. At the same time, it is stipulated that a personal account for basic old-age insurance should be established for employees according to the amount of 11% of the salary I pay, and the rest should be included in the enterprise payment. With the increase in the proportion of individual contributions, the portion allocated by enterprises should be gradually reduced to 3%.

The following points can be seen from the provisions of the above new scheme: the total social security burden level of enterprises is stipulated, which is conducive to reducing the burden of state-owned established enterprises and providing a basis for eliminating the unfair phenomenon of excessive burden among enterprises; In the share of enterprises and individuals, with the increase of individual burden share year by year, the burden of enterprises is decreasing year by year. This embodies the spirit of reducing the burden on enterprises and giving full play to the role of individuals in fund-raising.