中国农村多层次社会养老保障制度研究
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摘要
实现农民“老有所养”是中国现代化进程中必须完成的一项艰巨任务,农民应该分享经济社会发展的成果。相对于已经滞后于经济社会发展的城市社会养老保障制度,农村养老保障制度更是中国社会保障制度中的洼地,目前只是处于制度探索和起步阶段。在这一背景下,研究并构建农村社会养老保障制度框架,无疑具有重要的理论意义和现实意义。
长期以来,中国农村的老年人生活水平普遍不高,养老依靠的主要是家庭和个人,只有部分地区的农村老年人能享有不多的养老金。上世纪90年代起,政府试图建立农村社会养老制度,但最终效果不好。以上两个事实是研究中国农村社会养老保障制度的起点。
农村老年人生活困顿的根本原因是制度性因素造成的养老资源积累不足。中国政府曾经长期采取重工业优先的赶超式发展战略,并通过计划经济体制固化了城乡二元结构。在严格的户籍管理制度下,农民被限制于相对弱势的农业生产部门,长期以“工农剪刀差”向国家提供资金原始积累。特别是在实行家庭联产承包责任制之前,生产积极性被不符合实际的经济制度严重压抑,这是农民养老资源积累不足的首要原因。另一方面,国家采取了歧视性财税和社会保障制度进一步加剧中国城乡二元反差。因此国家有责任为农村养老保障制度提供相应的补贴。这也决定了中国国农村养老保障制度要综合立足于福利和保险两个方面,而不能只依赖保险。
上世纪90年代中国农村养老保险制度构建的失败是一个寓意深刻的教训,反映出存在一些制约制度建立的深层次原因。相对于目前中国的国力,当初建立农村社会养老保险制度时国家确实还不富裕,但不能因此将这次失败完全归因于经济因素,农民缺乏政治发言权才是问题的症结所在。从世界各国社会保障体系的建立历程中我们可以得出的一个结论是：社会保障体系的建立不但取决于经济因素,同时也取决于政治因素,很多国家都是在不太富裕的时候就建立了自己的社会保障体系。单就农村养老保障体系而言,也有很多发展中国家走在了中国的前面。目前中国正在发生着很多有利于农村社会养老保障体系建立的积极变化,不但有经济实力的增长,更有政治文明的进步,这些为建立中国农村养老保障系统提供了现实条件。
在研究中国社会养老保障制度时,农民工的养老保障状况值得特别关注,他们为中国经济发展做出了巨大贡献,但是在很多情况不但没有成为受益者,反倒成为了制度不健全的受害者。具体到社会养老保障制度上,很多农民工参保又退保,实际上没有享受到制度的任何好处,其统筹账户的资金也不再属于他所有。数千万人的退保行为背后的因素是制度缺陷。在进行社会养老保障制度的设计时,必须充分考虑农民工特点并保障其利益。农民工的相当部分最终还会回归农村,通过适当设计可以把他们纳入农村社会养老保障制度。对于最终融入城市的农民工,可以引导其加入城市职工养老保险体系,设立单独的农民工社会养老保障制度弊大于利。
农村社会养老保障面临的一个最大危险是制度碎片化的凝固,这从长期讲危害很大。在目前的制度实践中,因为缺乏统一的指导和规范,各地分别建立了差异较大的各种保险制度。这些制度针对不同农民群体各有不同,各地区之间,尤其是发达与欠发达地区之间更是差异巨大。即使是经济发展水平差不多的邻近地区,也会因为种种原因而不尽相同。农村社会保障制度的碎片化已经形成。同时值得庆幸的是,目前这种碎片化的制度还没有固化。中央政府对其进行整合的阻力还比较小,这是一个很宝贵的时间窗口。如果各地制度趋于凝固,则再进行任何改革都会阻力重重。以法国为代表的很多国家在整合碎片化社会保障制度时都遭到失败,其国家发展也受制于碎片化的社会养老保障制度。中国应该从中吸取深刻的教训,在制度建立初期就形成大一统的局面。目前政治、经济等各种条件都已具备,正是建立全国层面的农村养老保障系统的历史时机。
对社会保障基础理论和国外经验的梳理借鉴是本文研究的基础。目前世界上农村养老保障已经形成了福利型养老保障、保险型养老保障和救助型养老保障等几种形式。无论其理论还是实践都对中国农村社会养老保障制度的设计有较大帮助。世界银行提出了“多支柱养老保障模式”,它汇集了世界各地实践经验和智慧,具有很强的借鉴意义。
在以上研究的基础上,本文设计了中国多层次农村社会养老保障制度框架。共包括三个层次,第一层次是以中央政府财力支撑的非缴费型养老福利金制度,其出发点是对农村老年人的一种补偿,使其分享经济发展成果。对于这一层次的资金来源问题,本文提出用国家存量财富来建立相应的养老基金,而不应建立在当期的财政收入之上。第二层次是缴费制的农村养老保险制度,采取政府适当优惠的方式来吸引农民自愿参加。根据缴纳费用通过精算关系决定未来的待遇。以上两个层次的制度都面向所有的农村居民,也包括农民工,其统筹层次是国家级的。第三个层次是地方资金支撑的救济制度,包括农村最低生活保障制度和五保户制度,以家计调查方式确定受益人,另外也以适当形式吸引NGO等社会力量参与其中。
运用AHP分析法对影响中国农村社会养老保障制度建立的因素进行定量分析,提出了有利于农村社会养老保障制度建立与运行的一系列对策建议：成立最高层次制度推进机构、建立法律保障体系、优化管理运营体制、进行相关配套政策改革。
本文的创新之处主要包括：一、设计了全国统一、中央政府承担主要责任的中国农村多层次社会养老保障制度。二、提出了利用国家存量财富为农民提供非缴费型福利养老金的养老问题解决方案。
Old farmers been supported is an arduous task that China must complete during modernization process, farmers should share the achievements of economic and social development. Comparing with urban social pension security system which lagged behind economic and social development, farmer old-age system is low in the whole security system, and currently the system is only at the initial stage. In this context, researching how to build a framework for rural social old-age security system, is undoubtedly of great theoretical and practical significance.
Over the years, the elderly living in rural China in general is not high. Main pension rely on families and individuals, and only some parts of rural elderly people can enjoy one of the few pension.90's of last century, the government tried to establish rural social old-age security system, but ultimately ineffective. These are the study of Chinese rural social old-age security system to begin with.
Rural elderly live in poverty the root is insufficient accumulation of pension resources caused by institutional factors. The Chinese government has long taken the priority of heavy industry development strategy of catching style, and through planned economic system, the urban-rural dual structure solidified. In a strict household registration system, farmers are limited to relatively weak agricultural production sector, long the "workers and peasants scissors" primitive accumulation of funds to countries. Particularly before the household contract responsibility system, the enthusiasm for production was depressed severely for system not consistent with the actual economic system, and this is the primary cause of old-age farmers lack the accumulation of resources. On the other hand, the state adopted a discriminatory tax and social security system to further increase the contrast between urban and rural China. Therefore, the state has the responsibility for rural old-age security system to provide appropriate subsidies. It also determines the rural old-age security system should be based on two aspects of welfare and insurance, and not just rely on the insurance only.
The failure of 90's of last century building rural social insurance system should be a seriously lesson, and it reflects some deep-rooted reasons which restricted system establishment. Compared with the current national strength, the State was not rich when established the rural social insurance system. But we can not be entirely attributed to the failure of economic factors, and farmers are lack of political voice is the crux of the problem. From the world history of social security system, we can come to one conclusion:the social security system depends not only on economic factors, but also depends on political factors. Many countries are less well-off when set up their own social security system. Alone in terms of rural old-age security system, there are many developing countries walk in the front of the Chinese. China is currently undergoing many positive changes, which are conducive to rural social old-age security system in the building. The growth of economic power and more political progress of civilization all provide realistic conditions for the establishment of rural old-age security system.
In the study of Chinese social security system, pension security situation of migrant workers deserve special attention. They have made great contributions in China's economic development, but in many cases, they not only failed to become the beneficiaries, and have actually become victims of ill-conceived system. Specific to the social security system, many migrant workers insured they surrender. In fact they do not enjoy any benefits of system, and their overall capital account no longer belongs to them all. Surrender tens of millions of acts of the factors behind the system defects. During the design of social security, must fully consider the characteristics of migrant workers and protect their interests. A substantial part of the migrant workers will eventually return to rural areas, the government should through appropriate design incorporate them into rural social old-age security system. For eventual integration into the city's migrant workers, the government can guide them to join pension insurance system of urban workers. Setting up a separate social security system for migrant workers would be more harm than good.
Rural social security is facing the greatest danger of the coagulation of a fragmentation system, which would be greatly harmful in the long run. The practice of the present system, is lack of uniform guidance and norms, so different regions established a greater variety of insurance systems. These systems are different for different groups of farmers, all systems, particularly between developed and less developed regions'are huge different. Even less the same level of economic development in neighboring areas, systems will be different for various reasons. Rural social security system has become fragmented. Fortunately the same time, the current fragmented system has not yet solidified. The resistance of central government to integrate fragmented systems is relatively small, so this is a very valuable time window. If the system has been solidified throughout, then there would be heavy resistance to any reform. Many countries represented by France, their integration of fragmented social security system have all failed, and their national developments were therefore limited. China should draw profound lessons, and set up system of the formation of the unified situation in the early stage early in the system. The current political, economic and other conditions are in place, is to establish a national-level old-age security system in rural history of time.
Basic theory of social security and references of foreign experiences are the basis of this study. The world has formed a variety of forms of rural old-age security, such as welfare-based old-age security, insurance-based old-age pensions and relief-type protection. Regardless of their theory and practice are in China's rural social old-age security system designed to help greatly. The World Bank proposed a "multi-pillar old-age security model", which brings together practical experience and wisdom from around the world, has a strong reference.
On the basis of the above, the paper design of the Chinese multi-level rural social old-age security system framework consists of three levels. The first level is the central government financial supported and non-contributory pension benefits system. The starting point is a compensation for the rural elderly, to share the fruits of economic development. This level of funding comes from the national stock of wealth, not based on the then revenue. The second level is the payment pension system in rural areas. Government takes appropriate concessions, to attract voluntary participation of farmers. According to payment of fees determine actuarial treatment of the future. These two levels of the system are for all farmers, including migrant workers, and the overall level is the national level. The third level is local funding supported relief system, including the rural minimum living security system and the five-guarantee system, to determine beneficiaries by the Family Planning Survey. Also it can attract the appropriate form of NGO organizations and other social forces involved.
The use of AHP analysis quantitative analyze on established factors of the rural social old-age security system. Put forward a series of measures to facilitate the establishment and operation of rural social old-age security system:establish the highest level of institutions to promote the system, establish legal protection, optimizate management and operation system, reformthe associated supporting policies, and so on. The innovation of this paper include:first, Design of a national unity, the central government to bear the main responsibility of China's rural social old-age security system at multiple levels. Second, proposed the use of national stock of wealth for the welfare of farmers with non-contributory old-age pensions problem solution.
长期以来,中国农村的老年人生活水平普遍不高,养老依靠的主要是家庭和个人,只有部分地区的农村老年人能享有不多的养老金。上世纪90年代起,政府试图建立农村社会养老制度,但最终效果不好。以上两个事实是研究中国农村社会养老保障制度的起点。
农村老年人生活困顿的根本原因是制度性因素造成的养老资源积累不足。中国政府曾经长期采取重工业优先的赶超式发展战略,并通过计划经济体制固化了城乡二元结构。在严格的户籍管理制度下,农民被限制于相对弱势的农业生产部门,长期以“工农剪刀差”向国家提供资金原始积累。特别是在实行家庭联产承包责任制之前,生产积极性被不符合实际的经济制度严重压抑,这是农民养老资源积累不足的首要原因。另一方面,国家采取了歧视性财税和社会保障制度进一步加剧中国城乡二元反差。因此国家有责任为农村养老保障制度提供相应的补贴。这也决定了中国国农村养老保障制度要综合立足于福利和保险两个方面,而不能只依赖保险。
上世纪90年代中国农村养老保险制度构建的失败是一个寓意深刻的教训,反映出存在一些制约制度建立的深层次原因。相对于目前中国的国力,当初建立农村社会养老保险制度时国家确实还不富裕,但不能因此将这次失败完全归因于经济因素,农民缺乏政治发言权才是问题的症结所在。从世界各国社会保障体系的建立历程中我们可以得出的一个结论是：社会保障体系的建立不但取决于经济因素,同时也取决于政治因素,很多国家都是在不太富裕的时候就建立了自己的社会保障体系。单就农村养老保障体系而言,也有很多发展中国家走在了中国的前面。目前中国正在发生着很多有利于农村社会养老保障体系建立的积极变化,不但有经济实力的增长,更有政治文明的进步,这些为建立中国农村养老保障系统提供了现实条件。
在研究中国社会养老保障制度时,农民工的养老保障状况值得特别关注,他们为中国经济发展做出了巨大贡献,但是在很多情况不但没有成为受益者,反倒成为了制度不健全的受害者。具体到社会养老保障制度上,很多农民工参保又退保,实际上没有享受到制度的任何好处,其统筹账户的资金也不再属于他所有。数千万人的退保行为背后的因素是制度缺陷。在进行社会养老保障制度的设计时,必须充分考虑农民工特点并保障其利益。农民工的相当部分最终还会回归农村,通过适当设计可以把他们纳入农村社会养老保障制度。对于最终融入城市的农民工,可以引导其加入城市职工养老保险体系,设立单独的农民工社会养老保障制度弊大于利。
农村社会养老保障面临的一个最大危险是制度碎片化的凝固,这从长期讲危害很大。在目前的制度实践中,因为缺乏统一的指导和规范,各地分别建立了差异较大的各种保险制度。这些制度针对不同农民群体各有不同,各地区之间,尤其是发达与欠发达地区之间更是差异巨大。即使是经济发展水平差不多的邻近地区,也会因为种种原因而不尽相同。农村社会保障制度的碎片化已经形成。同时值得庆幸的是,目前这种碎片化的制度还没有固化。中央政府对其进行整合的阻力还比较小,这是一个很宝贵的时间窗口。如果各地制度趋于凝固,则再进行任何改革都会阻力重重。以法国为代表的很多国家在整合碎片化社会保障制度时都遭到失败,其国家发展也受制于碎片化的社会养老保障制度。中国应该从中吸取深刻的教训,在制度建立初期就形成大一统的局面。目前政治、经济等各种条件都已具备,正是建立全国层面的农村养老保障系统的历史时机。
对社会保障基础理论和国外经验的梳理借鉴是本文研究的基础。目前世界上农村养老保障已经形成了福利型养老保障、保险型养老保障和救助型养老保障等几种形式。无论其理论还是实践都对中国农村社会养老保障制度的设计有较大帮助。世界银行提出了“多支柱养老保障模式”,它汇集了世界各地实践经验和智慧,具有很强的借鉴意义。
在以上研究的基础上,本文设计了中国多层次农村社会养老保障制度框架。共包括三个层次,第一层次是以中央政府财力支撑的非缴费型养老福利金制度,其出发点是对农村老年人的一种补偿,使其分享经济发展成果。对于这一层次的资金来源问题,本文提出用国家存量财富来建立相应的养老基金,而不应建立在当期的财政收入之上。第二层次是缴费制的农村养老保险制度,采取政府适当优惠的方式来吸引农民自愿参加。根据缴纳费用通过精算关系决定未来的待遇。以上两个层次的制度都面向所有的农村居民,也包括农民工,其统筹层次是国家级的。第三个层次是地方资金支撑的救济制度,包括农村最低生活保障制度和五保户制度,以家计调查方式确定受益人,另外也以适当形式吸引NGO等社会力量参与其中。
运用AHP分析法对影响中国农村社会养老保障制度建立的因素进行定量分析,提出了有利于农村社会养老保障制度建立与运行的一系列对策建议：成立最高层次制度推进机构、建立法律保障体系、优化管理运营体制、进行相关配套政策改革。
本文的创新之处主要包括：一、设计了全国统一、中央政府承担主要责任的中国农村多层次社会养老保障制度。二、提出了利用国家存量财富为农民提供非缴费型福利养老金的养老问题解决方案。
Old farmers been supported is an arduous task that China must complete during modernization process, farmers should share the achievements of economic and social development. Comparing with urban social pension security system which lagged behind economic and social development, farmer old-age system is low in the whole security system, and currently the system is only at the initial stage. In this context, researching how to build a framework for rural social old-age security system, is undoubtedly of great theoretical and practical significance.
Over the years, the elderly living in rural China in general is not high. Main pension rely on families and individuals, and only some parts of rural elderly people can enjoy one of the few pension.90's of last century, the government tried to establish rural social old-age security system, but ultimately ineffective. These are the study of Chinese rural social old-age security system to begin with.
Rural elderly live in poverty the root is insufficient accumulation of pension resources caused by institutional factors. The Chinese government has long taken the priority of heavy industry development strategy of catching style, and through planned economic system, the urban-rural dual structure solidified. In a strict household registration system, farmers are limited to relatively weak agricultural production sector, long the "workers and peasants scissors" primitive accumulation of funds to countries. Particularly before the household contract responsibility system, the enthusiasm for production was depressed severely for system not consistent with the actual economic system, and this is the primary cause of old-age farmers lack the accumulation of resources. On the other hand, the state adopted a discriminatory tax and social security system to further increase the contrast between urban and rural China. Therefore, the state has the responsibility for rural old-age security system to provide appropriate subsidies. It also determines the rural old-age security system should be based on two aspects of welfare and insurance, and not just rely on the insurance only.
The failure of 90's of last century building rural social insurance system should be a seriously lesson, and it reflects some deep-rooted reasons which restricted system establishment. Compared with the current national strength, the State was not rich when established the rural social insurance system. But we can not be entirely attributed to the failure of economic factors, and farmers are lack of political voice is the crux of the problem. From the world history of social security system, we can come to one conclusion:the social security system depends not only on economic factors, but also depends on political factors. Many countries are less well-off when set up their own social security system. Alone in terms of rural old-age security system, there are many developing countries walk in the front of the Chinese. China is currently undergoing many positive changes, which are conducive to rural social old-age security system in the building. The growth of economic power and more political progress of civilization all provide realistic conditions for the establishment of rural old-age security system.
In the study of Chinese social security system, pension security situation of migrant workers deserve special attention. They have made great contributions in China's economic development, but in many cases, they not only failed to become the beneficiaries, and have actually become victims of ill-conceived system. Specific to the social security system, many migrant workers insured they surrender. In fact they do not enjoy any benefits of system, and their overall capital account no longer belongs to them all. Surrender tens of millions of acts of the factors behind the system defects. During the design of social security, must fully consider the characteristics of migrant workers and protect their interests. A substantial part of the migrant workers will eventually return to rural areas, the government should through appropriate design incorporate them into rural social old-age security system. For eventual integration into the city's migrant workers, the government can guide them to join pension insurance system of urban workers. Setting up a separate social security system for migrant workers would be more harm than good.
Rural social security is facing the greatest danger of the coagulation of a fragmentation system, which would be greatly harmful in the long run. The practice of the present system, is lack of uniform guidance and norms, so different regions established a greater variety of insurance systems. These systems are different for different groups of farmers, all systems, particularly between developed and less developed regions'are huge different. Even less the same level of economic development in neighboring areas, systems will be different for various reasons. Rural social security system has become fragmented. Fortunately the same time, the current fragmented system has not yet solidified. The resistance of central government to integrate fragmented systems is relatively small, so this is a very valuable time window. If the system has been solidified throughout, then there would be heavy resistance to any reform. Many countries represented by France, their integration of fragmented social security system have all failed, and their national developments were therefore limited. China should draw profound lessons, and set up system of the formation of the unified situation in the early stage early in the system. The current political, economic and other conditions are in place, is to establish a national-level old-age security system in rural history of time.
Basic theory of social security and references of foreign experiences are the basis of this study. The world has formed a variety of forms of rural old-age security, such as welfare-based old-age security, insurance-based old-age pensions and relief-type protection. Regardless of their theory and practice are in China's rural social old-age security system designed to help greatly. The World Bank proposed a "multi-pillar old-age security model", which brings together practical experience and wisdom from around the world, has a strong reference.
On the basis of the above, the paper design of the Chinese multi-level rural social old-age security system framework consists of three levels. The first level is the central government financial supported and non-contributory pension benefits system. The starting point is a compensation for the rural elderly, to share the fruits of economic development. This level of funding comes from the national stock of wealth, not based on the then revenue. The second level is the payment pension system in rural areas. Government takes appropriate concessions, to attract voluntary participation of farmers. According to payment of fees determine actuarial treatment of the future. These two levels of the system are for all farmers, including migrant workers, and the overall level is the national level. The third level is local funding supported relief system, including the rural minimum living security system and the five-guarantee system, to determine beneficiaries by the Family Planning Survey. Also it can attract the appropriate form of NGO organizations and other social forces involved.
The use of AHP analysis quantitative analyze on established factors of the rural social old-age security system. Put forward a series of measures to facilitate the establishment and operation of rural social old-age security system:establish the highest level of institutions to promote the system, establish legal protection, optimizate management and operation system, reformthe associated supporting policies, and so on. The innovation of this paper include:first, Design of a national unity, the central government to bear the main responsibility of China's rural social old-age security system at multiple levels. Second, proposed the use of national stock of wealth for the welfare of farmers with non-contributory old-age pensions problem solution.
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