法国经济发展与社会保障:以20世纪80年代中期为转折点
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摘要
本文描述和分析了法国社会保障制度的历史经验和当前法国社会保障制度面临的主要挑战,并探讨了成功应对这些挑战的一些可选项。当前法国社会保障制度面临的主要挑战包括人口老龄化、社会保障筹资的相关问题以及失业与未适当就业的发展。法国的社会保障制度正在呈现加速下行的趋势。若不进行改革,未来几十年,尽管整个社会会变得前所未有的富裕,但社会保障制度提供的福利待遇将会更差,不平等和贫困将会增加。对此,本文探讨了三个提议:一是政府应确定预防与减少失业的明确目标,并相应向有意愿者按最低工资标准提供公共就业保障;二是出台一个全国性的薪酬政策,涵盖按生存工资设定的法定最低工资等事项;三是扭转社会权利的分割趋势,实现社会保障制度某种类型的全覆盖。就短期而言,第一步是要提高现有的安全网和福利待遇的最低标准,这在法国已成为当务之急。
This paper describes the historical experience of the French social security system, analyses the main current challenges facing the French social security system, and discusses some options considered able to cope successfully with these challenges. The main current challenges include the ageing of the population, the related problems of fi nancing social security, and the development of unemployment as well as inadequate employment. It has been shown that social security schemes are on an accelerating downward trend. If no reform is undertaken, the social security schemes will provide poorer benefi ts in the next decades although the society as a whole will have become richer than it ever was before. Inequalities and poverty will increase. To cope with this issue, three proposals are discussed. The fi rst proposal concerns unemployment, stating that governments should adopt an explicit target for preventing and reducing unemployment and underpin this ambition by off ering guaranteed public employment at the minimum wage to those who seek it. The second important proposal is that there should be a national pay policy consisting of, among other things, a statutory minimum wage set at a living wage. The other line of action would be to reverse the trend towards the segmentation of social rights and build some kind of universal coverage for social security schemes. In the short term, a fi rst step would be to raise the existing safety nets and the minimum level of benefi ts. In the French context, this has obviously become an urgent task.
This paper describes the historical experience of the French social security system, analyses the main current challenges facing the French social security system, and discusses some options considered able to cope successfully with these challenges. The main current challenges include the ageing of the population, the related problems of fi nancing social security, and the development of unemployment as well as inadequate employment. It has been shown that social security schemes are on an accelerating downward trend. If no reform is undertaken, the social security schemes will provide poorer benefi ts in the next decades although the society as a whole will have become richer than it ever was before. Inequalities and poverty will increase. To cope with this issue, three proposals are discussed. The fi rst proposal concerns unemployment, stating that governments should adopt an explicit target for preventing and reducing unemployment and underpin this ambition by off ering guaranteed public employment at the minimum wage to those who seek it. The second important proposal is that there should be a national pay policy consisting of, among other things, a statutory minimum wage set at a living wage. The other line of action would be to reverse the trend towards the segmentation of social rights and build some kind of universal coverage for social security schemes. In the short term, a fi rst step would be to raise the existing safety nets and the minimum level of benefi ts. In the French context, this has obviously become an urgent task.
引文
(1)国民净收入(NNI)被定义为国内生产总值(GDP)加上来自国外的工资、薪水及财产所得的净收入,减去因损耗与报废而导致的固定资本资产(住宅、建筑、机器、运输设备和实体基础设施)折旧。参见OECD,Net National Income,https://data.oecd.org/natincome/net-national-income.htm,Paris,Organisation for Economic Co-operation and Development,2016.
(1)针对成年残障人士(1976-1983)和单亲家长(1976-1999)。
(1)参见Pierre Laroque,Rapport de la Commission d'étude des Problèmes de la Vieillesse,Paris,L'Harmattan,1962.
(2)参见RenéLenoir,Les Exclus,Paris,Seuil,1974;Lionel Stoleru,Vaincre la Pauvretédans les Pays Riches,Collection Champs,Paris,Flammarion,1977.
(3)Didier Blanchet,Jean-Alain Monfort,L'age et la Durée de Retraite Depuis 50 Ans,Insee Première,Paris,French National Institute of Statistics and Economic Studies,1996,No.448.
(1)参见DREES,Les Retraités et Les Retraites,Paris,Direction de la Recherche,desétudes,de l'évaluation et des Statistiques,2015.
(2)Lucy ap Roberts,Pierre Concialdi,"Pension Reform and Personal Provision of Retirement Income in France,"in Jim Stewart,Gerard Hughes(eds.),Personal Provision of Retirement Income:Meeting the Needs of Older People?Cheltenham,Edward Elgar,2009.
(3)德国等其他国家同样如此。事实上,这个问题所涉甚广,无法在本报告中进行讨论。例如,与广为接受的(错误的)认知基本相反,银行并不需要任何储蓄来为投资提供资金,而诸如“投资基金”等其他金融中介则需要。
(4)参见Citigroup,The Coming Pensions Crisis:Recommendations for Keeping the Global Pensions System Afl oat,New York,Citi Global Perspectives&Solutions,2016.
(1)自费支付可能包括直接支付(对不在保险报销范围内的药品和服务的付费),共同支付(参保患者需要承担一部分治疗费用和药品费用),以及对优待的非正式支付。
(2)公私合作模式可以采取多种形式。例如,医院建筑和技术设备的筹资及租赁,维修服务的提供,以及公立医院的民营化管理。
(3)对于某些疾病,长期疾病计划允许对由社会保障(疾病保险)部分支付的医疗服务费用进行全额报销。
(1) Nicolas Célant,et al.,Enquête sur la Santéet la Protection Sociale 2012,Les rapports de l'IRDES,Paris,Institut de recherche et documentation enéconomie de la santé,2014,No.556.
(2)Catherine Chauveaud,et al.,Le"Non-recours"Aux Soins des Actifs Précaires,Document de Travail de l'ODENORE,Grenoble,Observatory on Non-take-up of Social Rights and Public Services,2010,No.2.
(3)Laure Com-Ruelle,et al.,Recours Aux Soins Ambulatoires et Distances Parcourues par les Patients:Des différences Importantes Selon L'accessibilitéTerritoriale Aux Soins,IRDES,Questions D'économie de la Santé,Paris,Institut de recherche et documentation enéconomie de la santé,2016,No.219.
(4)Samia Benallah,Jean-Paul Domin,"Réforme de L'h?pital:Quels Enjeux en Termes de Travail et de Santédes Personnels?"Revue de l'IRES,2016,No.91-92.
(5) Philippe Askenazy,et al.,"New Organizational Practices and Working Conditions:Evidence from France in the 1990s,"Rechercheséconomiques de Louvain,2002,68(1).
(1)Allison Milner,et al.,"Long-term Unemployment and Suicide:A Systematic Review and Meta-analysis,"Plos One,2013,8(1).
(2)David J.Roelfs,et al.,"Losing Life and Livelihood:A Systematic Review and Meta-analysis of Unemployment and All-cause Mortality,"Social Science&Medicine,2011,72(6).
(3)Tae Jun Kim,Olaf von dem Knesebeck,"Perceived Job Insecurity,Unemployment and Depressive Symptoms:A Systematic Review and Meta-analysis of Prospective Observational Studies,"International Archives of Occupational and Environmental Health,2016,89(4).
(4)Moussa Laanani,et al.,"Association Entre Taux de Ch?mage et Suicide,Par Sexe et Classe D'age,en France Métropolitaine,2000-2010,"Bulletinépidémiologique,2015,No.1-2.
(5)Pierre Meneton,et al.,"Le Ch?mage:Un Problème de SantéPublique Majeur,"Revue de l'IRES,2017,No.91-92.
(6)该计划主要针对的是有3岁以下子女的单身父母。
(7)目前,约一半的失业者没有获得任何失业津贴。
(1)Belleville-Pla,A.,"Les Trajectoires Professionnelles des Bénéfi ciaires de Minima Sociaux,"études et Résultats,2004,No.320.
(2)Danièle Guillemot,et al.,"TrappeàCh?mage ou TrappeàPauvreté:Quel est le Sort des Allocataires du RMI?"Revueéconomique,2002,53(6).
(3)此外,在对再就业困难进行解释时,其他问题(健康、交通、育儿、资质欠缺等)在许多情况下比经济激励更加重要。
(1) EU,The 2015 Ageing Report:Economic and Budgetary Projections for the 28 EU Member States(2013-2060),European Economy,Brussels,European Commission,2015,No.3.
(2)参见James H.Schulz,The Economics of Aging,Dover,Auburn House,1988;Pierre Concialdi,Demography,Employment and the Future of Social Security Financing,Financing Social Protection in Europe,Helsinki,Ministry of Social Aff airs and Health,1999.
(1) Pierre Concialdi,"Demography,the Cost of Pensions and the Move to Pension Funds,"Review of Political Economy,2006,18(3).
(2)Peter Orszag,Joseph Eugene Stiglitz,"Rethinking Pension Reform:Ten Myths about Social Security Systems,"in Robert Holzmann,Joseph Eugene Stiglitz(eds.),New Ideas about Old Age Security:Toward Sustainable Pension Systems in the 21st Century,Washington,D.C.,World Bank,2001.
(3)Michel Grignon,Les Conséquences du Vieillissement de la Population sur les Dépenses de Santé,IRDES,Questions D'économie de la santé,Paris,Institut de Recherche et Documentation en Economie de la Santé,2003,No.66;Brigitte Dormont,et al.,"Health Expenditure Growth:Reassessing the Threat of Ageing,"Health Economics,2006,15(9).
(1)EU,The 2015 Ageing Report:Economic and Budgetary Projections for the 28 EU Member States(2013-2060),European Economy,Brussels,European Commission,2015,No.3.
(1)Noelle Burgi,"Le Démantèlement Méthodique et Tragique des Institutions Grecques de SantéPublique,"Revue de l'IRES,2017,No.91-92.
(2)参见Olivier Blanchard,Daniel Leigh,Growth Forecast Errors and Fiscal Multipliers,IMF Working Paper,Washington,D.C.,International Monetary Fund,2013.
(3)Aaron Reeves,et al.,"Does Investment in the Health Sector Promote or Inhibit Economic Growth?"Globalization and Health,2013,9(43).
(1)译者注:在多数情形下,“underemployment”和“inadequate employment”被作为可互换的同义词。然而,作者在文中对这两个概念的使用却暗示二者之间或许存在一些差别。结合原文语境,译者将此处及下文中的“underemployment”和“inadequate employment”分别译作“不充分就业”与“未适当就业”。
(2)就业不足定义的最新变化发生在2009年,由此导致了约250000人从统计数据中“消失”。
(1)Pierre Concialdi,Sophie Ponthieux,"Low Pay and Poor Workers:A Comparative Study of France and the USA,"Transfer,2000,6(4).
(2)Pierre Concialdi,"Employment at All Costs?Limits and Shortfalls of French Employment Policies,"in Marc Humbert,Yoshimichi Sato(eds.),Social Exclusion:Perspectives from France and Japan,Melbourne,Trans Pacifi c Press,2012.
(3)Pauline Givord,Lionel Wilner,Les Contrats Temporaires:Trappe ou Marchepied vers L'emploi Stable?INSEE,Documents de Travail,Paris,French National Institute of Statistics and Economic Studies,2009,No.4.
(4)Anthony Barnes Atkinson,"The Economics of the Welfare State:An Incomplete Debate,"in The Welfare State in Europe:Challenges and Reforms,European Economy,Luxembourg,Offi cial Publications of the European Communities,1997,No.4;Assar Lindbeck,"Welfare State Dynamics,"in The Welfare State in Europe:Challenges and Reforms,European Economy,Cheltenham,Edward Elgar,1997,No.4.
(5)参见Karl Polanyi,The Great Transformation:The Political and Economic Origins of Our Time,Boston,Beacon Press,2001.
(6)参见Karl Polanyi,The Great Transformation:The Political and Economic Origins of Our Time,Boston,Beacon Press,2001.
(1)参见Anthony Barnes Atkinson,Inequality:What Can be Done?Cambridge,Harvard University Press,2015.
(2)参见ONPES,Reference Budgets:Assessing the Needs to be Met for an Ef fective Participation in Society,2014-2015 Report,Paris,French National Observatory on Poverty and Social Exclusion,2015.
(3)参见Sven Steinmo,Taxation and Democracy:Swedish,British and American Approaches to Financing the Modern State,New Haven,Yale University Press,1993.
(1)针对成年残障人士(1976-1983)和单亲家长(1976-1999)。
(1)参见Pierre Laroque,Rapport de la Commission d'étude des Problèmes de la Vieillesse,Paris,L'Harmattan,1962.
(2)参见RenéLenoir,Les Exclus,Paris,Seuil,1974;Lionel Stoleru,Vaincre la Pauvretédans les Pays Riches,Collection Champs,Paris,Flammarion,1977.
(3)Didier Blanchet,Jean-Alain Monfort,L'age et la Durée de Retraite Depuis 50 Ans,Insee Première,Paris,French National Institute of Statistics and Economic Studies,1996,No.448.
(1)参见DREES,Les Retraités et Les Retraites,Paris,Direction de la Recherche,desétudes,de l'évaluation et des Statistiques,2015.
(2)Lucy ap Roberts,Pierre Concialdi,"Pension Reform and Personal Provision of Retirement Income in France,"in Jim Stewart,Gerard Hughes(eds.),Personal Provision of Retirement Income:Meeting the Needs of Older People?Cheltenham,Edward Elgar,2009.
(3)德国等其他国家同样如此。事实上,这个问题所涉甚广,无法在本报告中进行讨论。例如,与广为接受的(错误的)认知基本相反,银行并不需要任何储蓄来为投资提供资金,而诸如“投资基金”等其他金融中介则需要。
(4)参见Citigroup,The Coming Pensions Crisis:Recommendations for Keeping the Global Pensions System Afl oat,New York,Citi Global Perspectives&Solutions,2016.
(1)自费支付可能包括直接支付(对不在保险报销范围内的药品和服务的付费),共同支付(参保患者需要承担一部分治疗费用和药品费用),以及对优待的非正式支付。
(2)公私合作模式可以采取多种形式。例如,医院建筑和技术设备的筹资及租赁,维修服务的提供,以及公立医院的民营化管理。
(3)对于某些疾病,长期疾病计划允许对由社会保障(疾病保险)部分支付的医疗服务费用进行全额报销。
(1) Nicolas Célant,et al.,Enquête sur la Santéet la Protection Sociale 2012,Les rapports de l'IRDES,Paris,Institut de recherche et documentation enéconomie de la santé,2014,No.556.
(2)Catherine Chauveaud,et al.,Le"Non-recours"Aux Soins des Actifs Précaires,Document de Travail de l'ODENORE,Grenoble,Observatory on Non-take-up of Social Rights and Public Services,2010,No.2.
(3)Laure Com-Ruelle,et al.,Recours Aux Soins Ambulatoires et Distances Parcourues par les Patients:Des différences Importantes Selon L'accessibilitéTerritoriale Aux Soins,IRDES,Questions D'économie de la Santé,Paris,Institut de recherche et documentation enéconomie de la santé,2016,No.219.
(4)Samia Benallah,Jean-Paul Domin,"Réforme de L'h?pital:Quels Enjeux en Termes de Travail et de Santédes Personnels?"Revue de l'IRES,2016,No.91-92.
(5) Philippe Askenazy,et al.,"New Organizational Practices and Working Conditions:Evidence from France in the 1990s,"Rechercheséconomiques de Louvain,2002,68(1).
(1)Allison Milner,et al.,"Long-term Unemployment and Suicide:A Systematic Review and Meta-analysis,"Plos One,2013,8(1).
(2)David J.Roelfs,et al.,"Losing Life and Livelihood:A Systematic Review and Meta-analysis of Unemployment and All-cause Mortality,"Social Science&Medicine,2011,72(6).
(3)Tae Jun Kim,Olaf von dem Knesebeck,"Perceived Job Insecurity,Unemployment and Depressive Symptoms:A Systematic Review and Meta-analysis of Prospective Observational Studies,"International Archives of Occupational and Environmental Health,2016,89(4).
(4)Moussa Laanani,et al.,"Association Entre Taux de Ch?mage et Suicide,Par Sexe et Classe D'age,en France Métropolitaine,2000-2010,"Bulletinépidémiologique,2015,No.1-2.
(5)Pierre Meneton,et al.,"Le Ch?mage:Un Problème de SantéPublique Majeur,"Revue de l'IRES,2017,No.91-92.
(6)该计划主要针对的是有3岁以下子女的单身父母。
(7)目前,约一半的失业者没有获得任何失业津贴。
(1)Belleville-Pla,A.,"Les Trajectoires Professionnelles des Bénéfi ciaires de Minima Sociaux,"études et Résultats,2004,No.320.
(2)Danièle Guillemot,et al.,"TrappeàCh?mage ou TrappeàPauvreté:Quel est le Sort des Allocataires du RMI?"Revueéconomique,2002,53(6).
(3)此外,在对再就业困难进行解释时,其他问题(健康、交通、育儿、资质欠缺等)在许多情况下比经济激励更加重要。
(1) EU,The 2015 Ageing Report:Economic and Budgetary Projections for the 28 EU Member States(2013-2060),European Economy,Brussels,European Commission,2015,No.3.
(2)参见James H.Schulz,The Economics of Aging,Dover,Auburn House,1988;Pierre Concialdi,Demography,Employment and the Future of Social Security Financing,Financing Social Protection in Europe,Helsinki,Ministry of Social Aff airs and Health,1999.
(1) Pierre Concialdi,"Demography,the Cost of Pensions and the Move to Pension Funds,"Review of Political Economy,2006,18(3).
(2)Peter Orszag,Joseph Eugene Stiglitz,"Rethinking Pension Reform:Ten Myths about Social Security Systems,"in Robert Holzmann,Joseph Eugene Stiglitz(eds.),New Ideas about Old Age Security:Toward Sustainable Pension Systems in the 21st Century,Washington,D.C.,World Bank,2001.
(3)Michel Grignon,Les Conséquences du Vieillissement de la Population sur les Dépenses de Santé,IRDES,Questions D'économie de la santé,Paris,Institut de Recherche et Documentation en Economie de la Santé,2003,No.66;Brigitte Dormont,et al.,"Health Expenditure Growth:Reassessing the Threat of Ageing,"Health Economics,2006,15(9).
(1)EU,The 2015 Ageing Report:Economic and Budgetary Projections for the 28 EU Member States(2013-2060),European Economy,Brussels,European Commission,2015,No.3.
(1)Noelle Burgi,"Le Démantèlement Méthodique et Tragique des Institutions Grecques de SantéPublique,"Revue de l'IRES,2017,No.91-92.
(2)参见Olivier Blanchard,Daniel Leigh,Growth Forecast Errors and Fiscal Multipliers,IMF Working Paper,Washington,D.C.,International Monetary Fund,2013.
(3)Aaron Reeves,et al.,"Does Investment in the Health Sector Promote or Inhibit Economic Growth?"Globalization and Health,2013,9(43).
(1)译者注:在多数情形下,“underemployment”和“inadequate employment”被作为可互换的同义词。然而,作者在文中对这两个概念的使用却暗示二者之间或许存在一些差别。结合原文语境,译者将此处及下文中的“underemployment”和“inadequate employment”分别译作“不充分就业”与“未适当就业”。
(2)就业不足定义的最新变化发生在2009年,由此导致了约250000人从统计数据中“消失”。
(1)Pierre Concialdi,Sophie Ponthieux,"Low Pay and Poor Workers:A Comparative Study of France and the USA,"Transfer,2000,6(4).
(2)Pierre Concialdi,"Employment at All Costs?Limits and Shortfalls of French Employment Policies,"in Marc Humbert,Yoshimichi Sato(eds.),Social Exclusion:Perspectives from France and Japan,Melbourne,Trans Pacifi c Press,2012.
(3)Pauline Givord,Lionel Wilner,Les Contrats Temporaires:Trappe ou Marchepied vers L'emploi Stable?INSEE,Documents de Travail,Paris,French National Institute of Statistics and Economic Studies,2009,No.4.
(4)Anthony Barnes Atkinson,"The Economics of the Welfare State:An Incomplete Debate,"in The Welfare State in Europe:Challenges and Reforms,European Economy,Luxembourg,Offi cial Publications of the European Communities,1997,No.4;Assar Lindbeck,"Welfare State Dynamics,"in The Welfare State in Europe:Challenges and Reforms,European Economy,Cheltenham,Edward Elgar,1997,No.4.
(5)参见Karl Polanyi,The Great Transformation:The Political and Economic Origins of Our Time,Boston,Beacon Press,2001.
(6)参见Karl Polanyi,The Great Transformation:The Political and Economic Origins of Our Time,Boston,Beacon Press,2001.
(1)参见Anthony Barnes Atkinson,Inequality:What Can be Done?Cambridge,Harvard University Press,2015.
(2)参见ONPES,Reference Budgets:Assessing the Needs to be Met for an Ef fective Participation in Society,2014-2015 Report,Paris,French National Observatory on Poverty and Social Exclusion,2015.
(3)参见Sven Steinmo,Taxation and Democracy:Swedish,British and American Approaches to Financing the Modern State,New Haven,Yale University Press,1993.