论文标题:论建设我国农村社会保障制度的思路
The Way of Thinking in Construction of Rural Social Security System in China
论文作者 蔡莹
论文导师 彭向刚,论文学位 硕士,论文专业 公共管理
论文单位 吉林大学,点击次数 72,论文页数 60页File Size126k
2004-04-01论文网 http://www.lw23.com/lunwen_166519402/ 生态城市;管理系统; 城市管理; 耗散结构
marketing environment ; market analysis;Target market ; marketing strategy
一、建立农村社会保障制度的重要意义 建立农村社会保障制度对我国具有重要的现实意义，它能极大地推动我国人权事业的发展和法治现代化进程，加快城市化和工业化进程，促进农业健康发展，并能有效地扩大内需，拉动农村经济乃至整个国民经济的发展，同时作为社会的“安全阀”或“减震器”，它有利于消除贫富分化，实现收入分配公平，维护社会稳定，在我国，它还有利于顺利落实计划生育政策。 二、农村社会保障制度的现状 20 世纪 90年代以来，我国在农村推行以农村社会养老、农村合作医疗、农村最低生活保障三项制度为核心内容的社会保障制度，进入 21 世纪后，农村社会保障制度举步维艰、停滞不前，其保障作用微乎其微，农民仍处于以家庭保障和土地保障为中心的传统保障方式阶段。然而随着经济和社会的发展，新的形势对农村传统保障方式提出了严峻挑战： 1、农村养老问题日益突出 据第五次人口普查数据表明，我国农村人口已进入老龄化。预计到2030 年左右我国人口老龄化将达到高峰。届时，农村人口老龄化的形势将十分严峻，而农民的低收入又使农村养老问题更为突出。 2、家庭保障难度越来越大 随着农村社会经济的发展和计划生育政策的广泛实施，农村家庭结构简化，规模缩小，核心家庭、老年家庭日益增多，同时家庭内聚力下降、家庭收入水平低，都使农村家庭保障难度增大。 3、土地保障已受到严峻挑战 随着农村经济结构的调整，农民收入来源多元化，土地收益相对减少，农民对土地的依赖程度逐渐降低；同时人均耕地的减少、农业经营成本上 48升以及农村土地流转难的现状，也使土地保障的功能日益弱化。4、农村农民生产和生活风险加大农村家庭联产承包责任制的实施，使农民成为独立的市场行为主体。由于耕地持续减少、劳动力市场供大于求以及入世对农业的冲击，农村失业风险加剧；同时随着世界经济一体化的推进，农民面临日益提高的市场风险；我国频繁的自然灾害也加剧了农民的生活风险。在上述形势下，剖析现行农村社会保障制度的症结所在已成当务之急。我国现行农村社会保障制度主要存在下述问题：1、农村社会保障不是真正意义上的社会保障目前实施的农村社会保障项目都不完全符合社会保障的基本特征。既不是由国家强制实行的全国范围内统一实施的保障制度，也没有国家财政的支持，更不属于国民收入分配与再分配的一种形式，而是实行自愿原则下的完全个人资金积累。这种情况下，社会保障已经与它的本质特征背道而驰。2、农村社会保障项目覆盖面窄，共济性差，保障水平低。据统计测算，我国农村社会保障覆盖面仅为城镇的四分之一左右，保障水平约为城镇的三分之一，根本无法满足基本生活需要。3、农村社会保障缺乏科学化和规范化管理。一是管理体制不顺。主要表现为政出多门，多头管理。二是管理水平低。基金管理问题尤为突出，其征缴、管理和使用缺乏有效的约束和制衡机制，致使基金严重流失。三是基金保值增值程度低。从投资的实际回报率看，“投资收益率是负的”，基金正大幅贬值。4、农村社会保障制度法律体系不健全。由于立法滞后，导致农村社会保障制度在实践过程中具有极大的不稳定性和地区发展的不平衡性。上述问题的根源主要来自三个方面： 49一是资金匮乏。一方面国家财政对农村社会保障的投入资金极少；另一方面国家财政对农业、农村长期投入不足，使农村集体和个人的投保能力极其有限，是导致农村社会保障发展滞后的根本原因。二是体制不健全。缺乏有力的统一管理机构和有效的监督约束机制，从而引发分散管理、多头管理、基金贬值和流失等诸多问题。三是认识上的误区。国家和政府对农民利益的长期忽视、农民对农村社会保障错误认识不足以及“养儿防老”等观念的存在，都是发展农村社会保障的思想障碍。三、建立新型农村社会保障制度的思路（一）建立有利于城乡衔接的多层次的农村社会保障体系。该体系基本框架为：以我国法定基本保障为主体，以补充保障和附加保险为补充，资金筹集实行在开征社会保障税的基础上社会统筹和个人积累相结合的模式。由于地区经济发展不平衡，上述三个层次的社会保障在我国东、中、西部将各有侧重。（二）大力加强社会保障立法工作，确立农村社会保障的法律地位。首先应根据宪法尽快制定社会保障立法体系，在此基础上制定和完善农村社会保障立法体系；其次加强与社会保障制度相衔接的相关法律部门的立法工作。通过法律约束农民、集体、国家的相关义务和权利，使农村社会保障健康规范地发展。（三）加强管理和监督，完善和规范农村社会保障管理体系。一是设立专门的管理和监督机构，理顺管理体制，实现统一管理；二是建立健全规章制度，提高管理水平；三是建立严格高效的基金管理和营运机制，确保基金保值增值。（四）加大投入，政府承担相应的责任。首先国家应当在政策、资金上向农村、农民倾斜，加大对农村基础设施、农村基础教育的投入力度
I. The importance of establishing the rural social security system In china, the importance of establishing the rural social security system asfollowing: First, it can promote the development of human rights and nomocracymodernization. Secondly, it can speed up the civilization and industrializationand make agriculture develop healthily. Thirdly, it can expand the domesticdemand and stimulate economy. Fourthly, as the safety valve and bumperabsorberof society, it helps to eliminate the polarization of the poor and the rich,realize equal distribution and maintain social stability. At last, it can be in favorof giving effect to the Chinese Child policy. II. The basic situation of the rural social security system Since 1990s, the government has explored the way of establishing the ruralsocial security system, which includes rural social pension system, rural medicalsupport system and rural minimum life protection system. Since 20 century, therural social security system has come to stagnation and hardly taken any effect.The peasants are provided by the traditional way of family support and holdingsguarantee. With the development of economy and society, the actual ways offamily support and holdings guaranteeare confronted with following challenges: First, according to the Fifth Census, in rural area the problem of populationaging has arisen. It is estimated that China’s problem of population aging willclimax around the year 2030. How to solve the problem of old-age security inrural area will be a great and severe test. Secondly, family support is getting more and more difficult. With economydeveloping and Chinese Child policy putting into effect, the structure of ruralfamily becomes simpler, the scale of rural family gets smaller. The proportion ofnuclear family and the aged family is increasing. Furthermore, rural family hasless cohesion and low income. The facts mentioned above make the familysupport more difficult. Thirdly, holdings guarantee is facing with severe challenge. While thestructure of rural economy is adjusted, peasants’income sources become moreand agricultural production cost is increasing, income from arable landrelatively reduces. The dependence of peasants on holdings gets weaker. Besides, 52the average arable land has become smaller and smaller. Moreover, at presentpeasants transfer arable land very difficultly. All above are challenging holdingsguarantee. At last, peasants have more risk in their living. The arable land contractsystem in rural area makes peasants face risk independently. Increasingreduction of arable land and much more supply than demand in labor forcemarket make more and more peasants unemployed. After china joining WTO,peasants face more market risk. Meanwhile, frequent natural calamities bringpoor risk to peasants. From what mentioned above, we can conclude that china’s rural socialsecurity system is facing arduous tasks and a long way to go. It is in urgent needof reforming and perfecting the rural social security system. The author thinksthere are following problems: First, present rural social security system is out of character. Neither has itthe force of law, nor it gains any finance from government. It isn’t the form ofdistribution of national income, but rather peasants’personal savings. Secondly, current rural social security has not established a common socialrelief security framework. It covers just a small group of peasants and offersonly a little amounts of average compensation which hardly meets basic livingdemand. Thirdly, current rural social security system lacks of scientific and standardadministration. Lacking of supervisory mechanism, the funds for rural socialsecurity were seriously misused, encroached upon or misappropriated. Besides,due to unsafe investment, the funds have been devaluated. In fact, ’the yield rateof funds is negative’.
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