多层次社会保障体系建设:现状评估与政策思路

Construction of the Multilayered Social Security System: Evaluation and Policy Proposals

多层次化是各国社会保障发展的基本取向,也是我国早已明确的改革目标。然而,理论上还存在着认识误区,如将其局限于养老金体系多层次化,或将应先后有序的层次性代之以平行的"多支柱"概念等。当前,中国多层次化目标虽已明确但发展理念依然模糊,相关政策渐成体系而实践效果并不理想,法定保障层次独大而非法定保障层次严重滞后,市场主体、社会组织虽有积极性但发育不良且难担重任。因此,我国多层次社会保障体系建设亟待统筹规划与分层分类协同推进,尽快优化并实现法定保障制度定型且全面覆盖是前提,合理设计多层次体系的结构与功能定位是关键,而重点任务则是理性有序地推进养老保险、医疗保障、养老服务、社会救助、住房保障等骨干项目的多层次化。

The construction of multilayered social security systems is a fundamental trend worldwide, as well as a long-established goal for social security reform in China. Yet there remain some myths. Some confi ne the multilayered system only to the realm of pension schemes;some replace 'multilayer' with 'multi-pillar', ignoring that 'multilayer' implies the order of priority while 'multi-pillar' implies the equal importance of diff erent components. At present, the goal of building a multilayered social security system is explicit, but the development philosophy remains vague;the relevant policies gradually become systematic, but the eff ects of policies are not satisfactory;the statutory layer is in the dominant position, but the non-statutory layers lag far behind;the market and social organizations are motivated but meanwhile underdeveloped and incapable of undertaking important responsibilities. Thus, the construction of China’s multilayered social security system is in an urgent need for integrated planning and coordinated moves in a tiered and category-based manner. The fi rst step is to improve statutory social security schemes and achieve their maturity and full coverage without further delay. The proper design of the structure and function of the multilayered system is crucial. While promoting the construction of the multi-layered social security system in a rational and orderly manner, some key schemes include old-age insurance, health care, elderly service, social assistance and housing benefi ts.