香港退休保障制度的历史演进与功能变迁——以关于全民退休保障的纷争为分析线索

The Historical Evolution and Functional Changes of Retirement Protection Policy in Hong Kong:A Study Based on the Controversy over Universal Retirement Protection Scheme

本文探讨了香港退休保障制度的发展历程及其背后的意识形态和制度安排,以全民退休保障的制度建构为线索,梳理香港老年社会政策的演进过程,揭示香港退休保障系统内在的制度理念与困境。文章指出,从强积金计划诞生到全民退休保障计划的再次勃兴,彰显的变革逻辑是在转化高龄津贴、长者生活津贴等"存量"的基础上,建立全民老年金的"增量",这不仅是香港老年社会福利体系从单一的个人责任本位向社会共同责任本位转变的一个缩影,同时也可能是残辅式福利体制走向瓦解的临界点。面对政策纷争,现时比较合理的做法,是让公众体悟政策制定的复杂性与现实考量,在理性的氛围中弥合裂痕,迈出坚实步伐。

This research explores the development of retirement protection policy in Hong Kong, its underlying ideology, and its institutional arrangements. It points out that the development process - from the birth of Mandatory Provident Fund （MPF） system to the revival of universal retirement protection system - reflects the quest to set up a new and universal retirement protection system, and meanwhile to adjust and preserve the existing systems such as Comprehensive Social Security Allowance Scheme （CSSA） and Old Age Allowance Scheme （0AA）. It also reflects the quest for transformation from solely individual responsibility to collective responsibility regarding the basis of welfare system of old age in Hong Kong. It seems that the residual welfare system may approach the critical breaking point. This research also suggests that measures be taken to make the public understand the complication of policymaking and current constraint, and to bring together people with different interests as well as reconcile conservation on a rational basis.