灵活就业人员失业保险制度如何构建:国际经验、本土探索与政策建议

How to construct unemployment insurance system for flexible employees:international experience,domestic exploration and policy suggestions

当前我国失业保险“选择性关注”特征明显,覆盖的主要是城市标准就业人群,且对待遇领取有明确的资格限制,导致失业风险最高的人群长期处于失业保障体系之外。大多数国家倾向于对失业保险制度进行包容性改革,仍主要聚焦具有一定缴费能力的劳动者,通过“降门槛”方式,使制度扩展涵盖“自雇劳动者”。当前,我国灵活就业人员失业保险领域尚未出台高阶政策,但地方探索已有突破,新业态从业人员职业伤害保障试点也提供了宝贵的经验。建议进一步厘清灵活就业的概念和保障制度的底层逻辑,明确灵活就业者参加失业保险的权责利;借鉴国际经验对我国失业保障制度体系进行整体构建和适应性改造,将现有的灵活就业人群分三类,有针对性地规划其失业保障路径;重点防止道德风险和逆向选择,优先将平台从业人员和个体工商户中可负担能力较强的人员纳入失业保障制度。

At present,China's unemployment insurance has obvious characteristics of "selective attention",which mainly covers the urban standard employment population,and has clear qualification restrictions on the insurance benefits.The people with the highest unemployment risk are outside the unemployment security system for a long time.Most countries tend to carry out inclusive reform of the unemployment insurance,still focus on workers with certain ability to pay,and expand the system to cover "self-employed workers" by "lowering the threshold".Currently,there are no high-level policies in the field of unemployment insurance for flexible employees in China,but breakthroughs have been made in local exploration,and the pilot of occupational injury protection for employees in new forms of business has also provided valuable experience.It is suggested to further clarify the concept of flexible employment and the underlying logic of the security system,as well as the rights and interests of flexible employees to participate in unemployment insurance.China can also draw on the international experience,to carry out the overall construction and adaptive transformation of unemployment security system,divide the existing flexible employment groups into three categories,and plan their unemployment protection paths in a targeted manner.In addition,moral hazard and adverse selection should be prevented,and priority should be given to the inclusion of platform employees and those with strong affordability among individual business into the unemployment security system.