退休制度指向漸進性與靈活性

Liu Qinglong， professor at School of Public Policy and Management of Tsinghua University and expert at Employment and Social Security Research Center of Tsinghua University， said， the first thing about delayed retirement should be indentifying who were the supporters and who are the opponents. “No one that mainly is engaged in labor works is willing to delay retirement， and those who want to delay retirement are surely not labor workers.” He thought， delayed retirement only take the interests of the mental workers into account， while those of the physical workers are neglected. “For those physical workers， their work hour exceed 8 hours， and they physical ability are long exhausted when their body are most energetic， and they all hope that their body can recover when they retire， how can they still want to postpone their retirement age？”

Compared with the honesty and straightforwardness of the experts and the public， the Chinese government seems more prudent. Yin Weimin from Ministry of Human Resource and Social Security said， delayed retirement is a relatively complicated social policy and relates to the population composition， the labor force supply and the healthy development of social security fund. “After this policy is released， there are various voices among different social groups. We will consider all opinions and conduct rounds of research in formulating this policy. This policy itself emphasizes ‘progressiveness’ and it should be carried out “by steps and phases progressively”.

對于社會上的不同意見，清華大學公共管理學院教授、就業與社會保障研究中心專家劉慶龍表示，在延遲退休的問題上，首先應該先搞清楚是什么人贊成延遲，哪些人反對，“在勞動一線的人沒有想延遲退休的，想延遲退休的都不在體力勞動一線上。”他認為，延遲退休政策更多地顧及了腦力勞動者的利益，一定程度上未考量體力勞動者的利益，“對于一線的體力勞動者，他們根本不是八個小時工作制，在勞動力最旺盛的時候，體力全都透支，他們希望在退休時能養養身體，怎么可能愿意延遲退休？”

相比于專家及民眾在延遲退休問題上的直言快語，中國政府部門則顯得相對謹慎。中國人社部尹蔚民表示，延遲退休是比較復雜的社會政策。因為它涉及到人口的結構，勞動力供給以及社會保障基金的健康發展。“這個決定公布以后，社會各界包括不同群體還有不同的看法和不同的認識，所以我們在制定這個政策當中，會認真聽取各個方面的意見，進行充分的論證。延遲退休政策本身就是強調‘漸進性’，核心是要‘小步、分階段、漸進式’推進。”

The approach for the implementation of delayed retirement in foreign countries is usually progressive， taking US as an example， the current retirement age in US is 66， and it will be postponed to 67 till 2017. The US takes 15 years to postpone retirement age from 65 to 67 with pubic announcement. It is a progressive process， each year postponing two or three months. Its upside is that it avoids the impact radical reform which will exert on different social groups， create room to hear and absorb public opinions and policies like a “buffer” and mitigate the resistance of the policy. This flexible method considers the interest of different groups， respects the rights of individual freedom to choose retirement age， and the opponents， thereby reducing the resistance in the way of reform.

Hu Xiaoyi， Deputy Minister of Ministry of Human Resource and Social Security of PRC said， to worry whether the delayed retirees would compete with the youth in job market was very reasonable. However， new jobs are the real solution. “Aging is at once a challenge and an opportunity. It can create huge job demand. The government should strictly curb early retirement， strengthen pension insurance insensitive mechanism， adjust industry structure， create more jobs suitable for seniors who therefore will not compete with youth in job market， enhance skills training for the seniors， and minimize the negative impact of delayed retirement”.

其實，國外延遲退休改革均采取了漸進式。以美國為例，美國現行退休年齡是66歲，并且到2017年要統一提高到67歲。從65歲提高到67歲，美國用了15年的時間把退休年齡提高了兩歲，并且有公布公告，逐步延長，每年延長一兩個月，兩三個月。正是考慮到激進地延遲退休政策會對社會不同階層群體利益帶來沖擊，而“漸進式”可以起到“緩沖劑”的效果，為傾聽和吸收民意以及政策的及時調整創造空間，從而減輕政策實施阻力。而“彈性”原則可以盡可能地照顧到不同群體的利益，尊重不同個體自由選擇退休年齡的權利，從而減少反對的聲音，因此能有效地減輕改革推進的阻力。

對于延遲退休是否會跟青年人爭奪就業崗位這個問題，人社部副部長胡曉義坦言，這樣的顧慮不無道理。但是，真正的出路在于創造新崗位，新就業機會。“社會老齡化是一種挑戰也是機遇，本身就將產生大量崗位需求。在延遲退休的同時，國家還將嚴格控制提前退休，強化養老保險激勵機制，調整產業結構，開發更多適合中老年人、又不與青年人爭奪工作機會的崗位，加強中老年人技能培訓等，最大限度降低延遲退休的不利影響。”

Besides， to support late retirement， many countries implement the economically simulative progressive pension system. For instance， the German government proposed a plan named “Move 50+” which aimed to promote the seniors 50 and over to continue to work. The main approaches are： for the labor party， the unemployed seniors are encouraged to take jobs which pay less than before， and the unemployment insurance company will make corresponding compensation； for the management party， government will give them certain subsidiary with the precondition that the company must provide jobs. German legislation already sanctifies this plan. In Japan， retirement age for the company is 60， while for professors the requirement age is 65. But since 2007， Japan has promoted the system of postponing the retirement age to 70. Japanese Ministry of Health and Welfare once set up an insensitive reward in which the government will grant a maximal 1.6 million yen allowance to the small and medium enterprises that are willing to postpone retirement age to 70.

此外，為了鼓勵勞動者延遲退休，不少國家實施在經濟上富有激勵效果的階梯式退休金領取制度。比如，德國政府提出了一個名為“動議50+”的計劃，就是針對50歲及50歲以上的群體，促進他們的就業。主要辦法是：就勞方來說，鼓勵失業的老年人從事工資待遇不及失業前的工作，由失業保險公司支付一定比例的補償；就資方來說，政府給予一定的補貼，條件是公司必須提供工作崗位。德國立法機構也已經批準了這一計劃。在日本，企業員工退休年齡為60歲左右， 大學教授為65歲。但從2007年開始，日本曾著手在企業中普及70歲退休制度。為此，厚生勞動省當年嘗試設立獎勵制度，如果中小企業將職員退休年齡提高至70歲以上，國家將給予最高160萬日元的補助金。

China's \"dual-trace pension system\" calls for urgent change

中國 “養老雙軌制”亟待改變

In China， many experts believe， to reverse the attitude of the public towards delayed retirement， more works should be done on combining China’s “dual-trace pension system”. Early in the beginning of 1990s， China has established the pension insurance social pooling system for the enterprise workers and employees， which stands against the pension system for the public service staffs， hence forming the “dual-track pension system” with unique Chinese transitional economy feature. Under this system， the public service staffs don't need pay their pension before retirement， which are all covered by the national budget； while the workers and employees in companies should pay their pension with their company before retirement. Moreover， the pension amount for the staff in public service can account for 80% to 90% of their salary when they are still in service； while the pension amount for the company only account for 40% to 60% of their salary when they are still in service. China’s “dual-trace pension system” hence divides the labor force into “inside the system” and “outside the system”.

就中國而言，不少專家認為，要想真正改變民眾對延遲退休改革的抵觸情緒，還要在“養老雙軌制”并軌上下功夫。早在上世紀90年代初，中國確立了針對企業職工的養老保險社會統籌制度。這與之前的機關事業單位退休人員退休金制度并立，從而，形成了極具中國社會轉型色彩的“養老雙軌制”。在“養老雙軌制”下，機關事業單位退休人員的退休金不需要本人在退休前繳納，全部由財政負責；而企業退休員工的養老金由用人單位和職工在其退休前共同繳納。而且，從現實來看，機關事業單位退休人員退休金可達到在職工資的八九成，而企業退休員工的養老金只能達到在職工資的四至六成。“養老雙軌制”就這樣人為地將勞動者劃分為體制內和體制外。

In 2014， Chinese government report has clearly pointed out that， efforts should be made to set up a unified basic pension insurance for rural and urban residents， to reform the pension insurance system for the public service institutions， to encourage the development of company annuity， professional annuity and business insurance. This means that， the controversial combination of “dual-track pension system” will achieve substantial progress by seizing the opportunity of pension insurance system reform for the public service. Hu Xiaoyi said， the public service institutions should implement a mode similar with the enterprises， i.e.， the basic insurance system which combines social pooling and personal account. This not only helps achieve social equity， but also helps facilitate the flow of human resource. He said， we should set up a payment system paid by the unit and individuals， a social pooling fund and personal account fund， which can help implement the coordinated arrangement and regulated use of capital. The pension burden of different enterprises should be balanced out using the law of majority.

2014年，中國政府工作報告中明確指出要建立統一的城鄉居民基本養老保險制度，改革機關事業單位養老保險制度，鼓勵發展企業年金、職業年金和商業保險。這意味著，以機關事業單位養老保險制度改革為契機，備受爭議的“養老雙軌制”并軌將有可能取得實質性進展。對此，胡曉義表示，機關事業單位應該實行與企業目前大體一致的模式，也就是社會統籌和個人賬戶相結合的基本養老保險制度模式。這樣有利于實現社會公平，也有利于實現人力資源的合理流動。他介紹說，要實行單位和個人雙方繳費制度，然后建立社會統籌基金和個人賬戶基金，這樣就可以實行資金的統籌安排和調劑使用，用大數法則來均衡企業之間的退休養老負擔。