实现跨国迁移人口社会保障全覆盖
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摘要
规模不断增长的跨国迁移人口面临社会保障不可及性的重大挑战。国际社会通过社会保障双边合作、多边合作和国际合作框架等路径为实现迁移人口社会保障全覆盖进行了逾百年的探索。由于迁移人口自身特点、工作特点和国际合作协议执行困难等因素所造成的现实障碍,迁移人口社会保障覆盖面仍然不高,并且在不同收入水平国家之间存在巨大差距。欧盟通过完善的法制、健全的制度和紧密的合作推动养老金便携性,实现区域内迁移人口享受全面和可转移的社会保障权益。深化我国社会保障国际合作可以采取三步走战略:第一步,拓展社会保障双边合作的内容和范围;第二步,将经济合作区域范围内的社会保障双边合作升级为多边合作;第三步,开展社会保障国际合作条约的制定和框架的构建。
The growing transnational migrants have been facing the huge challenge in having access to social security. Over the past more than 100 years, the international community has been exploring the practice by which the full coverage of social security for the migrants could be realized through implementing bilateral and multilateral agreements and international cooperation framework. Due to the existing obstacles resulting from the characteristics of the migrants themselves and their jobs as well as difficulties in implementing the agreements, the coverage for the migrants is still quite low and the gap between countries with different income levels being huge. The EU has been promoting the portability of pension benefits through sound legislation, improved systems and close cooperation to realize comprehensive and portable social security entitlements enjoyed by the migrants within the region. A three-step strategy could be carried out to strengthen our country's social security international cooperation: firstly, expand the content and scope of bilateral cooperation;secondly, upgrade bilateral cooperation to multilateral one in the economic cooperation zone;thirdly, enact international treaties and build a cooperative framework.
The growing transnational migrants have been facing the huge challenge in having access to social security. Over the past more than 100 years, the international community has been exploring the practice by which the full coverage of social security for the migrants could be realized through implementing bilateral and multilateral agreements and international cooperation framework. Due to the existing obstacles resulting from the characteristics of the migrants themselves and their jobs as well as difficulties in implementing the agreements, the coverage for the migrants is still quite low and the gap between countries with different income levels being huge. The EU has been promoting the portability of pension benefits through sound legislation, improved systems and close cooperation to realize comprehensive and portable social security entitlements enjoyed by the migrants within the region. A three-step strategy could be carried out to strengthen our country's social security international cooperation: firstly, expand the content and scope of bilateral cooperation;secondly, upgrade bilateral cooperation to multilateral one in the economic cooperation zone;thirdly, enact international treaties and build a cooperative framework.
引文
[1]ILO.World Social Protection Report 2017-19:Universal Social Protection to Achieve the Sustainable Development Goals[R].Geneva:International Labour Office,2017.
[2]ISSA.10 Global Challenges for Social Security[R].Geneva:International Social Security Association,2016.
[3]Pasadilla,G.and Abella,M.Social Protection for Migrant Workers in ASEAN[R].CESifo Working paper,No.3914,2012.
[4]ILO.Resolution Concerning Fairand Effective Labour Migration Governance[R].Geneva:International Labour Office,2017.
[5]叶璐.新外交视域下我国社会保险国际合作的发展路径[J].湖北经济学院学报,2015,4:64-69.
[6]Cruz,Armando T.Portability of Benefit Rights in Response to External and Internal Labor Mobility:The Philippine Experience[R].Paper presented at the International Social Security Association(ISSA),Thirteenth Regional Conference for Asia and the Pacific in Kuwait,March 8-10,2004,http://www.issa.int/pdf/kuwait04/2cruz.pdf.
[7]Holzmann R.and Johannes K..Portability of Pension,Health,and Other Social Benefits:Facts,Concepts,Issues[R].Discussion Paper No.5715,The Institute for the Study of Labor,2011.
[8]ISSA.Handbook on the Extension of Social Security Coverage to Migrant Workers[R].Geneva:International Social Security Association,2014.
[9]Holzmann Robert,Johannes Koettl,and Taras Chernetsky.Portability Regimes of Pension and Health Care Benefits for International Migrants:An Analysis of Issues and Good Practices[R].Social Protection Discussion Paper Series No.0519,The World Bank,2005.
[10]Avato Johanna,Johannes Koettl and Rachel Sabates-Wheeler.Social Security Regimes,Global Estimates,and Good Practices:The Status of Social Protection for International Migrants[J].World Development,2010,38(4):455-466.
[11][英]威廉·贝弗里奇.贝弗里奇报告:社会保险和相关服务[M].北京:中国劳动社会保障出版社,2004.
[12]郭士征.社会保障的国际合作与立法基准[J].国际经济合作,1994(1):58-59.
[13]种及灵.论社会保障的国际合作[J].法学,2000(9):5-8.
[14]王延中,魏岸岸.中国亟须重视并加强社会保障国际合作[J].中国党政干部论坛,2008(11):46-47.
[15]吴伟东.印度社会保障国际合作的实践及其启示[J].中国行政管理,2012(7):95-98.
[16]王延中,魏岸岸.国际双边合作与我国社会保障国际化[J].经济管理,2010(1):147-156.
[17]陈五洲,陈方.跨国劳动者与社会保障的国际合作[J].理论界,2006,6:210-211.
[18]李运华,殷玉如.中国社会保障国际协调与合作发展研究探讨[J].广西经济管理干部学院学报,2015,3:6-10.
[19]Roberts Simon.A short history of social security coordination[A].In Jorens Yves ed..50 Years of Social Security Coordination:Past-Present-Future,Report of the Conference Celebrating the 50th Anniversary of the European Coordination of Social Security[C].Luxembourg:Publications Office of the European Union,2010:8-28.
[20]Holloway,J..Social Policy Harmonization in the European Community[M].Farnborough:Gower,1981.
[21]ILO.Ensuring Social Security Benefits for Ukrainian Migrant Workers:Policy Development and Future Challenges[R].ILO Decent Work Technical Support Team and Country Office for Central and Eastern Europe,2012.
[22]王昭,吴陈.专访:国际劳工组织期望中国医保制度健康、稳定和可持续发展:访国际劳工组织官员胡爱娣[EB/OL],中国政府网(www.gov.cn),2012-09-04.
[23]Verschueren H.Regulation 883/2004 and Invalidity and Old-age Pensions[J].European Journal of Social Security,2009,11(1-2):143-162.
[24]European Commission.The Community Provisions on Social Security-Your Rights when Moving within the European Union[M].Luxembourg:Publications Office of the European Union,2011.
[25]EFRP.European Institutions for Occupational Retirement Provision:the EFRP Model for PanEuropean Pensions[R].European Federation for Retirement Provision,2003.
[26]Cornelissen Rob.Achievements of 50 Years of European Social Security Coordination[A].In Jorens Yves ed..50 Years of Social Security Coordination:Past-Present-Future,Report of the Conference Celebrating the 50th Anniversary of the European Coordination of Social Security[C].Luxembourg:Publications Office of the European Union,2010:55-71.
[27]Schmahl,W..Harmonization of Pension Schemes in Europe?A Controversial Issue in the Light of Economics.Age,Work and Social Security[M].A.B.Atkinson and M.Rein,St.Martin's Press,1993.
[28]Andrietti,Vincenzo.Portability of Supplementary Pension Rights in the European Union[J].International Social Security Review,2001,54(1):59-83.
[29]Alvaro Forteza.The Portability of Pension Rights:General Principals and the Caribbean Case[R].Special Protection Discussion paper NO.0825,The World Bank,2008.
[30]Kalogeropoulou,K..European Governance after Lisbon and Portability of Supplementary Pensions Rights[J].Journal of Contemporary European Research,2006,2(1):75-91.
[31]EU.Council Decision of 18 July 2006 on Guidelines for the Employment Policies of the Member States 2005/544/EC[J].Official Journal of the European Union,The Council of the European Union,2006.
[32]OECD.Pension at a Glance:Public Policies across OECD Countries[M].Paris:Organization for Economic Cooperation and Development,2005.
[33]Kawinski,M..Pension Reforms in the New EU Member States:Reasons and Possible,Results[R].The 39th Social Policy Association Conference,University of Birmingham,18th-20th July 2006.
[34]Marcin KAWI'SKI and Dariusz STA'KO.Labour Flexibility and Pension Schemes in the European Union[R].5th International Research Conference on Social Security,Warsaw,5th-7th March 2007.
[35]汪洋.推动形成全面开放新格局[N].人民日报,2017-11-10.
(1)数据来源于UN.International Migration Report 2015[R].New York:United Nations,2016.
(1)数据来源于ILO.ILO Global Estimates on Migrant Workers-Results and Methodology[R].Geneva:International Labour Office,2015.
(2)数据来源于商务部.2017年我国对外劳务合作业务简明统计[DB/OL].www.mofcom.gov.cn.
(3)数据来源于新华网.中国、加拿大签署社会保障协定[DB/OL].http://www.xinhuanet.com.
(4)新华网.中国成为国际移民组织成员国[DB/OL].http://www.xinhuanet.com.
(5)数据来源于UN.International Migration Report 2015[R].New York:United Nations,2016.
(1)数据来源于ISSA.Handbook on the Extension of Social Security Coverage to Migrant Workers[R].Geneva:International Social Security Association,2014.
(1)参见CARICOM Agreement on Social Security.加勒比共同体官方网站(http://www.caricom.org).
(2)2004年第92届国际劳工大会通过了关于公平对待全球经济中的移民工人的决议《劳动移民行动计划》(Plan of Action on Labour Migration),其中心内容是《劳动移民多边框架》(Multilateral Framework on Labour Migration),提出了通过双边、地区或多边社会保障协议保护移民工人的具体政策建议。2016年9月第71届联合国大会发起了普惠社会保护全球合作伙伴计划(Global Partnership of Universal Social Protection),致力于在全球范围内实现社会保障全覆盖,以作为实现可持续发展目标的重要措施,得到了包括世界银行(the World Bank)、ILO、非盟、国际粮农组织(FAO)、欧盟委员会(European Commission)、国际助老会(Helpage)、美洲开发银行(IADB)、OECD、救助儿童基金会(Save the Children)、联合国开发计划署(UNDP)、联合国儿童基金会(UNICEF)等国际组织的支持。
(3)ILO的公约(Convention)需要会员国批准后加入,而建议书(Recommendation)不需要。
(1)相比社会保障体系下的其他几个分支,养老保障相对而言属于一项长期的保障项目,在受益之前通常有长达几十年的等待期,这种特性决定了其受权益便携性的影响最大。事实上,无论是社会保障双边协议、多边协议,还是国际合作框架,重点也是实现对迁移人口养老金权益的保护。
(1)罗马条约中的3项关键条款包括:第39条赋予了欧盟成员国公民在其他成员国求职、就业、定居并获得同等对待的权利;第42条要求欧盟理事会在社会保障领域为欧盟成员国公民及其家属的自由流动提供应对措施;第56条对于资本自由流动进行了规定,赋予了劳动者在成员国内部流动时拥有异地获得养老金待遇的权力。
(1)欧盟各成员国本国公共养老金的改革对于其在欧盟内的便携性也发挥了重要的作用,特别是在养老金既得受益权(vesting)改革方面。以英国为例,1973年社会保障法(Social Security of 1973)赋予26岁以上的参保者在5年之后获得养老金既得受益权。1985年社会保障法允许离职者转移养老金权益到另外一个计划。1986年社会保障法将雇主缴费的既得受益权期限减少到2年。具体内容参见Blake David and J.Michael Orszag.Portability and Preservation of Pension Rights in the United Kingdom[R].http://www.pensions-institute.org/reports/oftport.pdf.
(2)补充养老金计划包括职业养老金计划、个人养老金计划、利益分享养老金计划等多种类型。
(3)一方面,补充养老金计划的类型较复杂,且欧盟各成员国补充养老金计划之间差异性很大;另一方面,欧盟规范补充养老金便携性的法律都是以指令的形式出现,允许各国在执行时根据自身情况选择合适的方式,因此差异性也很大。因此,这里只考虑公共养老金部分,但是其中的部分原则,例如广覆盖、平等对待和待遇异地可领取,也同样适用于补充养老金计划。
(1)参见EUROCADRES(Council of European Professional and Managerial Staff).Social Security[EB/OL].http://www.eurocadres.org.
(1)欧盟退休金联合会是欧盟补充养老金或职业养老金基金的管理机构,成员包括20个欧盟成员国和爱尔兰、挪威、瑞士、克罗地亚四个非欧盟成员国。
[2]ISSA.10 Global Challenges for Social Security[R].Geneva:International Social Security Association,2016.
[3]Pasadilla,G.and Abella,M.Social Protection for Migrant Workers in ASEAN[R].CESifo Working paper,No.3914,2012.
[4]ILO.Resolution Concerning Fairand Effective Labour Migration Governance[R].Geneva:International Labour Office,2017.
[5]叶璐.新外交视域下我国社会保险国际合作的发展路径[J].湖北经济学院学报,2015,4:64-69.
[6]Cruz,Armando T.Portability of Benefit Rights in Response to External and Internal Labor Mobility:The Philippine Experience[R].Paper presented at the International Social Security Association(ISSA),Thirteenth Regional Conference for Asia and the Pacific in Kuwait,March 8-10,2004,http://www.issa.int/pdf/kuwait04/2cruz.pdf.
[7]Holzmann R.and Johannes K..Portability of Pension,Health,and Other Social Benefits:Facts,Concepts,Issues[R].Discussion Paper No.5715,The Institute for the Study of Labor,2011.
[8]ISSA.Handbook on the Extension of Social Security Coverage to Migrant Workers[R].Geneva:International Social Security Association,2014.
[9]Holzmann Robert,Johannes Koettl,and Taras Chernetsky.Portability Regimes of Pension and Health Care Benefits for International Migrants:An Analysis of Issues and Good Practices[R].Social Protection Discussion Paper Series No.0519,The World Bank,2005.
[10]Avato Johanna,Johannes Koettl and Rachel Sabates-Wheeler.Social Security Regimes,Global Estimates,and Good Practices:The Status of Social Protection for International Migrants[J].World Development,2010,38(4):455-466.
[11][英]威廉·贝弗里奇.贝弗里奇报告:社会保险和相关服务[M].北京:中国劳动社会保障出版社,2004.
[12]郭士征.社会保障的国际合作与立法基准[J].国际经济合作,1994(1):58-59.
[13]种及灵.论社会保障的国际合作[J].法学,2000(9):5-8.
[14]王延中,魏岸岸.中国亟须重视并加强社会保障国际合作[J].中国党政干部论坛,2008(11):46-47.
[15]吴伟东.印度社会保障国际合作的实践及其启示[J].中国行政管理,2012(7):95-98.
[16]王延中,魏岸岸.国际双边合作与我国社会保障国际化[J].经济管理,2010(1):147-156.
[17]陈五洲,陈方.跨国劳动者与社会保障的国际合作[J].理论界,2006,6:210-211.
[18]李运华,殷玉如.中国社会保障国际协调与合作发展研究探讨[J].广西经济管理干部学院学报,2015,3:6-10.
[19]Roberts Simon.A short history of social security coordination[A].In Jorens Yves ed..50 Years of Social Security Coordination:Past-Present-Future,Report of the Conference Celebrating the 50th Anniversary of the European Coordination of Social Security[C].Luxembourg:Publications Office of the European Union,2010:8-28.
[20]Holloway,J..Social Policy Harmonization in the European Community[M].Farnborough:Gower,1981.
[21]ILO.Ensuring Social Security Benefits for Ukrainian Migrant Workers:Policy Development and Future Challenges[R].ILO Decent Work Technical Support Team and Country Office for Central and Eastern Europe,2012.
[22]王昭,吴陈.专访:国际劳工组织期望中国医保制度健康、稳定和可持续发展:访国际劳工组织官员胡爱娣[EB/OL],中国政府网(www.gov.cn),2012-09-04.
[23]Verschueren H.Regulation 883/2004 and Invalidity and Old-age Pensions[J].European Journal of Social Security,2009,11(1-2):143-162.
[24]European Commission.The Community Provisions on Social Security-Your Rights when Moving within the European Union[M].Luxembourg:Publications Office of the European Union,2011.
[25]EFRP.European Institutions for Occupational Retirement Provision:the EFRP Model for PanEuropean Pensions[R].European Federation for Retirement Provision,2003.
[26]Cornelissen Rob.Achievements of 50 Years of European Social Security Coordination[A].In Jorens Yves ed..50 Years of Social Security Coordination:Past-Present-Future,Report of the Conference Celebrating the 50th Anniversary of the European Coordination of Social Security[C].Luxembourg:Publications Office of the European Union,2010:55-71.
[27]Schmahl,W..Harmonization of Pension Schemes in Europe?A Controversial Issue in the Light of Economics.Age,Work and Social Security[M].A.B.Atkinson and M.Rein,St.Martin's Press,1993.
[28]Andrietti,Vincenzo.Portability of Supplementary Pension Rights in the European Union[J].International Social Security Review,2001,54(1):59-83.
[29]Alvaro Forteza.The Portability of Pension Rights:General Principals and the Caribbean Case[R].Special Protection Discussion paper NO.0825,The World Bank,2008.
[30]Kalogeropoulou,K..European Governance after Lisbon and Portability of Supplementary Pensions Rights[J].Journal of Contemporary European Research,2006,2(1):75-91.
[31]EU.Council Decision of 18 July 2006 on Guidelines for the Employment Policies of the Member States 2005/544/EC[J].Official Journal of the European Union,The Council of the European Union,2006.
[32]OECD.Pension at a Glance:Public Policies across OECD Countries[M].Paris:Organization for Economic Cooperation and Development,2005.
[33]Kawinski,M..Pension Reforms in the New EU Member States:Reasons and Possible,Results[R].The 39th Social Policy Association Conference,University of Birmingham,18th-20th July 2006.
[34]Marcin KAWI'SKI and Dariusz STA'KO.Labour Flexibility and Pension Schemes in the European Union[R].5th International Research Conference on Social Security,Warsaw,5th-7th March 2007.
[35]汪洋.推动形成全面开放新格局[N].人民日报,2017-11-10.
(1)数据来源于UN.International Migration Report 2015[R].New York:United Nations,2016.
(1)数据来源于ILO.ILO Global Estimates on Migrant Workers-Results and Methodology[R].Geneva:International Labour Office,2015.
(2)数据来源于商务部.2017年我国对外劳务合作业务简明统计[DB/OL].www.mofcom.gov.cn.
(3)数据来源于新华网.中国、加拿大签署社会保障协定[DB/OL].http://www.xinhuanet.com.
(4)新华网.中国成为国际移民组织成员国[DB/OL].http://www.xinhuanet.com.
(5)数据来源于UN.International Migration Report 2015[R].New York:United Nations,2016.
(1)数据来源于ISSA.Handbook on the Extension of Social Security Coverage to Migrant Workers[R].Geneva:International Social Security Association,2014.
(1)参见CARICOM Agreement on Social Security.加勒比共同体官方网站(http://www.caricom.org).
(2)2004年第92届国际劳工大会通过了关于公平对待全球经济中的移民工人的决议《劳动移民行动计划》(Plan of Action on Labour Migration),其中心内容是《劳动移民多边框架》(Multilateral Framework on Labour Migration),提出了通过双边、地区或多边社会保障协议保护移民工人的具体政策建议。2016年9月第71届联合国大会发起了普惠社会保护全球合作伙伴计划(Global Partnership of Universal Social Protection),致力于在全球范围内实现社会保障全覆盖,以作为实现可持续发展目标的重要措施,得到了包括世界银行(the World Bank)、ILO、非盟、国际粮农组织(FAO)、欧盟委员会(European Commission)、国际助老会(Helpage)、美洲开发银行(IADB)、OECD、救助儿童基金会(Save the Children)、联合国开发计划署(UNDP)、联合国儿童基金会(UNICEF)等国际组织的支持。
(3)ILO的公约(Convention)需要会员国批准后加入,而建议书(Recommendation)不需要。
(1)相比社会保障体系下的其他几个分支,养老保障相对而言属于一项长期的保障项目,在受益之前通常有长达几十年的等待期,这种特性决定了其受权益便携性的影响最大。事实上,无论是社会保障双边协议、多边协议,还是国际合作框架,重点也是实现对迁移人口养老金权益的保护。
(1)罗马条约中的3项关键条款包括:第39条赋予了欧盟成员国公民在其他成员国求职、就业、定居并获得同等对待的权利;第42条要求欧盟理事会在社会保障领域为欧盟成员国公民及其家属的自由流动提供应对措施;第56条对于资本自由流动进行了规定,赋予了劳动者在成员国内部流动时拥有异地获得养老金待遇的权力。
(1)欧盟各成员国本国公共养老金的改革对于其在欧盟内的便携性也发挥了重要的作用,特别是在养老金既得受益权(vesting)改革方面。以英国为例,1973年社会保障法(Social Security of 1973)赋予26岁以上的参保者在5年之后获得养老金既得受益权。1985年社会保障法允许离职者转移养老金权益到另外一个计划。1986年社会保障法将雇主缴费的既得受益权期限减少到2年。具体内容参见Blake David and J.Michael Orszag.Portability and Preservation of Pension Rights in the United Kingdom[R].http://www.pensions-institute.org/reports/oftport.pdf.
(2)补充养老金计划包括职业养老金计划、个人养老金计划、利益分享养老金计划等多种类型。
(3)一方面,补充养老金计划的类型较复杂,且欧盟各成员国补充养老金计划之间差异性很大;另一方面,欧盟规范补充养老金便携性的法律都是以指令的形式出现,允许各国在执行时根据自身情况选择合适的方式,因此差异性也很大。因此,这里只考虑公共养老金部分,但是其中的部分原则,例如广覆盖、平等对待和待遇异地可领取,也同样适用于补充养老金计划。
(1)参见EUROCADRES(Council of European Professional and Managerial Staff).Social Security[EB/OL].http://www.eurocadres.org.
(1)欧盟退休金联合会是欧盟补充养老金或职业养老金基金的管理机构,成员包括20个欧盟成员国和爱尔兰、挪威、瑞士、克罗地亚四个非欧盟成员国。
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