我国农村社会保障法律制度研究
摘要
改革开放30年来,按照社会主义市场经济体制的发展要求,我国的社会保障制度已经经过改革,逐步建立起了具有中国特色的城镇企业职工基本养老保险、基本医疗保险、失业保险和城市居民最低生活保障等制度,城镇社会保障体系的基本框架也已初步形成。但不得不承认,我国社会保障制度的改革主要是围绕城镇展开的,而作为中国整个社会保障体系重要组成部分的农村社会保障体系的建设却是大大滞后。作为是中国社会保障制度的重要环节,加强农村社会保障制度建设既是中国农村市场经济和社会发展的客观需要,又是广大农村居民的迫切需求,也是我国政府所确立的全面建设小康社会的重大目标实现的需要。它对维护社会稳定,推动农村经济发展与社会全面进步,构建和谐的农村社会都具有十分重要的意义。我国经济发展的现实表明,目前我国农村社会保障制度建设严重滞后,已成为我国社会保障制度建设的薄弱环节,严重阻碍了农业经济的发展和农村社会的进步,影响到农村和整个中国的经济安全与社会稳定,成为推动我国现代化建设和农村市场化改革的瓶颈性障碍。深化当代中国农民的社会保障问题研究,对于解决“三农”问题,建设社会主义新农村与构建和谐社会都具有很强的现实意义。
农村社会保障法律制度的建立必须立足于满足农民基本生活需求的现实基础上,在现阶段要让农民“生有所靠、老有所养、病有所医”,所以应该先以农村社会养老保险法律制度、农村社会医疗保险法律制度、农村社会最低生活保障法律制度为基本框架,来构建我国农村的社会保障法律制度。在这种背景下,本文在研究农村社会保障法基本理论问题的基础上,提出加强我国农村社会保障法制建设的建议,设计农村社会保障法律制度的基本原则与基本理念,构建农村社会保障法律制度的主要内容,对于指导农村社会保障立法、司法和执法都具有十分重要的理论意义和实践价值。
运用理论分析方法,对“法”与“制度”进行了概念上的区分,并进一步对“社会保障法”与“社会保障制度”两个相关概念进行了辨析,对农村社会保障制度的内涵、农村社会保障法律制度的内涵、调整对象进行了研究和阐述,本文指出,农村社会保障法是调整以国家为主导,对遭受社会风险的农村社会成员,为维持其基本生活水平并保证其生活质量,而给予一定利益过程中所发生的社会关系的法律规范的总称。它的具体内容包括农村社会保险法律制度、农村社会救助(济)法律制度、农村社会福利法律制度、农村社会优抚法律制度等。
运用比较分析的方法,对以美国、德国、瑞典等为代表的发达国家和以新加坡、智利为代表的发展中国家的农村社会保障法律制度进行总结的基础上,对各种模式的农村社会保障法律制度的相同之处和不同之处进行了比较,分析了国外农村社会保障法律制度对我国的有益启示和可借鉴之处。
运用定性分析的方法,回顾我国农村社会保障法律制度的发展历史,客观考察我国农村社会保障法律制度的现状,剖析我国现行农村社会保障法律制度存在的问题与制约因素。研究表明,我国农村社会保障立法工作严重滞后、农村社会保障立法层次不高、农村社会保障立法体系不健全、农村社会保障法的实施机制和监督机制薄弱、农村社会保障法律制度与其它各部门法缺乏相互配套和衔接。针对我国农村社会保障法律制度中存在的问题,反思建立中国农村社会保障法律制度可能面临的制约因素,包括现行二元制经济结构与相关不完善制度的影响、农村经济发展落后的影响、认识上的误区与保障意识的欠缺等。运用AHP分析法,对影响我国农村社会保障法律制度构建的制约因素进行定量研究,基于所建立的评价指标体系计算得出不同层次因素和指标的相对权重,并据此进行影响因素的单排序和总排序分析,提出了农村社会保障法律的建立与完善、农村社会保障法律制度的司法保障、政府政策与补贴等因素是影响我国农村社会保障法律制度建设的关键因素。
确立完善我国农村社会保障法律制度的基本理念与基本原则。完善我国农村社会保障法律制度应当确立生存权理念、社会公平理念、社会连带理念,同时遵循权利保障原则、公平与效率优化结合原则、保障水平与经济发展相协调原则、普遍性原则、自愿与强制相结合原则、强调政府职能原则等。树立我国农村社会保障法律制度的远期立法目标和现阶段立法目标,在无法迅速建立完善的农村社会保障法律制度时,我们应考虑针对现阶段的需要进行农村社会保障的专门立法,等工业化推进到一定程度之后,社会保障法律制度建设的重点再相应地转移到对全体国民实行统一的社会福利法律制度建设。
农村社会保障法律制度的机制构建对保障农民享受社会保障的基本权利具有重要的现实意义。首先要建立资金保障机制,包括增加政府财政资金支持,各地从实际出发,采取分级负担的办法筹集保障资金;其次,要完善管理机制和监督机制;最后要完善争议处理机制。有了充足的资金保证、管理机构、监督机制和相应的争议处理机制,才能使农村社会保障法律制度的执行相对规范,不因操作者有异而轨迹杂陈。
从模式选择上,我国农村社会保障法律制度的模式以采用多法并行模式更为适宜一些。在目前我国尚不具备制定《社会保障法》的条件下,应分别制定若干具体的农村社会保障法律法规,包括农村养老保险法、农村医疗保险法、农村最低生活保障法等多部并行的社会保障法律,以各自规范相应的社会保障领域。分别对保障对象和内容、保障基金的筹集、管理监督、争议的处理及法律责任等方面的具体法律制度内容进行了设计。
构建完善的农村社会保障法律制度,不仅需要制定专门法,还需要其他法律部门及相关配套措施的协调。要完善刑法、农地法、侵权行为法等相关法律的配套规定。要增强农民的社会保障法律意识,通过加强农村的法制建设与法制宣传教育,强化农民的自我保障意识。要以科学的立法观为指导,积极探讨能够指导立法与司法实践的社会保障法律制度理论,充分吸收国外农村社会保障立法的先进研究成果,结合我国的实际情况,不断完善我国农村社会保障法律制度的发展。
Since the implement of the reform and open policy, the social security systems with Chinese characteristics, have been established step by step according to the request of socialist market economy, which including basic endowment security system, basic medical security system, undemployment security system and mimimum living security system for urban working people,. The fundamental framework of the new urban social security system has been formed intitially. But it should be kept clearly that the reform of social security system has been carried out mainly in urban areas, and the construction of rural social security system, which is an important component of the whole social security system of China, has been limited developed. The rural social security system is greatly relevant to China social security system. To strengthen rural social security system construction is not only an objective need of China rural market economy and the society development, but also the urgent need of inhabitants in the countryside. At present, the Chinese government has realized the significant goal of establishing well-off society by building up the social security system. It all has an extremely vital significance to maintain social stability, impel development of rural economy and progress of the whole social. The reality suggests that Chinese rural social security system has become a weak link of the construction of social security system, which not only seriously constrains the development of the agricultural economy and the progress of the rural community, but also affected economic security and social stability of the countryside and even the whole county. It has become the bottleneck barricade of promoting Chinese modernization and rural market-oriented reform. Research on the rural security system has great practical significance on solving "San Nong" (agriculture, rural areas and farmers) problem, on building harmonius society and on constructing new socialist countryside.
The establishment of rural social security legal system must meet the basiec needs of farmers. So we should establish the social security system on the rural social endowment security legal system, rural medical security legal system and rural social minimum living security legal system. On the basis of research on rural social security theory problems, the author put forward the proposes of improving rural social security legal construction. Design the basic principles and ideas of rural social security legal systems. Construct the main contents of rural social security legal system. It has important theory and practice significance to the legislation, judicature and enforcement of rural social serurity system.
Used theoretical analysis to law and system, distinguish the concept of social security law and social security system, and research on the concept of rural social security system, rural social security legal system and adjustment object. Rural social security law adjusts such social relation that a member of rural society should be given certain benefits to maintain their basic standard of living and to ensure their quality of life, when there were risks occurring. It includes rural social insurance legal system, rural social aid the legal system, rural social welfare legal system and rural society special care legal systems.
Comparative analysis was employed to study the rural society security legal systems of developed countries such as the USA, Germany and Sweden and developing countries such as Singapore and Chile. On the basis of this, the author summarized the different and common characteristics of rural social security legal system of different countries mentioned above and put forward some use for reference to China.
The author recalled the development history of rural social security of legal system, objectively reviewed the situation of rural social security legal system, analysized the problems and causes of rural social legal system. The research shows that current problems in rural social security legal system includes: lack of rural social security legislation, Low level of rural social security and Weak of enforcement of rural social security rules. The primary factors that affected development of China's rural social security legal system includes System causes and Non-system causes. Apply analytic hierarchy process(AHP) to research on the causes influencing the establishment of rural social security system in China. Calculate relative havyweights of different level elements and indicators, then point out that the key elements influencing development of rural social security system are: establishment of rural social security legal system, judicatory of rural social security legal system, policy and funds arrangement of government.
Establish basic ideas and basic principles of improving rural social security legal system. The basic ideas are: idea of right to subsistence, idea of social justice and idea of social joint. The basic principles are: principle of right assure, Principle of combination of justice and efficiency, principle of harmony of security level and economy development, principle of generally applied, principle of combination of unconstraint and compulsion, Principle of emphasizing government' s function. Establish long-term purpose and current-stage purpose of legislation. At present, perfect rural social security legal system can't be established rapidly, so we should establish series special rules according to requirements, and establish uniform social security law in the future.
Mechanism construction of rural social security legal system has an important reality significance to ensure the basic social security right of farmers. We should ensure funds by increasing government investment, promoting enterprises fees, encouraging farmers fees, increasing new kind of tax, issuing social security lottery, developing charity, and so on. We should also improve relevant management system , supervision system and dispute disposal system.
The model selection of rural social security legal system is more rules exist at the same time. Without condition to establish uniform social security law, we should estalblish serious specific rural social security rules includes rural social endowment insurance rule, rural social medical insurance rule and rural social minimum insurance rule. Design the contents of security objects, funds arrangement and payment, supervision and management, disputes disposal, liabilities, and so on.
A perfect rural social security legal system needs not only special rules, but also other relevant rules and methods. We should improve criminal law, country land law, tort law and other relevant laws. We should strenghthen farmers' social security legal consciousness by rural legal system construction and law education. We should strenthen theory research on rural social security legal system. We should use scientific legislation idea to discuss on social security legal system theory which can instruct legislation and judicary. We should absorb advanced research ahievements of foreign rural social security legislation and combine with actual situation of China, to improve development of rural social security legal system in China.
农村社会保障法律制度的建立必须立足于满足农民基本生活需求的现实基础上,在现阶段要让农民“生有所靠、老有所养、病有所医”,所以应该先以农村社会养老保险法律制度、农村社会医疗保险法律制度、农村社会最低生活保障法律制度为基本框架,来构建我国农村的社会保障法律制度。在这种背景下,本文在研究农村社会保障法基本理论问题的基础上,提出加强我国农村社会保障法制建设的建议,设计农村社会保障法律制度的基本原则与基本理念,构建农村社会保障法律制度的主要内容,对于指导农村社会保障立法、司法和执法都具有十分重要的理论意义和实践价值。
运用理论分析方法,对“法”与“制度”进行了概念上的区分,并进一步对“社会保障法”与“社会保障制度”两个相关概念进行了辨析,对农村社会保障制度的内涵、农村社会保障法律制度的内涵、调整对象进行了研究和阐述,本文指出,农村社会保障法是调整以国家为主导,对遭受社会风险的农村社会成员,为维持其基本生活水平并保证其生活质量,而给予一定利益过程中所发生的社会关系的法律规范的总称。它的具体内容包括农村社会保险法律制度、农村社会救助(济)法律制度、农村社会福利法律制度、农村社会优抚法律制度等。
运用比较分析的方法,对以美国、德国、瑞典等为代表的发达国家和以新加坡、智利为代表的发展中国家的农村社会保障法律制度进行总结的基础上,对各种模式的农村社会保障法律制度的相同之处和不同之处进行了比较,分析了国外农村社会保障法律制度对我国的有益启示和可借鉴之处。
运用定性分析的方法,回顾我国农村社会保障法律制度的发展历史,客观考察我国农村社会保障法律制度的现状,剖析我国现行农村社会保障法律制度存在的问题与制约因素。研究表明,我国农村社会保障立法工作严重滞后、农村社会保障立法层次不高、农村社会保障立法体系不健全、农村社会保障法的实施机制和监督机制薄弱、农村社会保障法律制度与其它各部门法缺乏相互配套和衔接。针对我国农村社会保障法律制度中存在的问题,反思建立中国农村社会保障法律制度可能面临的制约因素,包括现行二元制经济结构与相关不完善制度的影响、农村经济发展落后的影响、认识上的误区与保障意识的欠缺等。运用AHP分析法,对影响我国农村社会保障法律制度构建的制约因素进行定量研究,基于所建立的评价指标体系计算得出不同层次因素和指标的相对权重,并据此进行影响因素的单排序和总排序分析,提出了农村社会保障法律的建立与完善、农村社会保障法律制度的司法保障、政府政策与补贴等因素是影响我国农村社会保障法律制度建设的关键因素。
确立完善我国农村社会保障法律制度的基本理念与基本原则。完善我国农村社会保障法律制度应当确立生存权理念、社会公平理念、社会连带理念,同时遵循权利保障原则、公平与效率优化结合原则、保障水平与经济发展相协调原则、普遍性原则、自愿与强制相结合原则、强调政府职能原则等。树立我国农村社会保障法律制度的远期立法目标和现阶段立法目标,在无法迅速建立完善的农村社会保障法律制度时,我们应考虑针对现阶段的需要进行农村社会保障的专门立法,等工业化推进到一定程度之后,社会保障法律制度建设的重点再相应地转移到对全体国民实行统一的社会福利法律制度建设。
农村社会保障法律制度的机制构建对保障农民享受社会保障的基本权利具有重要的现实意义。首先要建立资金保障机制,包括增加政府财政资金支持,各地从实际出发,采取分级负担的办法筹集保障资金;其次,要完善管理机制和监督机制;最后要完善争议处理机制。有了充足的资金保证、管理机构、监督机制和相应的争议处理机制,才能使农村社会保障法律制度的执行相对规范,不因操作者有异而轨迹杂陈。
从模式选择上,我国农村社会保障法律制度的模式以采用多法并行模式更为适宜一些。在目前我国尚不具备制定《社会保障法》的条件下,应分别制定若干具体的农村社会保障法律法规,包括农村养老保险法、农村医疗保险法、农村最低生活保障法等多部并行的社会保障法律,以各自规范相应的社会保障领域。分别对保障对象和内容、保障基金的筹集、管理监督、争议的处理及法律责任等方面的具体法律制度内容进行了设计。
构建完善的农村社会保障法律制度,不仅需要制定专门法,还需要其他法律部门及相关配套措施的协调。要完善刑法、农地法、侵权行为法等相关法律的配套规定。要增强农民的社会保障法律意识,通过加强农村的法制建设与法制宣传教育,强化农民的自我保障意识。要以科学的立法观为指导,积极探讨能够指导立法与司法实践的社会保障法律制度理论,充分吸收国外农村社会保障立法的先进研究成果,结合我国的实际情况,不断完善我国农村社会保障法律制度的发展。
Since the implement of the reform and open policy, the social security systems with Chinese characteristics, have been established step by step according to the request of socialist market economy, which including basic endowment security system, basic medical security system, undemployment security system and mimimum living security system for urban working people,. The fundamental framework of the new urban social security system has been formed intitially. But it should be kept clearly that the reform of social security system has been carried out mainly in urban areas, and the construction of rural social security system, which is an important component of the whole social security system of China, has been limited developed. The rural social security system is greatly relevant to China social security system. To strengthen rural social security system construction is not only an objective need of China rural market economy and the society development, but also the urgent need of inhabitants in the countryside. At present, the Chinese government has realized the significant goal of establishing well-off society by building up the social security system. It all has an extremely vital significance to maintain social stability, impel development of rural economy and progress of the whole social. The reality suggests that Chinese rural social security system has become a weak link of the construction of social security system, which not only seriously constrains the development of the agricultural economy and the progress of the rural community, but also affected economic security and social stability of the countryside and even the whole county. It has become the bottleneck barricade of promoting Chinese modernization and rural market-oriented reform. Research on the rural security system has great practical significance on solving "San Nong" (agriculture, rural areas and farmers) problem, on building harmonius society and on constructing new socialist countryside.
The establishment of rural social security legal system must meet the basiec needs of farmers. So we should establish the social security system on the rural social endowment security legal system, rural medical security legal system and rural social minimum living security legal system. On the basis of research on rural social security theory problems, the author put forward the proposes of improving rural social security legal construction. Design the basic principles and ideas of rural social security legal systems. Construct the main contents of rural social security legal system. It has important theory and practice significance to the legislation, judicature and enforcement of rural social serurity system.
Used theoretical analysis to law and system, distinguish the concept of social security law and social security system, and research on the concept of rural social security system, rural social security legal system and adjustment object. Rural social security law adjusts such social relation that a member of rural society should be given certain benefits to maintain their basic standard of living and to ensure their quality of life, when there were risks occurring. It includes rural social insurance legal system, rural social aid the legal system, rural social welfare legal system and rural society special care legal systems.
Comparative analysis was employed to study the rural society security legal systems of developed countries such as the USA, Germany and Sweden and developing countries such as Singapore and Chile. On the basis of this, the author summarized the different and common characteristics of rural social security legal system of different countries mentioned above and put forward some use for reference to China.
The author recalled the development history of rural social security of legal system, objectively reviewed the situation of rural social security legal system, analysized the problems and causes of rural social legal system. The research shows that current problems in rural social security legal system includes: lack of rural social security legislation, Low level of rural social security and Weak of enforcement of rural social security rules. The primary factors that affected development of China's rural social security legal system includes System causes and Non-system causes. Apply analytic hierarchy process(AHP) to research on the causes influencing the establishment of rural social security system in China. Calculate relative havyweights of different level elements and indicators, then point out that the key elements influencing development of rural social security system are: establishment of rural social security legal system, judicatory of rural social security legal system, policy and funds arrangement of government.
Establish basic ideas and basic principles of improving rural social security legal system. The basic ideas are: idea of right to subsistence, idea of social justice and idea of social joint. The basic principles are: principle of right assure, Principle of combination of justice and efficiency, principle of harmony of security level and economy development, principle of generally applied, principle of combination of unconstraint and compulsion, Principle of emphasizing government' s function. Establish long-term purpose and current-stage purpose of legislation. At present, perfect rural social security legal system can't be established rapidly, so we should establish series special rules according to requirements, and establish uniform social security law in the future.
Mechanism construction of rural social security legal system has an important reality significance to ensure the basic social security right of farmers. We should ensure funds by increasing government investment, promoting enterprises fees, encouraging farmers fees, increasing new kind of tax, issuing social security lottery, developing charity, and so on. We should also improve relevant management system , supervision system and dispute disposal system.
The model selection of rural social security legal system is more rules exist at the same time. Without condition to establish uniform social security law, we should estalblish serious specific rural social security rules includes rural social endowment insurance rule, rural social medical insurance rule and rural social minimum insurance rule. Design the contents of security objects, funds arrangement and payment, supervision and management, disputes disposal, liabilities, and so on.
A perfect rural social security legal system needs not only special rules, but also other relevant rules and methods. We should improve criminal law, country land law, tort law and other relevant laws. We should strenghthen farmers' social security legal consciousness by rural legal system construction and law education. We should strenthen theory research on rural social security legal system. We should use scientific legislation idea to discuss on social security legal system theory which can instruct legislation and judicary. We should absorb advanced research ahievements of foreign rural social security legislation and combine with actual situation of China, to improve development of rural social security legal system in China.
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