退休法律制度研究
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摘要
退休法律制度研究
从19世纪末德国建立世界上最早的退休法律制度至今，退休法律制度仅仅走过了百余年的历程。退休法律制度是保障退休者依法退出劳动岗位以后、受领退休金，以维持基本生活并确保退休权得以实现的法律制度。在社会法领域，退休法律制度与劳动法律制度、社会保障法律制度具有紧密的关系。一般而言，退休法律制度应当以追求实质正义与公平为最终目标，并在实践上呈现出倾斜性保护的特点。我国现行退休法律制度经过多年来的发展，已取得较大成就，但仍显不足，尤其其系统性、实效性相当阙如，需要大力完善，以切实改善和保障民生。基于此，本文以退休立法为研究题域，就退休法律制度的系列问题进行了比较深入的研究。全文共分六章，基本内容如下：
第一章为导论。本章首先确定本文的研究对象是退休法律制度的三个基本构造即退休年龄、退休金给付与退休权，并且明确本文的研究目的是在保障和改善民生的基本理念下，研究退休法律制度的基本构造，以期对我国退休法律制度的学理建构与制度实践有所贡献，并凸显本文的问题意识。其次，根据研究的需要，交代了本文拟采用的“总-分”式研究思路和语义分析、价值评判与比较研究等研究方法。最后，指明本文的理论意义与实践价值，即以退休法律制度的研究为核心，关注、推进中国社会法学的发展和相关社会管理制度的创新。
第二章是关于退休及退休法律制度的一般理论。首先，厘清退休与退休法律制度的基本内涵，阐明退休法律制度与劳动法律制度、社会保障法律制度之间的关系，为全文研究的展开奠定坚实的基础。然后，从两个方面对于退休法律制度的基本构成进行论述：退休法律制度的内容即退休年龄、退休金给付与退休权及其三者之间的重要关系；退休法律关系的构成即退休法律关系之主体、内容与客体三要素。其中，重点分析了退休法律关系的构成：退休法律关系的主体是指依照退休法律规范享有权利和承担义务的主体，主要涉及劳动行政部门与退休费用缴纳者、退休金受领者三方主体。退休法律关系的客体是指退休法律关系双方当事人的权利和义务所指向的对象，即退休金的给付。退休法律关系的内容的讨论主要探讨了退休是权利抑或义务、退休法律关系中权利与义务具有不对等性以及退休权所蕴含的丰富内涵：退休权是社会权，其最基本的权利诉求是退休金给付请求权，退休权也具有平等权的属性，以实现平等价值为目标追寻，并与生存权、工作权关系紧密。以上问题的阐释为退休法律制度的构造奠定了一定的理论基础。
第三章论述了退休法律制度及其理论基础的变迁。本章将退休法律制度分为萌芽、确立与发展三个重要阶段，集中论述了退休法律制度的变迁过程中，相应的理论基础的变迁历程：从自由主义的衰退与古典自然法地位的式微到国家干预理论的诞生与社会学法学的盛行再到自由放任与国家干预的有机结合与新自然法学的倡行。对于退休法律制度及其理论基础变迁的研究，将有助于我们准确把握退休法律制度的未来发展趋势及构架，以更好地回应社会经济发展变化的需要。
第四章论述了制度构造之一的法定退休年龄的确立问题。本章首先考察了世界各国退休年龄法律调整的变化及其一般规律：大体体现为延迟适格受领退休金的年龄；减少性别歧视，使女性与男性的退休年龄趋于一致；努力在立法上消除年龄歧视；严格限制甚至禁止提前退休；但是在强制退休年龄的废除与否方面，各国尚存差异。其次，从公务员、事业单位工作人员与企业职工的法定退休年龄的不同规定及其由来方面着手，回顾了我国法定退休年龄的制度演进的基本历程，指出了我国目前存在着男女退休年龄不一致、提前退休操作不规范等现实问题及其成因。最后，在此基础上，有针对性地提出了完善我国法定退休年龄的若干对策性建议，即男女退休年龄应当统一，必须制度化规制提前退休的乱象，同时法定退休年龄应当适度推延，而弹性退休制度则必须缓行。
第五章论述了制度构造之二的退休金给付的法律保障问题。本章首先从域外视角详细考察了退休金给付法律保障的域外相关制度实践，包括退休金给付从恩惠到契约的机理转换、退休金给付的若干典型模式以及退休金给付的方式差异等。然后，结合本文主题，系统考察了我国现实状况，并指出了我国退休金给付法律保障目前存在的现实问题，主要表现为退休金给付制度供给不足、退休金给付新旧制度更替不畅与退休金给付“双轨制”易导致分配不公平等，进而有针对性地论述了退休金给付法律保障的强化途径，即应探索制定专门性的相关法律；确保新旧退休金制度的有效衔接及融贯；在分配公平的视野下，应当考量退休金给付新“双轨制”的命运。
第六章论述了制度构造之三的退休权的法律救济问题。本章首先分析了现行世界各国退休权法律救济的立法模式，包括退休权的宪政救济模式与退休金给付请求权的法律救济模式。然后指出了我国目前存在着退休权法律救济有待立法肯认，退休金给付请求权存有司法救济障碍等现实问题及成因。最后有针对性地提出应当确立新的退休权法律救济的制度设计：肯认退休权的可诉性；充实退休金给付请求权的实体内容，确立退休金给付请求权的要件；在行政保障上充分重视调解员的作用，在司法救济上强调法官行使自由裁量权，以此来完善退休权的保障与救济机制。
经过上面的系统分析，我们得出结论认为，退休法律制度必须大力完善，这既是社会法研究发展的需要，也是当前我国改善和保障民生、促进新时期社会管理创新的必然选择。
A Study on Legal System of Retirement
Legal system of retirement has witnessed merely around hundred year’sdevelopment since the first establishment of its kind in Germany late 19th century. Itensures that retirees would acquire their pensions for basic living and realizes theirretirement rights after quitting their jobs, and it is closely connected with legal systemof labor and social security in the field of social laws. Generally speaking, legal systemof retirement is in pursuit of the ultimate goal of actual fairness and justice withtendentious protection. After years of development, the current legal system ofretirement in China has had great achievements, although there are still deficiencies,especially in its systematicness and effectiveness, which require melioration in order tofeasibly protect people and improve people’s living condition. Based on theseconditions, this thesis studies the retirement legislation, making profound analysis onmany aspects of legal system of retirement. It is composed of six parts, as follows:
The first chapter is introduction. It firstly points out the subjects of this thesis areconstituents of legal system of retirement, which are retirement age, pensions, andretirement right and remedies, and makes clear the purpose of this thesis based on thebasic concept of protecting people and improving people’s living, by analyzing theconstituents of legal system of retirement, to contribute to the theory construction andpractice, and to arouse the awareness of problems. In addition, to meet the need of theresearch, this chapter explains the research method that is from general to specific andother techniques such as semantic analysis, evaluation, and comparative study. Finally,this chapter put forwards the theoretical significance and practical value of this thesisthat are focused on the study of legal system of retirement, to impel the developmentof china’s social law and innovation of relative social managing systems.
Chapter two shows some general theories concerning retirement and legal systemof retirement. On one hand, it differentiates the basic connotation between retirementand legal system of retirement, and illuminates the relationship of legal system ofretirement, labor law system and social security law system, thus lays the foundationof the whole thesis. On the other hand, it argues the basic construction of legal system of retirement. The content of this part includes retirement age, pensions, retirementright and remedies together with legal relation of retirement made up of subject,content and object,focusing on the constitution of legal relation of retirement. Thesubject of legal relation of retirement is the subject that has rights and obligations bythe retirement laws, mainly concerning labor management section, retirement fee payerand pension receiver. The object refers to the target of such rights and obligations,namely the payment of pensions. Legal relation of retirement mainly discusses thatretirement is right or obligation which is not identical, and the connotations ofretirement rights. Retirement rights belong to social rights whose core is claim topensions. It aims at realization of equality, and is closely related to rights to live andwork. The former arguments lay certain theoretical foundation for the constitution oflegal system of retirement.
Chapter three keeps scores of the institutional change of retirement system and thetheoretical foundation. It divides the system change into three stages--- emergence,establishment and development, together with the changes in theoretical field ---goingthrough recession of liberalism and fluctuation of classical nature law, whoseestablishment is on the basis of the emergence of state intervention and prevalence onsociological law, which has great development with combination laissez-faire withstate intervention in economic and development of new nature law in legal theory.These studies would benefit in acquisition of the system’s future developing trend andframe, in correspondence with social and economical development.
Chapter four dissertates upon the first constituent of the system, legalestablishment of retirement age. Firstly, it starts from the research of the retirement ageadjustment and general rules around the world, embodied by rising pension receivers’age and prolonging the period of time, reducing sexual discrimination and narrowingthe gap between male and female, legally eliminating age discrimination, restricting oreven banning early retirement. However, as for the abolishment of obliged retirementage, there are still disparities among nations. Secondly, comparing with differentlegislations regarding retirement age of civil servants, public sector workers andenterprise workers and their origin, this chapter reviews the evolution of statutoryretirement age system in China, and proposes the status quo and reasons forirregularities in early retirement and inequality in male and female retirement age. Atlast, on this basis, it puts forward to several suggestions for the improvement of legal retirement age system, which includes uniformity of male and female retirement age,regulations supervising early retirement, as well as extension of legal retirement age.Meanwhile, the establishment of flexible retirement system should be suspended.
The fifth chapter studies the second constituent of the system, legal protection ofpensions. It makes detailed analysis of the related system about legal protection ofpensions abroad, including the transition from welfare to contract, some typicalpayment mode of pensions and the differences in payment manners. Moreover, thischapter studies the status quo in China, and discusses realistic problems on legalprotection of pension in China, consisting on lacking of special pension act, beingblocked in the transition from old to new pensions system and inequity in“dualpension schemes”and proposes strengthening ways of legal protection of pension,meaning enacting pension act, protecting the bridge and coherence between new andold pension system, applying to the principle of distributive justice and think about thefate of new“dual pension schemes”.
The last chapter discusses the third constituent of legal system of retirement,remedies for retirement right. It first analyzes the current legislative mode in the world,including constitutional mode of retirement right and remedies mode of pension claimright. It then sets forth such problems as the legislative recognition of remedies forretirement right, and legal remedies barrier in claiming pensions together with thereasons. In the end, it puts forward designs of a new system of remedies for retirementright, which means recognizing the justiciability of retirement right, enriching thesubstantial content of retirement right, determining the essentials of claim rights;emphasizing the importance of mediator and discretion of the judges, so as to perfectthe safeguard and remedy mechanisms of retirement right.
After the above analysis, we will come to a conclusion that legal system ofretirement requires profound improvement, which is not only the need of social lawdevelopment, but also the inevitable choice to protect people and meliorate people’sliving condition, as well as to promote the innovation of social management in the newera.
从19世纪末德国建立世界上最早的退休法律制度至今，退休法律制度仅仅走过了百余年的历程。退休法律制度是保障退休者依法退出劳动岗位以后、受领退休金，以维持基本生活并确保退休权得以实现的法律制度。在社会法领域，退休法律制度与劳动法律制度、社会保障法律制度具有紧密的关系。一般而言，退休法律制度应当以追求实质正义与公平为最终目标，并在实践上呈现出倾斜性保护的特点。我国现行退休法律制度经过多年来的发展，已取得较大成就，但仍显不足，尤其其系统性、实效性相当阙如，需要大力完善，以切实改善和保障民生。基于此，本文以退休立法为研究题域，就退休法律制度的系列问题进行了比较深入的研究。全文共分六章，基本内容如下：
第一章为导论。本章首先确定本文的研究对象是退休法律制度的三个基本构造即退休年龄、退休金给付与退休权，并且明确本文的研究目的是在保障和改善民生的基本理念下，研究退休法律制度的基本构造，以期对我国退休法律制度的学理建构与制度实践有所贡献，并凸显本文的问题意识。其次，根据研究的需要，交代了本文拟采用的“总-分”式研究思路和语义分析、价值评判与比较研究等研究方法。最后，指明本文的理论意义与实践价值，即以退休法律制度的研究为核心，关注、推进中国社会法学的发展和相关社会管理制度的创新。
第二章是关于退休及退休法律制度的一般理论。首先，厘清退休与退休法律制度的基本内涵，阐明退休法律制度与劳动法律制度、社会保障法律制度之间的关系，为全文研究的展开奠定坚实的基础。然后，从两个方面对于退休法律制度的基本构成进行论述：退休法律制度的内容即退休年龄、退休金给付与退休权及其三者之间的重要关系；退休法律关系的构成即退休法律关系之主体、内容与客体三要素。其中，重点分析了退休法律关系的构成：退休法律关系的主体是指依照退休法律规范享有权利和承担义务的主体，主要涉及劳动行政部门与退休费用缴纳者、退休金受领者三方主体。退休法律关系的客体是指退休法律关系双方当事人的权利和义务所指向的对象，即退休金的给付。退休法律关系的内容的讨论主要探讨了退休是权利抑或义务、退休法律关系中权利与义务具有不对等性以及退休权所蕴含的丰富内涵：退休权是社会权，其最基本的权利诉求是退休金给付请求权，退休权也具有平等权的属性，以实现平等价值为目标追寻，并与生存权、工作权关系紧密。以上问题的阐释为退休法律制度的构造奠定了一定的理论基础。
第三章论述了退休法律制度及其理论基础的变迁。本章将退休法律制度分为萌芽、确立与发展三个重要阶段，集中论述了退休法律制度的变迁过程中，相应的理论基础的变迁历程：从自由主义的衰退与古典自然法地位的式微到国家干预理论的诞生与社会学法学的盛行再到自由放任与国家干预的有机结合与新自然法学的倡行。对于退休法律制度及其理论基础变迁的研究，将有助于我们准确把握退休法律制度的未来发展趋势及构架，以更好地回应社会经济发展变化的需要。
第四章论述了制度构造之一的法定退休年龄的确立问题。本章首先考察了世界各国退休年龄法律调整的变化及其一般规律：大体体现为延迟适格受领退休金的年龄；减少性别歧视，使女性与男性的退休年龄趋于一致；努力在立法上消除年龄歧视；严格限制甚至禁止提前退休；但是在强制退休年龄的废除与否方面，各国尚存差异。其次，从公务员、事业单位工作人员与企业职工的法定退休年龄的不同规定及其由来方面着手，回顾了我国法定退休年龄的制度演进的基本历程，指出了我国目前存在着男女退休年龄不一致、提前退休操作不规范等现实问题及其成因。最后，在此基础上，有针对性地提出了完善我国法定退休年龄的若干对策性建议，即男女退休年龄应当统一，必须制度化规制提前退休的乱象，同时法定退休年龄应当适度推延，而弹性退休制度则必须缓行。
第五章论述了制度构造之二的退休金给付的法律保障问题。本章首先从域外视角详细考察了退休金给付法律保障的域外相关制度实践，包括退休金给付从恩惠到契约的机理转换、退休金给付的若干典型模式以及退休金给付的方式差异等。然后，结合本文主题，系统考察了我国现实状况，并指出了我国退休金给付法律保障目前存在的现实问题，主要表现为退休金给付制度供给不足、退休金给付新旧制度更替不畅与退休金给付“双轨制”易导致分配不公平等，进而有针对性地论述了退休金给付法律保障的强化途径，即应探索制定专门性的相关法律；确保新旧退休金制度的有效衔接及融贯；在分配公平的视野下，应当考量退休金给付新“双轨制”的命运。
第六章论述了制度构造之三的退休权的法律救济问题。本章首先分析了现行世界各国退休权法律救济的立法模式，包括退休权的宪政救济模式与退休金给付请求权的法律救济模式。然后指出了我国目前存在着退休权法律救济有待立法肯认，退休金给付请求权存有司法救济障碍等现实问题及成因。最后有针对性地提出应当确立新的退休权法律救济的制度设计：肯认退休权的可诉性；充实退休金给付请求权的实体内容，确立退休金给付请求权的要件；在行政保障上充分重视调解员的作用，在司法救济上强调法官行使自由裁量权，以此来完善退休权的保障与救济机制。
经过上面的系统分析，我们得出结论认为，退休法律制度必须大力完善，这既是社会法研究发展的需要，也是当前我国改善和保障民生、促进新时期社会管理创新的必然选择。
A Study on Legal System of Retirement
Legal system of retirement has witnessed merely around hundred year’sdevelopment since the first establishment of its kind in Germany late 19th century. Itensures that retirees would acquire their pensions for basic living and realizes theirretirement rights after quitting their jobs, and it is closely connected with legal systemof labor and social security in the field of social laws. Generally speaking, legal systemof retirement is in pursuit of the ultimate goal of actual fairness and justice withtendentious protection. After years of development, the current legal system ofretirement in China has had great achievements, although there are still deficiencies,especially in its systematicness and effectiveness, which require melioration in order tofeasibly protect people and improve people’s living condition. Based on theseconditions, this thesis studies the retirement legislation, making profound analysis onmany aspects of legal system of retirement. It is composed of six parts, as follows:
The first chapter is introduction. It firstly points out the subjects of this thesis areconstituents of legal system of retirement, which are retirement age, pensions, andretirement right and remedies, and makes clear the purpose of this thesis based on thebasic concept of protecting people and improving people’s living, by analyzing theconstituents of legal system of retirement, to contribute to the theory construction andpractice, and to arouse the awareness of problems. In addition, to meet the need of theresearch, this chapter explains the research method that is from general to specific andother techniques such as semantic analysis, evaluation, and comparative study. Finally,this chapter put forwards the theoretical significance and practical value of this thesisthat are focused on the study of legal system of retirement, to impel the developmentof china’s social law and innovation of relative social managing systems.
Chapter two shows some general theories concerning retirement and legal systemof retirement. On one hand, it differentiates the basic connotation between retirementand legal system of retirement, and illuminates the relationship of legal system ofretirement, labor law system and social security law system, thus lays the foundationof the whole thesis. On the other hand, it argues the basic construction of legal system of retirement. The content of this part includes retirement age, pensions, retirementright and remedies together with legal relation of retirement made up of subject,content and object,focusing on the constitution of legal relation of retirement. Thesubject of legal relation of retirement is the subject that has rights and obligations bythe retirement laws, mainly concerning labor management section, retirement fee payerand pension receiver. The object refers to the target of such rights and obligations,namely the payment of pensions. Legal relation of retirement mainly discusses thatretirement is right or obligation which is not identical, and the connotations ofretirement rights. Retirement rights belong to social rights whose core is claim topensions. It aims at realization of equality, and is closely related to rights to live andwork. The former arguments lay certain theoretical foundation for the constitution oflegal system of retirement.
Chapter three keeps scores of the institutional change of retirement system and thetheoretical foundation. It divides the system change into three stages--- emergence,establishment and development, together with the changes in theoretical field ---goingthrough recession of liberalism and fluctuation of classical nature law, whoseestablishment is on the basis of the emergence of state intervention and prevalence onsociological law, which has great development with combination laissez-faire withstate intervention in economic and development of new nature law in legal theory.These studies would benefit in acquisition of the system’s future developing trend andframe, in correspondence with social and economical development.
Chapter four dissertates upon the first constituent of the system, legalestablishment of retirement age. Firstly, it starts from the research of the retirement ageadjustment and general rules around the world, embodied by rising pension receivers’age and prolonging the period of time, reducing sexual discrimination and narrowingthe gap between male and female, legally eliminating age discrimination, restricting oreven banning early retirement. However, as for the abolishment of obliged retirementage, there are still disparities among nations. Secondly, comparing with differentlegislations regarding retirement age of civil servants, public sector workers andenterprise workers and their origin, this chapter reviews the evolution of statutoryretirement age system in China, and proposes the status quo and reasons forirregularities in early retirement and inequality in male and female retirement age. Atlast, on this basis, it puts forward to several suggestions for the improvement of legal retirement age system, which includes uniformity of male and female retirement age,regulations supervising early retirement, as well as extension of legal retirement age.Meanwhile, the establishment of flexible retirement system should be suspended.
The fifth chapter studies the second constituent of the system, legal protection ofpensions. It makes detailed analysis of the related system about legal protection ofpensions abroad, including the transition from welfare to contract, some typicalpayment mode of pensions and the differences in payment manners. Moreover, thischapter studies the status quo in China, and discusses realistic problems on legalprotection of pension in China, consisting on lacking of special pension act, beingblocked in the transition from old to new pensions system and inequity in“dualpension schemes”and proposes strengthening ways of legal protection of pension,meaning enacting pension act, protecting the bridge and coherence between new andold pension system, applying to the principle of distributive justice and think about thefate of new“dual pension schemes”.
The last chapter discusses the third constituent of legal system of retirement,remedies for retirement right. It first analyzes the current legislative mode in the world,including constitutional mode of retirement right and remedies mode of pension claimright. It then sets forth such problems as the legislative recognition of remedies forretirement right, and legal remedies barrier in claiming pensions together with thereasons. In the end, it puts forward designs of a new system of remedies for retirementright, which means recognizing the justiciability of retirement right, enriching thesubstantial content of retirement right, determining the essentials of claim rights;emphasizing the importance of mediator and discretion of the judges, so as to perfectthe safeguard and remedy mechanisms of retirement right.
After the above analysis, we will come to a conclusion that legal system ofretirement requires profound improvement, which is not only the need of social lawdevelopment, but also the inevitable choice to protect people and meliorate people’sliving condition, as well as to promote the innovation of social management in the newera.
引文
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⑨对于这些不被覆盖的主体，国家正在通过城镇居民社会基本养老保险和新型农村社会基本养老保险（以下简称“新农保”）等方式增加社会保障的力度，使其因年老或身体失能无法继续劳作之时也可以“老有所养”。当然，也有学者指出，“只有企事业单位的职工和国家机关工作人员才能享受退休的待遇,不包括农民。这是我国长期以来在计划经济下,实行城乡二元治理的模式的必然结果。”见夏正林.论退休权的宪法保障[J].法学.2006(12):33.
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④2011年11月24日,国务院法制办公室就《事业单位人事管理条例（征求意见稿）》向社会公开征求意见。
⑤我国《宪法》第44条规定:国家依照法律规定实行企业事业组织的职工和国家机关工作人员的退休制度。
①参见张文显.法理学[M].3版.北京:高等教育出版社,北京大学出版社,2007:139-140.
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④《劳动法》第72条规定：……用人单位和劳动者必须依法参加社会保险，缴纳社会保险费。
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④郑尚元.企业员工退休金请求权及权利塑造[J].清华法学,2009(6):29-30.
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