What is the rest of the insurance money used for? Did it really play its due role? Where does the money flow? Let me give you a detailed introduction.
After living and studying in Beijing for six years, Zheng Lei (a pseudonym), a deaf person who just got a college diploma, plans to pack up and go back to his hometown.
Zheng Lei's dream is to be a graphic designer. In his view, hearing impairment does not affect his design and creativity; He can also communicate with people through sign language and writing AIDS. However, three months after graduating from the top special education college in China, he still failed to find a job with a professional counterpart-the employer either disliked his lack of communication skills or thought that he had no practical experience.
"Ordinary college students can't find jobs, let alone we disabled people?" He seems resigned to his fate.
But he didn't know that China had a system of "arranging employment for the disabled in proportion", which should have helped him. This system stipulates that the employer must take out 1.5%-2% of the posts to hire the disabled; If the disabled are recruited, the unit can enjoy different amounts of social security, post subsidies and tax incentives, while the unit that is unwilling or unsuitable to recruit the disabled will pay a large amount of employment security fund for the disabled (hereinafter referred to as the residual insurance fund) according to the head difference. The main purpose of the residual insurance fund is to provide employment services and training for the disabled.
However, the seemingly ingenious system design has already gone astray. The vast majority of enterprises are willing to pay rather than hire disabled people; At the same time, with the strengthening of the collection of residual insurance funds in various places, the amount of residual insurance funds is increasing, but the employment of disabled people is still difficult. In 2006, the total number of people with disabilities who were employed in proportion reached the highest level in history, and then fluctuated in the following years, reaching the lowest level in recent seven years in 2009.
At present, in the new year, employers have begun to apply for employment for the disabled and receive the remaining insurance money. The employment dilemma of the disabled has not improved, and enterprises complain about compulsory payment. What's wrong with China's employment security policy for the disabled?
The remaining insurance money snowballed.
Due to the weak position of the disabled in the job market, the China government has adopted the position of "welfare policy" to provide guarantee for the employment of the disabled. The residual insurance system also evolved from this idea.
According to statistics, there are 32 million disabled people of working age in China, accounting for 38% of the total number of disabled people. /kloc-among the disabled people over 0/5 years old, 27.42% have the ability to work and 42.99% have partial ability to work.
In 2006, the data of the second national sample survey of disabled people showed that disabled people with university education only accounted for 1. 13% of the disabled population, and the illiteracy rate was as high as 43.29%, so their own employability was extremely weak. The employment rate of disabled people with working ability is only about half of that of non-disabled people, and the average salary is only half of that of non-disabled people.
Before 1990s, the main way of employment for the disabled in China was centralized employment, that is, placement in government-run welfare enterprises. With the transformation from planned economy to market economy, welfare enterprises are facing the challenge of market competition. After 1996, its number gradually decreased, many enterprises had difficulties in development, and their ability to accommodate disabled people declined. By June of 20 1 1 year, there were less than 22,000 welfare enterprises nationwide, 38,000 fewer than that of 1995, and 300,000 fewer disabled workers were placed.
Since 1990, China has advocated the employment system for the disabled in proportion. Enterprises that can't arrange will be fined for residual insurance. In 2008, the newly revised Law of the People's Republic of China on the Protection of Disabled Persons made clear mandatory provisions on this.
However, due to the lack of democratic participation in the formulation of relevant policies and the "one size fits all" approach to employers, the implementation of the above policies is still rejected by many enterprises.
According to the relevant survey of the Disabled Persons' Federation, 90% of enterprises have not actually arranged employment for the disabled. Of the more than 40,000 enterprises in Qingdao, only 4.5% have arranged employment for the disabled in proportion; There are 1860 directly affiliated units in Guangxi, of which only 233 units have employment for the disabled. Among the 445,000 employers in Beijing, 2 1 000 employers employ disabled people, accounting for only 4.7%.
Even in enterprises that arrange employment for the disabled, the phenomenon of "affiliation" is very common. Enterprises sign labor contracts with disabled people and pay them according to the minimum wage standard; At the same time, private agreements are signed with disabled people, so they don't have to go to work, and enterprises don't have to bear any responsibilities except paying wages.
"They think that disabled people are a burden and will drag them down." Xu Ping, a full-time member of Shenzhen Disabled Persons' Federation, said that in this way, employers can enjoy tax, social security and other supporting subsidies, without having to pay residual insurance money. As a result, the amount of the remaining insurance money snowballed. In fact, the greater the amount of residual insurance money received, the worse the employment situation of the disabled.
However, many government officials think that it is a good thing to collect more residual insurance money, and even think that the more residual insurance money collected, the better. Huang Zhen, a professor at the Central University of Finance and Economics, said that many local or government officials have also put forward corresponding targets and indicators.
The whereabouts of the funds are ambiguous.
Since 2004, the residual insurance funds in all parts of the country have been collected by the former Disabled Persons' Federation, not by the local tax department, but by the social security department in some areas. As a result, the situation of non-payment and refusal of payment by enterprises has been greatly improved, and the amount of residual insurance money collected in various places has suddenly increased.
In Beijing, before 2005, it was collected by the Disabled Persons' Federation, and 12 only collected 750 million. After being collected by local taxes in 2006, 950 million yuan was collected in that year, reaching11650,000 yuan in 2007. However, up to now, the amount and purpose of the National Disability Insurance Fund is a closed account.
There are only some sporadic data to judge the scale of residual insurance. According to the Research Report on Proportionally Arranging Employment for the Disabled and the Employment Security Fund for the Disabled published by the public welfare network platform-Employment Promotion Network for the Disabled, in 2006, 950 million yuan was collected in Beijing, 600 million yuan in Shanghai, 300 million yuan in Sichuan and 0/0.40 billion yuan in Hunan. As the collection of residual insurance money is mainly in urban areas, even the China Disabled Persons' Federation doesn't know about the collection of national residual insurance money.
According to the Law on the Protection of Disabled Persons, the residual insurance fund is included in the financial budget and used exclusively for vocational training for the disabled and providing employment services and employment assistance for the disabled. 1995 "Interim Provisions on the Management of Employment Security Fund for Disabled Persons" (hereinafter referred to as "Interim Provisions") further clarifies that the collection, use and management of residual insurance funds are specifically responsible for the labor service agencies for disabled persons at or above the county level and are led by local disabled persons' federations.
20 10 Xu Ping, a full-time member of Shenzhen Disabled Persons' Federation, applied to Shenzhen Disabled Persons' Federation for information disclosure, demanding that the collection and use of residual insurance money be announced, but found nothing. "So far, there is no place in the country where the Disabled Persons' Federation can disclose the details of the use of residual insurance funds." Xu Ping said.
In the "Interim Provisions", the use of residual insurance money has four directions: first, it is used for vocational training for the disabled; Second, reward and support the units that arrange the employment of disabled people in excess proportion; Third, support the disabled to engage in collective employment and individual business; The fourth is to subsidize the funds and other expenses of the labor service institutions for the disabled.
The use direction of the remaining insurance funds all points to the goal of promoting the employment of the disabled. However, according to Caixin New Century, in many areas, "pension institutions" have become the main use of surplus insurance funds. In the institutional setup of the Federation of Disabled Persons, the labor service agency for disabled persons is its subordinate institution; In the central and western regions, many labor service institutions for the disabled are self-supporting institutions. The residual insurance fund has become the main source of funds for the operation of public institutions and the payment of wages and benefits to employees.
Disabled persons' federations at all levels, civil servants and supernumerary employees also need some financial subsidies from the Disabled Persons' Insurance Fund. Zhejiang Province has audited the surplus insurance fund expenditure of the whole province and 50 counties (cities, districts) from 2005 to 2007. Of the 964 million yuan actually spent, the expenditure on vocational training and employment services for the disabled is 654.38+32 billion yuan, accounting for only 6543.8+03.69%. Expenditure on comprehensive service facilities and subsidized service institutions reached 379 million yuan, accounting for 39.32% of the total expenditure.
In some county-level institutions, especially in poverty-stricken areas with financial difficulties, due to the low total amount of residual insurance funds, the proportion of administrative funds in institutions is more prominent. In laifeng county, Hubei Province, the proportion of residual insurance funds used to pay the wages and benefits of the staff of the Employment Management Office for the Disabled once accounted for 45%, while the expenditure was 20%. In addition, 65,438+05% subsidized the allowances and benefits of the disabled persons' Federation staff.
"Take money to ensure the employment of our disabled people and raise such a group of people." Xu Ping is very dissatisfied with this. He introduced that there are 16 employees in a disabled employment service center in a certain district of Shenzhen, and the welfare benefits are paid according to the salary level of civil servants, with a minimum of 4,000 yuan and a maximum of 7,000 yuan per month. The public welfare post designed by the Disabled Persons' Federation for the disabled has a monthly salary of only 2,500 yuan.
Inefficient trap
It is reasonable to use the residual insurance fund to pay wages to those who provide services for the employment of disabled people. Zhang Xizheng, a researcher at the Institute for the Disabled, said that some foreign residual insurance funds are also used to subsidize the wages of social workers. The key is whether the services provided by these personnel and institutions are effective.
At present, in the employment training and services for the disabled, the labor service agencies for the disabled under the Disabled Persons' Federation are almost in a monopoly position. Whether it is the efficiency of the use of surplus insurance funds or the effect of vocational training, there is a lack of neutral evaluation from the official to the private. Many disabled people doubt its efficiency.
According to Zheng Lei, a hearing-impaired person who wants to be a graphic designer mentioned above, when he went to the Beijing Disabled Persons' Federation for free training, he was told that only disabled people with Beijing hukou could enjoy it, and foreigners could not participate in the training even if they paid the money. He is optimistic about two private institutions specializing in digital vision technology training in Beijing, but the tuition fee is 10 thousand yuan. "I can't afford it at all."
Xiaoxiang, a girl from Nanchang, participated in two trainings organized by the Disabled Persons' Federation, one to learn computer technology and the other to learn mobile phone maintenance. "It doesn't mean anything." Xiao Xiang complained that computer training always teaches the most basic content, while there is no practical course for mobile phone maintenance. "After attending the training, I still can't find a job."
One plus one cultural development center for the disabled (hereinafter referred to as one plus one) is a private non-enterprise organization founded by the disabled and serving themselves. Xie Yan, the founder, said that the biggest problem of the training program of the Disabled Persons' Federation is the lack of pertinence. It is understood that the Beijing Disabled Persons' Federation currently provides services such as folk handicrafts, rural practical skills training, denture technicians and computer training for the physically disabled and hearing-impaired people. Have a job recommendation, but do not guarantee employment; The employment rate of blind people attending massage training can almost reach 100%.
"But can't blind people do anything but massage?" Xie Yan introduced that One Plus One spent eight months training two stenographers for the blind and developed a set of stenographer teaching materials for the visually impaired. However, when he lobbied the local Disabled Persons' Federation to recommend this project to more blind people by purchasing services, he was declined. The reason is that the time is too long and the cost is too high. "The number of trainees is the assessment index of superiors, and they naturally hope to train more people in a shorter time."
Nina Li Chi Rehabilitation Center in Fengtai District of Beijing (hereinafter referred to as Nina Li Chi Center) began to provide employment training and support for the mentally retarded from 200 1, which is exactly what the training system of the Disabled Persons' Federation does not have. More than 700 trainees were trained free of charge before and after the Nina Li Chi Center, and 64 of them found jobs.
Zhou Xiannian of Nina Li Chi Center told Caixin New Century reporter that after the mentally retarded students complete the training, their staff will accompany him to practice, get familiar with the working environment and make new friends. When students have a good interactive relationship with employees around them and the working environment can provide him with natural support, employees will quit. Students can also come to the center for help at any time.
System revaluation
The proportional employment system for the disabled has not effectively alleviated the employment difficulties of the disabled. In the view of Zhang Xizheng and others, the working mode centered on collecting residual insurance money misinterprets the original intention of the system. Many scholars suggest that employers who do not arrange employment for the disabled should be fined higher, and institutions that absorb employment for the disabled should be given greater rewards.
According to the relevant person in charge of the Disabled Persons' Federation, strengthening the regulation of economic means is also the direction of policy revision in the next step. On the one hand, the "conversion" ratio of employers employing severe or moderate disabled people will increase. For example, arranging employment for 1 severely disabled person can be calculated according to arranging employment for 3 disabled people; On the other hand, it is a more severe punishment, and no one is allowed to pay for a long time.
It is understood that in addition to vocational training, local disabled persons' federations are gradually increasing subsidies to employers who accept the employment of disabled people. For example, the Beijing Disabled Persons' Federation added job subsidies, social security subsidies and other projects, and the relevant person in charge of its policy research office introduced that such subsidies are almost the biggest expenditure direction of the Beijing Disabled Insurance Fund.
However, Zhang Xizheng disagreed with the idea of "severe punishment". He said that the tax burden of Chinese enterprises is already very heavy, and it is not good for enterprises to increase the amount of residual insurance money. "The responsibility of the government cannot be shifted to employers," he said. Without basic anti-discrimination work, increasing punishment will only increase the cost of system implementation. His more recognized idea is to reduce the cost of employing disabled people by employers, and at the same time give them enough support in education, training and employment, so that they can participate in job competition with non-disabled people on the premise of anti-discrimination.
These targeted services need the extensive participation of social forces, provide resources competitively and improve efficiency. However, under the existing system, quasi-government organizations such as the Disabled Persons' Federation monopolize a large number of resources, including the remaining insurance funds. Many disabled non-governmental organizations have difficulties from registration to fund-raising operation.
Zhang Xizheng emphasized that the opaque use of residual insurance money is only a concrete manifestation of the lack of openness and transparency of the whole government information at present. He introduced that the most important way to use foreign surplus insurance funds is to purchase services from non-governmental organizations, including skills training and comprehensive education, as well as job introduction and post-employment support services. Government departments pay more attention to the supervision and effect evaluation of capital use to ensure the efficiency of capital use.
In the eyes of many people in the industry, the fundamental reason for the employment difficulties of disabled people is not lack of money, but also the innovation of social management mechanism, so as to create opportunities for disabled people to integrate into society with a more professional, transparent and open attitude.
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