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农村社会养老保险的现状、问题与对策研究社会保障对国家安定和经济发展具有重要作用，“城乡二元经济”现象日益凸现，农村社会保障问题客观上成为社会保障体系中极为重要的部分。建立和完善农村社会保障制度关系到农村乃至整个社会的经济发展，并且对我国和谐社会的构建至关重要。我国农村社会保障制度尚不完善，因此有必要加强对农村独立社会保障制度的构建，尤其对农村养老制度的改革，建立健全我国社会保障体系。从户籍制度上看，我国居民养老问题可分为城市居民养老和农村居民养老两部分。对于城市居民我国政府已有比较充足的政策与资金投人，使他们在物质和精神方面都能得到较好地照顾，基本实现了社会化养老。而农村居民的养老问题却日益突出，成为摆在我国政府面前的一个紧迫而又棘手的问题。一、我国农村社会养老保险的现状关于农村养老，许多地区还没有建立农村社会养老体系，已建立的地区也存在很多缺陷，运行中出现了很多问题，所以完善农村社会养老保险体系的必要性与紧迫性日益体现出来。（一）人口老龄化加快随着城市化步伐的加快和农村劳动力的输出，越来越多的农村青壮年人口进入城市，年龄结构出现“两头大，中间小”的局面。中国农村进入老龄社会的步伐日渐加快。第五次人口普查显示：中国65岁以上的人中农村为5938万，占老龄总人口的67.4%.在这种严峻的现实面前，农村社会养老保险的徘徊显得极其不协调。（二）农村社会养老保险覆盖面太小中国拥有世界上数量最多的老年人口，且大多在农村。据统计，未纳入社会保障的农村人口还很多，截止2000年底，全国7400多万农村居民参加了保险，占全部农村居民的11.18%,占成年农村居民的11.59%.另外，据国家统计局统计，我国进城务工者已从改革开放之初的不到200万人增加到2003年的1.14亿人。而基本方案中没有体现出对留在农村的农民和进城务工的农民给予区别对待。进城务工的农民既没被纳入到农村养老保险体系中，也没被纳入到城市养老保险体系中，处于法律保护的空白地带。所以很有必要考虑这个特殊群体的养老保险问题。（三）传统家庭养老保险功能削弱养儿防老的观念在我国农村根深蒂固，家庭赡养一直是最重要的养老方式。在以自给自足为基本特色的农业社会中，“子承父业”这种世代交替的形式比较稳定，可以在家庭内部自然地完成赡养老人的职能，并形成相应的道德规范。但是随着以社会分工为特征的工业社会的到来，这一自然稳定的关系被打破了，也使赡养老人的传统道德约束力日益递减。随着农村经济改革的深入，农民的养老观念发生了重大的转变，养儿防老的观念则在逐渐减弱。（四）“土地保障”变得越来越脆弱根据中国统计年鉴提供的数据，从1978年到1998年，全国农民平均来自第一产业的收入比重由91.5%下降到了57.2%，其中纯农业收入仅占总收入的42.9%.近年来农产品的价格日益下降，从土地上获得的收益非常微薄。目前农民家庭经营收入中，大约40%来自第二产业与第三产业，1/4左右来自劳动收入，来自转移性与财产性的收入约占纯收入的5.7%.由此可见，来自土地的农业收入已难以保证农民的基本生活，以之养老更是奢望。农民的承包地被大量征用，相反，其获得的只是极少的土地补偿费。因此说，完全依靠土地来养老的选择是不可行的。除此之外，贫富差距拉大，资金筹集与基金管理方面存在问题等现状，也对农村社会养老保险体系产生了一定的影响。二、农村社会养老保险存在的问题农村社会养老保险存在的诸多问题已引起许多学者的关注。这些问题中，有的是制度设计本身的缺陷；有的是在执行过程当中出现的问题。前者主要包括：（一）农村社会养老保险缺乏社会保障应有的社会性和福利性。基本方案规定：农村社会养老保险在资金筹集上坚持以“个人缴纳为主，集体补助为辅，国家给予政策扶持”的原则。这样，由于大多数集体无力或不愿对农村社会养老保险给予补助，绝大多数普通农民得不到任何补贴，在这种资金筹集方式下的农村社会养老保险实际上是一种强制性储蓄或鼓励性储蓄，也正因为这一点导致了不可能强制要求农民参加农村社会养老保险。但如果要使这项工作开展下去，常常需要采取强制性的行政命令，这又违背了农村社会养老保险的自愿性原则。因此农村社会养老保险在制度设计时就使其执行陷入了两难境。（二）农村社会养老保险存在制度上的不稳定性。各地农村社会养老保险办法基本上都是在民政部颁布的基本方案的基础上稍作修改形成的，这些办法普遍缺乏法律效力。因此各地对这一政策的建立、撤消，保险金的筹集、运用以及养老金的发放都只是按照地方政府部门，甚至是某些长官的意愿执行的，不是农民与政府的一种持久性契约，因此具有很大的不稳定性。实际上，我国政府对农村社会养老保险的态度也时常发生动摇，导致了本来就心存疑虑的农民更加不愿投保。这也是缺乏法律保障的结果。（三）基金保值增值困难。基本方案规定，“基金以县为单位统一管理，主要以购买国家财政发行的高利率债券和存入银行实现保值增值。”在实际运行过程中，由于缺乏合适的投资渠道、缺乏投资人才，有关部门一般都采取存入银行的方式。但是1996年下半年以来，银行利率不断下调，再加上通货膨胀等因素的影响，农村养老保险基金要保值已经相当困难，更不用说增值。这一方面造成政府的包袱加重，现已出现参保的人越多，国家赔得越多的局面。另一方面，为了使资金能够平衡运行，国家原先承诺的养老保险帐户的利率只好下调，造成投保人实际收益明显低于按过去高利率计算出的养老金，使人们对农村社会养老保险的信心更是大打折扣。D盖尔约翰逊指出，由于中国19931997年的投资收益率为负，对于从19931997年每年投入了同等数量保金的个人来说，他们积累的基金实际价值低于他们支付出的保费。（四）保障水平过低。基本方案规定，农民交纳保险费时，可以根据自己的实际情况分2元、4元、6元、8元20元等10个档次缴费。但由于农村经济发展水平低，农民对农村社会养老保险制度缺乏信心等原因，大多数地区农民投保时都选择了保费最低的2元月的投保档次。在不考虑通货膨胀等因素的情况下，如果农民在缴费10年后开始领取养老金，每月可以领取4.7元，15年后每月可以领取9.9元，这点钱对农民养老来说，几乎起不到什么作用。如果每月投保4元、6元甚至是10元，也仍然难以起到养老保障的作用。三、实施农村社会养老保险的保障措施要建立健全符合我国基本国情的农村社会养老保险制度，必须清楚把握现阶段我国经济发展的特点，结合不同地区农村经济的现状，因时制宜、因地制宜，做到从广泛覆盖到逐步完善。（一）稳定农村社会养老保险的基本政策我国农村社会养老保险方案的基本思想是，坚持低标准起步，坚持个人缴纳资金为主、集体补助为辅的原则，坚持以个人账户为主的储备积累的保险方法，坚持自愿参加与政策鼓励相结合的政策措施，坚持社会养老保险与家庭养老保障相结合的制度。这些政策从总体上看是符合实际情况的，应当继续坚持，并要逐步完善。（二）确立农村社会养老保险的法律地位通过立法的形式建立与健全社会保险和社会保障制度，是世界各国开展社会保险工作的通行做法。经过10多年的改革探索，我国已经建立起城镇社会保险制度的基本框架，并基本形成城乡社会救助制度的雏形。现在必须尽快健全社会保险法等有关法律，以促进我国社会保险制度的健康发展。作为一项全国性的法律，社会保险法不能仅仅面向城镇居民，而把广大的农民排斥在外。（三）坚持因地制宜与自愿原则受经济发展水平、经济承受能力、保险意识等方面的制约，短期内让全国农民普遍参加社会保险是不可能的。要避免强迫农民参加的做法，因为这不仅增加农民的负担，而且也不可能持久。只有坚持自愿原则，并通过集体补贴与政策引导，才能使这项工作健康持续地运行。在自愿的前提下，无论是贫困地区还是富裕地区，都可以实施养老保险。（四）完善农村养老保险个人账户补贴制度为了引导农民参加社会养老保险，民政部等相关政府职能部门规定了集体补贴的一些办法。大部分乡镇规定了按职业与职务给予补助的办法。为使社会养老保险制度真正发挥其社会互助功能，有能力进行补助的乡村，应尽可能采取按人头补助的办法，这样可以有效避免“穷者愈穷、富者愈富”现象，使补贴制度体现“公正、公平、公开”原则。（五）完善农村社会保障的管理体制为加快新型农村社会保障制度建设步伐，必须强化国家尤其是各级政府对其的行政管理，使其纳入规范化轨道并健康发展。一是要使农村社会保障的行政管理与基金管理、业务管理相分离，政府主要负责行政管理。二是在建立统一的农村社会保障机构前提下，明确相关部门的管理职能并使其协调有效地进行。三是要针对不同的农村社会保障项目，完善相应的管理制度，明确不同的管理内容和重点并使管理程序规范化。同时，还应依靠坚持个人账户积累模式，强化农村社会保障的监督机制，探索多种形式的农村社会养老保障制度等方法，实施农村社会养老保险的保障措施。综上所述，我们认为，解决农民老有所养问题，从农民最基本的保障问题入手，是解决“三农”问题的关键所在。这也真正体现了对农民的人文关怀，体现了科学发展观，对构建社会主义和谐社会具有重大的现实意义。Presentsituation,problemsandcountermeasuresofruralsocialendowmentinsuranceresearchAnimportantroleinsocialsecuritytonationalstabilityandeconomicdevelopment,dualeconomyincreasingemergence,objectivelyonruralsocialsecuritybecomeavitalpartofthesocialsecuritysystem.EstablishingandperfectingruralsocialsecuritysystemrelatedtotheruralandeconomicdevelopmentofsocietyasawholeandessentialforconstructionofharmonioussocietyinChina.Chinasruralsocialsecuritysystemisnotperfect,itwasnecessarytostrengthentheconstructionofruralsocialsecuritysystemindependent,particularlyforpensionsystemreforminruralareas,establishingandperfectingsocialsecuritysysteminChina.Seenfromthehouseholdregistrationsystem,Chineseresidentsagedpensionendowmentcanbedividedintourbanresidentsandruralresidentsintwoparts.ForurbanresidentsinChinasGovernmenthashadplentyofpoliciesandthemoneypeoplesothattheycanintermsofbothmaterialandspiritualreceivebettercare,thebasicrealizationofsocialized.Theagedandruralresidentshasbecomeincreasinglyprominent,setbeforemyGovernmentofapressinganddifficultissue.First,presentsituationofChinasruralsocialendowmentinsurance.Ontheruralold-age,hasnotalreadybeenestablishedinmanypartsofruralsocialold-agepensionsystemhasbuiltupareaalsohasmanyflaws,therehavebeenmanyproblemsintherunning,sothenecessityandurgencyofimprovingtheruralsocialendowmentinsurancesystemincreasinglymanifested.PopulationageingacceleratingAstheoutputofthequickeningpaceofurbanizationandrurallaborforce,moreandmoreyoungruralpopulationintotheurban,agestructureoftwolarge,intermediatesmallsituation.IncreasinglyacceleratedpaceintotheagingsocietyinruralChina.Thefifthcensusshows:59.38millionChineseovertheageof65percentofruralareas,accountingfor67.4%ofageingpopulation.Inthefaceofthisgrimreality,wanderingofruralsocialendowmentinsuranceisextremelyinconsistent.RuralsocialpensioninsurancecoverageistoosmallChinahasthelargestnumberoftheelderlypopulationintheworld,andmostofthecountryside.Accordingtostatistics,notincludedinthesocialsecurityisstillalotoftheruralpopulation,bytheendof2000,morethan74millionruralresidentstoparticipateintheinsurance,accountingforallthoselivinginruralareasof11.18%,11.59%percentofadultresidentsinruralareas.Inaddition,accordingtotheNationalBureauofstatistics,cityworkershadincreasedfromlessthan2millionpeopleatthebeginningofreformandopeningupto114millionpeoplein2003.Anddoesnotreflectonthebasicprogrammeremaininruralfarmersandmigrantfarmersgivendifferentialtreatment.Migrantfarmershaveneitherbeenincorporatedintotheruralold-ageinsurancesystem,havenotbeenincorporatedintourbanendowmentinsurancesystem,isthelegalprotectionofablankarea.Soitisnecessarytotakeintoaccountthisspecialgroupofold-agepensionissues.ThetraditionalfamilyendowmentinsurancefunctionsweakenBringusonstosupportparentsintheiroldageconceptsdeeplyrootedinruralareasinChina,familysupporthasalwaysbeenthemostimportantwayofold-age.Inself-sufficiency-essentialcharacteristicsoftheagriculturalsociety,fuyethisgenerationofalternatingformrelativelystable,canbedonewithinthefamilynaturallysupporttheelderlysfunctions,andformthecorrespondingcodeofethics.ButwiththeadventofcharacterizedbyDivisionoftheindustrialsociety,thenaturalstabilityofrelationshipsarebroken,alsosupporttheelderlyincreasinglydiminishingtraditionalmoralbinding.Withthedeepeningofeconomicreformsinruralareas,asignificantchangeinconceptoffarmersold-age,bringusonstosupportparentsintheiroldageconceptisgraduallydiminished.LandprotectionhavebecomeincreasinglyfragileAccordingtodataprovidedbytheChinaStatisticalYearbook,from1978to1998,theproportionofthenationalfarmersaverageincomefromprimaryindustrydroppedfrom91.5%to57.2%,ofwhichnetfarmincomeaccountedfortotalrevenuesof42.9%.Agriculturalproductpricesdeclininginrecentyears,thegainsfromthelandverymodest.Incurrentoperatingincomeofruralhouseholds,approximately40%fromsecondaryindustryandtertiaryindustry,aroundone-fourthfromearnedincome,incomefromtransfersandpropertyofapproximately5.7%percentofnetincome.Thus,agriculturalincomefromlandhasbeendifficulttoensurethebasiclivingoffarmers,endowmentiswishfulthinking.Farmerscontractedtowidelyuse,onthecontrary,theiraccesstoonlyafewlandcompensationfees.Hence,relyexclusivelyonlandfortheold-agepensionoptionwasnotfeasible.Inaddition,thegapwidened,fundraisingandfundmanagementproblems,suchasstatus,alsohavehadaneffectoftheruralsocialendowmentinsurancesystem.Second,problemsofruralsocialendowmentinsurance.Problemsofruralsocialendowmentinsurancehasarousedtheconcernofmanyscholars.Theseproblems,somedefectsofthesystemdesignitself;Someproblemsthatoccurduringexecution.Theformermainlyinclude:(A) Lackofsocialsecurityofruralsocialendowmentinsuranceofsocialandwelfare.Theprovisionsofthebasicplan:onthefinancingofruralsocialendowmentinsuranceinsistedthatindividualspaidmainlycollectivebenefitsupplement,nationalpoliciestosupporttheprinciples.Inthisway,becausemostofthecollectiveinabilityorreluctancetosubsidizetheruralsocialendowmentinsurance,thevastmajorityofordinaryfarmersdonotgetanysubsidies,insuchamodeoffinancingofruralsocialendowmentinsuranceisactuallyaformofcompulsorysavingsortoencouragesaving,isalsoforthiscauseisimpossibletoforcefarmerstoparticipateinsocialendowmentinsuranceinruralareas.Butifyouwanttomakethisworkcarriedout,oftenneedtotakecompulsoryadministrativecommands,whichcontravenetheprincipleofthevoluntarynatureofruralsocialendowmentinsurance.Sowhendesigningtheruralsocialendowmentinsurancesystemsothattheyperforminadifficultborder.(B) Onruralsocialendowmentinsurancesysteminstability.AroundtheruralsocialendowmentinsuranceapproachisbasicallyinthebasicprogrammeoftheMinistryofCivilAffairsissuedonthebasisoftheformationofminormodifications,theygenerallylacktheforceoflaw.Throughoutthispolicytoestablish,undo,theinsuranceapplication,fundraising,andissuedonlyinaccordancewiththelocalgovernmentunitsofthepension,evensomeofthewishesoftheChiefExecutive,notapersistentfarmersandGovernmentcontracts,thushasagreatdealofinstability.Infact,myGovernmentattitudetowardstheruralsocialendowmentinsurancehappensconstantlyshake,causingthealreadyhesitantfarmersmorethantheinsured.Thisistheresultofthelackoflegalprotection.(C) PreservingandincreasingthevalueoftheFunddifficulties.Theprovisionsofthebasicplan,inCountyunifiedmanagementoftheFund,mainlytobuyhighinterestratesbondsissuedbyStatefinanceanddepositedinabanktoachievepreservationandappreciation.”Inactualoperationintheprocess,duetothelackofsuitableinvestmentchannels,lackofinvestmentintalent,thedepartmentsconcernedaregenerallytaketheformintheBank.Butsincethesecondhalfof1996,bankinterestratescontinuetodecline,coupledwiththeeffectsofinflationandotherfactors,topreservetheruralold-ageinsurancefundhavebeenverydifficult,nottomentiontheaddedvalue.ThiscausedontheonehandtheGovernmentsburdenheavier,hasnowappearedmorepeopleinsured,nationalindemnity,themorethesituation.Separately,inordertoenablefundstorunbalanced,nationalcommitmentaccountofpensioninsurancehadtocutinterestrates,causingtheinsuredincomesignificantlylowerthanthepasthighrealinterestratescalculatedpension,sothatpeoplesconfidenceinsocialendowmentinsuranceinruralareasiscompromised.。-d.GaleJohnsonpointedoutthat,duetoChinas1993-1997anegativerateofreturnoninvestments,1993-1997investsthesameamountofpremiumspersonally,theyaccumulatefundsactuallyworthlessthanthepremiumstheypay.(D) Guaranteelevelistoolow.Theprovisionsofthebasicprogramme,farmerswhenpayinginsurancepremiums,accordingtoownactualsituationat$2,4,6,8sth$2010gradesofpay.However,duetothelowlevelofeconomicdevelopmentinruralareas,farmerslackofconfidenceofruralsocialendowmentinsurancesystemandotherreasons,mosthaveoptedforthelowestpremiumswhenfarmersinsuranceinsuredgradeof2Yuan/month.Incasethatdoesnottakeintoaccountfactorssuchasinflation,iffarmerspay10yearslaterbegantoreceiveold-agepension,receives$4.7permonth,amonthafter15yearsreceives$9.9,thismoneytopeasants,andalmostnorole.Paymonthly$4,$6oreven10dollars,remainsdifficulttoalsoplayaroleofold-agesecurity.Third,implementationofruralsocialendowmentinsurancesafeguards.ToestablishsoundconformstoChinasbasicnationalconditionofruralsocialendowmentinsurancesystemshouldbeclearlygraspthecharacteristicsofcurrentChinaseconomicdevelopment,combinedwiththepresentsituationoftheruraleconomyindifferentregions,timely,andsuitmeasurestolocalconditions,frombroadcoveragetograduallyimprove.BasicpolicyofstabilizingtheruralsocialendowmentinsuranceBasicideaofChinasruralsocialold-ageinsuranceschemeis,adheretothecriteriaoflowstart,upholdtheprincipleofpersonalpayfundsandcollectivebenefitsupplement,adheretothepersonalaccountofinsuranceconsistingmainlyofreserveaccumulation,adheretovoluntaryparticipationandpoliciestoencouragethecombinationofpolicymeasuresadheretosocialendowmentinsuranceandfamilywithacombinationofold-agesecuritysystem.Thesepoliciesasawholeisinlinewiththeactualsituation,shouldcontinuetoadhereto,andtograduallyimprove.(A) EstablishingthelegalstatusofruralsocialendowmentinsuranceByestablishingandperfectingthesystemofsocialinsuranceandsocialsecurityintheformoflegislation,ofthesocialinsuranceworkineverycountryintheworldpractice.Aftermorethan10yearsofreform,Chinahasestablishedthebasicframeworkofthesocialsecuritysystemincitiesandtowns,urbanandruralsocialassistancesystemandformedtheprototype.NowhavetoperfecttheSocialSecurityActandotherrelevantlawsassoonaspossibleinordertopromotethehealthydevelopmentofChinassocialsecuritysystem.Asamatterofnationallaw,thesocialinsuranceactnotjustfortheresidentsincitiesandtowns,andthebroadmassesofpeasantswasexcluded.adheringtolocalconditionsandthevoluntaryprinciplesAffectedbythelevelofeconomicdevelopment,affordability,insurance,andotherconstraints,nationalfarmersuniversalparticipationinthesocialsecurityintheshorttermisunlikely.Toavoidforcingfarmerstoparticipateinpractices,becausenotonlydoesthisincreasethepeasantsburden,butalsocannotbesustained.Onlyadheretothevoluntaryprinciple,andpolicyguidanceandthroughcollectivesubsidiesinordertomakethisjobtorunhealthyandsustainable.Onthepremiseofvoluntary,bothinpoorareasandintheaffluent,old-ageinsurancecanbeimplemented.(B) improvethesystemofruralendowmentinsuranceindividualaccountbenefitsInordertoguidethepeasantstoparticipateinsocialinsurance,MinistryofCivilAffairsandotherrelevantgovernmentdepartmentstorequireacollectivesubsidiesinsomeway.MostoftheTownshipestablishedbyoccupationandjobsubsidyapproach.Tomakethesocialendowmentinsurancesystemreallybringitssocialassistancefunctions,havetheabilitytograntvillage,onapercapitagrantapproachshouldbetakenasfaraspossible,soastoavoidthepoorbecomepoorerandtherichgetricher,thesubsidysystemreflectsthejust,fairandopenprinciple.improvingmanagementsystemofruralsocialsecurityToacceleratethepaceofconstructionofnewruralsocialsecuritysystem,muststrengthenthecountries,particularlyatalllevelsofGovernmentontheadministrationofmakingitintothestandardtrackandhealthydevelopment.Oneistomakethesocialsecurityfundmanagement,businessmanagementandadministrationofphaseseparation,theGovernmentismainlyresponsibleforAdministration.Secondisthepremiseofruralsocialsecurityagenciesintheestablishmentofaunified,clearlyrelevanttothemanagementandcoordinationofthefunctionsoftheDepartmenteffectively.Third,theruralsocialsecuritymustbefordifferentprojects,perfectmanagementsystem,clearlydifferentmanagingcontentandfocusofstandardizationandmanagementprogram.Atthesametime,shouldalsorelyoninsistedonindividualaccountaccumulationmode,strengthenthesupervisionofruralsocialsecuritymechanisms,explorevariousformsofruralsocialendowmentinsurancesystemandothermethods,theimplementationofsafeguardmeasuresoftheruralsocialendowmentinsurance.Inconclusion,webelievethataddressingfarmerssenseofsecurityproblems,startingwiththemostbasicprotectionissuesfromfarmers,solvingSanNongcruxoftheproblem.Thisreallyreflectsthehumanisticconcernforfarmers,embodiesthescientificOutlookondevelopment,ontheconstructionofaharmonioussocietyareofgreatpracticalsignificance.