중국 농촌 양로보험개혁의 과정과 과제
The Process and the Issues of the Chinese Rural Pension Reforms
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본고는 중국 농촌 양로보험의 개혁 과정과 과제를 고찰하는 데 목적이 있다. 이를 위해 양로보험 개혁의 배경, 양로보험 개혁의 과정과 내용, 양로보험 개혁의 과제, 대안으로서의 무갹출연금 등을 분석하였다. 그 결과를 요약하면 다음과같다. 첫째, 중국 농촌 양로보험 개혁은 두 단계로 진행되었는데, 첫 단계인 1980년대중반 임의가입 양로보험은 정부의 방임으로 실패로 끝났으며, 두 번째 단계인 2009년 신 양로보험은 정부의 전폭적인 재정적ㆍ행정적 지원에 힘입어 상당히 성공적으로 진행되고 있다. 둘째, 신 양로보험 개혁의 배경은 사회보장의 도농격차 심화, 한자녀정책으로인한 부양의무자 수의 감소, 농촌 청년층의 도시이주(민공), 노인부양 의식의 약화,농지 감소, 내수 진작 등 다양하다. 셋째, 농촌 양로보험 개혁은 농민의 양로보험료 부담능력의 취약성, 개인계정의낮은 수익률, 기초연금 액수의 비현실성, 연기금 관리운영에 대한 낮은 신뢰성, 연금시스템의 필요성에 대한 주민의 인식부족 등 상당히 심각한, 개혁의 성공을 위해서는 반드시 극복되어야 할 과제들을 안고 있다.넷째, 농촌 양로보험의 대안으로 무갹출 기초연금이 제시되고 있으나 막대한 재정소요라는 결정적인 약점을 지니고 있으며, 중앙정부와 지방정부의 재정능력과지역 간 경제적 격차를 감안할 때 무갹출 기초연금의 도입은 비현실적이다. 다섯째, 농촌 양로보험 개혁의 현실적인 대안은 개인계정 적립금 투자수익률의개선과 도시근로자 양로보험을 모델로 한 제도개혁이다. 이를 위해 적립금 운용에대한 과도한 정부규제의 완화, 연기금 관리운영 전문가의 양성, 양로보험 강제가입의 원칙 관철, 연기금의 전국적 통합 등의 후속조치가 필요하다.
Abstract
The purpose of this paper is to review the process and the issues of the Chinese rural pension reforms. For the purpose, the background, the process and the contents of the reforms, and the non-contributory pension as an alternative were analysed. The results are as follows;First, the process of the chinese rural pension reforms have two stages. The first reform of 1980s was failed, because it was a voluntary system. But second reform of 2009 is being successfully advanced by the administrative and financial supports of the government. Second, the backgrounds of the reforms are various, such as deepening gap of urban and rural social security, decrease of supportive family members according to the one-child policy, young generation’s movement to cities for the jobs, weakness of filial pity, decease of rural lands, and the necessity of domestic demand. Third, the chinese rural pension reforms have many critical issues which must be overcome for its success. Those are weak economic capacities of the peasants, low interest rates of the individual accounts, low level of the basic pension, distrust of fund administration, and lack of necessity for public pension system. Fourth, the non-contributory pension system is an unrealistic alternative,because it needs huge finance, and it is impossible under the current gap between urban and rural governments. Fifth, increasing the interest rates of individual accounts, and institutional reforms of the rural pension modeling the urban pension are feasible alternatives. For those, deregulation of the strong control on the management of investing the individual accounts, training the professional fund managers, establishing the principle of compulsory coverage, national integration of the rural as well as the urban pension funds are necessary.
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