國務院出臺新形勢下就業創業政策
(2015年4月24日)
人力資源和社會保障部
就業狀況是經濟運行的「晴雨表」，事關經濟發展和民生改善。中國政府將就業作為民生之本，作為宏觀調控的重要目標，實施就業優先戰略和積極的就業政策，通過穩增長、調結構促進就業，通過深化改革、推動大眾創業、萬眾創新來帶動就業，通過完善政策、強化服務來幫助困難群體就業。今年一季度，全國城鎮新增就業324萬人，城鎮登記失業率維持在4.05%的較低水平。高校畢業生、農村轉移勞動力、城鎮就業困難人員等群體就業取得新進展。
在我國經濟發展新常態下，就業總量壓力依然存在，就業結構性矛盾更加凸顯。面對新的就業形勢，必須著力培育大眾創業、萬眾創新的新引擎，繼續堅持擴大就業發展戰略，深入實施更加積極的就業政策，把創業和就業結合起來，以創業創新帶動就業，催生經濟社會發展新動力，為促進民生改善、經濟結構調整和社會和諧穩定提供新動能。
為研究做好新形勢下就業創業工作，按照國務院部署，去年以來，有關部門在認真分析形勢、開展調研評估、廣泛聽取意見基礎上，形成了關於進一步做好新形勢下就業創業工作的意見稿，4月21日國務院第89次常務會原則通過。該意見從深入實施就業優先戰略、積極推進創業帶動就業、統籌做好高校畢業生等重點群體就業、加強就業創業服務和職業培訓、強化組織領導等五方面，對進一步做好就業創業工作進行了全面部署，提出了多項更具力度、更富含金量的政策措施。
在深入實施就業優先戰略方面，提出4項政策。一是堅持擴大就業發展戰略，把穩定和擴大就業作為經濟運行合理區間的下限，將城鎮新增就業、調查失業率作為宏觀調控重要指標。二是發展吸納就業能力強的產業，創新服務業發展模式和業態，推進產業轉型升級，培養新型職業農民。三是發揮小微企業就業主渠道作用，對小微企業提供金融、稅收等支持。四是積極預防和有效調控失業風險，落實調整失業保險費率政策，減輕企業和個人負擔。將失業保險基金支持企業穩崗政策擴大到所有依法參保繳費、不裁員或少裁員的企業。
在積極推進創業帶動就業方面，提出8項政策。一是營造寬鬆便捷的準入環境。深化商事制度改革，落實註冊資本登記制度改革，支持各地放寬新註冊企業場所登記條件限制，推動「一址多照」、集群註冊等改革。二是培育創業創新公共平臺，總結推廣各類新型孵化模式，加快發展眾創空間，鼓勵地方盤活閒置廠房等提供低成本的創業場所。三是創新創業投融資渠道，支持風險投資、創業投資、天使投資等發展。加快設立國家中小企業發展基金和國家新興產業創業投資引導基金。四是支持創業擔保貸款發展。將小額擔保貸款調整為創業擔保貸款，最高額度由10萬元或不足10萬元統一調為10萬元，個人貸款在貸款基礎利率基礎上上浮3個百分點以內的部分由財政貼息並簡化手續。五是加大減稅降費力度，將企業吸納就業稅收優惠的人員範圍由失業一年以上調整為失業半年以上，高校畢業生、登記失業人員創辦個體工商戶、個人獨資企業可依法享受稅收減免政策。推廣職工教育經費稅前扣除等試點政策。六是調動科研人員創業積極性。支持高校、科研院所等專業技術人員在職和離崗創業，對經同意離崗的可在3年內保留人事關係。七是鼓勵農村勞動力創業。發展農民工返鄉創業園，支持農民網上創業。八是營造大眾創業良好氛圍。培育創業文化。對勞動者創辦社會組織、從事網絡創業的，給予創業扶持政策。
在統籌推進高校畢業生等重點群體就業方面，提出4項政策。一是鼓勵高校畢業生多渠道就業。將小微企業新招用畢業年度高校畢業生享受1年社保補貼政策，由原定執行到今年底改為長期執行。將困難畢業生求職補貼調整為求職創業補貼，對象範圍擴展到獲得國家助學貸款的畢業生，功能擴展到支持創業。整合發展高校畢業生就業創業基金，為畢業生就業創業提供支持。二是加大困難人員就業援助，確保零就業家庭、最低生活保障家庭等困難家庭至少有一人就業。三是推進農村勞動力轉移就業,完善職業培訓、就業服務、勞動維權「三位一體」的工作機制，加強農民工輸出輸入地勞務對接。四是促進退役軍人就業。
在加強就業創業服務和職業培訓方面，提出6項政策。一是強化公共就業創業服務，健全覆蓋城鄉的公共就業創業服務體系，提高服務均等化和標準化、專業化水平。二是加快公共就業服務信息化，逐步形成全國一體化的就業信息化格局，實現就業管理和就業服務工作全程信息化，各類就業信息統一發布。三是加強人力資源市場建設，消除各類影響平等就業的制度障礙和就業歧視。四是加強職業培訓和創業培訓，重點實施農民工職業技能提升和失業人員轉業轉崗培訓，支持企業開展新型學徒制培訓。五是健全失業保險、社會救助與就業的聯動機制，允許實現就業或自主創業的最低生活保障對象在核算家庭收入時，扣減必要的就業成本。六是完善失業登記辦法，城鎮常住人員可在常住地進行失業登記，獲得均等化的公共就業服務和普惠性就業政策。
此外，在強化組織領導方面，要求各地健全協調機制，落實目標責任制，保障資金投入，健全就業創業統計監測體系等。
The State Council Promulgating Employment and
Entrepreneurship Policy under the New Circumstances
(24 April 2015)
Ministry of Human Resources and Social Security
Employment situation is like the barometer of economic performance, which has an important bearing on the economic development and people’s livelihood improvement. The Chinese government takes employment as the basis for people’s living and the major target for macro regulation and control. With the pro-employment strategy and active employment policy adopted, it has made strenuous efforts to expand employment through stabilizing growth, readjusting structure, promote employment with deepening reforms, encourage people to start up their own businesses and to make innovation, support the employment of those with difficulties by improving policies and enhancing services. In the first quarter this year, the urban newly increased employment registers 3.24 million, and the urban registered unemployment rate maintains at 4.05%. New progress has been made in the employment of university graduates, rural migrant workers and urban hard-to-place people.
In the new normal of economic development in China, the employment aggregate pressure still persists, and the structural tensions are more acutely felt. Against such background, we need to develop the new engine of entrepreneurship and innovation by the general public, stick to the development strategy of expanding employment, implementing more active employment policies, combine business startup with employment, advance employment with entrepreneurship and innovation, instill fresh driving force for economic and social development, and provide new energy to economic restructuring and social harmony.
To identify the approach to push forward the work relating to employment and entrepreneurship under the new circumstances, in line with the arrangements of the State Council, based on careful profile analysis, field studies and evaluation, and broad opinion soliciting, the related departments formulated a draft Opinion on Further Pushing Forward the Work relating to Employment and Entrepreneurship under the New Circumstances, which was initiated from last year and adopted by the 89th Executive Meeting of the State Council on 21nd April. The Opinion covers five aspects: implementing the employment first strategy in an in-depth manner, actively promoting entrepreneurship-driven employment, addressing employment of university graduates and other targeted groups in an integrated manner, strengthening employment and entrepreneurship services and vocational training, and intensifying organizing and leadership. The Opinion makes all-around arrangement on further pushing forward employment and entrepreneurship and formulates several stronger policy measures with higher quality.
On in-depth implementation of employment first strategy, 4 policies have been put forward. First, we will continue the development strategy of employment expansion, putting employment stability and expansion as the minimum limit of a reasonable range of economic performance and placing the new urban jobs and surveyed unemployment rate as an important indicator of macro adjustment and control. Second, we will enhance job-rich industries, inject innovation into development models and formats of service sector, advance industrial readjustment and upgrade, and develop new professional farmers. Third, the micro and small enterprises will serve as a major source for employment, through provision of financial and tax supports to micro and small enterprises. Forth, the unemployement risks will be actively prevented and effectively contained. The policy on adjustment of unemployment insurance contribution rate will be implemented to mitigate burden on enterprises and individuals. The policy that the unemployment insurance fund supports enterprises to stablize jobs will expand to all enterprises wich legally participate in and contribute to unemployment insurance and have no or less layoffs.
On actively promoting entrepreneurship-driven employment, 8 policies have been put forward. First, we will build an easy and friendly access environment. We will deepen reform of business system, enforce reform of capital registration system, and provide support to all localities to relax the eligibility restrictions for site registration for newly registered enterprises, promoting reforms permitting 「one site housing multiple licenses」 and cluster registrations. Second, we will cultivate public platforms for entrepreneurship and innovation, take stock and disseminate new models of incubators, accelerate site development for entrepreneurship of the masses, and encourage all localities to utilize factories left idle and provide low-cost space for entrepreneurship. Third, we will seek innovative means for entrepreneurship financing, support development of risk investment, entrepreneurship investment and angel investment. We will accelerate the establishment of national development foundation for middle and small enterprises and national entrepreneurial investment foundation for the emerging industries. Fourth, support development of the entrepreneurship secured loans. Small-sum secured loan will be adjusted to entrepreneurship secured loan, and the maximum amount of the loan has been unified to 100,000 RMB. The interest cost of individual loans by up to 3 percentage points above the base interest rate will be subsidized by the government. The procedures will also be streamlined. Fifth, we will step up the efforts in tax cut and rate reduction by shorten the eligible unemployment period of persons by hiring whom the employers can enjoy tax preferential treatments from more than one year to more than half a year. College graduates and registered unemployed persons starting an individual business or a solely-invested enterprise are eligible to tax reduction or exemption in accordance with the law. We will implement the policy of pre-tax deduction of employee education funds on a pilot basis. Sixth, we will mobilize researchers』 initiative to start businesses. We will promote on-the-job and off-job entrepreneurship by professionals and technicians in universities and scientific research institutes by retaining their personnel archives for three years if they leave office with consent. Seventh, we will encourage entrepreneurship among the rural workforce. We will develop the entrepreneurship parks for returning migrant workers and support farmers for on-line business. Eighth, we will cultivate good atmosphere for public entrepreneurs. We will nurture the entrepreneurship culture and grant policy support for establishing social organizations and engaging in on-line startups.
On addressing employment of university graduates and other targeted groups in an integrated manner, four policies have been put forward. First, we will encourage college graduates to find employment through various channels. We will extend the policy that small and micro enterprises employing new college graduates can receive one-year social insurance subsidies due by the end of this year to a long-term one. We will adjust the job-seeking subsidy for financially challenged graduates into job-seeking and entrepreneurship subsidy with the target expanded to include graduates with the government-subsidized student loan, and function extended to support business startups. The employment and entrepreneurship foundation for college graduates has been developed in an integrated way to support college graduates to find employment or start their own businesses. Second, we will scale up the employment assistance for persons with financial difficulties to ensure that at least one person is employed in families in need such as the zero employment families and families depending on the minimum living allowances. Third, we will facilitate rural workforce transfer by comprehensively improving the working mechanism of 「job training, employment services and labor rights safeguarding」 and strengthening the contact between the exporter and importer of rural migrant workers. Fourth, we will promote the employment of veterans.
On strengthening employment and entrepreneurship services and vocational training, 6 policies have been put forward. First, we will strengthen public employment and entrepreneurship service, improve public employment and entrepreneurship service system covering both rural and urban areas, and promote equal access to standardized and professional services. Second, we will accelerate the information technology development of public employment service, gradually set up a unified national framework for network-based employment management in which employment management and employment services are delivered by information technology for the whole process and employment information is released in a unified way. Third, we will strengthen human resources market building by eliminating various system barriers and employment discrimination hindering equal employment. Fourth, we will strengthen professional training and entrepreneurship training with emphasis on skill development for rural migrant workers and position transition training for the unemployed, and promote enterprises to conduct new apprenticeship training. Fifth, we will improve the joint action mechanism of unemployment insurance, social assistance and employment, and allow the deduction of necessary employment cost when calculating the family income of the employed or self-employed persons subject to the minimum living allowances. Sixth, we will improve unemployment register regulation. As a result, regular residents in urban areas can enjoy access to equalized public employment services and inclusive employment policy through unemployment register in the regular residence.
In addition, on strengthening organization and leadership, local governments are required to improve coordination mechanism, carry out the target responsibility system, guarantee fund input, improve employment and entrepreneurship statistics monitor system and so on.