国务院出台新形势下就业创业政策
(2015年4月24日)
人力资源和社会保障部
就业状况是经济运行的“晴雨表”，事关经济发展和民生改善。中国政府将就业作为民生之本，作为宏观调控的重要目标，实施就业优先战略和积极的就业政策，通过稳增长、调结构促进就业，通过深化改革、推动大众创业、万众创新来带动就业，通过完善政策、强化服务来帮助困难群体就业。今年一季度，全国城镇新增就业324万人，城镇登记失业率维持在4.05%的较低水平。高校毕业生、农村转移劳动力、城镇就业困难人员等群体就业取得新进展。
在我国经济发展新常态下，就业总量压力依然存在，就业结构性矛盾更加凸显。面对新的就业形势，必须着力培育大众创业、万众创新的新引擎，继续坚持扩大就业发展战略，深入实施更加积极的就业政策，把创业和就业结合起来，以创业创新带动就业，催生经济社会发展新动力，为促进民生改善、经济结构调整和社会和谐稳定提供新动能。
为研究做好新形势下就业创业工作，按照国务院部署，去年以来，有关部门在认真分析形势、开展调研评估、广泛听取意见基础上，形成了关于进一步做好新形势下就业创业工作的意见稿，4月21日国务院第89次常务会原则通过。该意见从深入实施就业优先战略、积极推进创业带动就业、统筹做好高校毕业生等重点群体就业、加强就业创业服务和职业培训、强化组织领导等五方面，对进一步做好就业创业工作进行了全面部署，提出了多项更具力度、更富含金量的政策措施。
在深入实施就业优先战略方面，提出4项政策。一是坚持扩大就业发展战略，把稳定和扩大就业作为经济运行合理区间的下限，将城镇新增就业、调查失业率作为宏观调控重要指标。二是发展吸纳就业能力强的产业，创新服务业发展模式和业态，推进产业转型升级，培养新型职业农民。三是发挥小微企业就业主渠道作用，对小微企业提供金融、税收等支持。四是积极预防和有效调控失业风险，落实调整失业保险费率政策，减轻企业和个人负担。将失业保险基金支持企业稳岗政策扩大到所有依法参保缴费、不裁员或少裁员的企业。
在积极推进创业带动就业方面，提出8项政策。一是营造宽松便捷的准入环境。深化商事制度改革，落实注册资本登记制度改革，支持各地放宽新注册企业场所登记条件限制，推动“一址多照”、集群注册等改革。二是培育创业创新公共平台，总结推广各类新型孵化模式，加快发展众创空间，鼓励地方盘活闲置厂房等提供低成本的创业场所。三是创新创业投融资渠道，支持风险投资、创业投资、天使投资等发展。加快设立国家中小企业发展基金和国家新兴产业创业投资引导基金。四是支持创业担保贷款发展。将小额担保贷款调整为创业担保贷款，最高额度由10万元或不足10万元统一调为10万元，个人贷款在贷款基础利率基础上上浮3个百分点以内的部分由财政贴息并简化手续。五是加大减税降费力度，将企业吸纳就业税收优惠的人员范围由失业一年以上调整为失业半年以上，高校毕业生、登记失业人员创办个体工商户、个人独资企业可依法享受税收减免政策。推广职工教育经费税前扣除等试点政策。六是调动科研人员创业积极性。支持高校、科研院所等专业技术人员在职和离岗创业，对经同意离岗的可在3年内保留人事关系。七是鼓励农村劳动力创业。发展农民工返乡创业园，支持农民网上创业。八是营造大众创业良好氛围。培育创业文化。对劳动者创办社会组织、从事网络创业的，给予创业扶持政策。
在统筹推进高校毕业生等重点群体就业方面，提出4项政策。一是鼓励高校毕业生多渠道就业。将小微企业新招用毕业年度高校毕业生享受1年社保补贴政策，由原定执行到今年底改为长期执行。将困难毕业生求职补贴调整为求职创业补贴，对象范围扩展到获得国家助学贷款的毕业生，功能扩展到支持创业。整合发展高校毕业生就业创业基金，为毕业生就业创业提供支持。二是加大困难人员就业援助，确保零就业家庭、最低生活保障家庭等困难家庭至少有一人就业。三是推进农村劳动力转移就业,完善职业培训、就业服务、劳动维权“三位一体”的工作机制，加强农民工输出输入地劳务对接。四是促进退役军人就业。
在加强就业创业服务和职业培训方面，提出6项政策。一是强化公共就业创业服务，健全覆盖城乡的公共就业创业服务体系，提高服务均等化和标准化、专业化水平。二是加快公共就业服务信息化，逐步形成全国一体化的就业信息化格局，实现就业管理和就业服务工作全程信息化，各类就业信息统一发布。三是加强人力资源市场建设，消除各类影响平等就业的制度障碍和就业歧视。四是加强职业培训和创业培训，重点实施农民工职业技能提升和失业人员转业转岗培训，支持企业开展新型学徒制培训。五是健全失业保险、社会救助与就业的联动机制，允许实现就业或自主创业的最低生活保障对象在核算家庭收入时，扣减必要的就业成本。六是完善失业登记办法，城镇常住人员可在常住地进行失业登记，获得均等化的公共就业服务和普惠性就业政策。
此外，在强化组织领导方面，要求各地健全协调机制，落实目标责任制，保障资金投入，健全就业创业统计监测体系等。
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.
