Secretary-general of China Association of Social Security

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1 Secretary-general of China Association of Social Security
Disclaimer: The views expressed in this document are those of the author, and do not necessarily reflect the views and policies of the Asian Development Bank (ADB), its Board of Directors, or the governments they represent. ADB does not guarantee the accuracy of the data included in this document, and accept no responsibility for any consequence of their use. By making any designation or reference to a particular territory or geographical area, or by using the term “country” in this document, ADB does not intend to make any judgments as to the legal or other status of any territory or area. A study of the Chinese Minimum Living Standard and compensation mechanism Yang LiXiong Secretary-general of China Association of Social Security Professor of China Social Security Research Center of Renmin University of China

2 In 1993，The system of MLSS was set up in Shanghai
The Minimum Living Standard System (MLSS) was set up to serve the reform of state-owned enterprises at first. it has been developed to be a nationwide social assistance system In 1993，The system of MLSS was set up in Shanghai In 1996， The system of MLSS was promoted across the nation In 1999，Regulation on MLSS for urban residents was enacted by the State Council In 2007，The notice about establishing rural MLSS

3 The number of people that the Minimum Living Standard System (MLSS) can ensure includes three stages,they are rapid growth,steady development and decline gradually. infection point The number of people that MLSS can ensure in urban areas The number of people that MLSS can ensure in rural areas Million infection point Data sources:(1)National Bureau of Statistics of the People's Republic of China China statistical yearbook of 2014 (2)Ministry of Civil Affairs of the People's Republic of China Social service development statistical report of 2014 (3)Ministry of Civil Affairs of the People's Republic of China Rural MLSS data above county among the nation in August,2015 Urban MLSS data above county among the nation in August,2015

4 Food expenditure: food, edible oil, vegetables, meat, eggs milk
At the beginning, local governments used different ways to calculate the standard , and most areas did not establish a scientific calculation method Article 6 of Regulation on MLSS for urban residents‘the standard of MLSS for urban residents should be designed to sustain the urban residents’ basic life in accordance with the local costs of food, clothing, housing, and the fee of coal (gas), water and electricity and costs of the education of minors’ Food expenditure: food, edible oil, vegetables, meat, eggs milk Clothes expenditure: clothing, shoes and hats, etc. Housing expenditure Other necessities : water, electricity, gas, etc.

5 Calculation method in various regions
Basket baggage Engle's Ratio Ratio related to income and the minimum wage Way of life Comparative method (compared with the adjacent areas)

6 The adjustment of MLSS Linked to income Linked to price
Referring to both income and prices Most have no normal adjustment mechanism

7 Method of basic living expenses
The Ministry of Civil Affairs standardized the calculation method of MLSS and recommended three methods to local governments in 2011 2011,The guidance of standardize the formulation of the standard of MLSS and its adjustment Method of basic living expenses expense of essential food consumption + expense on non food necessities Engle's Ratio Method necessary food consumption expenditure/ Engel's coefficient of the families with lowest income last year Method of consumption expenditure consumption expenditure per capita of loca urban and rural residents last year × proportion of MLSS accounting for consumption expenditure per capita of urban and rural residents

8 Calculation method after standardization
Recent surveys show that most local governments began adopting these methods, and gradually establish a mechanism of adjustment Calculation method after standardization Method of basic living expenses:Jilin, Jiangxi, Hainan, Chongqing, Yunnan, etc Engle's Ratio Method: Beijing, Shanghai, Shijiazhuang in Hebei province, etc Method of the ratio of consumption expenditure: Liaoning, Shandong, Hubei, Guangdong, Guangxi and Sichuan, Gansu, Xinjiang, some cities and counties in Ningxia Adjustment of MLSS Linked to the consumption: hubei, gansu, etc Linked to the minimum wage: zhejiang, fujian, hunan, etc Linked to income: jiangsu, etc source ： Department of social assistance, Civil Affairs ,“Report about the standard of MLSS”

9 The average minimum living standard maintain a steady growth, but the gap is widening in rural areas
Data source: finishing data according to the guarantee standard announced by the Ministry of civil affairs of the people‘s Republic of China.

10 The average minimum living standard in urban areas maintains steady growth, and each area remains synchronized Data source: finishing data according to the guarantee standard announced by the Ministry of civil affairs of the people‘s Republic of China.

11 Reforming the standard setting and specify the responsibility of central and local government
Central government Establishing a universal national standard (e.g. relating to the poverty line) Providing financial support to meet the national minimum standard Local governments（at the province level） Setting local standards on the base of national standard and taking into view of local economic and social development Providing financial support to meet the local standards

12 China's MLSS adopts a compensation mechanism
China's MLSS adopts a compensation mechanism. That is, the difference between the family income and the minimum living standard is provided to increase the family income to the minimum living standard Income Non poor Minimum living security line Poor Compensation gap Number of people

13 The fairness of the system depends on the check of family income and property
Main content Income Property Main methods Household survey Neighborhood visits Document and other evidence Method innovation Electronic information support Democratic appraisal Source: Taizhou evening news October 11, 2012, A05

14 The income reporting system is not perfect
But the checking of family income and property is facing many difficulties, and the accuracy of targeting needs to be improved. No method The transition from traditional acquaintance society to a stranger society challenges the application of means tested method The income reporting system is not perfect The deficiency of income monitoring: informal employment, agriculture, cash transactions Income and property in different places

15 Continued Difficult to be quantified Small business Farming
The value of some property are difficult to be calculated (such as antiques, calligraphy and painting) costs Management costs: household survey, investigation in places other than hometown Time costs: long waiting time

16 Data shows that the accuracy of the family income investigation in urban residents needs to be improved Table :Ranking of urban income per capita and means tested income Province Urban disposable income per capita Income Per capita ranking Means tested income ranking Gap between two rankings Means tested Income Beijing 2 3.24 31 29 Shanghai 1 157.36 7 6 Hebei 24 183.68 22 Hainan 15 148.62 9 Heilongjiang 142.49 12 17 Fujian 139.61 13 Chongqing 11 78 28 Liaoning 15624 135.42 Tibet 161.5 16 Yunnan 19 85.79 25 Guizhou 26 148.34 10 Tianjin 142.75 5 Guangdong 104.12 21 Jilin 65.48 30 Jiangxi 153.37 8 Ningxia 87.43 4 Inner Mongolia 15122 108.6 20 Gansu 11243 78.13 27 Hubei 181.14 3 Jiangsu 196.37 Hunan 99.59 Shandong 161.77 Xinjiang 71.48 Shanxi 136.53 14 12274 117.49 Anhui 122.19 Guangxi 18 78.2 Sichuan 119.53 Henan 23 123.68 Zhejiang 22640 175.32 Qinghai 93.51 Data source: "Chinese monthly statistics in September 2015"　

17 The checking of Rural household income is more reliable
Table :Ranking of rural income per capita and means tested income area rural disposable income per capita Income per capita ranking Means tested income ranking Gap between two rankings Tibet 2521.3 30 105.97 13 17 Hainan 6167.4 10 151.38 6 4 Inner Mongolia 4345.8 23 115.35 Hunan 5086.2 16 84.83 20 Guizhou 3112.9 28 94.02 15 Ningxia 3426.4 26 81.77 22 Chongqing 5194.1 59.08 Guangdong 6865.8 8 164.30 5 3 Hubei 4956.4 149.77 7 Shanxi 4388.2 66.68 25 Qinghai 3284.7 27 90.77 Tianjin 9662.2 250.36 2 Sichuan 5318.5 14 74.09 24 Jiangsu 8713.4 228.84 Henan 4627.7 51.91 29 9 Zhejiang 186.69 Gansu 2984.8 84.02 21 Liaoning 7122.7 118.84 Guangxi 4844 19 60.97 Heilongjiang 4882 18 93.63 Jiling 5707.8 12 87.22 Jiangxi 4556.1 74.76 Shandong 7232.1 106.23 4178.1 65.01 Beijing 139.78 Shanghai 1 295.47 Fujian 6520 96.98 Anhui 5723.6 11 106.50 Hebei 5682.1 90.12 Xinjiang 1378 31 35.91 Yunnan 3486.8 47.28 Data source: “Chinese monthly statistics in September 2015"　

18 Reform the means tested method and use proxy indicators
proxy indicators such as the number of children (or children under 5 years old), the age of family members, pregnancy or breast-feeding women, female heads of households, the number of children, place of residence, etc., are easy to be observed and measured. They are also highly relevant with family income . Advantages: simple and easy, reducing the costs of management greatly especially suitable for developing countries

19 Proxy indicators Dimensions Weight（%） Indicators Assignment
Education and employment 30 Level of adult Education Less than 6 years of education =0, more than 6 years of education =1 Education of school age children In school =0, Not =1 people supported by the employed member Less than or equal to 1=0, greater than 1=1 Health 20 Disabled No=0，Yes=1 Chronic diseases Self-care ability Self-care completely=0 others=1 Living conditions 50 power consumption per capita monthly More than 15 RMB=0, less than or equal to 15RMB=1 Housing structure Brick =0, others =1 housing spaces per capita More than 25 square meters =0, less than or equal to 25 square meters =1 Dangerous houses Domestic water Tap water =0, other =1 Life fuel Clean energy (gas, electricity) =0, other =1 toilet Independent toilet =0, non independent toilet =1 Flushing of the toilet Yes=0,No=1 Communication / transportation necessities non- necessities

20 Grant allowances according to poverty level
Income Non poor Minimum living security line  50% standar Low-income 100% standard 75% standar poverty Extreme poverty population

21 The end Thanks

22 杨立雄 中国社会保障学会 秘书长 中国人民大学中国社会保障研究中心 教授 2015-12-7
中国最低生活保障标准 与补差研究 杨立雄 中国社会保障学会 秘书长 中国人民大学中国社会保障研究中心 教授

23 最低生活保障起初是为国有企业改革服务而建立起来的，后变成全民保障的基本制度
1993年，上海市最先建立最低生活保障制度 1996年，在全国范围推开最低生活保障制度 1999年，国务院颁布《城市居民最低生活保障条例》 2007年，《国务院关于在全国建立农村最低生活保障制度的通知》

24 最低生活保障人数经历了快速增长、平稳发展和逐步下降的三个阶段
数据来源: (1)中华人民共和国统计局，《中华人民共和国年鉴2014》 (2)中华人民共和国民政部，《2014年社会服务发展统计公报》 （3）中华人民共和国民政部，《2015年8月份全国县以上农村低保数据》、《 2015年8月份全国县以上城镇低保数据》

25 在最低生活保障建立之初，各地按不同的方法计算保障标准，多数地方并没有建立科学的计算方法
《城市居民最低生活保障条例》第六条规定：“城市居民最低生活保障标准，按照当地维持城市居民基本生活所必需的衣、食、住费用，并适当考虑水电燃煤(燃气)费用以及未成年人的义务教育费用确定。” 食物支出:粮食、食用油、蔬菜及制品、肉禽蛋奶水产品及制品等 衣物支出：服装、鞋帽等 住房支出 其他生活必需品支出：水、电、燃气等 各地的计算方法 市场菜篮法 恩格尔系数法 比例法（与收入挂钩，与最低工资挂钩） 生活形态法 比较法（与邻近区域比较） 最低生活保障标准的调整 与收入挂钩 与物价挂钩 参考收入和物价 多数没有正常的调整机制

26 2011年，民政部规范了最低生活保障标准计算方法，向地方政府推荐了三种方法
2011年，《关于进一步规范城乡居民最低生活保障标准制定和调整工作的指导意见》 基本生活费用支出法 低保标准＝必需食品消费支出+非食品类生活必需品支出 恩格尔系数法 低保标准＝必需食品消费支出/上年度最低收入家庭恩格尔系数 消费支出比例法 低保标准＝当地上年度城乡居民人均消费支出×低保标准占上年度城乡居民人均消费支出的比例

27 从最近的调查看，多数地方政府开始采纳这些方法，并逐步建立正常的调整机制
规范后的计算方法 基本生活费用支出法：吉林、江西、海南、重庆、云南等 恩格尔系数法：北京、上海和河北省石家庄市等 消费支出比例法：辽宁、山东、湖北、广东、广西、甘肃、新疆和四川、宁夏的部分市县 保障标准的调整 与消费挂钩：湖北、甘肃等 与最低工资挂钩：浙江、福建、湖南等 与收入挂钩：江苏等 材料来源：民政部社会救助司，“最低生活保障标准法定量化调研报告”，

28 各地农村平均最低生活保障标准保持平稳增长，但是各地的差距正在拉大
数据来源：根据中华人民共和国民政部公布的保障标准整理而得，

29 各地城镇平均最低生活保障标准也在保持平稳增长，且各地基本保持同步
数据来源：根据中华人民共和国民政部公布的保障标准整理而得，

30 建议对最低生活保障标准管理体制改革，划清中央和地方责任
中央政府 建立全国统一的最低保障标准（如以扶贫线为标准） 承担最低保障标准的财政支出 地方政府（省级） 基于地方经济和社会发展情况，在全国标准之上制定地方标准 承担地方标准的财政支出

31 中国最低生活保障实行补差制度，即设定最低生活保障标准后，根据家庭人均收入给予补偿，使其达到最低生活保障线
非 穷 人 最低生活保障线 补差额 人数

32 这种制度的公正性依赖于精确的家计调查 主要内容 主要手段 手段创新 收入 财产 入户调查 邻里访问 信函索证 电子信息比对系统 民主评议
图片来源：《泰州晚报》2012年10月11日，A05

33 但是家计调查面临重重困难，目标定位的准确度有待提高
没有手段 从熟人社会正走向陌生人社会：传统的家计调查手段无法适应 收入申报体系不完善 大量人口游离于收入监控之外：大量非正规就业，大量的农业人口，大量的现金交易 在异地的收入和财产 无法量化 小本经营性收入（包税制） 种植养殖养收入 财产无法计算（如古董、字画） 越来越高的成本 管理成本：上门核查、异地调查 时间成本：等待时间长

34 数据表明，城镇低保家计调查的准确度有待提高
表 城镇人均收入与低保家计调查收入的排名情况 地区 城镇人均可支配收入 人均收入排名 家计调查收入 家计调查收入排名 两种排名的差距 北京 2 3.24 31 29 上海 1 157.36 7 6 河北 24 183.68 22 海南 15 148.62 9 黑龙江 142.49 12 17 福建 139.61 13 重庆 11 78 28 辽宁 15624 135.42 西藏 161.5 16 云南 19 85.79 25 贵州 26 148.34 10 天津 142.75 5 广东 104.12 21 吉林 65.48 30 江西 153.37 8 宁夏 87.43 4 内蒙古 15122 108.6 20 甘肃 11243 78.13 27 湖北 181.14 3 江苏 196.37 湖南 99.59 山东 161.77 新疆 71.48 陕西 136.53 14 山西 12274 117.49 安徽 122.19 广西 18 78.2 四川 119.53 河南 23 123.68 浙江 22640 175.32 青海 93.51 数据来源:《中国统计月报2015年9月》　 说明：城镇人均可支配收入为2015年1-6月累计收入，家计调查收入=最低生活保障标准-人均低保支出标准

35 农村低保家庭的数据更符合实际情况 表 农村人均收入与低保家计调查收入的排名情况 地区 农村人均可支配收入 农村人均收入排名 家计调查收入
表 农村人均收入与低保家计调查收入的排名情况 地区 农村人均可支配收入 农村人均收入排名 家计调查收入 家计调查收入排名 两种排名的差距 西藏 2521.3 30 105.97 13 17 海南 6167.4 10 151.38 6 4 内蒙古 4345.8 23 115.35 湖南 5086.2 16 84.83 20 贵州 3112.9 28 94.02 15 宁夏 3426.4 26 81.77 22 重庆 5194.1 59.08 广东 6865.8 8 164.30 5 3 湖北 4956.4 149.77 7 陕西 4388.2 66.68 25 青海 3284.7 27 90.77 天津 9662.2 250.36 2 四川 5318.5 14 74.09 24 江苏 8713.4 228.84 河南 4627.7 51.91 29 9 浙江 186.69 甘肃 2984.8 84.02 21 辽宁 7122.7 118.84 广西 4844 19 60.97 黑龙江 4882 18 93.63 吉林 5707.8 12 87.22 江西 4556.1 74.76 山东 7232.1 106.23 山西 4178.1 65.01 北京 139.78 上海 1 295.47 福建 6520 96.98 安徽 5723.6 11 106.50 河北 5682.1 90.12 新疆 1378 31 35.91 云南 3486.8 47.28 数据来源:《中国统计月报2015年9月》　 说明：农村人均可支配收入为2015年1-6月累计收入，家计调查收入=最低生活保障标准-人均低保支出标准

36 建议改革家计调查方法，用代理家计调查取代之
代理家计调查不核实家庭收入，而采用一个或多个替代性的指标，如家庭中儿童数（或5岁以下的儿童）、家庭成员的年龄分布、怀孕或哺乳的妇女、女性户主、学龄女童、拥有的土地数量、家庭居住地等，这些指标易于观察和测量，且与家庭收入高度相关 优点：简单易行，大大降低管理成本，尤其适合发展中国家。

37 完全自理=0，完全不能自理或部分不能自理=1
代理家计调查指标设计 维度 权重（%） 指标 赋值 教育就业 30 成年人受教育程度 受教育年限小于6年=0，受教育年限大于6年=1 学龄儿童教育 在学=0，未在学=1 家庭就业人口负担率 小于或等于1=0，负担率大于1=1 健康 20 残疾 否=0，是=1 慢性病 无=0，有=1 自理能力 完全自理=0，完全不能自理或部分不能自理=1 生活形态 50 月人均用电量 大于15元=0，小于或等于15元=1， 住房结构 砖混=0，其它=1 人均住房面积 大于25平米=0，小于或等于25平米=1 危房 非危房=0，危房=1 生活用水 自来水=0，其它=1 生活燃料 清洁能源（燃气、电）=0，其它=1 独立卫生间或厕所 独立厕所=0,非独立厕所=1 厕所冲水 有=0,无=1 通讯/交通 有=0，没有=1 生活必需品 生活非必需品

38 按贫困等级发放补助额 收入 非 穷 人 最低生活保障线 50%标准 低收入 100%标准 75%标准 贫困 赤贫 人数

39 到此结束 谢谢