One of the more interesting effects of the dynamic state of U.S.-Chinese trade relations is its effects on labor and employment. While the Western press has sought to highlight these effects as part of their sustained criticism (and some defense) of the Trump Administration's policies (see, e.g., here, here, here, here, and here), Western media elements have been far less concerned about possible effects on the labor and employment situation in China.
CNN, however, recently reported on Chinese official's efforts to avoid large scale unemployment that has resulted from a cluster of factors tied to the effoprts, now several years old, to reshape the rulea and context of global trade (China is really worried about unemployment. Here's what it's doing to avoid mass layoffs).
Beijing has made clear that the world's second largest economy cannot spiral into a slump and risk mass layoffs as it tangles with rising debt, cooling domestic demand and an ongoing trade war with the United States. . . .In recent weeks, the government has bombarded the economy with a wave of stimulus measures, from tariff reductions that could help soothe the pain from rising prices, to rate cuts that could fuel more bank lending. . . Authorities are also amping up the language they're using to describe the situation. China's State Council last month called on local governments to "go to all lengths" to prevent massive job losses this year — what it characterized as the country's top policy priority. . . While China's official unemployment data has barely budged over the last several years, hovering between 4% and 5%, Beijing's messaging suggests that it is unusually worried about the slowing economy and the challenges that the year could bring. "Beijing is much more worried about social unrest than about ballooning local debt, which at one point seemed to be a priority, " said David Zweig, director of Transnational China Consulting Limited and a professor emeritus at the Hong Kong University of Science and Technology (Ibid.)
The reference to the State Council actions in the CNN reporting relates to a recently published set of guidelines issues by the Chinese State Council: 国务院关于进一步做好稳就业工作的意见 [Opinions of the State Council on Further Improving Employment Stability] No. 28 Release date: December 24, 2019
This post includes the text of the State Council Opinion in the original Chinese along with a crude English translation. Several points are worth considering as one reads through the text. The Opinion is organized into seven key elements, each subdivided into specific guidance; (1) a brief set of general requirements in one paragraph; (2) "support enterprises to stabilize their positions;" (3) "develop more jobs;" (4) "promote multi-channel employment and entrepreneurship for workers;" (5) "promote large-scale vocational skills training;" (6) "practical employment and entrepreneurship services;" and (7) "do a good job in basic living security." Beyond the expected directions to subsidize public sector enterprises, much of the guidance mirrors what one would expect to see as policy responses in liberal democratic developed states. But the form of the approaches to ameliorating job losses might mask some underlying differences --especially with respect to the role of the state rather than of markets in creating the conditions, including the macro and micro financial conditions to expand and redirect labor productivity. Recall that the State Council Guidance is directed to "People's
governments of provinces, autonomous regions, and municipalities
directly under the Central Government, ministries and commissions of the
State Council, and agencies directly under the State Council." Here one begins t see more clearly the way that markets play an important but different role within Marxist Leninist systems than they might in the West. Left without discusison, as is usual in such documents, are issues of coordination, and capacity (with respect to which ¶ 10 proves interesting). I leave the more detailed study to those interested but welcome more discussion.
国发〔2019〕28号
各省、自治区、直辖市人民政府，国务院各部委、各直属机构：
就业是民生之本、财富之源。当前我国就业形势保持总体平稳，但国内外风险挑战增多，稳就业压力加大。为全力做好稳就业工作，现提出以下意见。
一、总体要求
以习近平新时代中国特色社会主义思想为指导，全面贯彻党的十九大和十九届二中、三中、四中全会精神，坚持把稳就业摆在更加突出位置，强化底线思维，做实就业优先政策，健全有利于更充分更高质量就业的促进机制，坚持创造更多就业岗位和稳定现有就业岗位并重，突出重点、统筹推进、精准施策，全力防范化解规模性失业风险，全力确保就业形势总体稳定。
二、支持企业稳定岗位
（一）加大援企稳岗力度。阶段性降低失业保险费率、工伤保险费率的政策，实施期限延长至2021年4月30日。参保企业面临暂时性生产经营困难且恢复有望、坚持不裁员或少裁员的失业保险稳岗返还政策，以及困难企业开展职工在岗培训的补贴政策，实施期限均延长至2020年12月31日。
（二）加强对企业金融支持。落实普惠金融定向降准政策，释放的资金重点支持民营企业和小微企业融资。鼓励银行完善金融服务民营企业和小微企业的绩效考核激励机制，增加制造业中小微企业中长期贷款和信用贷款。对扩大小微企业融资担保业务规模、降低小微企业融资担保费率等政策性引导较强的地方进行奖补。发挥各级政府中小企业工作领导小组的协调作用，支持中小企业发展，增加就业。发挥各级金融监管机构作用，鼓励银行为重点企业制定专门信贷计划，对遇到暂时困难但符合授信条件的企业，不得盲目抽贷、断贷。
（三）引导企业开拓国内市场。完善省际间信息沟通、收益分享等机制，鼓励中西部和东北地区各类产业园区与东部产业转出地区加强对接，及时掌握有转移意愿的企业清单。推广工业用地长期租赁、先租后让、租让结合和弹性年期供应方式，降低物流和用电用能成本，有条件的地区可加大标准厂房建设力度并提供租金优惠，推动制造业跨区域有序转移。搭建跨部门综合服务平台，加强企业产销融通对接，重点支持相关企业对接国内各大电商平台和各行业、各区域大宗采购项目，支持企业拓展国内市场销售渠道。
（四）规范企业裁员行为。支持企业与职工集体协商，采取协商薪酬、调整工时、轮岗轮休、在岗培训等措施，保留劳动关系。对拟进行经济性裁员的企业，指导其依法依规制定和实施职工安置方案，提前30日向工会或全体职工说明相关情况，依法依规支付经济补偿，偿还拖欠的职工工资，补缴欠缴的社会保险费。
三、开发更多就业岗位
（五）挖掘内需带动就业。实施社区生活服务业发展试点，开展家政服务业提质扩容“领跑者”行动试点工作，深入推进家政培训提升行动和家政服务领域信用建设专项行动。加强旅游公共设施建设，推进区域医疗中心建设，开展支持社会力量发展普惠托育服务专项行动。支持养老服务业发展，通过政府购买服务等方式，支持养老服务机构向重点人群提供服务。鼓励汽车、家电、消费电子产品更新消费，有力有序推进老旧汽车报废更新，鼓励限购城市优化机动车限购管理措施。培育国内服务外包市场，支持行政事业单位、国有企业采购专业服务。
（六）加大投资创造就业。合理扩大有效投资，适当降低部分基础设施等项目资本金比例，加快发行使用地方政府专项债券，确保精准投入补短板重点项目。实施城镇老旧小区改造、棚户区改造、农村危房改造等工程，支持城市停车场设施建设，加快国家物流枢纽网络建设。深入实施新一轮重大技术改造升级工程。
（七）稳定外贸扩大就业。研究适时进一步降低进口关税和制度性成本，扩大出口信用保险覆盖面、合理降低保费，确保审核办理正常退税平均时间在10个工作日以内。发挥行业协会、商会、中介机构等作用，引导企业增强议价能力，鼓励提供公益法律服务。建设国际营销服务体系，加快跨境电子商务综合试验区建设，做大做强外贸综合服务企业。
（八）培育壮大新动能拓展就业空间。加快5G商用发展步伐，深入推进战略性新兴产业集群发展工程，加强人工智能、工业互联网等领域基础设施投资和产业布局。支持科技型企业开展联合技术攻关，完善首台（套）重大技术装备示范应用扶持政策，支持科技型企业到海外投资。加快落实促进平台经济规范健康发展的指导意见，促进新产业新业态新模式快速发展。
四、促进劳动者多渠道就业创业
（九）鼓励企业吸纳就业。降低小微企业创业担保贷款申请条件，当年新招用符合条件人员占现有职工比例下调为20%，职工超过100人的比例下调为10%。对企业吸纳登记失业半年以上人员就业且签订1年以上劳动合同并按规定缴纳社会保险的，有条件的地区可给予一次性吸纳就业补贴，实施期限为2020年1月1日至12月31日。
（十）扶持创业带动就业。持续推进简政放权、放管结合、优化服务改革，进一步优化营商环境，鼓励和支持更多劳动者创业创新。加大创业担保贷款政策实施力度，建立信用乡村、信用园区、创业孵化示范载体推荐免担保机制。实施“双创”支撑平台项目，引导“双创”示范基地、专业化众创空间等优质孵化载体承担相关公共服务事务。鼓励支持返乡创业，年度新增建设用地计划指标优先保障县以下返乡创业用地，支持建设一批农民工返乡创业园、农村创新创业和返乡创业孵化实训基地，建设一批县级农村电商服务中心、物流配送中心和乡镇运输服务站。实施返乡创业能力提升行动，加强返乡创业重点人群、贫困村创业致富带头人、农村电商人才等培训培育。对返乡农民工首次创业且正常经营1年以上的，有条件的地区可给予一次性创业补贴。
（十一）支持灵活就业和新就业形态。支持劳动者通过临时性、非全日制、季节性、弹性工作等灵活多样形式实现就业。研究完善支持灵活就业的政策措施，明确灵活就业、新就业形态人员劳动用工、就业服务、权益保障办法，启动新就业形态人员职业伤害保障试点，抓紧清理取消不合理限制灵活就业的规定。对就业困难人员享受灵活就业社会保险补贴政策期满仍未实现稳定就业的，政策享受期限可延长1年，实施期限为2020年1月1日至12月31日。
（十二）加强托底安置就业。加大对就业困难人员的就业援助力度，鼓励围绕补齐民生短板拓展公益性岗位。对从事公益性岗位政策期满仍未实现稳定就业的，政策享受期限可延长1年，实施期限为2020年1月1日至12月31日。在农村中小型基础设施建设、农村危房改造中实施以工代赈，组织建档立卡贫困人口参与工程项目建设。
（十三）稳定高校毕业生等青年就业。继续组织实施农村教师特岗计划、“三支一扶”计划等基层服务项目。公开招聘一批乡村教师、医生、社会工作者充实基层服务力量。扩大征集应届高校毕业生入伍规模。扩大就业见习规模，适当提高补贴标准，支持企业开发更多见习岗位。
五、大规模开展职业技能培训
（十四）大力推进职业技能提升行动。落实完善职业技能提升行动政策措施，按规定给予职业培训补贴和生活费补贴。针对不同对象开展精准培训，全面开展企业职工技能提升培训或转岗转业培训，组织失业人员参加技能培训或创业培训，实施农民工、高校毕业生、退役军人、建档立卡贫困人口、残疾人等重点群体专项培训计划。支持职业院校（含技工院校）积极承担相应培训任务。
（十五）扩大技能人才培养培训规模。推进落实职业院校奖助学金调整政策，扩大高职院校奖助学金覆盖面、提高补助标准，设立中等职业教育国家奖学金。推进各地技师学院、技工学校纳入职业教育统一招生平台。组织城乡未继续升学的初高中毕业生、20岁以下有意愿的登记失业人员参加劳动预备制培训，按规定给予培训补贴，对其中的农村学员和困难家庭成员给予生活费补贴，实施期限为2020年1月1日至12月31日。
（十六）加强职业培训基础能力建设。启动国家产教融合建设试点，加强公共实训基地和产教融合实训基地建设。支持各类企业和职业院校（含技工院校）合作建设职工培训中心、企业大学和继续教育基地，鼓励设备设施、教学师资、课程教材等培训资源共建共享。实施新职业开发计划，加大职业技能标准和职业培训包开发力度，建立急需紧缺职业目录编制发布制度。
六、做实就业创业服务
（十七）推进就业服务全覆盖。劳动年龄内、有劳动能力、有就业要求、处于失业状态的城乡劳动者可在常住地进行失业登记，申请享受基本公共就业服务。健全就业信息监测系统，开放线上失业登记入口，实现失业人员基本信息、求职意愿和就业服务跨地区共享。加强重大项目、重大工程、专项治理对就业影响跟踪应对，对涉及企业关停并转的，主管部门要及时将企业信息提供给当地人力资源社会保障部门；对可能造成规模性失业的，要同步制定应对措施。
（十八）加强岗位信息归集提供。政府投资项目产生的岗位信息、各方面开发的公益性岗位信息，在本单位网站和同级人力资源社会保障部门网站公开发布。健全岗位信息公共发布平台，市级以上公共就业人才服务机构要在2020年3月底前实现岗位信息在线发布，并向省级、国家级归集，加快实现公共机构岗位信息区域和全国公开发布。
（十九）强化常态化管理服务。实施基层公共就业服务经办能力提升计划，建立登记失业人员定期联系和分级分类服务制度，每月至少进行1次跟踪调查，定期提供职业介绍、职业指导、创业服务，推介就业创业政策和职业培训项目，对其中的就业困难人员提供就业援助。加强重点企业跟踪服务，提供用工指导、政策咨询、劳动关系协调等服务和指导。公共就业人才服务机构、经营性人力资源服务机构和行业协会提供上述服务的，有条件的地区可根据服务人数、成效和成本等，对其给予就业创业服务补助。
七、做好基本生活保障
（二十）更好发挥失业保险作用。对符合领取失业保险金条件的人员，及时发放失业保险金。对领取失业保险金期满仍未就业且距离法定退休年龄不足1年的人员，可继续发放失业保险金直至法定退休年龄。对失业保险金发放出现缺口的地区，采取失业保险调剂金调剂、地方财政补贴等方式予以支持。
（二十一）做好困难人员生活保障。对符合条件的生活困难下岗失业人员，发放临时生活补助。对生活困难的失业人员及家庭，按规定纳入最低生活保障、临时救助等社会救助范围。对实现就业的低保对象，可通过“低保渐退”等措施，增强其就业意愿和就业稳定性。
八、加强组织保障
（二十二）完善工作组织协调机制。县级以上地方政府要切实履行稳就业主体责任，建立政府负责人牵头、相关部门共同参与的工作组织领导机制，明确目标任务、工作责任和督促落实机制，统筹领导和推进本地区稳就业工作和规模性失业风险应对处置，压实促进就业工作责任。
（二十三）完善资金投入保障机制。积极投入就业补助资金，统筹用好失业保险基金、工业企业结构调整专项奖补资金等，用于企业稳定岗位、鼓励就业创业、保障基本生活等稳就业支出。有条件的地方可设立就业风险储备金，用于应对突发性、规模性失业风险。
（二十四）完善就业形势监测机制。持续抓好就业常规统计，提升数据质量和时效性，多维度开展重点区域、重点群体、重点行业、重点企业就业监测。加强移动通信、铁路运输、社保缴纳、招聘求职等大数据比对分析，健全多方参与的就业形势研判机制。
（二十五）完善突发事件处置机制。各地区要第一时间处置因规模性失业引发的群体性突发事件，防止矛盾激化和事态扩大。处置过程中，当地政府可根据需要与可能、统筹不同群体就业需求，依法依规制定临时性应对措施。
（二十六）完善舆论宣传引导机制。大力宣传党中央、国务院稳就业决策部署和支持就业创业政策措施，引导广大劳动者树立正确的劳动观、价值观，选树一批促进就业创业工作典型经验、典型人物，发掘一批在中西部和东北地区、艰苦边远地区、城乡基层就业创业的先进典型，及时开展表彰激励。牢牢把握信息发布和舆论引导主动权，做好舆情监测研判，建立重大舆情沟通协调和应急处置机制，消除误传误解，稳定社会预期。
国务院
2019年12月13日
（此件公开发布）
Opinions of the State Council on Further Improving Employment Stability
Guofa 〔2019〕 No. 28
People's governments of provinces, autonomous regions, and municipalities directly under the Central Government, ministries and commissions of the State Council, and agencies directly under the State Council:
Employment is the foundation of people's livelihood and the source of wealth. At present, China's employment situation remains generally stable, but risks at home and abroad have increased, and pressure to stabilize employment has increased. In order to make every effort to stabilize employment, the following opinions are put forward.
I. General requirements
Guided by Xi Jinping's ideology of socialism with Chinese characteristics in the new era, we will fully implement the spirit of the 19th National Congress of the CPC and the 2nd, 3rd, and 4th Plenary Sessions of the 19th National Congress of the Communist Party of China. Prioritize policies, improve the promotion mechanism that is conducive to more adequate and higher-quality employment, insist on creating more jobs and stabilizing existing jobs, highlight priorities, make overall plans, and implement precise measures, make every effort to prevent and resolve large-scale unemployment risks, and make every effort to ensure employment The situation is generally stable.
2. Support enterprises to stabilize their positions
(1) Increase the level of assistance to enterprises to stabilize their posts. The policy of gradually reducing the unemployment insurance premium rate and work injury insurance premium rate will be extended to April 30, 2021. The insured companies face temporary production and operation difficulties and are expected to recover. They insist on the unemployment insurance return policy of non-layoffs or fewer layoffs, as well as subsidy policies for the on-the-job training of employees in troubled enterprises. The implementation period is extended to December 31, 2020.
(2) Strengthen financial support for enterprises. The policy of inclusive finance targeted reduction was implemented, and the released funds focused on supporting private enterprises and small and micro enterprises to raise funds. Encourage banks to improve the performance evaluation and incentive mechanism for financial services private enterprises and small and micro enterprises, and increase medium and long-term loans and credit loans for small, medium and micro enterprises in the manufacturing industry. Reward and supplement the places with strong policy guidance, such as expanding the scale of small and micro enterprises 'financing guarantee business and reducing the small and micro enterprises' financing guarantee fees. Bring into play the coordinating role of the leading groups of SMEs at all levels of government to support the development of SMEs and increase employment. Give play to the role of financial supervisory agencies at all levels and encourage banks to formulate special credit plans for key enterprises. Enterprises that meet temporary difficulties but meet credit requirements must not blindly draw down loans or break loans.
(3) Guide enterprises to explore the domestic market. Improve inter-provincial information communication, revenue sharing and other mechanisms, encourage various industrial parks in the central and western regions and the northeastern region to strengthen docking with eastern industrial transfer regions, and keep a list of companies with a willingness to transfer in a timely manner. Promote long-term lease of industrial land, lease before sale, combination of lease and lease, and flexible term supply methods to reduce the cost of logistics and power consumption. Areas with conditions can increase the construction of standard factories and provide rental concessions to promote the cross-border manufacturing industry. Orderly transfer of regions. Establish an inter-departmental comprehensive service platform, strengthen the integration of production and sales facilities, focus on supporting relevant enterprises to connect with major domestic e-commerce platforms and major procurement projects in various industries and regions, and support enterprises to expand sales channels in the domestic market.
(4) Regulating enterprise layoffs. Support enterprises to negotiate collectively with their employees, adopt measures such as negotiating salary, adjusting working hours, rotating shifts, on-the-job training, and other measures to preserve labor relations. For enterprises that intend to make economic layoffs, guide them to formulate and implement employee resettlement programs in accordance with the law and regulations, explain the relevant situation to the union or all employees 30 days in advance, pay economic compensation in accordance with the law and regulations, repay arrears of employees' wages, and make up for the arrears. social Security fee.
3. Develop more jobs
(5) Excavation of domestic demand drives employment. We will implement pilot projects for the development of community living services, carry out the pilot work of the “leaders” in improving and expanding the domestic service industry, and further promote domestic training and promotion activities and special credit-building activities in the domestic service sector. Strengthen the construction of tourism public facilities, promote the construction of regional medical centers, and carry out special actions to support social forces in the development of inclusive education services. Support the development of the elderly service industry, and support the elderly service agencies to provide services to key groups through government purchase of services and other methods. Encourage the renewed consumption of automobiles, home appliances, and consumer electronics, vigorously and orderly promote the retirement and renewal of old cars, and encourage cities that restrict purchases to optimize management measures for vehicle purchase restrictions. Cultivate the domestic service outsourcing market and support administrative institutions and state-owned enterprises in purchasing professional services.
(6) Increase investment to create jobs. Reasonably expand effective investment, appropriately reduce the capital ratio of some infrastructure and other projects, speed up the issuance and use of local government special bonds, and ensure accurate investment in key short-term projects. We will implement projects such as urban old quarter renovation, shantytown renovation, and rural dilapidated house reconstruction, support the construction of urban parking facilities, and accelerate the construction of a national logistics hub network. In-depth implementation of a new round of major technological transformation and upgrading projects.
(7) Stabilizing foreign trade and expanding employment. Study to further reduce import tariffs and institutional costs in a timely manner, expand the coverage of export credit insurance, reduce premiums reasonably, and ensure that the average time for reviewing and processing normal tax refunds is within 10 working days. Give play to the role of industry associations, chambers of commerce, and intermediary agencies, guide enterprises to strengthen their bargaining power, and encourage the provision of public welfare legal services. Establish an international marketing service system, accelerate the construction of a comprehensive cross-border e-commerce pilot zone, and expand and strengthen comprehensive foreign trade service companies.
(8) Cultivate and expand new kinetic energy and expand employment space. Accelerate the pace of 5G commercial development, advance the development of strategic emerging industry clusters, and strengthen infrastructure investment and industrial layout in areas such as artificial intelligence and industrial Internet. Support science and technology enterprises to carry out joint technological research, improve the first (set) major technology equipment demonstration application support policy, and support science and technology enterprises to invest overseas. Accelerate the implementation of the guidance to promote the healthy development of the platform economy and promote the rapid development of new industries and new business models.
4. Promote multi-channel employment and entrepreneurship for workers
(9) Encourage enterprises to absorb employment. The requirements for small and micro enterprise entrepreneurship guarantee loans were reduced, and the proportion of newly recruited eligible employees in the current year was reduced to 20%, and the proportion of more than 100 employees was reduced to 10%. If an enterprise recruits employees who have been registered for unemployment for more than half a year and signed a labor contract for more than one year and pays social insurance in accordance with regulations, areas with conditions can grant a one-time employment subsidy. The implementation period is from January 1, 2020 to December 31, 2020. .
(10) Encourage entrepreneurship to drive employment. We will continue to promote simplified administration and decentralization, the combination of decentralization and management, and optimization of service reforms to further optimize the business environment and encourage and support more workers to start and innovate. Strengthen the implementation of the business guarantee loan policy, and establish a credit guarantee-free mechanism for credit villages, credit parks, and business incubation demonstration carriers. Implement the "Double Innovation" support platform project to guide high-quality incubation carriers such as the "Double Innovation" demonstration base and specialized crowd creation space to undertake relevant public service affairs. Encourage and support returnees to start a business, and the annual increase in construction land plan indicators will give priority to guaranteeing returnees' business start-up land below the county level, supporting the construction of a group of migrant workers returning home business parks, rural innovation and entrepreneurship, and returning home business incubation training bases to build a number of county-level Rural e-commerce service centers, logistics distribution centers, and township transportation service stations. We will implement actions to improve the ability to return home to start a business, and strengthen the training and cultivation of key people who return home to start a business, leaders in poverty-stricken villages to become rich, and entrepreneurs in rural areas. For those migrant workers who return to their hometown for the first time to start a business and operate normally for more than one year, one-off start-up subsidies may be granted in areas where conditions permit.
(11) Support flexible employment and new employment forms. Support laborers to achieve employment through flexible and diverse forms such as temporary, part-time, seasonal, and flexible work. Research and improve policies and measures to support flexible employment, clarify the measures for flexible employment, employment of new employment personnel, employment services, and rights protection, start pilots for occupational injury protection for new employment personnel, and step up efforts to clear and eliminate regulations that unreasonably restrict flexible employment. For those who are unable to find employment, the flexible employment social insurance subsidy policy has not yet achieved stable employment, the policy enjoyment period can be extended by one year, and the implementation period is from January 1, 2020 to December 31, 2020.
(12) Strengthening underemployment placement. We will increase employment assistance to those who are in difficulty in employment, and encourage the expansion of public welfare posts around the shortcomings of people's livelihood. For those who have failed to achieve stable employment after the expiration of the policy on engaging in public welfare posts, the policy enjoyment period can be extended by one year, and the implementation period is from January 1, 2020 to December 31, 2020. In the construction of small and medium-sized rural infrastructures and the reconstruction of dilapidated houses in rural areas, the implementation of “replacement by work” will be implemented, and the poor people will be organized to participate in the construction of the project.
(13) Stabilizing the employment of young people such as college graduates. Continue to organize and implement grassroots service projects such as the rural teacher special job plan and the "three support and one support" plan. Publicly recruit a group of rural teachers, doctors, and social workers to enrich grassroots service forces. Enlarge the enlistment of fresh college graduates. Expand the scale of employment apprenticeships, appropriately raise subsidy standards, and support enterprises to develop more apprenticeship positions.
5. Promote large-scale vocational skills training
(14) Vigorously promote vocational skills upgrading actions. Implement and improve policies and measures for vocational skills upgrading, and provide vocational training subsidies and living expenses subsidies in accordance with regulations. Carry out precise training for different objects, comprehensively carry out enterprise employee skills improvement training or job transfer training, organize unemployed people to participate in skills training or entrepreneurship training, implement migrant workers, college graduates, retired soldiers, file poor people, disabled people, etc. Special training plan for key groups. Support vocational colleges (including technical colleges) to actively undertake corresponding training tasks.
(15) Expand the scale of training of skilled personnel. Promote the implementation of policy adjustments for vocational colleges and scholarships, expand the coverage of vocational colleges and scholarships, increase subsidy standards, and establish national scholarships for secondary vocational education. Promote the inclusion of technical colleges and technical schools in various places into the unified enrollment platform for vocational education. Organize junior and high school graduates who have not continued their studies in urban and rural areas, and registered unemployed persons under the age of 20 who are willing to participate in the labor reserve training, provide training subsidies according to regulations, and provide living allowances to rural students and members of families with difficulties. From January 1st to December 31st.
(16) Strengthen basic vocational training capacity building. Start national pilots for the integration of production and education, and strengthen the construction of public training bases and integration of production and education training bases. Support all kinds of enterprises and vocational colleges (including technical colleges) to jointly build employee training centers, corporate universities, and continuing education bases, and encourage the joint construction and sharing of training resources such as equipment and facilities, teaching teachers, and course materials. Implement a new career development plan, increase the development of vocational skills standards and vocational training packages, and establish a system for the compilation and release of urgently needed occupation directories.
6. Practical employment and entrepreneurship services
(17) Promote full coverage of employment services. Urban and rural workers who are within working age, have working ability, have employment requirements, and are unemployed can register for unemployment at the place of habitual residence and apply for basic public employment services. Improve the employment information monitoring system, open the online unemployment registration entrance, and realize the sharing of basic information, job search willingness and employment services of unemployed people across regions. Strengthen the follow-up response to employment impacts of major projects, major projects, and special governance. For those enterprises that are shut down and transferred, the competent department should provide the enterprise information to the local human resources and social security department in a timely manner; those that may cause large-scale unemployment should be synchronized Develop response measures.
(18) Strengthen the collection and provision of post information. Post information generated by government investment projects and public service posts developed in various aspects are publicly posted on the website of the unit and the website of the human resources and social security department at the same level. We will improve the public information platform for job postings. Public employment personnel service agencies at or above the municipal level must post job information online by the end of March 2020, collect them at the provincial and national levels, and accelerate the regional and national public release of job site information.
(19) Strengthen normalized management services. Implement grassroots public employment service handling capacity improvement plan, establish regular contact and grading and classification service system for registered unemployed persons, conduct at least one follow-up survey every month, regularly provide job introduction, career guidance, entrepreneurship services, and promote employment and entrepreneurship policies and vocational training Project to provide employment assistance to those in need of employment. Strengthen the tracking services of key enterprises and provide services and guidance such as employment guidance, policy consulting, and labor relationship coordination. Where public employment personnel service agencies, operating human resource service agencies, and industry associations provide the above services, areas with conditions can grant employment and entrepreneurship service subsidies to them based on the number of people served, effectiveness and cost.
Seven, do a good job in basic living security
(20) Give better play to the role of unemployment insurance. Those who meet the conditions for receiving unemployment insurance benefits shall be paid timely. For those who have not been employed at the end of the unemployment insurance period and are less than one year away from the legal retirement age, they can continue to pay unemployment insurance up to the legal retirement age. In areas where there is a gap in the distribution of unemployment insurance, support will be provided through unemployment insurance adjustments and local financial subsidies.
(Twenty-one) Do a good job in providing security for those in need. For those laid-off and unemployed persons who have difficulties in living, they are granted temporary living allowances. Unemployed people and families with difficulties in living shall be included in the scope of social assistance such as minimum living security and temporary assistance. For those who have achieved the minimum living standard for employment, they can strengthen their employment willingness and employment stability through measures such as "gradual retirement of the minimum living standard".
Strengthening organizational security
(22) Improve the coordination mechanism of work organization. Local governments at or above the county level must effectively fulfill the responsibility of stabilizing the subject of employment, establish a working organization and leadership mechanism led by government officials and jointly participate in relevant departments, clarify target tasks, job responsibilities, and supervise the implementation mechanism, and co-ordinate the leadership and promotion of stable employment in the region. Large-scale unemployment risks should be dealt with, and the responsibility for promoting employment should be consolidated.
(23) Improve the guarantee mechanism for capital investment. Actively invest in employment subsidy funds, and make good use of unemployment insurance funds and special incentives and supplementary funds for structural adjustment of industrial enterprises, etc., to stabilize employment positions, encourage employment and entrepreneurship, and ensure basic living and other employment expenditures. Where conditions permit, employment risk reserves can be set up to deal with sudden and large-scale unemployment risks.
(24) Improve the employment situation monitoring mechanism. We will continue to focus on routine employment statistics, improve data quality and timeliness, and carry out multi-dimensional employment monitoring in key regions, key groups, key industries, and key enterprises. Strengthen the comparison and analysis of big data such as mobile communications, railway transportation, social security payment, recruitment and job search, and improve the employment situation research and judgment mechanism involving multiple parties.
(25) Improve emergency response mechanisms. All regions should deal with mass emergencies caused by large-scale unemployment as soon as possible to prevent the intensification of conflicts and the expansion of events. During the disposal process, the local government can coordinate the employment needs of different groups according to needs and possibilities, and formulate temporary response measures in accordance with laws and regulations.
(26) Improve the mechanism of public opinion and propaganda. Vigorously propagate the Party Central Committee and the State Council's employment decision-making and support policies and measures to support employment and entrepreneurship, guide the majority of workers to establish a correct labor concept and values, select a group of typical experiences and typical people to promote employment and entrepreneurship, and find a group of people in the Midwest and The advanced models of employment and entrepreneurship at the grassroots level in the Northeast, hard and remote areas, and urban and rural areas should be commended and encouraged in a timely manner. Firmly grasp the initiative of information release and public opinion guidance, do a good job of public opinion monitoring and judgment, establish a major public opinion communication coordination and emergency response mechanism, eliminate misinformation and misunderstanding, and stabilize social expectations.
State Council
December 13, 2019
(This is publicly available)
Guofa 〔2019〕 No. 28
People's governments of provinces, autonomous regions, and municipalities directly under the Central Government, ministries and commissions of the State Council, and agencies directly under the State Council:
Employment is the foundation of people's livelihood and the source of wealth. At present, China's employment situation remains generally stable, but risks at home and abroad have increased, and pressure to stabilize employment has increased. In order to make every effort to stabilize employment, the following opinions are put forward.
I. General requirements
Guided by Xi Jinping's ideology of socialism with Chinese characteristics in the new era, we will fully implement the spirit of the 19th National Congress of the CPC and the 2nd, 3rd, and 4th Plenary Sessions of the 19th National Congress of the Communist Party of China. Prioritize policies, improve the promotion mechanism that is conducive to more adequate and higher-quality employment, insist on creating more jobs and stabilizing existing jobs, highlight priorities, make overall plans, and implement precise measures, make every effort to prevent and resolve large-scale unemployment risks, and make every effort to ensure employment The situation is generally stable.
2. Support enterprises to stabilize their positions
(1) Increase the level of assistance to enterprises to stabilize their posts. The policy of gradually reducing the unemployment insurance premium rate and work injury insurance premium rate will be extended to April 30, 2021. The insured companies face temporary production and operation difficulties and are expected to recover. They insist on the unemployment insurance return policy of non-layoffs or fewer layoffs, as well as subsidy policies for the on-the-job training of employees in troubled enterprises. The implementation period is extended to December 31, 2020.
(2) Strengthen financial support for enterprises. The policy of inclusive finance targeted reduction was implemented, and the released funds focused on supporting private enterprises and small and micro enterprises to raise funds. Encourage banks to improve the performance evaluation and incentive mechanism for financial services private enterprises and small and micro enterprises, and increase medium and long-term loans and credit loans for small, medium and micro enterprises in the manufacturing industry. Reward and supplement the places with strong policy guidance, such as expanding the scale of small and micro enterprises 'financing guarantee business and reducing the small and micro enterprises' financing guarantee fees. Bring into play the coordinating role of the leading groups of SMEs at all levels of government to support the development of SMEs and increase employment. Give play to the role of financial supervisory agencies at all levels and encourage banks to formulate special credit plans for key enterprises. Enterprises that meet temporary difficulties but meet credit requirements must not blindly draw down loans or break loans.
(3) Guide enterprises to explore the domestic market. Improve inter-provincial information communication, revenue sharing and other mechanisms, encourage various industrial parks in the central and western regions and the northeastern region to strengthen docking with eastern industrial transfer regions, and keep a list of companies with a willingness to transfer in a timely manner. Promote long-term lease of industrial land, lease before sale, combination of lease and lease, and flexible term supply methods to reduce the cost of logistics and power consumption. Areas with conditions can increase the construction of standard factories and provide rental concessions to promote the cross-border manufacturing industry. Orderly transfer of regions. Establish an inter-departmental comprehensive service platform, strengthen the integration of production and sales facilities, focus on supporting relevant enterprises to connect with major domestic e-commerce platforms and major procurement projects in various industries and regions, and support enterprises to expand sales channels in the domestic market.
(4) Regulating enterprise layoffs. Support enterprises to negotiate collectively with their employees, adopt measures such as negotiating salary, adjusting working hours, rotating shifts, on-the-job training, and other measures to preserve labor relations. For enterprises that intend to make economic layoffs, guide them to formulate and implement employee resettlement programs in accordance with the law and regulations, explain the relevant situation to the union or all employees 30 days in advance, pay economic compensation in accordance with the law and regulations, repay arrears of employees' wages, and make up for the arrears. social Security fee.
3. Develop more jobs
(5) Excavation of domestic demand drives employment. We will implement pilot projects for the development of community living services, carry out the pilot work of the “leaders” in improving and expanding the domestic service industry, and further promote domestic training and promotion activities and special credit-building activities in the domestic service sector. Strengthen the construction of tourism public facilities, promote the construction of regional medical centers, and carry out special actions to support social forces in the development of inclusive education services. Support the development of the elderly service industry, and support the elderly service agencies to provide services to key groups through government purchase of services and other methods. Encourage the renewed consumption of automobiles, home appliances, and consumer electronics, vigorously and orderly promote the retirement and renewal of old cars, and encourage cities that restrict purchases to optimize management measures for vehicle purchase restrictions. Cultivate the domestic service outsourcing market and support administrative institutions and state-owned enterprises in purchasing professional services.
(6) Increase investment to create jobs. Reasonably expand effective investment, appropriately reduce the capital ratio of some infrastructure and other projects, speed up the issuance and use of local government special bonds, and ensure accurate investment in key short-term projects. We will implement projects such as urban old quarter renovation, shantytown renovation, and rural dilapidated house reconstruction, support the construction of urban parking facilities, and accelerate the construction of a national logistics hub network. In-depth implementation of a new round of major technological transformation and upgrading projects.
(7) Stabilizing foreign trade and expanding employment. Study to further reduce import tariffs and institutional costs in a timely manner, expand the coverage of export credit insurance, reduce premiums reasonably, and ensure that the average time for reviewing and processing normal tax refunds is within 10 working days. Give play to the role of industry associations, chambers of commerce, and intermediary agencies, guide enterprises to strengthen their bargaining power, and encourage the provision of public welfare legal services. Establish an international marketing service system, accelerate the construction of a comprehensive cross-border e-commerce pilot zone, and expand and strengthen comprehensive foreign trade service companies.
(8) Cultivate and expand new kinetic energy and expand employment space. Accelerate the pace of 5G commercial development, advance the development of strategic emerging industry clusters, and strengthen infrastructure investment and industrial layout in areas such as artificial intelligence and industrial Internet. Support science and technology enterprises to carry out joint technological research, improve the first (set) major technology equipment demonstration application support policy, and support science and technology enterprises to invest overseas. Accelerate the implementation of the guidance to promote the healthy development of the platform economy and promote the rapid development of new industries and new business models.
4. Promote multi-channel employment and entrepreneurship for workers
(9) Encourage enterprises to absorb employment. The requirements for small and micro enterprise entrepreneurship guarantee loans were reduced, and the proportion of newly recruited eligible employees in the current year was reduced to 20%, and the proportion of more than 100 employees was reduced to 10%. If an enterprise recruits employees who have been registered for unemployment for more than half a year and signed a labor contract for more than one year and pays social insurance in accordance with regulations, areas with conditions can grant a one-time employment subsidy. The implementation period is from January 1, 2020 to December 31, 2020. .
(10) Encourage entrepreneurship to drive employment. We will continue to promote simplified administration and decentralization, the combination of decentralization and management, and optimization of service reforms to further optimize the business environment and encourage and support more workers to start and innovate. Strengthen the implementation of the business guarantee loan policy, and establish a credit guarantee-free mechanism for credit villages, credit parks, and business incubation demonstration carriers. Implement the "Double Innovation" support platform project to guide high-quality incubation carriers such as the "Double Innovation" demonstration base and specialized crowd creation space to undertake relevant public service affairs. Encourage and support returnees to start a business, and the annual increase in construction land plan indicators will give priority to guaranteeing returnees' business start-up land below the county level, supporting the construction of a group of migrant workers returning home business parks, rural innovation and entrepreneurship, and returning home business incubation training bases to build a number of county-level Rural e-commerce service centers, logistics distribution centers, and township transportation service stations. We will implement actions to improve the ability to return home to start a business, and strengthen the training and cultivation of key people who return home to start a business, leaders in poverty-stricken villages to become rich, and entrepreneurs in rural areas. For those migrant workers who return to their hometown for the first time to start a business and operate normally for more than one year, one-off start-up subsidies may be granted in areas where conditions permit.
(11) Support flexible employment and new employment forms. Support laborers to achieve employment through flexible and diverse forms such as temporary, part-time, seasonal, and flexible work. Research and improve policies and measures to support flexible employment, clarify the measures for flexible employment, employment of new employment personnel, employment services, and rights protection, start pilots for occupational injury protection for new employment personnel, and step up efforts to clear and eliminate regulations that unreasonably restrict flexible employment. For those who are unable to find employment, the flexible employment social insurance subsidy policy has not yet achieved stable employment, the policy enjoyment period can be extended by one year, and the implementation period is from January 1, 2020 to December 31, 2020.
(12) Strengthening underemployment placement. We will increase employment assistance to those who are in difficulty in employment, and encourage the expansion of public welfare posts around the shortcomings of people's livelihood. For those who have failed to achieve stable employment after the expiration of the policy on engaging in public welfare posts, the policy enjoyment period can be extended by one year, and the implementation period is from January 1, 2020 to December 31, 2020. In the construction of small and medium-sized rural infrastructures and the reconstruction of dilapidated houses in rural areas, the implementation of “replacement by work” will be implemented, and the poor people will be organized to participate in the construction of the project.
(13) Stabilizing the employment of young people such as college graduates. Continue to organize and implement grassroots service projects such as the rural teacher special job plan and the "three support and one support" plan. Publicly recruit a group of rural teachers, doctors, and social workers to enrich grassroots service forces. Enlarge the enlistment of fresh college graduates. Expand the scale of employment apprenticeships, appropriately raise subsidy standards, and support enterprises to develop more apprenticeship positions.
5. Promote large-scale vocational skills training
(14) Vigorously promote vocational skills upgrading actions. Implement and improve policies and measures for vocational skills upgrading, and provide vocational training subsidies and living expenses subsidies in accordance with regulations. Carry out precise training for different objects, comprehensively carry out enterprise employee skills improvement training or job transfer training, organize unemployed people to participate in skills training or entrepreneurship training, implement migrant workers, college graduates, retired soldiers, file poor people, disabled people, etc. Special training plan for key groups. Support vocational colleges (including technical colleges) to actively undertake corresponding training tasks.
(15) Expand the scale of training of skilled personnel. Promote the implementation of policy adjustments for vocational colleges and scholarships, expand the coverage of vocational colleges and scholarships, increase subsidy standards, and establish national scholarships for secondary vocational education. Promote the inclusion of technical colleges and technical schools in various places into the unified enrollment platform for vocational education. Organize junior and high school graduates who have not continued their studies in urban and rural areas, and registered unemployed persons under the age of 20 who are willing to participate in the labor reserve training, provide training subsidies according to regulations, and provide living allowances to rural students and members of families with difficulties. From January 1st to December 31st.
(16) Strengthen basic vocational training capacity building. Start national pilots for the integration of production and education, and strengthen the construction of public training bases and integration of production and education training bases. Support all kinds of enterprises and vocational colleges (including technical colleges) to jointly build employee training centers, corporate universities, and continuing education bases, and encourage the joint construction and sharing of training resources such as equipment and facilities, teaching teachers, and course materials. Implement a new career development plan, increase the development of vocational skills standards and vocational training packages, and establish a system for the compilation and release of urgently needed occupation directories.
6. Practical employment and entrepreneurship services
(17) Promote full coverage of employment services. Urban and rural workers who are within working age, have working ability, have employment requirements, and are unemployed can register for unemployment at the place of habitual residence and apply for basic public employment services. Improve the employment information monitoring system, open the online unemployment registration entrance, and realize the sharing of basic information, job search willingness and employment services of unemployed people across regions. Strengthen the follow-up response to employment impacts of major projects, major projects, and special governance. For those enterprises that are shut down and transferred, the competent department should provide the enterprise information to the local human resources and social security department in a timely manner; those that may cause large-scale unemployment should be synchronized Develop response measures.
(18) Strengthen the collection and provision of post information. Post information generated by government investment projects and public service posts developed in various aspects are publicly posted on the website of the unit and the website of the human resources and social security department at the same level. We will improve the public information platform for job postings. Public employment personnel service agencies at or above the municipal level must post job information online by the end of March 2020, collect them at the provincial and national levels, and accelerate the regional and national public release of job site information.
(19) Strengthen normalized management services. Implement grassroots public employment service handling capacity improvement plan, establish regular contact and grading and classification service system for registered unemployed persons, conduct at least one follow-up survey every month, regularly provide job introduction, career guidance, entrepreneurship services, and promote employment and entrepreneurship policies and vocational training Project to provide employment assistance to those in need of employment. Strengthen the tracking services of key enterprises and provide services and guidance such as employment guidance, policy consulting, and labor relationship coordination. Where public employment personnel service agencies, operating human resource service agencies, and industry associations provide the above services, areas with conditions can grant employment and entrepreneurship service subsidies to them based on the number of people served, effectiveness and cost.
Seven, do a good job in basic living security
(20) Give better play to the role of unemployment insurance. Those who meet the conditions for receiving unemployment insurance benefits shall be paid timely. For those who have not been employed at the end of the unemployment insurance period and are less than one year away from the legal retirement age, they can continue to pay unemployment insurance up to the legal retirement age. In areas where there is a gap in the distribution of unemployment insurance, support will be provided through unemployment insurance adjustments and local financial subsidies.
(Twenty-one) Do a good job in providing security for those in need. For those laid-off and unemployed persons who have difficulties in living, they are granted temporary living allowances. Unemployed people and families with difficulties in living shall be included in the scope of social assistance such as minimum living security and temporary assistance. For those who have achieved the minimum living standard for employment, they can strengthen their employment willingness and employment stability through measures such as "gradual retirement of the minimum living standard".
Strengthening organizational security
(22) Improve the coordination mechanism of work organization. Local governments at or above the county level must effectively fulfill the responsibility of stabilizing the subject of employment, establish a working organization and leadership mechanism led by government officials and jointly participate in relevant departments, clarify target tasks, job responsibilities, and supervise the implementation mechanism, and co-ordinate the leadership and promotion of stable employment in the region. Large-scale unemployment risks should be dealt with, and the responsibility for promoting employment should be consolidated.
(23) Improve the guarantee mechanism for capital investment. Actively invest in employment subsidy funds, and make good use of unemployment insurance funds and special incentives and supplementary funds for structural adjustment of industrial enterprises, etc., to stabilize employment positions, encourage employment and entrepreneurship, and ensure basic living and other employment expenditures. Where conditions permit, employment risk reserves can be set up to deal with sudden and large-scale unemployment risks.
(24) Improve the employment situation monitoring mechanism. We will continue to focus on routine employment statistics, improve data quality and timeliness, and carry out multi-dimensional employment monitoring in key regions, key groups, key industries, and key enterprises. Strengthen the comparison and analysis of big data such as mobile communications, railway transportation, social security payment, recruitment and job search, and improve the employment situation research and judgment mechanism involving multiple parties.
(25) Improve emergency response mechanisms. All regions should deal with mass emergencies caused by large-scale unemployment as soon as possible to prevent the intensification of conflicts and the expansion of events. During the disposal process, the local government can coordinate the employment needs of different groups according to needs and possibilities, and formulate temporary response measures in accordance with laws and regulations.
(26) Improve the mechanism of public opinion and propaganda. Vigorously propagate the Party Central Committee and the State Council's employment decision-making and support policies and measures to support employment and entrepreneurship, guide the majority of workers to establish a correct labor concept and values, select a group of typical experiences and typical people to promote employment and entrepreneurship, and find a group of people in the Midwest and The advanced models of employment and entrepreneurship at the grassroots level in the Northeast, hard and remote areas, and urban and rural areas should be commended and encouraged in a timely manner. Firmly grasp the initiative of information release and public opinion guidance, do a good job of public opinion monitoring and judgment, establish a major public opinion communication coordination and emergency response mechanism, eliminate misinformation and misunderstanding, and stabilize social expectations.
State Council
December 13, 2019
(This is publicly available)
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