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。

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,o-,,readjustingstructure,promoteemploymentwithdeepeningreforms,encouragepeopletostartuptheirownbusinessesandtomakeinnovation,supporttheemploymentofthosewithdifficultiesbyimprovingpoliciesandenhancingservices.Inthefirstquarterthisyear,theurbannewlyincreasedemploymentregisters3.24million,andtheurbanregisteredunemploymentratemaintainsat4.05%.Newprogresshasbeenmadeintheemploymentofuniversitygraduates,ruralmigrantworkersandurbanhard-to-placepeople.

InthenewnormalofeconomicdevelopmentinChina,theemploymentaggregatepressurestillpersists,andthestructuraltensionsaremoreacutelyfelt.Againstsuchbackground,weneedtodevelopthenewengineofentrepreneurshipandinnovationbythegeneralpublic,sticktothedevelopmentstrategyofexpandingemployment,implementingmoreactiveemploymentpolicies,combinebusinessstartupwithemployment,advanceemploymentwithentrepreneurshipandinnovation,instillfreshdrivingforceforeconomicandsocialdevelopment,andprovidenewenergytoeconomicrestructuringandsocialharmony.

Toidentifytheapproachtopushforwardtheworkrelatingtoemploymentandentrepreneurshipunderthenewcircumstances,inlinewiththearrangementsoftheStateCouncil,basedoncarefulprofileanalysis,fieldstudiesandevaluation,andbroadopinionsoliciting,therelateddepartmentsformulatedadraftOpiniononFurtherPushingForwardtheWorkrelatingtoEmploymentandEntrepreneurshipundertheNewCircumstances,whichwasinitiatedfromlastyearandadoptedbythe89thExecutiveMeetingoftheStateCouncilon21ndApril.TheOpinioncoversfiveaspects:implementingtheemploymentfirststrategyinanin-depthmanner,activelypromotingentrepreneurship-drivenemployment,addressingemploymentofuniversitygraduatesandothertargetedgroupsinanintegratedmanner,strengtheningemploymentandentrepreneurshipservicesandvocationaltraining,andintensifyingorganizingandleadership.TheOpinionmakesall-aroundarrangementonfurtherpushingforwardemploymentandentrepreneurshipandformulatesseveralstrongerpolicymeasureswithhigherquality.

Onin-depthimplementationofemploymentfirststrategy,4policieshavebeenputforward.First,wewillcontinuethedevelopmentstrategyofemploymentexpansion,puttingemploymentstabilityandexpansionastheminimumlimitofareasonablerangeofeconomicperformanceandplacingthenewurbanjobsandsurveyedunemploymentrateasanimportantindicatorofmacroadjustmentandcontrol.Second,wewillenhancejob-richindustries,injectinnovationintodevelopmentmodelsandformatsofservicesector,advanceindustrialreadjustmentandupgrade,anddevelopnewprofessionalfarmers.Third,themicroandsmallenterpriseswillserveasamajorsourceforemployment,throughprovisionoffinancialandtaxsupportstomicroandsmallenterprises.Forth,theunemployementriskswillbeactivelypreventedandeffectivelycontained.Thepolicyonadjustmentofunemploymentinsurancecontributionratewillbeimplementedtomitigateburdenonenterprisesandindividuals.Thepolicythattheunemploymentinsurancefundsupportsenterprisestostablizejobswillexpandtoallenterpriseswichlegallyparticipateinandcontributetounemploymentinsuranceandhavenoorlesslayoffs.

Onactivelypromotingentrepreneurship-drivenemployment,8policieshavebeenputforward.First,wewillbuildaneasyandfriendlyaccessenvironment.Wewilldeepenreformofbusinesssystem,enforcereformofcapitalregistrationsystem,andprovidesupporttoalllocalitiestorelaxtheeligibilityrestrictionsforsiteregistrationfornewlyregisteredenterprises,promotingreformspermittingonesitehousingmultiplelicensesandclusterregistrations.Second,wewillcultivatepublicplatformsforentrepreneurshipandinnovation,takestockanddisseminatenewmodelsofincubators,acceleratesitedevelopmentforentrepreneurshipofthemasses,andencouragealllocalitiestoutilizefactoriesleftidleandprovidelow-costspaceforentrepreneurship.Third,wewillseekinnovativemeansforentrepreneurshipfinancing,supportdevelopmentofriskinvestment,entrepreneurshipinvestmentandangelinvestment.Wewillacceleratetheestablishmentofnationaldevelopmentfoundationformiddleandsmallenterprisesandnationalentrepreneurialinvestmentfoundationfortheemergingindustries.Fourth,supportdevelopmentoftheentrepreneurshipsecuredloans.Small-sumsecuredloanwillbeadjustedtoentrepreneurshipsecuredloan,andthemaximumamountoftheloanhasbeenunifiedto100,000RMB.Theinterestcostofindividualloansbyupto3percentagepointsabovethebaseinterestratewillbesubsidizedbythegovernment.Theprocedureswillalsobestreamlined.Fifth,wewillstepuptheeffortsintaxcutandratereductionbyshortentheeligibleunemploymentperiodofpersonsbyhiringwhomtheemployerscanenjoytaxpreferentialtreatmentsfrommorethanoneyeartomorethanhalfayear.Collegegraduatesandregisteredunemployedpersonsstartinganindividualbusinessorasolely-investedenterpriseareeligibletotaxreductionorexemptioninaccordancewiththelaw.Wewillimplementthepolicyofpre-taxdeductionofemployeeeducationfundsonapilotbasis.Sixth,wewillmobilizeresearchersinitiativetostartbusinesses.Wewillpromoteon-the-jobandoff-jobentrepreneurshipbyprofessionalsandtechniciansinuniversitiesandscientificresearchinstitutesbyretainingtheirpersonnelarchivesforthreeyearsiftheyleaveofficewithconsent.Seventh,wewillencourageentrepreneurshipamongtheruralworkforce.Wewilldeveloptheentrepreneurshipparksforreturningmigrantworkersandsupportfarmersforon-linebusiness.Eighth,wewillcultivategoodatmosphereforpublicentrepreneurs.Wewillnurturetheentrepreneurshipcultureandgrantpolicysupportforestablishingsocialorganizationsandengaginginon-linestartups.

Onaddressingemploymentofuniversitygraduatesandothertargetedgroupsinanintegratedmanner,fourpolicieshavebeenputforward.First,wewillencouragecollegegraduatestofindemploymentthroughvariouschannels.Wewillextendthepolicythatsmallandmicroenterprisesemployingnewcollegegraduatescanreceiveone-yearsocialinsurancesubsidiesduebytheendofthisyeartoalong-termone.Wewilladjustthejob-seekingsubsidyforfinanciallychallengedgraduatesintojob-seekingandentrepreneurshipsubsidywiththetargetexpandedtoincludegraduateswiththegovernment-subsidizedstudentloan,andfunctionextendedtosupportbusinessstartups.Theemploymentandentrepreneurshipfoundationforcollegegraduateshasbeendevelopedinanintegratedwaytosupportcollegegraduatestofindemploymentorstarttheirownbusinesses.Second,wewillscaleuptheemploymentassistanceforpersonswithfinancialdifficultiestoensurethatatleastonepersonisemployedinfamiliesinneedsuchasthezeroemploymentfamiliesandfamiliesdependingontheminimumlivingallowances.Third,wewillfacilitateruralworkforcetransferbycomprehensivelyimprovingtheworkingmechanismofjobtraining,employmentservicesandlaborrightssafeguardingandstrengtheningthecontactbetweentheexporterandimporterofruralmigrantworkers.Fourth,wewillpromotetheemploymentofveterans.

Onstrengtheningemploymentandentrepreneurshipservicesandvocationaltraining,6policieshavebeenputforward.First,wewillstrengthenpublicemploymentandentrepreneurshipservice,improvepublicemploymentandentrepreneurshipservicesystemcoveringbothruralandurbanareas,andpromoteequalaccesstostandardizedandprofessionalservices.Second,wewillacceleratetheinformationtechnologydevelopmentofpublicemploymentservice,graduallysetupaunifiednationalframeworkfornetwork-basedemploymentmanagementinwhichemploymentmanagementandemploymentservicesaredeliveredbyinformationtechnologyforthewholeprocessandemploymentinformationisreleasedinaunifiedway.Third,wewillstrengthenhumanresourcesmarketbuildingbyeliminatingvarioussystembarriersandemploymentdiscriminationhinderingequalemployment.Fourth,wewillstrengthenprofessionaltrainingandentrepreneurshiptrainingwithemphasisonskilldevelopmentforruralmigrantworkersandpositiontransitiontrainingfortheunemployed,andpromoteenterprisestoconductnewapprenticeshiptraining.Fifth,wewillimprovethejointactionmechanismofunemploymentinsurance,socialassistanceandemployment,andallowthedeductionofnecessaryemploymentcostwhencalculatingthefamilyincomeoftheemployedorself-employedpersonssubjecttotheminimumlivingallowances.Sixth,wewillimproveunempl

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