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| Opinions of the State Council on Effectively Ensuring Employment and Entrepreneurship at Current and Future Periods | | 国务院关于做好当前和今后一段时期就业创业工作的意见 |
| (No. 28 [2017] of the State Council) | | （国发〔2017〕28号） |
| The people's governments of all provinces, autonomous regions, and municipalities directly under the Central Government; all ministries and commissions of the State Council; and all institutions directly under the State Council: | | 各省、自治区、直辖市人民政府，国务院各部委、各直属机构： |
| Employment is an issue of people's life most concerning 1.3 billion people and the most basic support for economic development. The CPC Central Committee and the State Council put employment on top of the agenda of social and economic development, forcefully advance simplification of administrative procedures, delegation of powers, combination of decentralization and control and optimization of services, create a positive environment for entrepreneurship and innovation among all the people, accelerate the fostering of new development momentum, and keep overall employment stable. However, it should also be noted that there are currently quite a few difficulties and problems in social and economic development, that the unemployment risks in some regions, industries and groups rise to some extent, that the structural conflict featuring the co-existence of difficulties in recruitment and employment is more obvious, and that the development of new types of employment has brought about new demand for the improvement of employment policies. In the face of new changes in and new challenges of employment situation, employment must be set as a top priority, the implementation of the employment first strategy and a more proactive employment policy shall be adhered to, the tough tasks of stabilizing and expanding employment shall be firmly and effectively completed, the fundamentals of employment shall be held, and the transformation of employment shall be realized in economic transformation which shall be supported by the former. The following opinions on further effectively ensuring employment and entrepreneurship are hereby offered. | | 就业是13亿多人口最大的民生，也是经济发展最基本的支撑。党中央、国务院坚持把就业放在经济社会发展的优先位置，强力推进简政放权、放管结合、优化服务改革，营造鼓励大众创业、万众创新的良好环境，加快培育发展新动能，就业局势保持总体稳定。但也要看到，当前经济社会发展中还存在不少困难和问题，部分地区、行业、群体失业风险有所上升，招工难与就业难并存的结构性矛盾加剧，新就业形态迅速发展对完善就业政策提出了新要求。面对就业形势的新变化和新挑战，必须把就业作为重中之重，坚持实施就业优先战略和更加积极的就业政策，坚决打好稳定和扩大就业的硬仗，稳住就业基本盘，在经济转型中实现就业转型，以就业转型支撑经济转型。现就进一步做好就业创业工作提出以下意见。 |
| I. Adhering to the implementation of employment first strategy | | 一、坚持实施就业优先战略 |
| (1) Promoting the interaction between economic growth and employment expansion. The major purpose of stabilizing growth is to ensure employment, the macro-adjustment and control mode shall be innovated on, the stabilization and expansion of employment shall be set as the floor of interval adjustment and control, the consistency and stability of macro policies shall be sustained, medium-high rate of economic growth shall be promoted, and the capability to boost employment shall be enhanced. If new jobs in urban areas drop sharply and the unemployment rate rises dramatically, fiscal and monetary policies shall be better adjusted and implemented, so as to promote the stabilization and upturn of economy and ensure the stability of employment. The connection between economy and employment policies shall be strengthened, and when major policies for public finance and tax, finance, industries, trade and investment, among others, are made, the impact brought on jobs, employment environment, and unemployment risks, among others, shall be comprehensively assessed, in order to promote the interaction between economic growth and expansion of employment and the coordination between structural optimization and employment transformation. (The National Development and Reform Commission, the Ministry of Finance, the Ministry of Industry and Information Technology, the Ministry of Commerce, the People's Bank of China and the State Administration of Taxation shall be responsible. The first mentioned department shall be the entity taking the lead, which applies below). | | （一）促进经济增长与扩大就业联动。稳增长的主要目的是保就业，要创新宏观调控方式，把稳定和扩大就业作为区间调控的下限，保持宏观政策连续性稳定性，促进经济中高速增长，增强对就业拉动能力。若城镇新增就业大幅下滑、失业率大幅攀升，要加大财政政策和货币政策调整实施力度，促进经济企稳向好，确保就业稳定。加强经济政策与就业政策衔接，在制定财税、金融、产业、贸易、投资等重大政策时，要综合评价对就业岗位、就业环境、失业风险等带来的影响，促进经济增长与扩大就业联动、结构优化与就业转型协同。（国家发展改革委、财政部、工业和信息化部、商务部、人民银行、税务总局等负责。列第一位者为牵头单位，下同） |
| (2) Promoting the coordination among industrial structure, regional development and employment. Development environment shall be optimized, public-private partnership shall be advanced and implemented, and modern services such as research and design, e-commerce, cultural creativity, all-for-one tourism, elderly support services, health services, human resources services, and service outsourcing shall be vigorously developed. The diversified industrial system shall be improved, attention shall be paid to capital, technology and knowledge intensive advanced manufacturing and strategic and emerging industries, the development of labor intensive industries shall be supported, the cost of real economy shall be reduced, the green retrofits of traditional industries shall be advanced, and more job opportunities shall be created. Based on the implementation of the regional development strategy, the orderly relocation of industries in eastern China to central and western China and northeast China shall be guided, the central and western China foreign investment advantageous industry catalogs shall be implemented and improved, central and western China shall be supported in using foreign capital, and labors shall be guided in finding employment in key regions, at major projects and initiatives, and in important fields. (The National Development and Reform Commission, the Ministry of Science and Technology, the Ministry of Industry and Information Technology, the Ministry of Civil Affairs, the Ministry of Finance, the Ministry of Human Resources and Social Security, the Ministry of Commerce, the Ministry of Culture, the National Health and Family Planning Commission and the China National Tourism Administration shall be responsible) | | （二）促进产业结构、区域发展与就业协同。优化发展环境，推进实施政府和社会资本合作，大力发展研究设计、电子商务、文化创意、全域旅游、养老服务、健康服务、人力资源服务、服务外包等现代服务业。完善多元化产业体系，既注重发展资本、技术和知识密集的先进制造业、战略性新兴产业，又要支持劳动密集型产业发展，降低实体经济成本，推进传统产业绿色改造，创造更多就业机会。结合区域发展战略实施，引导东部地区产业向中西部和东北地区有序转移，落实完善中西部地区外商投资优势产业目录 |
| (3) Underscoring the role of micro and small-sized enterprises as major employment channels. A series of supporting policies and policies as to reviewing and regulating enterprise-related charges including reduction of tax and burdens on micro and small-sized enterprises shall be implemented. The innovative development of micro and small-sized enterprises shall be promoted in priority, the construction of micro and small-sized enterprises entrepreneurship and innovation demonstration bases shall be promoted, and a public service demonstration platform shall be built. Research and development infrastructures and large scientific research instrument shall be further opened to micro and small-sized enterprises in order to provide support for the research, development and trial-manufacturing of products by micro and small-sized enterprises. Universities, scientific research institutions and enterprises shall be encouraged to convey scientific and technological achievements to micro and small-sized enterprises, regions with good conditions may promote the opening and sharing of a group of basic patents or buy a batch of technology resources, and collaborative innovation among micro and small-sized enterprises shall be supported. (The Ministry of Industry and Information Technology, the National Development and Reform Commission, the Ministry of Education, the Ministry of Science and Technology, the Ministry of Finance, the State Administration of Taxation and the State Intellectual Property Office shall be responsible) | | （三）发挥小微企业就业主渠道作用。落实小微企业降税减负等一系列扶持政策和清理规范涉企收费有关政策。着力推进小微企业创新发展，推动小微企业创业创新示范基地建设，搭建公共服务示范平台。加大科研基础设施、大型科研仪器向小微企业开放力度，为小微企业产品研发、试制提供支持。鼓励高校、科研院所及企业向小微企业转移科技成果，有条件的地区可推动开放共享一批基础性专利或购买一批技术资源，支持小微企业协同创新。（工业和信息化部、国家发展改革委、教育部、科技部、财政部、税务总局、国家知识产权局等负责） |
| (4) Easing the employment pressure in key regions with employment difficulty. The transformation and development of resource-oriented cities shall be promoted, the substitutive industry fostering action plan shall be implemented, and the development of labor-intensive industries, services and micro and small-sized enterprises shall be supported. Infrastructure shortness shall be fixed, more support shall be given to commerce circulation, transport and logistics, information network development and retrofit projects, public service facilities shall be improved, and the western and northeastern China human resources market construction aid scheme shall be implemented. Talent support shall be enhanced, more talents shall be attracted, scientific research institutes, postdoctoral centers and universities with good conditions shall be guided in making arrangements in resource-oriented cities, and urgently-needed and rare talents shall be provided with research venues, scientific research funds, settlement subsidy and other policy support. With regard to remote, resource-exhausted and uninhabitable independent industrial and mining areas, trans-regional services shall be connected in an organized manner. In regions with a heavy task to reduce production capacity, a large unemployed population and high employment risks, the job aid action shall be implemented. (The National Development and Reform Commission, the Ministry of Education, the Ministry of Science and Technology, the Ministry of Industry and Information Technology, the Ministry of Finance, the Ministry of Human Resources and Social Security, the Ministry of Transport, the Ministry of Commerce, the All-China Federation of Trade Union, the Central Committee of the Communist Youth League, and the All-China Women's Federation shall be responsible) | | （四）缓解重点困难地区就业压力。促进资源型城市转型发展，实施替代产业培育行动计划，扶持劳动密集型产业、服务业和小微企业发展。补齐基础设施短板，加大对商贸流通、交通物流、信息网络等建设和改造项目的倾斜力度，完善公共服务设施，实施西部和东北地区人力资源市场建设援助计划。强化人才支撑，加大招才引智力度，引导科研院所、博士后工作站、高校在具备条件的资源型城市布局，对急需紧缺人才可提供研究场地、科研经费、安家补助等政策支持。对地处偏远、资源枯竭、不适宜居住的独立工矿区，有组织地开展跨地区劳务对接。对去产能任务重、待岗职工多、失业风险大的困难地区，实施就业援助行动。（国家发展改革委、教育部、科技部、工业和信息化部、财政部、人力资源社会保障部、交通运输部、商务部、全国总工会、共青团中央、全国妇联等负责） |
| II. Supporting the development of new types of employment | | 二、支持新就业形态发展 |
| (5) Supporting the development of emerging business types. Supported by new-generation information and network technology, technology integration and business model innovation shall be strengthened, and the innovative development of platform economy, crowd sourcing economy and sharing economy, among others, shall be promoted. The access administration of emerging business types shall be bettered, and interim and ex-post supervision shall be strengthened. Preferential policies encouraging entrepreneurship and innovative development shall be opened to enterprises of emerging business types, and qualified enterprises of emerging business types may be entitled to relevant fiscal, credit and other preferential policies. Government departments shall be promoted in taking the lead in buying products and services of enterprises of emerging business types. (The National Development and Reform Commission, the Ministry of Industry and Information Technology, the Ministry of Finance, the Ministry of Commerce, the People's Bank of China and the State Administration for Industry and Commerce shall be responsible) | | （五）支持新兴业态发展。以新一代信息和网络技术为支撑，加强技术集成和商业模式创新，推动平台经济、众包经济、分享经济等创新发展。改进新兴业态准入管理，加强事中事后监管。将鼓励创业创新发展的优惠政策面向新兴业态企业开放，符合条件的新兴业态企业均可享受相关财政、信贷等优惠政策。推动政府部门带头购买新兴业态企业产品和服务。（国家发展改革委、工业和信息化部、财政部、商务部、人民银行、工商总局等负责） |
| (6) Improving employment, social security and other systems adapting to the characteristics of new employment types. People shall be supported in realizing diversified employment through new business types, enterprises of new business types shall enroll their employees in employee social security if the enterprises and employees enter into labor contracts, and qualified enterprises may be entitled to in accordance with the law support policies for enterprises providing jobs. People employed otherwise shall, with the identity of flexibly employed personnel, be enrolled in pension and medical insurance and contribute to the housing provident fund, the mode of payment out of unemployment and work-related injury insurance to flexibly employed personnel shall be explored, and qualified flexibly employed personnel may be entitled to support policies for flexible employment and independent entrepreneurship. The development of “online social security” shall be accelerated in order to facilitate enrollment, transfer and continuation of social security by people employed in new business types. A national housing provident fund long-distance transfer and continuation platform shall be established so as to provide enrolled employees finding employment in different locations with long-distance transfer and continuation services. (The Ministry of Human Resources and Social Security, the Ministry of Finance, and the Ministry of Housing and Urban-Rural Development shall be responsible) | | （六）完善适应新就业形态特点的用工和社保等制度。支持劳动者通过新兴业态实现多元化就业，从业者与新兴业态企业签订劳动合同的，企业要依法为其参加职工社会保险，符合条件的企业可按规定享受企业吸纳就业扶持政策。其他从业者可按灵活就业人员身份参加养老、医疗保险和缴纳住房公积金，探索适应灵活就业人员的失业、工伤保险保障方式，符合条件的可享受灵活就业、自主创业扶持政策。加快建设“网上社保”，为新就业形态从业者参保及转移接续提供便利。建立全国住房公积金异地转移接续平台，为跨地区就业的缴存职工提供异地转移接续服务。（人力资源社会保障部、财政部、住房城乡建设部等负责） |
| III. Promoting employment with entrepreneurship | | 三、促进以创业带动就业 |
| (7) Optimizing the entrepreneurship environment. “Entrepreneurship and innovation among all the people” shall be advanced constantly, entrepreneurship support policies shall be comprehensively implemented, and the reform of simplification of administrative procedures, combination of decentralization and control, and optimization of services shall be advanced in depth. The reform of the business system shall be deepened, “integration of five certificates into one, and one code for one license” for enterprises and “integration of two certificates” for individual industrial and commercial households shall be comprehensively implemented, and “integration of certificates into one” shall be arranged and promoted. Approval matters shall be further reduced, and acts of approval shall be regulated and improved. The local governments shall be guided in integrating market regulation functions and law enforcement forces based on the actual circumstances, the reform of comprehensive administrative law enforcement in the market regulation field shall be advanced, and repeated inspection, multiple-department law enforcement and other problems shall be solved in priority. (The National Development and Reform Commission, the State Commission Office of Public Sectors Reform, and the State Administration for Industry and Commerce shall be responsible according to the division of functions) | | （七）优化创业环境。持续推进“双创”，全面落实创业扶持政策，深入推进简政放权、放管结合、优化服务改革。深化商事制度改革，全面实施企业“五证合一、一照一码”、个体工商户“两证整合”，部署推动“多证合一”。进一步减少审批事项，规范改进审批行为。指导地方结合实际整合市场监管职能和执法力量，推进市场监管领域综合行政执法改革，着力解决重复检查、多头执法等问题。（国家发展改革委、中央编办、工商总局等按职责分工负责） |
(8) Developing entrepreneurship carriers. The construction of startup incubation bases and maker space, among others, shall be accelerated, and old business facilities, storage facilities, unused buildings and excess commercial properties shall be promoted in being transformed to startup incubation bases on a trial basis. Departmental resources shall be integrated, the role of incubation bases in resource collection, radiation and guidance shall be used, startup entrepreneurs shall be provided with guidance services and policy support, and if it is truly necessary for some startup enterprises, their period for incubation may be appropriately extended. All regions may, based on the quantity of residing entities and incubation effect, give particular awards or subsidies to entrepreneurship incubation bases. (The Ministry of Human Resources and Social Security, the National Development and Reform Commission, the Ministry of Science and Technology, the Ministry of Finance, and the Ministry of Housing and Urban-Rural Development shall be responsible)
．．．．．． | | （八）发展创业载体。加快创业孵化基地、众创空间等建设，试点推动老旧商业设施、仓储设施、闲置楼宇、过剩商业地产转为创业孵化基地。整合部门资源，发挥孵化基地资源集聚和辐射引领作用，为创业者提供指导服务和政策扶持，对确有需要的创业企业，可适当延长孵化周期。各地可根据创业孵化基地入驻实体数量和孵化效果，给予一定奖补。（人力资源社会保障部、国家发展改革委、科技部、财政部、住房城乡建设部等负责）
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