欠薪保障基金初论

欠薪保障基金初论 「摘要」近年来，随着我国欠薪问题的日益突出，仅凭我国劳动法中规定的保障措施已无法充分保护劳动者的合法利益和维护社会安定。借鉴外国经验，建议建立特殊的保障制度，如欠薪保障基金。本文主要从考察已有的立法出发，对欠薪保障基金的概念进行重新理论界定并提出我国构建该制度的思路。 「关键词」欠薪，欠薪保障基金 近年来，农民工的工资拖欠问题日益突出，部分用人单位恶意拖欠职工工资的现象履见不鲜，鉴于我国尚无全国统一的可执行的工资保障规定，如何保障劳动者取得被用人单位拖欠的工资是当前我国劳动法劳动报酬保障领域急需深入研究的一个重要问题。在国外，许多国家立法规定了欠薪保障的特别措施，其中主要包括欠薪索赔特权制度和欠薪保障基金制度。对于如何建立欠薪保障基金制度，我国的深圳、上海和香港做了许多有益的尝试，出台了一系列的规定。本文将结合相关理论和实践展开论述，重点讨论我国如何构建欠薪保障基金制度。 一、各国及我国各地方欠薪保障基金立法考察。 1、各国立法概况。 各国在20世纪60年代以前主要是通过规定工资优先债权的形式保护工人索赔企业欠付工资，但是由于优先权的行使受到诸多条件的制约实践中遇到困难，于是开始考虑能否建立一个第三方的机构来保障劳动者的权利。关于欠薪保障基金的立法最早出现在1966年的巴西，巴西建立了一个服务工龄保障基金，该基金仅保障雇佣结束时应支付的工龄补贴。目前最主要的欠薪保障基金立法主要集中在西欧各国。西欧各国的工资保障基金(即本文论述的欠薪保障基金)立法自1967年开始，该种基金的性质属于社会保障的范畴，设立的目的在于为雇主对其工作人员欠下的债务提供担保，所承保的风险是企业的无偿付能力。综合考察各国的立法，工资保障基金制度主要包括以下内容:该制度的适用范围、工资保障机构的行政管理筹资、工资保障基金运转的条件、受保障制度保护的索赔类别、所保护权利的数额限制、支付程序等。作为我国邻国的韩国在遇到严重经济危机后，针对大量发生的企业破happiness XX made active contribution. The afternoon of April 21, the city's "two" educational Working Conference. Thoroughly study and apply the XI series of important speech, General Secretary of the Conference, especially on "two to learn a" learn the spirit of the important instructions of the education, in accordance with the deployment requirements of Central and provincial Committee, the city "two" education work arrangements. Mu Weimin, Secretary of municipal party Committee, attended the meeting and spoke. Following party of mass line education practice activities, and "three strict three real" topic education zhihou, in all members in the carried out "two learn a do" learning education, reflected has central linked, and step step in-depth advance full strictly rule party of political set force, is continued strengthening party of thought political construction of major deployment, is advance full strictly rule party to grass-roots extends of important initiatives, is promoted party education normal of, and institutionalized of important practice, is advance reform development stable the work of important guarantee. "Two" study and education, is to make each Member party rules India in the party Constitution, series XI, General Secretary of spirit and transformed into a powerful ideological weapon, and comprehensively improve the ideological and political quality, further enhance political par core awareness, situation awareness, awareness, awareness, and further enhance the creativity, rallying power and combat capability of the party organizations at all levels. Is to promote the inner-party education to all party 产和劳动者失业现象，为确保劳动者的工资得到支付和社会安定，于1998年2月20日制定了《工资债权保障法》。在该法中规定工资债权保障基金作为劳动部部长代替事业主支付工资和退休金的来源，由从业主征收的费用组成以及工资债权保障上的征收金适用产业灾害保障法上的一些规定。 2、《深圳经济特区欠薪保障条例》(以下简称保障条例)与《上海市小企业欠薪基金试行办法》(以下简称基金办法)比较分析。 保障条例系深圳市人民代大会常务委员会通过，“基金办法”由上海市政府发布，上述两件立法均属于地方法规规章，为我国欠薪保障立法的大胆尝试，在其条文中对欠薪保障制度的基本结构进行了初步构建，本文拟对两者进行比较分析为后文的论述提供制度基础。经笔者比较两者条文，发现上述两件立法有以下共同点:(1)二者均在第一条中提出制定的目的在于保障职工合法利益和维护社会稳定;(2)对于欠薪的解释基本一致，即企业应支付 )均设立欠薪保障基金的管理机构，保障条例中规定由深圳而逾期未支付给员工的工资;(3 市政府设立欠薪保障基金委员会，基金办法规定上海市小企业欠薪基金委员会负责欠薪基金政策的制定和协调工作;(4)欠薪基金的主体来源均为企业缴纳的欠薪保障费、基金的利息收入和投资收入;(5)欠薪保障费均由工商管理部门在办理企业年检或注册时收取，并统一划拨专门设立的欠薪基金专户，欠薪保障费在企业成本中列支;(6)规定垫付的欠薪数额的限制;(7)规定了垫付欠薪的追偿制度。 保障条例中的下列规定为基金办法所无:(1)该条例适用于特区内的企业和与之形成劳动关系的员工;(2)欠薪保障实行缴费与共济、垫付和追偿相结合的原则;(3)欠薪保障基金委员会由政府、员工和企业等方面的人员组成，并规定市政府劳动行政部门是欠薪保障工作的主管部门和日常办事机构;(4)欠薪保障费的标准是上年度市政府公布的最低月工资标准的70,;(5)对于欠薪基金用于日常管理费用支出限定为不超过当年收取的欠薪保障费的5,;(6)控制欠薪保障基金的投资项目和投资总额占欠薪保障基金余额的比例;(7)规定企业员工请求劳动部门垫付欠薪的条件和程序性要件;(8)对于违反该条例的相关责任人规定了相应的罚则;(9)规定劳动部门每年应当将审计部门的审计结果向社会公布接受社会监督;(10)规定了对劳动部门的处理决定的救济措施。 happiness XX made active contribution. The afternoon of April 21, the city's "two" educational Working Conference. Thoroughly study and apply the XI series of important speech, General Secretary of the Conference, especially on "two to learn a" learn the spirit of the important instructions of the education, in accordance with the deployment requirements of Central and provincial Committee, the city "two" education work arrangements. Mu Weimin, Secretary of municipal party Committee, attended the meeting and spoke. Following party of mass line education practice activities, and "three strict three real" topic education zhihou, in all members in the carried out "two learn a do" learning education, reflected has central linked, and step step in-depth advance full strictly rule party of political set force, is continued strengthening party of thought political construction of major deployment, is advance full strictly rule party to grass-roots extends of important initiatives, is promoted party education normal of, and institutionalized of important practice, is advance reform development stable the work of important guarantee. "Two" study and education, is to make each Member party rules India in the party Constitution, series XI, General Secretary of spirit and transformed into a powerful ideological weapon, and comprehensively improve the ideological and political quality, further enhance political par core awareness, situation awareness, awareness, awareness, and further enhance the creativity, rallying power and combat capability of the party organizations at all levels. Is to promote the inner-party education to all party 与保障条例相比，基金办法具有以下的特殊规定:(1)基金办法第一条规定的制定目的中还包括促进中小企业的发展;(2)欠薪的范围不仅限于企业到期未支付的工资还包括企业应缴纳而逾期未缴纳的社会保险费;(3)适用的范围仅限为符合国家和上海市确定的小企业划分标准并已履行本办法规定交费办法的企业;(4)欠薪基金委员会的组成人员中不包括劳动者的代表;(5)欠薪保障费的标准是上海市上一年度在职职工月平均工资的60,;(6)规定符合办法规定的企业可以申请垫付欠薪，企业职工只有在企业无法提出申请的情况下提出申请;(7)规定了基金实施情况的报告制度和专项审批制度。 小结:经过比较分析，笔者认为保障条例结构上更趋于完善，其共分六章，分别为总则、欠薪保障机构、欠薪保障基金、欠薪的垫付、垫付欠薪的追偿和罚则;内容上更注重对劳动者利益的保护，这一点主要表现在其规定处理欠薪垫付申请的尽速审查和办理;基金管理上注重维持整体欠薪资金的平衡。基金办法虽然结构内容较为简单，但从管理体制上更注重各个行政机关之间的配合和协调，但只对欠薪基金委员会的职责作概括性的规定未涉及具体职责;在欠薪保障范围内将社会保险费包含在内(此举更有利于保障劳动者的权益)。 、香港地区的《破产欠薪保障条例》(PROTECTION OF WAGES ON INSOVLENCY 3 ORDINANCE)。 该条例共分七部分，分别为导言、破产欠薪保障基金委员会、基金、财务条文、从基金所作的拨款、已付款项的追讨和杂项。现择其主要规定作简要介绍:(1)在该条例的法律公告中表明该条例旨在订定条文，设立一委员会，以管理破产欠薪保障基金，并规定雇员在其雇主处于无力清偿的情况下，可获该基金拨付款项;(2)导言部分主要是对条例中的若干概念进行解释，如工资(wages)指公司清盘时，申请人根据《公司条例》有权获优先偿还的工资或薪金，或在破产案中申请人根据《破产条例》有权获优先偿还的工资或薪金;(3)破产欠薪基金委员会部分主要是规定基金委员会的名称(Protection of Wages on Insolvency Fund Board)和性质(body corporte)、委员会的职能及权力;(4)基金部分规定了基金的来源和从基金拨付的款项，其中基金的来源为财政拨付、对已付款项的追讨、利息和其他收入以及合法拨付的其他款项;(5)财务条文部分主要规定基金的管理和审核;(6)第五部分至第七部分对于款项的支付、追讨已垫付款项以及各种罚则做了规定。这部条例虽然规定的仅happiness XX made active contribution. The afternoon of April 21, the city's "two" educational Working Conference. Thoroughly study and apply the XI series of important speech, General Secretary of the Conference, especially on "two to learn a" learn the spirit of the important instructions of the education, in accordance with the deployment requirements of Central and provincial Committee, the city "two" education work arrangements. Mu Weimin, Secretary of municipal party Committee, attended the meeting and spoke. Following party of mass line education practice activities, and "three strict three real" topic education zhihou, in all members in the carried out "two learn a do" learning education, reflected has central linked, and step step in-depth advance full strictly rule party of political set force, is continued strengthening party of thought political construction of major deployment, is advance full strictly rule party to grass-roots extends of important initiatives, is promoted party education normal of, and institutionalized of important practice, is advance reform development stable the work of important guarantee. "Two" study and education, is to make each Member party rules India in the party Constitution, series XI, General Secretary of spirit and transformed into a powerful ideological weapon, and comprehensively improve the ideological and political quality, further enhance political par core awareness, situation awareness, awareness, awareness, and further enhance the creativity, rallying power and combat capability of the party organizations at all levels. Is to promote the inner-party education to all party 是雇主破产时对于雇员工资、代通知费、遣散费未得到支付的保障，但对于我国构建欠薪保障基金制度仍有借鉴意义。 二、欠薪保障基金概念的理论界定。 结合上述立法可以看出在规定欠薪保障基金制度存在诸多的差异，笔者认为造成上述现象的原因在于对于基本概念的理解各异，因此有必要对欠薪保障基金概念重新进行理论界定。 首先必须明确欠薪的概念。欠薪一般称为“拖欠工资”，从不同的角度进行分析，可以得出不同的解释。如果单纯地从的债权债务关系上来定义欠薪，主要是指因经营者逃遁、企业经营不善、破产等原因使用人单位无法支付到期应支付的劳动报酬。上述定义仅考虑到用人单位或经营者的因素，对于劳动报酬是否与劳动者的劳动相对应等因素未予以考虑，从而可能出现一些用人单位通过变相压低劳动者的工资的方式逃避对工人劳动报酬的欠债，从中谋取高额利润，侵犯劳动者的合法权益。基于此，从单方面定义欠薪已不能适应社会经济及劳资关系发展的需要，必须从多方面对欠薪进行定义。笔者认为在定义欠薪的概念时必须考虑如下因素:(1)对于工资的理解:工资，又称薪金，其广义，即职工劳动报酬，是指劳动关系中，职工因履行劳动义务而获得的，由用人单位以法定形式支付的各种形式的物质补偿。广义的工资应包括计时工资、计件工资、奖金、工资性津贴补贴、加班加点工资以及特殊情况下支付的工资。笔者认为从保护劳动者权益出发，此处的工资应作广义理解。(2)是否应该将用人单位拖欠社会保障费纳入欠薪概念,在劳动关系中用人单位除了根据劳动合同支付约定的工资外，还承担一定的支付义务，必须按照国家法律规定为劳动者支付一定的社会保障费，如养老保险金、失业保险金等。而且从长远角度进行考察，后者对于维护社会安定更具有实际意义。但是笔者认为劳动行政部门对用人单位拖欠社会保障费的行为可以依《中华人民共和国劳动法》第100条的规定责令限期缴纳以及加收滞纳金，故无须继续规定欠薪保障基金制度。(3)考虑到最低工资保障对于我国具有特殊的意义:是建立我国劳动力市场的基本条件;可以作为国家干预分配保障劳动者权益，保证社会的发展和稳定的手段;能够与国际劳工组织工资制度接轨。因此在欠薪概念的界定中也应引入最低工资保障的概念，即对于劳动者取得劳动报酬低于国家(或地区)规定的最低工资保障线标准，也归入欠薪的范畴。综上所述，本文讨论的欠薪主要是指因用人单位破产、依法整顿、经营者逃happiness XX made active contribution. The afternoon of April 21, the city's "two" educational Working Conference. Thoroughly study and apply the XI series of important speech, General Secretary of the Conference, especially on "two to learn a" learn the spirit of the important instructions of the education, in accordance with the deployment requirements of Central and provincial Committee, the city "two" education work arrangements. Mu Weimin, Secretary of municipal party Committee, attended the meeting and spoke. Following party of mass line education practice activities, and "three strict three real" topic education zhihou, in all members in the carried out "two learn a do" learning education, reflected has central linked, and step step in-depth advance full strictly rule party of political set force, is continued strengthening party of thought political construction of major deployment, is advance full strictly rule party to grass-roots extends of important initiatives, is promoted party education normal of, and institutionalized of important practice, is advance reform development stable the work of important guarantee. "Two" study and education, is to make each Member party rules India in the party Constitution, series XI, General Secretary of spirit and transformed into a powerful ideological weapon, and comprehensively improve the ideological and political quality, further enhance political par core awareness, situation awareness, awareness, awareness, and further enhance the creativity, rallying power and combat capability of the party organizations at all levels. Is to promote the inner-party education to all party 匿或其他原因造成用人单位无力或故意逾期未支付应支付工资和劳动者的工资收入„„更多》「提示」 您好～阅读本文需要交费，如果您想继续阅读，请登录或注册成为法学文献库读者～ 「参考文献」 [1]关怀、赵履宽主编《中华人民共和国劳动法实务全书》，经济日报出版社1994年版。 [2]王益英主编:《外国劳动法和社会保障法》，中国人民大学出版社2001年版。 [3]王叔文、许崇德、肖蔚云、回沪明主编《最新香港民商法律》，人民法院出版社。 [4]王全兴著:《劳动法》，法律出版社1997年版。 [5]李景森、贾俊玲主编:《劳动法学》，北京大学出版社2001年版。 [6]蒋月著:《社会保障法论》，法律出版社1999年版。

孟兆平 happiness XX made active contribution. The afternoon of April 21, the city's "two" educational Working Conference. Thoroughly study and apply the XI series of important speech, General Secretary of the Conference, especially on "two to learn a" learn the spirit of the important instructions of the education, in accordance with the deployment requirements of Central and provincial Committee, the city "two" education work arrangements. Mu Weimin, Secretary of municipal party Committee, attended the meeting and spoke. Following party of mass line education practice activities, and "three strict three real" topic education zhihou, in all members in the carried out "two learn a do" learning education, reflected has central linked, and step step in-depth advance full strictly rule party of political set force, is continued strengthening party of thought political construction of major deployment, is advance full strictly rule party to grass-roots extends of important initiatives, is promoted party education normal of, and institutionalized of important practice, is advance reform development stable the work of important guarantee. "Two" study and education, is to make each Member party rules India in the party Constitution, series XI, General Secretary of spirit and transformed into a powerful ideological weapon, and comprehensively improve the ideological and political quality, further enhance political par core awareness, situation awareness, awareness, awareness, and further enhance the creativity, rallying power and combat capability of the party organizations at all levels. Is to promote the inner-party education to all party