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The author:(作者)delvpublished in(发表于) 2014/1/20 9:16:53 Professor of people’s University： the salaries of civil servants return to market
Recently, with continuous 15 ban on civil servants to be made by the Central constraints, within the civil service system, "complaining of" audio-out, said wages are too low, and some even said to quit the civil service. So, what should be about how to judge the level of civil service pay is reasonable or not?
In the discussion prior to the salary levels of civil servants, we need to first define the concept, known as carrying on a career or occupation to receive total compensation of exactly what is included. People in select engaged in a copies work or career Shi, usually will integrated consider can obtained of following several aspects paid: a is cash sexual of wage, which including fixed wage and floating wage or bonus; II is welfare, which including involves like housing, and endowment, such some content of again welfare, also including units provides of catering, and fitness facilities, other welfare; three is various non-currency sexual of paid, like work and life balance of opportunities, and work conditions, and learning and growth of opportunities, and work supportability or sense wait. People in wage income when compared to two kinds of people, mainly the first two parts (the wages paid), the third piece of content is difficult to directly compare and introduction to these characteristics are also reflected in the monetary wage.
At present, China's civil service salary compensation includes base salary, local subsidies and subsidized welfare three chunks. Among them, the basic salary of civil servants are set centrally by the Central Government, civil servants from all over are the same. Basic salary including task rate and level of wages in two parts, in which task rate linked to the administrative level, rank salaries linked to the basic qualification. At present levels of task rate tables and payroll is set at 7 years ago, so far has not raised its overall. Therefore, cases of civil servants in positions without promotion, the basic wage levels rely on higher levels have raised, however, for the vast majority of civil servants, wage level raised one notch, base salary increases only dozens of Yuan.
Civil servants ' salaries paid for the second block is the local Tianjin subsidies, this part of the salary depends largely on the local fiscal revenue. Tianjin subsidies have in the past, in the civil service after the law was enacted, the Central People's Government to implement Sun paid for wizards, subsidies to local Tianjin regulated and constraint, the Commission also issued a serious discipline for this purpose. So for now, the civil service code of Tianjin subsidies are relatively, and level is not high. However, differences do exist in different parts of the civil service aided subsidies, and the difference between not only exists in different provinces or regions, is present in the same area between different cities and counties, even more than in the province provincial differences.
The welfare of civil servants of the most compelling, is also the most contentious has two main block, a housing, the other is care for the elderly. Past, Central Government and local government are will managed to help civil servants settlement housing problem, and currently, despite this situation still exists, but government hands of housing resources (including government owned real estate, and housing and specifically of civil servants community,) also increasingly scarce, and, different government sector settlement civil servants housing of capacity difference also is big, many civil servants, especially grass-roots civil servants, usually hard in short-term within relies on Government settlement housing problem of. As for old-age pension, the big advantage is that the work of civil servants are not required to pay old-age insurance, retirement pension replacement rate (80%-90%) is significantly higher than employees (about 40%).
When it comes to the income of civil servants, the public also has a more informal conversation "compensation", which is "grey", or even "corrupt income." There is no doubt, there is some civil servants, especially some of the leading cadre or the so-called powers of the civil service will have income in this area, but the vast majority of civil servants in particular opportunity is not a lot of ordinary civil servants receiving such income or proceeds is limited. After Central to enhance supervision and management of the civil service, this part of "under the table" income will be further compressed, many civil servants can't even further.
So, how we should look at the salaries of civil servants between the average level of remuneration and social problems? Here, should insist on two principles: one is full-bore principle, the need for wages and benefits into cash, rather than isolation to discuss some other reward. Second is the principle of comparable objects. That is, the selection should be compared with similar social groups of civil servants, rather than more.
First, the current civil servants "to poor-mouth" actually mainly complain of cash during The pay is too low, they do not deny their welfare particularly for housing and good retirement benefits; the opinion that the salary of civil servants, the public is dissatisfied with the civil servants ' housing and retirement benefits are too good, actually all of us is the default current wages of civil servants, remuneration is not high the fact. Therefore, overall assessment of civil servants ' pay total compensation (wages plus benefits) may be relatively low, otherwise, even when taking into account the stability of the civil service, for power or even "gray income" expectations and employment difficulties and other reasons, it's hard to explain why so many people work as civil servants in droves.
Here of a key problem on is, civil servants of current paid (currency sexual wage) and extension paid (endowment welfare,) Zhijian proportion relationship and social is instead of: most enterprise workers is work Shi of currency wage level relative high, and in retired Hou get of currency sexual income (main is pension) relative lower, and civil servants of wage sexual paid does current low, and future high. This structural dislocation not only cause public dissatisfaction in the community, it also led to the discontent of civil servants as a whole, because they are so-called high salary in Exchange for retirement, need money in prime time had to receive a lower level of current income. Therefore, a better approach is to make the civil service wage compensation payment of wages with the employee remuneration law generally match up, namely cutting public cannot enjoy some of the controversial civil service benefits (such as alternative pension treatment rate is too high), while the current civil service wages paid to a suitable level.
Secondly, we see the second principle. This principle is in fact pointed out that comparison of the wages paid to the two working groups is a prerequisite. Is apparently, workers personal of human capital stock (including qualifications and work experience,), and workers in organization in the specific bear of post of nature and grade (posts type and positions,), and workers is located of enterprise or industry of nature (scale, and capital intensive degrees,) and enterprise of operating management concept (operating strategy and human resources strategy),, will on workers of wage sexual paid level produces effects, not only different enterprise between of wage sexual paid level difference is big, But a pay gap between different employees within an organization can be significant. So, in practice in the, enterprise in and other enterprise Zhijian for wage sexual paid comparison Shi, basically are is in by engaged in of work nature similar and human capital level near of two class employees groups Zhijian expand, and not General to comparison different enterprise all employees of wage sexual paid Zhijian of difference, like, in this enterprise and other enterprise of research personnel Zhijian or functions management personnel Zhijian for pay comparison, even further specific to financial management personnel Zhijian for pay comparison.
Similarly, when comparing civil servants ' salaries and social wage, should choose the nature of the work, education requirements and other aspects close compared to the civil service and corresponding social groups, rather than a general comparison. In fact, even in the civil service within the Group also existed to require a higher level of education, work difficult jobs, while there are also some just do simple programs, documentation or service job opportunities. If you do not type of civil service personnel or Office-type subdivision, is unable to properly assess the overall wages of civil servants paid is high or low.
At present, the United States, and Japan, and Germany, as well as China's Hong Kong Special Administrative Region has a relatively complete civil service wages with the employee remuneration comparison mechanism of these comparisons are established on the basis of comparable personnel or in comparable positions. To date, our civil service wages paid comparison mechanism among enterprises in the process of being studied, and formally introduced and classified management of civil servants in our country is not perfect, no job analysis work, this has a direct impact on the civil service pay levels consistent with rules of the market mechanism in place.
(Author-Renmin University of China, national development and strategy Research Institute and Professor, school of public administration)
(Original title: let the salaries of civil servants return to market)
近日，随着中央连续发了15道禁令对公务员加以约束，公务员系统内部的“叫苦”之声频出，表示工资太低，甚至有人表示要退出公务员队伍。那么，到底应当如何判断公务员的工资水平合理与否呢？
在讨论公务员的工资水平之前，我们需要首先界定一下概念，即人们因为从事某一份工作或职业所能够获得的总体报酬到底包括哪些内容。人们在选择从事一份工作或职业时，通常会综合考虑能够获得的以下几个方面报酬：一是现金性的工资，其中包括固定工资和浮动工资或奖金；二是福利，其中包括涉及到像住房、养老等这样一些内容的重头福利，也包括单位提供的餐饮、健身设施等其他福利；三是各种非货币性的报酬，比如工作和生活平衡的机会、工作条件、学习和成长的机会、工作保障性或安全感等等。人们一般在对两类人的工资收入进行比较时，主要是比较前两部分内容(简称工资性报酬)，第三块内容很难直接比较，而且这些特点往往也会简介地反映在货币性工资当中。
目前，我国公务员的工资性报酬主要包括基本工资、地方津补贴和福利三大块。其中，公务员的基本工资是中央政府统一制定的，各地公务员都一样。基本工资包括职务工资和级别工资两部分，其中职务工资与行政级别挂钩，职级工资基本跟资历挂钩。目前的职务工资表和级别工资表都是在7年前确定的，至今一直没有整体上调过。因此，公务员在职务没有晋升的情况下，基本工资水平的提高就只能依靠级别上调了，然而，对绝大多数公务员来说，级别工资上调一档，基本工资的上涨幅度仅仅只有几十元。
公务员工资性报酬的第二块是地方津补贴，这部分工资主要取决于地方的财政收入。过去各地的津补贴发放比较乱，在公务员法颁布之后，中央政府以实施阳光工资为向导，对地方津补贴加以规范和约束，中纪委也为此专门发文严肃纪律。所以目前公务员的津补贴也是相对规范的，而且水平并不高。不过，不同地方公务员的津补贴确实存在差异，而且这种差异并非仅仅存在于不同省份或地区之间，也存在于同一个地区的不同市县之间，省内的差异甚至超过省际差异。
公务员的福利最引人注目，同时也是争议最大的主要有两块，一块是住房，另外一块是养老。过去，中央政府以及地方政府都会设法帮助公务员解决住房问题，而目前，尽管这种情况依然存在，但政府手中的住房资源(包括政府自有房产、经济适用房以及专门的公务员小区等)也日益稀缺，而且，不同政府部门解决公务员住房的能力差别也很大，很多公务员，尤其是基层公务员，通常很难在短期内依靠政府解决住房问题的。至于养老，公务员的最大优点在于工作时不需要缴纳养老保险，但退休后的养老金替代率(80%-90%)却大大高于企业职工(40%左右)。
谈到公务员的收入，公众谈得比较多还有一块非正式“报酬”，这就是“灰色收入”，甚至“腐败收入”。毋容置疑，确实有一部分公务员，尤其是部分领导干部或所谓实权部门的公务员会有这方面的收入，但绝大部分公务员尤其是普通公务员获得这种收入的机会并不是很多或所得数额比较有限。在中央加强对公务员队伍的监督管理之后，这部分“桌子下面的”收入会进一步被压缩，很多公务员甚至都不会再有。
那么，我们应当怎么看待公务员的工资性报酬和社会平均水平之间的比较问题呢？这里，应当坚持两个基本原则：一是全口径比较原则，即需要把现金性工资和福利全部纳入，而不是孤立地讨论其他某一块报酬。二是可比对象比较原则。也就是说，应当选取与公务员类似的社会群体加以比较，而不是泛泛比较。
首先，当前公务员“哭穷”实际上主要是抱怨工作期间的现金性工资太少，他们并不否认自己的福利尤其是住房以及退休福利好；而认为公务员待遇高的社会公众则是不满公务员的住房以及退休福利太好，大家其实是默认公务员的现期工资性报酬不高这样一个事实的。因此，从总体上评估，公务员的工资性报酬总额(即工资加福利)可能并不算太低，否则，即使考虑到公务员工作稳定、对权力甚至“灰色收入”的期望以及就业困难等方面的原因，也很难解释为什么那么多的人对当公务员趋之若鹜。
这里的一个关键问题就在于，公务员的现期报酬(货币性工资)和延期报酬(养老福利等)之间比例关系与社会是相反的：大部分企业职工是工作时的货币工资水平相对较高，而在退休后得到的货币性收入(主要是养老金)相对较低，而公务员的工资性报酬确实现期低、未来高。这种结构性的错位不仅导致社会公众不满，同时也导致整个公务员队伍的不满，因为他们为了换取退休后的所谓高待遇，不得不在正需要花钱的年富力强时期领取较低水平的现期工资。因此，一种最好的做法就是让公务员的工资性报酬与企业职工的工资性报酬的支付规律大体吻合起来，即削减社会公众无法享受的一些备受争议的公务员福利(比如替代率过高的退休金待遇)，同时将公务员的现期工资性报酬提高到一个合适的水平上来。
其次，我们来看第二项原则。这一原则实际上指出，对两类劳动者群体的工资性报酬比较是有前提的。很显然，劳动者个人的人力资本存量(包括学历和工作经验等)、劳动者在组织中具体承担的岗位的性质和等级(职位类型和职务等)、劳动者所在的企业或行业的性质(规模、资本密集度等)以及企业的经营管理理念(经营战略以及人力资源战略)等，都会对劳动者的工资性报酬水平产生影响，不仅不同企业间的工资性报酬水平相差很大，而且同一家企业内部的不同员工间的薪酬差距也可能很大。因此，在实践中，企业在与其他企业之间进行工资性报酬比较时，基本上都是在所从事的工作性质相似且人力资本水平接近的两类员工群体之间展开，而不是笼统地比较不同企业全体员工的平均工资性报酬之间的差别，比如，在本企业与其他企业的研发人员之间或职能管理人员之间进行薪酬比较，甚至进一步具体到财务管理人员之间进行薪酬比较。
同样道理，在比较公务员工资和社会工资的时候，也应当选择在工作性质、受教育程度要求等方面接近的公务员群体和相应的社会群体进行比较，而不是进行笼统的比较。事实上，即使是在公务员群体内部，同样也存在对受教育程度要求较高、工作难度较大的职位，同时也存在一些仅仅是完成简单的程序性、文案性或服务性工作的职位。如果不将公务员的人员类型或职位类型进行细分，就无法正确评估公务员的总体工资性报酬是高还是低。
目前，美国、日本、德国以及我国香港行政特区都有比较完善的公务员与企业员工之间的工资性报酬对比机制，这些比较均是建立在可比人员或可比职位的基础之上的。到目前为止，我国公务员与企业之间的工资性报酬对比机制尚在研究过程之中，并正式出台，同时，我国公务员的分类管理不完善，职位分析工作没开展，这些都直接影响到符合市场经济规律的公务员薪酬水平决定机制的确立。
(作者为中国人民大学国家发展与战略研究院及公共管理学院教授)
(原标题：让公务员的工资回归市场)
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