典範連續或典範轉移？德國與英國年金改革研究

Paradigm Continuity or Paradigm Shift? Study of Pension Reforms in the UK and Germany

10.6785/SPSW.200906.0001

葉崇揚(Chung-Yang Yeh)；施世駿(Shih-Jiunn Shi)

英國 ； 德國 ； 年金改革 ； 路徑依賴 ； 典範轉移 ； United Kingdom ； Germany ； pension reform ； path dependency ； paradigm shift

社會政策與社會工作學刊

13卷1期（2009 / 06 / 01）

1 - 51

繁體中文

隨著人口老化，年金體系的改革議題逐漸在世界各國中發酵。在許多福利國家退卻的文獻討論中，都指出由於年金體系的成熟、雙重給付、和利益團體等制度性因素限縮了福利改革的範固與路徑，呈現路徑依賴的模式。不過，我們研究發現雖然世界各國年金體系改革模式不盡相同，卻部分呈現制度變遷或甚至是典範轉移的情形。我們選擇年金體系兩種模式的代表國家：貝弗里奇模式的英國、與俾斯麥模式的德國做爲比較研究的個案，從制度變遷的觀點分析兩個國家在1990年代晚期與2000年之後的年金體系變革。英國年金改革的議題集中在解決老人貧窮問題、和加強公私部門的協力關係，因此主要措施是將傳統的SERPS轉變成由國家承擔的S2P，讓無法有SPSs的人口群能夠獲得第二層年金的所得保障，以避免落入貧窮。德國年金改革的議題則是側重於非薪資勞動成本的降低，以「自願的補貼式年金」彌補法定年金的所得替代率的降低，並且增加了資產調查式的基礎年金。我們發現兩個國家的年金體系結構逐漸朝向世界銀行的多柱模式；不過其變遷的模式，英國在2000年的年金變革是屬於典範連續；德國則屬於漸進式典範轉移。

With population ageing, the issue of reforming pension systems stands on top of the political agenda worldwide. Numerous academic discussions on the retrenchment of the welfare state have pointed out that institutional factors such as the maturity of pension systems, double payment burden, as well as interest groups, have constrained the extent and scope of welfare reforms, manifesting the staunching effect of path dependency. Yet, our research reveals the possibility of institutional change or even paradigm shift despite the different modes of pension reform worldwide. We choose the prime examples of Beveridge and Bismarck pension systems-United Kingdom and Germany as the cases for comparison; and analyze their pension reforms in the late 1990s and the 2000s from the perspective of institutional change. In the case of British pension reform, the state centered on the issues of resolving elderly poverty and the synergy of public and private sectors, thereby transforming the SERPS into the S2P (State Second Pension) with the aim of providing additional income support for those unable to claim the SPS (Stakeholder Pension Scheme). The German pension reform focused instead on the reduction of non-wage labor cost by encouraging voluntary supplementary pensions in compensation for the declining income replace rate of the statutory pensions, as well as by introducing means-tested basic pensions. As pension reforms of both countries the gearing toward the multi-pillar model of the World Bank, we argue that the British pension reform manifests paradigm continuity, whereas the German case demonstrates incremental paradigm shift.

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