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beijing, september 25 (xinhua) -- the cpc central committee and the state council issued an opinion on implementing an employment-first strategy to promote high-quality and full employment.

(september 15, 2024)

employment is the most basic livelihood issue, which concerns the vital interests of the people, the healthy development of the economy and society, and the long-term stability of the country. in order to implement the employment priority strategy and promote high-quality and full employment, the following opinions are put forward.

i. general requirements

we will continue to be guided by xi jinping thought on socialism with chinese characteristics for a new era, thoroughly implement the spirit of the 20th cpc national congress and the second and third plenary sessions of the 20th cpc central committee, adhere to the people-centered development philosophy, and fully implement the principles of workers' self-employment, market-regulated employment, and government promotion of employment and encouragement of entrepreneurship. we will promote high-quality development as the basis, implement the employment-first strategy as the guide, strengthen the employment-first policy, focus on resolving structural employment contradictions, deepen the reform of the employment system and mechanism as the driving force, and take preventing the risk of large-scale unemployment as the bottom line. we will continuously promote the effective improvement of employment quality and the reasonable growth of employment quantity, promote the realization of stable work, reasonable income, reliable protection, and occupational safety for workers, and continuously enhance the sense of gain, happiness, and security of the vast number of workers, providing strong support for the comprehensive promotion of china's construction as a strong country and the great cause of national rejuvenation with chinese-style modernization.

through efforts, a situation of sufficient employment opportunities, fair employment environment, optimized employment structure, efficient job matching, and harmonious labor relations has gradually taken shape, and the employment work system with system integration, coordinated linkage, digital empowerment, scientific management, and legal protection has become more sound. urban employment has grown steadily, the unemployment level has been effectively controlled, the labor participation rate has remained basically stable, modern human resources have been shaped faster, the employment public service system has been improved, the size of the middle-income group has steadily expanded, the coverage of social insurance has been continuously expanded, and the employment rights and interests of workers have been effectively protected, so that everyone has the opportunity to achieve their own development through hard work.

ii. promoting coordinated linkage between economic and social development and employment promotion

(i) strengthen the employment-first orientation of macroeconomic regulation. make high-quality and full employment a priority goal for economic and social development, incorporate it into the national economic and social development plan, promote the coordinated efforts of fiscal, monetary, industrial, price, and employment policies, and enhance the employment-driven development. improve the employment impact assessment mechanism, and carry out job creation and unemployment risk assessment simultaneously with the formulation of major policies, the determination of major projects, and the layout of major productive forces, so as to build an employment-friendly development model.

(ii) enhance the employment coordination of the modern industrial system. develop new quality productivity according to local conditions, transform and upgrade traditional industries, cultivate and strengthen emerging industries, plan and build future industries, accelerate the development of advanced manufacturing clusters, and strive to create more high-quality jobs. promote the integrated development of productive services, accelerate the diversified development of life services, and expand the employment capacity of the tertiary industry. deeply implement the rural revitalization strategy, develop modern agriculture, improve agricultural labor productivity, and enhance the attractiveness of agricultural employment.

(iii) support various business entities to stabilize and expand employment. give full play to the leading role of state-owned enterprises in employment, and comprehensively use fiscal support, tax incentives, financial support, social security and other policies to guide various entities to better fulfill their social responsibilities of stabilizing and expanding employment. support the development of industries and enterprises with strong employment absorption capacity, and give priority to construction land plans and employment support services for business entities with good employment demonstration effects under the same conditions.

(iv) enhance the employment carrying capacity of regional coordinated development. deeply implement the regional coordinated development strategy and major regional strategies, and accelerate the formation of a number of employment clusters and growth poles with integrated services, integrated policies, and smooth channels. guide the orderly transfer of capital, technology, and labor-intensive industries from the east to the central and western regions, and from central cities to the hinterland, increase policy support for old revolutionary areas, border areas, and resource-depleted areas, and promote balanced employment development among regions.

(v) cultivate new momentum for employment expansion and quality improvement. expand new employment space for the digital economy, vigorously promote industrial digitization and digital industrialization, support the healthy development of the platform economy, and do a good job in job potential and career conversion in digital transformation. increase new green employment opportunities, actively develop green industries such as energy conservation and carbon reduction, environmental protection, ecological protection, restoration and utilization, and promote the synergy and efficiency of green development and employment growth. open up new areas of health care employment, develop the silver economy, promote the deep integration of health and elderly care, tourism, leisure, food and other industries, and give birth to new employment growth points.

iii. focus on resolving structural employment contradictions

(vi) improve the matching degree between education supply and talent demand. adapt to the new round of scientific and technological revolution and industrial transformation, scientifically analyze the development trend of human resources, and coordinate education, training and employment. promote high-quality development of higher education, expand the enrollment scale of science, engineering, agriculture and medicine majors, and optimize and adjust the discipline and major settings according to social needs, industrial needs, and career development. use employment status as an important basis for school resource allocation, education quality assessment, and enrollment plan arrangement, and implement a red and yellow card reminder system for majors with low employment quality. accelerate the development of modern vocational education, promote the integration of vocational and general education, industry-education integration, and science-education integration, and cultivate more high-quality technical and skilled talents. promote the high-quality and characteristic development of technical education, establish a number of technical education alliances (groups), and select and build a number of high-quality technical schools and high-quality majors. integrate career education into the entire process of talent training in colleges and universities, and promote career enlightenment, career cognition, and career experience in ordinary high schools.

(vii) improve the lifelong vocational skills training system. implement the skills china action, vigorously carry out vocational skills training, comprehensively promote the new apprenticeship training system in enterprises, and build a skills training system that runs through the lifelong learning and work of workers and covers the entire career. strengthen the construction of public training bases and high-skilled talent training bases, encourage enterprises to build vocational skills training bases, and form a vocational skills training supply system dominated by market-oriented training and dominated by industry and enterprise independent training. guide enterprises to fully withdraw and use employee education funds in accordance with regulations, ensure that more than 60% of the funds are used for front-line employee education and training, and allow them to be used to establish vocational schools (including technical schools) in enterprises.

(viii) broaden the development channels for skilled personnel. establish and improve the national qualifications framework, promote the two-way comparison and recognition of professional qualifications, professional skill levels, corresponding professional titles, and academic qualifications, promote the implementation of the "academic certificate + several professional skill certificates" system, actively explore and cultivate new professional sequences, and publish new occupations in a timely manner. smooth the career development channels, support qualified enterprises to carry out the evaluation and appointment of special technicians and chief technicians, and establish a number of skill master studios and model worker and craftsman innovation studios. dynamically publish information on the salary price of skilled personnel, and guide enterprises to gradually improve the salary and benefits of skilled personnel. improve the vocational skills competition system led by the world skills competition, the national vocational skills competition as the leader, the national industry and local vocational skills competitions and special competitions at all levels as the main body, and the vocational skills competitions of enterprises and colleges and universities as the basis, and improve relevant commendation and reward policies.

iv. improve the employment support system for key groups

(ix) expand employment and talent development channels for college graduates and other young people. promote market-oriented employment, improve policies on wages, job title evaluation and appointment, training and further studies, develop more jobs that are conducive to giving full play to what they have learned, encourage young people to engage in employment and entrepreneurship in key areas, key industries, urban and rural grassroots and small and medium-sized enterprises, and places with conditions can increase policy support for college graduates who are employed in small and medium-sized enterprises in counties and towns. improve the effectiveness of youth employment services, strengthen targeted career guidance, job introductions, skills training, and internships, and form service support that connects on-campus and off-campus and helps growth and development. implement special plans such as youth employment start and "hongzhi navigation", strengthen employment assistance for graduates from poor families and long-term unemployed youth, and promote their employment and integration into society as soon as possible. support returned overseas students to enjoy equal employment and entrepreneurship policies and services.

(10) provide employment services and guarantees for retired military personnel. improve the education and training system for retired military personnel that combines academic education with vocational skills training, entrepreneurship training, and personalized training. tap into job resources, explore the employment model of "education and training first, job follow-up", and encourage outstanding retired military personnel to work in grassroots party organizations, urban and rural communities, and retired military personnel service agencies in accordance with relevant regulations. guide retired military personnel to start businesses in key areas of national support.

(xi) expand the space for rural labor force employment and income growth. strengthen county-level industries that enrich the people, introduce a number of new professions that meet the needs of comprehensive rural revitalization, focus on guiding migrant workers to return home and urban talents to start businesses in rural areas, implement work-for-relief, and accelerate the formation of a coordinated urban-rural employment pattern with two-way flow and mutual integration. establish a regional labor cooperation alliance, carry out labor brand recognition and cultivation, and improve the integrated migrant work service system of employment services, vocational training, and rights protection. promote the normalization of employment assistance for low-income rural populations to prevent large-scale poverty due to unemployment.

(xii) improve the employment assistance system for people in difficulty. strengthen assistance to groups with employment difficulties such as the elderly, the disabled, and those who have been unemployed for a long time. rationally determine and dynamically adjust the identification standards for people with employment difficulties, and improve the employment assistance system with timely discovery, priority services, precise assistance, and dynamic management. encourage and support enterprises to absorb employment and start their own businesses, make good use of public welfare positions in a coordinated manner, and ensure that zero-employment families are dynamically cleared. create diversified and personalized jobs suitable for the elderly, and strengthen job search, employment, skills training and other services. employers who recruit workers over the statutory retirement age must protect the basic rights and interests of workers such as labor remuneration, labor safety and health protection, and work-related injury insurance in accordance with the law, and support employers to participate in social insurance in accordance with regulations.

(xiii) optimize the flexible employment protection system for self-employed people. improve the support system for entrepreneurship training, entrepreneurship services, entrepreneurship incubation, and entrepreneurship activities, optimize the policy environment for entrepreneurship and employment promotion, and improve the quality of entrepreneurship. support the healthy development of flexible employment, build regional industry-specific gig markets, and functional and convenient gig stations. support and standardize the development of new employment forms, expand the pilot program of occupational injury protection for workers in new employment forms, guarantee the right to know and participate in the platform labor rules of workers in new employment forms, and smooth the channels for workers to protect their rights. for people with employment difficulties and college graduates who have not found employment within 2 years after leaving school, a certain amount of social insurance subsidies will be given in accordance with regulations.

v. improve the precise and efficient public employment service system

(xiv) improve the employment public service system covering all people. adhere to the inclusive, basic and bottom-line nature, improve the service list, strengthen the service responsibilities of permanent residence and employment place, promote the employment public service to cover the permanent population widely, benefit the employers widely, and fully connect employment and entrepreneurship. improve the level of service specialization, give full play to the role of public employment service capacity improvement demonstration projects, regularly carry out business training and skills competitions, support employment service practitioners in employment public service institutions, colleges and universities to apply for relevant professional titles, promote the innovative development of the human resources service industry, and expand service supply.

(15) consolidate the foundation of grassroots-oriented employment public services. incorporate the construction of the employment public service system into the relevant planning of economic and social development and national land space, comprehensively consider the location characteristics, population characteristics, and service radius, and arrange service facilities and personnel teams to promote the extension of service resources to the grassroots, rural coverage, and inclination to remote areas and groups with employment difficulties. integrate grassroots employment public services into the scope of grassroots governance led by party building, include them in grassroots livelihood security services, create "doorstep" employment service stations and "15-minute" employment service circles, and improve grassroots employment public service networks with unified signs, reasonable layout, standardized services, and efficient operation.

(xvi) promote a digitally enabled employment public service model. establish a national unified employment information resource database, launch a national employment public service platform, and achieve integrated handling of employment matters, precise services, and intelligent supervision. promote a model of digital empowerment, on-site investigation, and precise services, promote data sharing and comparison among departments such as human resources and social security, education, public security, civil affairs, taxation, and market supervision, and proactively and accurately push policies and services to employers and workers.

vi. improving the level of protection of workers’ employment rights and interests

(xvii) guarantee the right to equal employment. resolutely remove the institutional and mechanism barriers that affect the flow of labor and talents, simultaneously promote the reform of household registration, employment, archives and other services, eliminate unreasonable restrictions and employment discrimination that affect equal employment due to region, identity, gender, age, etc., and smooth the channels for social mobility. improve the employment discrimination relief mechanism, include it in the scope of labor and social security supervision according to law, improve the civil support prosecution mechanism, and steadily carry out public interest litigation prosecution work. improve the mechanism to promote proportional employment, centralized employment, and self-employment of the disabled, and give full play to the role of the employment security fund for the disabled in promoting employment. guarantee the legitimate rights and interests of women in employment and entrepreneurship, career development, skills training, occupational health and safety, improve the support system for fertility protection, universal childcare, employment support, and build a fertility-friendly employment environment.

(18) promote the reasonable growth of labor remuneration. improve the primary distribution mechanism in which labor, knowledge, technology and other factors participate in distribution according to their contributions, and increase the proportion of labor remuneration in the primary distribution. strengthen macro-guidance on the distribution of enterprise wage income, and improve the mechanism for determining, reasonably increasing and ensuring the payment of workers' wages.

(19) build harmonious labor relations. improve labor relations consultation and coordination mechanisms, and promote enterprises to protect workers' legal rights and interests such as labor remuneration, rest and vacation, and labor safety and health protection in accordance with the law. strengthen the construction of labor and social security supervision and labor and personnel dispute mediation and arbitration teams, continue to rectify the order of the human resources market, and effectively deal with the chaos of wage arrears, illegal layoffs, and job hunting traps.

(20) expand social security coverage. promote employers and employees to participate in social insurance in accordance with the law, improve the social security system for flexible employment personnel, migrant workers, and new employment forms, and completely cancel the household registration restrictions on participating in insurance at the place of employment. promote the wide coverage of unemployment insurance, work-related injury insurance, and housing provident funds to professional workers. improve the linkage mechanism between employment and unemployment insurance and minimum living security, honor unemployment insurance benefits in accordance with regulations, provide stratified and classified social assistance, and adjust and improve the minimum living security gradual withdrawal period and employment cost deduction regulations.

vii. building a collaborative force to promote high-quality and full employment

(xxi) strengthen organizational leadership. adhere to the party's leadership in all areas and throughout the entire process of promoting high-quality and full employment. employment work shall be an important part of the performance appraisal of the party and government leadership teams at or above the county level, and commendation of employment work shall be carried out in accordance with relevant regulations. all regions, relevant departments and units shall regard employment as a top priority for people's livelihood, strengthen organizational implementation, improve institutional mechanisms, enhance work synergy, and implement this opinion in light of actual conditions to ensure that the decisions and arrangements of the cpc central committee and the state council are implemented and effective.

(xxii) strengthen support and guarantee. study and improve the legal system related to employment promotion and anti-employment discrimination. rationally arrange employment subsidy funds, coordinate and make good use of unemployment insurance funds and various industrial guidance funds to promote employment, and improve the government purchase of public employment services. accelerate the construction of china's employment theory system, strengthen employment theory research and consulting think tank construction. strengthen international cooperation in the field of employment, establish a regular dialogue mechanism, and enhance my country's international voice and influence in the field of employment.

(xxiii) prevent and resolve major risks. establish and improve a high-quality and fully employed statistical monitoring system, establish an employment position survey system, and conduct high-quality and fully employed assessments in a timely manner. improve the mechanism for preventing and resolving large-scale unemployment risks, strengthen monitoring and early warning, policy reserves, and emergency response. localities with conditions may set up employment risk reserves to properly respond to major risks in the employment field. actively respond to the impact of the rapid development of emerging technologies such as artificial intelligence on employment.

(xxiv) create a favorable atmosphere. carry out centralized employment promotion and skills publicity activities in a timely manner, increase the intensity of policy publicity and interpretation, timely summarize and publicize typical experiences and implementation results, strengthen public opinion guidance, and promote the formation of a favorable atmosphere in which the whole society cares about and supports employment.