近年来我国人口老龄化加速发展，第六次全国人口普查显示，我国60岁及以上老年人口已达1.78亿，占总人口的13.26%。同时，我国需要照料的失能、半失能老人数量剧增。老龄化是我国未来经济社会发展面临的重大挑战。我国“十二五”规划明确提出“加强公益性养老服务设施建设”。加快养老服务设施建设，需要综合运用发展规划、投资、财税、土地等政策措施，建立有利于养老服务机构可持续发展的投融资政策支持体系和环境。

In recent years the population aging in our country is accelerating，Sixth national population census shows，Our country 60 years old or older and population reached 178 million，13.26% of the total population。At the same time，Our country to care for the disability、Half a disability old man to flourish。Aging is economic and social development in our country in the future the facing big challenges。Our country“1025”Planning clearly put“Strengthening public welfare pension service facilities”。To speed up the endowment service facilities，Need comprehensive development planning、investment、Finance and tax、Land policies and measures，Establish endowment services to the sustainable development of the investment and financing policy support system and environment。

　　一、强化发展规划引导

a、Strengthen the development planning guide

　　《社会养老服务体系建设规划（2011-2015年）》从国家层面上明确提出了“十二五”时期我国社会养老服务体系建设的指导思想、建设目标、建设任务和保障措施。建议各级地方政府要在该国家级养老服务设施发展建设规划的基础上，因地制宜，制定本地区“十二五”养老服务设施发展建设规划。

《Social endowment service system construction planning（2011-2015）》From national level clearly stated“1025”Our country during social endowment service system construction guiding ideology、Construction goal、Construction tasks and measures。Suggestions to the local governments at all levels in the national pension service facilities development construction planning basis，Adjust measures to local conditions，Formulate local“1025”Endowment service facilities development construction planning。

　　各地养老服务设施发展建设规划应当包括总体思路、建设目标、主要任务、建设重点和保障措施等内容。要通过编制发展建设规划，确定发展养老服务设施的重点领域、重点工程和重大（示范）项目及其投融资需求，体现政府发展意图，明确政府相关职责和国家相关支持性政策，并为社会资金投向养老服务设施指明方向。

Pension service facilities around the development construction plan shall be including general thought、Construction goal、The main task、Construction point and security measures。Through the development of the construction plan，Determine the development of key areas of endowment service facilities、Key projects and major（demonstration）Project and its investment and financing needs，Manifests the government development intentions，Clear responsibility and relevant state government related supportive policies，For the society fund in the endowment service facilities direction。

　　此外，各级政府的城乡规划和土地规划等部门还应将社会养老服务设施建设纳入城乡建设规划和土地利用规划，合理安排，科学布局，保障养老服务设施建设的用地需求。

In addition，Governments at all levels of urban and rural planning and land planning departments should also will social endowment service facilities into rural and urban construction planning and land use planning，Reasonable arrangement，Scientific layout，Security pension service facilities of the land demand。

　　二、加大政府投资力度

two、To strengthen the government investment

　　（一）强化政府投资主体的地位

（a）Strengthening the government the investment subject status

　　养老服务设施建设项目具有较强的公益性，其一般具有投资规模大、回收期长、投资风险高的特点，有的甚至属于纯福利性的，基本没有收益。因此，世界各国的养老服务设施建设都是由政府主管，并在投资总量上占主导地位。

Endowment service facilities construction project has strong public benefits，The general has investment scale、Is long、The characteristics of high investment risk，Some even belongs to pure welfare，Basic no earnings。so，World endowment service facilities are made by the competent government，And in the total investment dominant。

　　世界上大多数国家的养老服务设施建设融资结构中政府投资占70%左右。如即使在市场化程度最高的美国，养老服务设施等以公益性为主要目标的设施也主要是由政府部门资金支持的。

Most countries in the world endowment service facilities construction financing structure of government investment accounts for 70%。If even in the market with the highest level of the United States，Endowment service facilities such as the major objective of the facilities for public welfare also mostly by government departments of financial support。

　　（二）争取政府对养老服务设施投资的长期稳定增长

（two）For the government pension service facilities investment long-term stability of the growth

　　针对长期以来政府养老服务设施投资不足导致养老服务设施供应滞后的状况，需要建立一种政府养老服务设施投资比全社会投资和财政支出更快速度增长的机制。政府除要根据我国未来经济发展水平不断提高和政府财政收入不断增长的情况，直接加大对养老服务设施建设的国家预算内投资和专项投资外，为确保养老服务设施投资增长的长期稳定和可持续性，还可在养老服务设施投资与全社会投资或政府投资增长之间建立起一种相互挂钩的机制。具体而言，政府可参考国外养老服务设施投资占政府投资或财政支出的比例，同时按照我国未来一定时期经济和社会发展对养老服务设施发展的需要，预先确定养老服务设施投资占全社会投资或国有投资的相应比例，当实践中出现养老服务设施投资比重低于预先确定的投资比例时，则要求各级政府调整财政支出结构，增加对养老服务设施建设的投入比重，从而恢复和提高养老服务设施投资占国有投资和全社会投资比重。

For a long time the government pension service facilities investment leads to endowment service facilities supply lagging behind the situation，A need to establish the government pension service facilities investment than the whole society investment and financial expenditure faster speed growth mechanism。According to the government in addition to in our country in the future economic development level improvement and government financial income increase，Direct to increase endowment service facilities of the national budget investment and the special investment，To ensure that endowment service facilities investment growth long-term stability and sustainability，Still can be in pension service facilities investment and the social investment or government between investment growth to build up a mutual hook mechanism。In particular，The government may refer to foreign endowment service facilities investment accounts for of government investment or the proportion of fiscal expenditure，At the same time according to China's future period of economic and social development of endowment service facilities development needs，Determine beforehand endowment service facilities investment accounts for of all the social investment or the corresponding proportion of state-owned investment，When practice appear endowment service facilities investment proportion below the predetermined investment proportion，Calls for the government at all levels to adjust expenditure structure，Increase pension service facilities the proportion of investment，To restore and improve the endowment service facilities investment accounts for of the national investment and the social investment proportion。

　　建立养老服务设施投资与国有投资和全社会投资增长相挂钩的机制，可使养老服务设施投资增长的稳定性和可持续性问题得到有效解决，从而为养老服务设施建设提供最稳定、可靠的资金来源。

Establish endowment service facilities investment and state-owned investment and the social investment growth link mechanism，Can make endowment service facilities investment growth stability and sustainable problems effectively solved，Thus for pension service facilities provide the most stable、Reliable sources of funding。

　　三、大力引导社会资本参与投资

three、To guide the social capital involved in the investment

　　（一）鼓励保险公司投资建设养老服务设施

（a）Encourage insurance company investment construction endowment service facilities

　　保险公司投资建设养老社区等服务设施符合国家发展政策导向，国家有关文件明确提出支持相关保险机构投资医疗机构和养老实体。从发达国家看，ING和IOWA等保险机构自20世纪90年代以来即开始进行养老社区投资管理。近年来，我国一些保险公司也开始尝试直接或间接投资于养老服务设施，如泰康保险专门成立“泰康之家投资有限公司”，计划用4年左右时间，投入40亿元建成全功能、高品质服务的现代养老社区泰康之家。此外，中国人寿(601628,股吧)、中国人保、合众人寿都表示出对投资建设养老社区的兴趣。如中国人寿计划首期投资约100亿元在河北廊坊筹建北方养老社区，在海南筹建南方养老社区，而中国人保已有意将老人保历史遗留的风景名胜区不动产经更新改造后发展成养老社区。

Insurance companies invest in the construction of community service facilities such as pension accord with national development policy guidance，National relevant documents clearly put support related insurance institutions investment medical institutions and the endowment entity。Look from the developed countries，ING and IOWA insurance institutions such as the 1990 s began endowment community that investment management。In recent years，Our country some insurance companies are trying to direct or indirect investment in pension service facilities，Such as "taikang" insurance has set up“The house of taikang investment Co., LTD”，With 4 year plan，Spent 4 billion yuan into the function、High quality service to the community of the modern endowment taikang home。In addition，China life(601628,Shares it)、Chinese people can keep、Raymond life expressed concern that invest in the construction of endowment community interest。The first investments such as China life plan about $10 billion in hebei langfang preparation north endowment community，In the preparation of hainan southern endowment community，While China is interested in old man the insurer has left over from history scenic spot of the real estate update after transforming development into endowment community。

　　从另一方面看，保险公司投资建设养老服务设施对其自身具有积极意义。其一，有助于扩展保险公司的投资渠道。在我国保险业快速发展过程中，保险公司积聚了大量可投资资产，但至今投资渠道十分狭窄。实践中大量保险资金进入了银行存款、国债等短期投资渠道，造成了资产负债期限的不匹配。养老社区投资作为一项长期投资，规模大，期限长，不仅可有效拓宽保险资金的投资渠道，而且可以与保险公司的长期负债相匹配。二是有助于提升保险公司的整体形象并提高附加值。近年来我国保险业发展迅速，但投保人除了获得保险公司返还的红利和满期保险金之外，很难再享受到保险公司其他服务。保险公司如果投资建设养老服务设施，则很有可能吸引投保人入住。这不仅可以拓展保险公司的外延服务，而且有助于提高投保人对保险公司的忠诚度。

On the other hand，Insurance company pension service facilities construction investment in its own positive。one，Help extend insurance company's investment channels。In the insurance industry in the process of rapid development，The insurance company amassed a can of investment assets，But so far the investment channel is very narrow。In the practice of insurance capital into the bank deposit、Treasury bonds, and other short-term investment channels，Caused the assets and liabilities of the term does not match。Endowment community investment as a long-term investment，Large scale，Long term，Not only can effectively broadening of the insurance fund investment channels，And with insurance company can match the long-term debt。Two is to help promote the insurance company's overall image and improve the added value。In recent years the rapid development in the insurance industry，But in addition to get insurance company return policy-holder dividends and earned outside insurance gold，Difficult to enjoy the insurance company to other services。The insurance company if investment service facilities construction endowment，It is likely to attract policy-holder checked in。This not only can expand the insurance company's extension service，And help improve the policy-holder of insurance company loyalty。

　　（二）引导房地产企业投资建设养老服务设施

（two）Real estate enterprise investment guide construction pension service facilities

　　相对而言，老年公寓等经营性养老服务设施具有较好的经济性，房地产企业投资建设老年公寓等养老服务设施既有利于其拓宽投资领域，又有助于增加养老服务设施的供应从而缓解养老服务设施的瓶颈制约。此外，老年公寓可租可售的特点在很大程度上也便于房地产企业进行合理避税从而提升投资效益。在当前国家加大对房地产宏观调控的背景下，特别是在国家加大保障性住房建设力度、住宅限购和土地限供等多重政策作用下，商品住宅的市场需求难免受到制约，建议各地政府要大力鼓励和引导房地产企业投资建设老年公寓等养老服务设施。

relatively，An old endowment service facilities, etc. Has a good economy，Real estate enterprise investment construction old apartment as endowment service facilities are not only good for its expanding the area of investment，And help to increase endowment service facilities supply and relieve bottleneck restriction of endowment service facilities。In addition，Older apartments for rent the characteristics of commercially available in the very great degree is also convenient for real estate enterprises so as to enhance the efficiency of tax avoidance reasonable investment。In the current state of real estate increase under the background of macroeconomic regulation，Especially in countries more affordable housing construction force、Residential 限购 and land limit for multiple under the role of policy，Commodity residential market demand is restricted，Suggest governments around the world to encourage and guide the real estate enterprise investment construction old apartment as endowment service facilities。

　　（三）支持公益性基金会等社会组织投资兴办养老服务设施

（three）Support public welfare foundation and other social organizations to invest in pension service facilities

　　从发达国家情况看，公益性基金会等非政府组织和个人捐款对养老服务设施建设发挥了重要作用，很多非赢利性的养老机构甚至直接是由社会组织或个人投资兴办的。但在我国由于公益性社会组织如公益性基金会本身发展尚不太成熟，不仅组织数量相对较少，而且运作也不太规范，因而除了几个规模较大、成立时间较长且具有半官方背景的公益性基金会外，直接投资兴办养老服务设施的情况还相当少见。借鉴发达国家的经验，建议国家进一步支持、鼓励和引导公益性基金会等社会组织直接投资兴办养老服务设施。

Can see from the developed countries，Public welfare fund, non-governmental organizations and individual donations pension service facilities has played an important role，Many nonprofit organization for aged even directly is by the society organizations or individuals invested。But in our country community public welfare organization such as public welfare because the foundation itself is not too mature development，Not only the relatively small number organization，And operation also not too norms，Thus, except in a few large scale、Established a long time and has the public welfare foundation of the semi-official background，Direct investment by pension service facilities is quite rare。Referring to the experiences of developed countries，Suggestions to further support countries、Encourage and guide the public welfare foundation and other social organizations are directly invest in pension service facilities。

　　四、努力拓宽融资渠道

four、Efforts to broaden the financing channels

　　（一）加大社会福利基金对养老服务设施建设的支持力度

（a）Increase the social welfare funds pension service facilities construction support

　　按照国家有关规定，社会福利基金的使用范围包括用于资助为老年人、残疾人、孤儿、革命伤残军人等特殊群体服务的社会福利事业。养老服务设施建设和必要的更新改造项目，显然属于社会福利基金的使用范围。

According to the relevant provisions of the state，The use of social welfare fund include funding for old people、disabled、orphans、Revolution, and other special services group disabled veterans of the social welfare programs。Endowment service facilities and the necessary rehabilitation projects，Obviously belongs to the scope of application of social welfare fund。

　　近年来，我国通过发行彩票筹集的社会福利基金规模快速扩张。以福利彩票发行为例，2000年福利彩票发行筹资总额只有89.9亿元，提取的公益金只有24.2亿元，但到2010年福利彩票发行筹资总额迅速增加到968亿元，提取的公益金相应增加到近300亿元，比2000年增长11倍。考虑到我国未来老龄化不断加速，对养老服务设施需求快速增长，为加快养老服务设施建设和发展，建议社会福利基金应加大对养老服务设施建设的支持力度，提高用于养老服务设施建设的资金比例，从而为养老服务设施建设提供又一个稳定的资金来源渠道。

In recent years，Our country through the issuance of the social welfare fund raising lottery scale expansion。Welfare lottery for example，2000 lottery total amount raised only $8.99 billion，The community chest extraction is 2.42 billion RMB，But by 2010 lottery total funds increased to 96.8 billion yuan quickly，The community chest extraction increased to nearly 30 billion yuan accordingly，In 2000 growth than 11 times。Consider accelerating aging in our country in the future，Pension service facilities needs fast growth，In order to speed up the endowment service facilities construction and development，Advice should strengthen social welfare fund to pension service facilities construction support，Improve the service facilities for pension fund proportion，Thus for pension service facilities and provide a stable funding sources。

　　（二）鼓励社会组织、个人和其他社会力量向养老服务机构捐赠资金

（two）Encourage social organizations、Personal and other social forces to pension service institution endowment funds

　　2000年以来，我国来自企业、事业单位和社会个人的慈善捐款呈现快速增长趋势。2000年全社会的捐赠款不到10亿元，2008年（由于汶川地震）达到最高的744.5亿元，到2009年、2010年尽管比2008年有所降低，也分别达到483.7亿元和596.8亿元，相当于2000年的50-60倍。这些巨额的社会捐赠款，尽管其中一部分资金应捐赠者的要求会有其特定用途，不能用于养老服务设施，但仍有相当一部分资金可由接受捐赠的民政部门和社会组织自行确定用途，其中还有一部分资金本身就是以养老事业或特定养老服务项目的名义募捐的。建议除特定用途的募捐款以外的资金应重点用于养老服务设施等公益事业建设。

Since 2000，From enterprise in China、Institutions and social personal charitable donations presents the fast growth trend。2000 all social endowments are less than 1 billion yuan，2008 years（Because the wenchuan earthquake）Reach the highest 74.45 billion yuan，By 2009、In 2010 than in 2008 despite reduced，Also reached 48.37 billion yuan and 59.68 billion yuan respectively，The equivalent of 2000 years of 50-60 times。These huge social endowments are，Although some of the requirements of the donor funds should have their specific use，Can not be used in pension service facilities，But there are still a part of the capital can be made of donations of civil affairs departments and social organization to make sure purposes，There is a part of the capital itself is to endowment business or specific endowment service in the name of the project of the donation。Except for specific purposes Suggestions of fundraising outside the capital should focus on service facilities for pension and other undertakings construction。

　　为加大直接从社会个人和企业的募捐资金规模，建议既有养老服务机构与民政部门和公益性基金会等社会组织加大合作力度，共同开展面向个人和企业的专项募捐活动，所获得的募捐款，专项用于养老服务设施建设和运营。

To increase direct from social individuals and enterprises in scale of raising money，Suggest both endowment service agencies and departments of civil affairs and public welfare foundation and other social organizations increasing cooperation efforts，Common for individuals and enterprises in the special fundraiser，Fundraising for money，Special use at the endowment service facilities construction and operation。

　　五、实施土地、税收等政策优惠

five、Implement land、The tax preferential policies

　　社会化养老是一项公益性社会事业，养老服务设施建设和发展离不开政府的大力支持，除政府投资资金支持外，还需要政府在土地、税收和水、电、气、热等相关政策方面给予相应的优惠政策。

Social endowment is a commonweal social programs，Endowment service facilities construction and development is inseparable from the support of the government，In addition to the government investment funds outside support，Also needs the government in the land、Tax and water、electricity、gas、Hot and related policy to give corresponding preferential policies。

　　落实和实施税收优惠政策。为进一步鼓励、支持社会力量投资兴办养老服务机构，建议对社会力量投资兴办的福利性、非营利性的养老服务机构免征营业税，其收入减按10%征收企业所得税，其自用房产、土地，暂免征收房产税、城镇土地使用税。为鼓励社会力量和个人进行慈善捐赠，建议对个人通过非营利性社会团体和政府部门向福利性、非营利性养老机构的捐赠，在缴纳个人所得税前准予全额扣除；对企业、事业单位、社会团体等社会力量对养老服务机构等公益事业进行捐赠的，企业在年度利润总额12%的部分准予在所得税前扣除。

Carry out and the implementation of the tax preferential policies。To further encourage、Support social forces to invest in pension service agencies，Advice to social forces to welfare enterprises、The non-profit endowment service agencies shall be exempted from the business tax，Their income is reduced to 10% collection of enterprise income tax，Their own property、land，Temporary exemption impose house property tax、Town land royalities。To encourage social forces and individuals to charity，Advice to individual through the non-profit social groups and government departments to welfare、The non-profit organization for aged donation，In pay individual income tax deduction granted full before；To the enterprise、institutions、Social groups and other social forces pension service agencies and other undertakings for donations，Enterprise in the total annual profits 12% of an income tax deduction in part before。

　　积极落实土地供应政策。养老服务机构按照法律、法规规定应当采用划拨方式供地的，各级地方政府应该划拨供地；按照法律、法规规定应当采用有偿方式供地的，地方政府应当在地价上适当给予优惠；属于出让土地的，土地出让金收取标准应适当降低。

Actively implementing the land supply policies。Endowment services according to law、Rules and regulations shall be used in the transfer means for，The local governments at all levels should transfer for land；According to the law、Rules and regulations shall be paid for the way，The local government shall be appropriately on the land price preferential；Belong to the land，The land grant fee collection standard should be reduced。

　　除税收和土地供应政策外，建议对养老服务设施尤其是福利性、非营利性养老服务设施在用水、用电、用气、用热等方面予以减免征收，从而进一步降低养老服务设施的运行费用，增强其可持续发展能力。（作者单位：国家发改委投资研究所）

In addition to tax and land supply the policy，Suggest pension service facilities especially welfare、The non-profit endowment service facilities in the water、electricity、Gas supply、With hot etc shall be reduced or exempted collection，So as to further reduce the operation cost of endowment service facilities，Enhance the ability of sustainable development。（The author unit：The national development and reform commission investment research institute）