1. Comments on the draft Interim Measures on Participation
in Social Insurance by Foreigners Working in China
对《在中国境内就业的外国人参加社会保险暂行办法（征求意见
稿）》的意见和建议
June 24, 2011
2011 年6 月24 日
To: The Ministry of Human Resources
and Social Security
致：人力资源和社会保障部
From: The American Chamber of Commerce in Shanghai
自：上海美国商会

2. The American Chamber of Commerce in Shanghai (“AmCham Shanghai”) respectfully
submits the following comments and suggestions on the draft Interim Measures on
Participation in Social Insurance by Foreigners Working in China”, (the “Draft Measures”) to
the Ministry of Human Resources and Social Security of the People’s Republic of China
(“MHRSS”). AmCham Shanghai appreciates this opportunity to share our views.
上海美国商会谨向人力资源和社会保障部（以下简称“人社部”）就《在中国境内就业的外国
人参加社会保险暂行办法（征求意见稿）（以下简称“
》 《征求意见稿》）呈交以下意见和建议。我
”
们深感荣幸有此机会表达我们的看法。
AmCham Shanghai fully supports the overall objectives of the Social Insurance law to
develop, strengthen and further regulate the current social insurance system which has the
potential to contribute to a stronger consumer driven economy in China and of the Draft
Measures, to permit foreign national employees to participate in China’s social insurance
programs and to clarify the legal rights and responsibilities of employers and foreign national
employees regarding such participation.
上海美国商会完全支持《社会保险法》的总体目标，即发展、巩固并进一步规范现有的社会
保险体系，这将有助于中国建设更加强大的消费主导型经济。同时，上海美国商会也完全支持
《征求意见稿》制定的立法宗旨，即允许外籍员工参加中国的社会保险，并明确用人单位和外籍
员工各自的法律权利和法律责任。
After consultation with our members, we respectfully provide the following comments and
suggestions focusing on provisions that merit further clarifications.
经与本会会员商讨，我们谨提出以下意见和建议，主要集中在若干需要进一步澄清的条文方
面。
Bilateral Treaty
We recommend that China take steps to conclude a social insurance treaty with the United
States of America in order to avoid double taxation of nationals of each country who work in
the other country. AmCham Shanghai will raise this recommendation with the U.S.
government as well. Our member companies point out that not only would such a treaty
benefit their foreign nationals working in China, but also benefit the Chinese nationals who
are assigned to work in the United States.

3. 双边协定
我们建议中国与美国签署一项社会保险双边协定，以避免在对方国家工作的本国公民双重缴
纳税款。上海美国商会也将向美国政府提出这一建议。我们的会员公司提出，这样的协定不仅对
在中国工作的外国公民有利，也对被派遣到美国工作的中国公民有利。
Duplication of Coverage
Many foreign nationals are hired with contractual commercial insurance provisions that will
cover all or some of the five coverage areas identified in the Draft Measures. In addition,
many foreign nationals are working in China under a secondment arrangement, and their
compensation and expenses are ultimately paid by their overseas employers, which generally
also contribute to the social insurance programs for these seconded foreign nationals in their
home countries. AmCham Shanghai suggests that consideration be given to participation in
China’s social insurance programs by foreign nationals based on the presence or absence of
foreign social insurance and supplemental commercial coverage. This would eliminate
duplicate coverage and reduce the burden of the State to support this subset of the labor force.
双重保险
许多外籍人士受雇时，已获得雇主提供的商业保险，其中覆盖了《征求意见稿》中所包括的
五种保险范畴中全部或部分的险种。此外，许多外籍人士系被派遣到中国工作，他们的薪酬和费
用最终是由他们境外的用人单位支付，境外用人单位也通常会在这些派遣外籍员工的祖国为他们
缴纳社会保险。上海美国商会建议，在外籍人士参加中国的社会保险时，应当考虑该外籍人士是
否已拥有境外社会保险和补充性商业保险。这样做不仅能消除双重保险，也减轻国家承担这部分
劳动力保险的负担。
Phase-in period
Given that there remains uncertainty as to how the social insurance systems will be
implemented and how foreign nationals will benefit, we recommend that there be a phase-in
period when participation is optional. A phase-in period would allow foreign nationals who
desire the coverage to participate, while providing time for the Chinese government and the
U.S. government to negotiate, sign, and implement a bilateral treaty governing social
insurance.
过渡期
由于社会保险体系将如何实施以及外籍人士将如何享受保险待遇方面尚存在不明确之处，我
们建议设定一个过渡期。在此期间，外籍公民可以自愿选择参加社会保险。过渡期不仅允许有意
参保的外籍人士参保，同时也给予中国政府和美国政府充足的时间磋商、签署并实施有关社会保
险的双边协定。

4. Medical Facilities
While our members recognize the great improvements that China has made in developing its
health care facilities, we recommend that continued efforts and reforms be made to improve
access to and the development of English speaking facilities in order that foreign nationals
can effectively use medical insurance. AmCham Shanghai also asks for greater clarification
on the rules by which the medical insurance offered by MHRSS will be accepted at all
medical facilities in China. This will expand the options for foreign nationals covered by this
program as well as improve business opportunities for medical service providers.
医疗设施
本会会员认识到中国在发展卫生保健设施方面已经取得的重大改善。我们建议在发展提供英
文服务的医疗保健机构方面同样继续努力推进改革，以便让外籍人士有效地使用他们的医疗保
险。同时，上海美国商会也希望在法规中进一步明确，人社部提供的医疗保险可以在中国的所有
医疗机构中使用。这样既可以扩大参加中国医保的外籍人士就医时的选择，又可以增加医疗服务
提供机构的商业机会。
Maternity Insurance / Unemployment Insurance
Our members seek clarification regarding whether foreign nationals will be permitted to
benefit from the maternity and unemployment insurance programs, and if so, what conditions
will be required. With respect to maternity insurance, given that foreign nationals are
excluded from China’s family planning regulations, we seek clarification as to how the
conditions for eligibility for maternity insurance benefits will relate to the exclusion of
foreign nationals from the State’s family planning regulations. With respect to unemployment
insurance, for example, if a foreign national is terminated in China, it is very likely that the
foreign national’s China work visa will no longer be valid and the foreign national will leave
the country, limiting the benefit of MHRSS-provided unemployment insurance. If foreign
nationals will not be permitted to enjoy benefits, we recommend that foreign nationals not be
required to participate in these programs.
生育保险/失业保险
本会会员提请就外籍人士是否可以享有生育保险和失业保险待遇给予进一步澄清。如果允
许，需要什么具体条件。就生育保险而言，由于外籍人士被排除在中国的计划生育法规范围外，
我们希望澄清获得生育保险待遇的资格条件与外籍人士被排除在中国计划生育法规范围外这一状
况之间的联系。就失业保险而言，例如，如果一个外籍人士在中国的雇佣终止，那他/她的中国工
作签证也很可能不再有效，由此他/她将不得不离开中国。这就限制了该外籍人士享受人社部提供
的失业保险待遇。如果外籍人士无法享受保险待遇，我们建议外籍人士不应被要求参加有关保
险。

5. Refund of Certain Contributions and Standards for Contributions
The Draft Measures provide that the individual portion of pension accounts may be refunded
when foreign national employees leave China. AmCham Shanghai also asks for clarification
on the rules regarding the timing and frequency for foreign nationals to recoup their
contributions. We suggest that the same standards apply as those for Chinese nationals to
qualify for pensions when they reach their respective retirement ages, or that foreign
nationals may seek refunds of their pension contributions immediately upon leaving China,
regardless of their age.
In addition, AmCham Shanghai recommends that foreign national employees be permitted to
obtain refunds of their individual medical insurance accounts when they leave China.
With respect to the standard for social insurance contributions, our members seek
clarification on how foreign nationals should make social insurance contributions if so
required. Companies in China contribute to China's social insurance programs for Chinese
employees based on their average monthly wages with a cap of three times the average
monthly wages of all employees in the relevant locality. AmCham Shanghai recommends
that the same standards apply to calculate social insurance contributions for foreign nationals.
缴纳金退还和缴费标准
《征求意见稿》规定当外籍员工离境时，可以获得其养老金帐户个人部分的储存额。上海美
国商会提请进一步明确外籍人士提取他们储存额的时间和频次的相关规定。我们建议，对外籍人
士应适用与中国公民同样的达到退休年龄领取养老金的标准，或者规定不论年龄大小，外籍人士
在他们离开中国后即可以要求退还养老缴纳金。
此外，上海美国商会还建议应当允许外籍员工在离境时，向其退还医疗保险个人账户的余
额。
有关社保缴费标准，我们的会员提请明确外籍人士在缴纳社保时，应按何种标准缴纳。在中
国，用人单位按照中国籍员工的月平均工资（以当地月平均工资的 3 倍为上限）为其缴纳社保费
用。上海美国商会建议外籍人士在缴纳社保费用时应适用同样的标准。
Back Payment of Pensions Contributions
Many foreign nationals have been employed for lengthy periods of time and would like to
qualify for pensions if they can accumulate the required 15 years of contributions. We
recommend that the Draft Measures clarify whether foreign national employees will have the
same rights as PRC national employees to make up pension contributions in order to qualify
for pension benefits.

6. 养老金补缴
许多外籍人士已经在中国受雇了相当长的时间，他们希望能够有资格获得养老金如果可以使
养老金缴费年限达到规定的累计满 15 年。我们建议《征求意见稿》就外籍人士是否在补缴退休金
方面享受和中国公民同等的权利方面，做进一步澄清。
In closing, once again, AmCham Shanghai sincerely appreciates this opportunity to comment
on the draft Interim Measures concerning the Participation of Foreign Nationals Working in
China in Social Insurance Program.
最后，上海美国商会再次衷心感谢有此机会就《在中国境内就业的外国人参加社会保险暂行
办法（征求意见稿）
》发表我们的看法。
Brenda Lei Foster, President
上海美国商会总裁