of the
State Council on Printing and Distributing the Fifteenth Five-Year Plan for the Implementation of the Employment Priority Strategy (Guo Fa [2026] No.
16) The people's governments of all provinces, autonomous regions and municipalities directly under the Central Government, All ministries and commissions of the State Council and all institutions directly under the State Council:
The 15th Five-Year Plan for Implementing the Strategy of Giving Priority to Employment is hereby printed and distributed to you. Please implement it carefully.
Employment is the most basic livelihood of the people, which concerns the vital interests of the people and the healthy development of the economy and society. It concerns the long-term stability of the country. In order to further implement the employment priority strategy and promote high-quality full employment, this plan is formulated in accordance with the Outline of the Fifteenth Five-Year Plan for National Economic and Social Development of the People's Republic of China.
First, the overall requirement
is to adhere to Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era as a guide, thoroughly implement the spirit of the 20th and 20th Plenary sessions of the CPC, conscientiously implement the deployment of the Fourth Plenary Session of the CPC Central Committee, completely, accurately and comprehensively implement the new development concept, adhere to the people-centered development idea, and adhere to the people-centered development concept. Firmly establish and practice the correct view of political achievement, comprehensively implement the policy of self-employment of workers, market regulation of employment, government promotion of employment and encouragement of entrepreneurship, focus on the goal of promoting high-quality and full employment, and focus on the main contradiction between supply and demand of human resources in the field of employment, adhere to the close combination of investment in goods and investment in people, so as to promote high-quality development. Taking the implementation of employment priority strategy as the guide, strengthening employment priority policy as the grasp, solving structural employment contradictions as the focus, deepening the reform of employment system and mechanism as the driving force, avoiding the risk of large-scale unemployment as the bottom line, improving employment promotion mechanism, building employment-friendly development mode, and strengthening human resources development and utilization. We will continue to promote the effective improvement of the quality and reasonable growth of the quantity of employment, constantly enhance the sense of happiness and security of the vast number of workers, and provide strong support for the comprehensive promotion of the construction of a strong country and the great cause of national rejuvenation with Chinese-style modernization. During
the Fifteenth Five-Year Plan period, employment remained generally stable and new progress was made in high-quality and full employment. Employment opportunities are more adequate. Employment in cities and towns has increased steadily, the level of unemployment has been effectively controlled, the employment of key groups has remained stable, and at least one person in zero-employment families has been ensured employment. The employment environment is fairer. The unified and standardized human resources market system has been further improved, the system and mechanism for promoting the flow of labor and talent have been improved, and the unreasonable restrictions and employment discrimination affecting equal employment have been effectively dealt with. The employment structure is more optimized. The role of service industry in absorbing employment has been further developed, the proportion of urban employment in total employment has steadily increased, the regional employment structure has become more rational, and flexible employment and new forms of employment have developed healthily. The matching of people and posts is more efficient. The shaping of modern human resources has been accelerated, the distribution of disciplines and specialties has become more rational, vocational skills training and employment public services have become more accurate and efficient, the ranks of skilled personnel have been growing, human resources services have been expanded and improved, and the matching degree between labor supply and industrial development needs has been significantly improved. Labor relations are more harmonious. The system of labor and employment laws and regulations has been further improved, labor employment has been more standardized, labor remuneration has increased reasonably, the social security system has been constantly improved, and the level of protection of workers'rights and interests has been continuously improved.
(2) Enhancing the synergy of macro-policy employment. We should grasp the strength and rhythm of macroeconomic policies, strengthen counter-cyclical and cross-cyclical adjustments in accordance with changes in the economic and employment situation, and support the stabilization and expansion of employment. We will strengthen the coordination and linkage of fiscal, monetary, industrial, consumption, investment, trade, regional and employment policies. We will implement the policy of giving priority to detailed employment, implement the action of stabilizing posts, expanding capacity and improving quality, and continue to strengthen policy support for enterprises in industries that absorb more employment. We will increase investment in people and focus on supporting employment and entrepreneurship, skills training, increasing labor income and social security.
(Three) improve the employment impact assessment mechanism. We should do a good job in assessing the consistency of macro policy orientation and prudently introduce policies that have a significant contraction effect on employment. We will strengthen the assessment of the impact of major policies, major projects and the distribution of major productive forces on employment, and take the employment situation as an important reference for the construction of investment projects. Strengthen monitoring and evaluation after the event, track and analyze changes in employment, job increases and decreases, and unemployment risks, and dynamically optimize and adjust policies and projects in implementation.
(4) Adapting to the development of artificial intelligence and promoting employment and entrepreneurship. Deeply implement the "AI +" action, promote the formation of more entrepreneurship projects such as AI application scenario innovation and technological achievements transformation, explore new working forms of human-computer collaboration, and strengthen the employment creation effect of AI. Promote AI enabling employment policies and employment services. We should make good use of the development dividend of artificial intelligence to better ensure employment and improve people's livelihood.
(Six) expand the employment capacity of the service industry. Promote the quality and expansion of domestic service industry, improve the urban and rural pension and nursery service network, and actively expand the scale of employment in related fields. We should innovate the service mode of cultural tourism and sports business integration, enrich the supply of high-quality cultural and tourism products, and develop more cultural tourism and sports jobs. Cultivate local characteristic catering brands and industrial clusters, and expand the employment space of accommodation and catering industry. Promote the extension of producer services such as science and technology services, modern logistics, software and information services, supply chain finance to specialization and high-end value chain, and enhance the attraction of technical and skilled personnel.
(8) Supporting all kinds of business entities to stabilize and expand their posts. Give full play to the leading role of state-owned enterprises in employment, carry out in-depth special actions to expand posts and increase recruitment, and stabilize the recruitment scale of state-owned enterprises. Give full play to the important role of private enterprises and small and medium-sized enterprises in employment, effectively reduce the burden of enterprises, promote the high-quality development of private economy, and continuously optimize the development environment of fair competition among various business entities. We will implement various policies to stabilize and expand posts, strengthen the guarantee of employment services, and guide all kinds of subjects to better fulfill their social responsibilities.
(9) Enhancing the employment carrying capacity of regional coordinated development. We will support major economic provinces to take the lead, accelerate the formation of a number of employment agglomeration areas and growth poles with integrated services, coherent policies and smooth channels, and play a greater role in stabilizing employment and expanding employment. We will support the central, western and northeastern regions to actively undertake industrial transfer, support the development of local characteristic industries in old revolutionary areas, ethnic minority areas and border areas, support the development of alternative industries in resource-exhausted cities, and promote the balanced development of regional employment.
4. Accelerating the shaping of modern human resources
(10) Improving the matching degree between education supply and talent demand. We will build a large data platform for the docking of national talent supply and demand, and promote the adaptation of higher education personnel training to the needs of economic and social development. Deeply implement the adjustment and optimization of disciplines and specialties in higher education, and strengthen the training of talents needed by strategic emerging industries and future industries. Promote the matching of discipline and specialty settings with regional development in Colleges and universities, and create characteristic and advantageous discipline and specialty clusters. Improve the linkage mechanism of enrollment, training and employment, and take the employment status of graduates as an important basis for the allocation of school-running resources, the evaluation of education quality, the adjustment of discipline and specialty settings, and the arrangement of enrol ment plans. We will accelerate the development of modern vocational education and build a number of high-level vocational undergraduate schools with distinctive characteristics.
(11) Large-scale vocational skills training. With market-oriented training as the leading factor, independent training of industries and enterprises as the main body, government-subsidized training as a useful supplement, and employment skills training, on-the-job transfer training and entrepreneurship training as the main forms, we will improve the lifelong vocational skills training system throughout the whole process of workers'learning and career. Combining with the needs of cultivating new quality productivity and "one old and one small" service, we should focus on the employment and entrepreneurship needs of young people such as college graduates, migrant workers and unemployed people, and organize and implement large-scale vocational skills training.We will improve the vocational skills assessment and evaluation system, comprehensively implement the model of "job demand + skills training + skills evaluation + employment services", and promote the ecological chain of production, teaching and evaluation skills led by the main chain enterprises, as well as the training models of project system and order system. We will further promote the work of strengthening enterprises with skills and guide enterprises to draw and use staff education funds in full according to regulations. Enterprises are encouraged to carry out new apprenticeship training and technician training. Make good use of employment subsidy funds and unemployment insurance funds to support vocational skills training, and promote training subsidies directly to enterprises and trainees. We will promote the establishment of public training bases, industry-education integration training bases, high-skilled personnel training bases, excellent engineer practice bases, model worker and craftsman innovation studios and craftsman colleges according to local conditions. Promote international cooperation in the field of skills.
(12) Smooth career development channels for skilled personnel. We will improve the occupational classification, occupational standards and evaluation system for skilled personnel, and build a national qualification framework system. To formulate and revise national occupational standards and explore new models for the development of occupational standards. Promote the two-way identification of vocational qualifications, vocational skill levels and corresponding professional titles and academic qualifications, and promote the implementation of the system of "academic certificates + several vocational skill certificates". In-depth implementation of the "new eight-level worker" vocational skill grading system. To guide enterprises to take vocational skill level as an important reference for wage distribution. We will improve the all-round vocational skills competition system and run the World Skills Competition well.
(Fourteen) do a good job in the employment of youth groups. We will improve policies and measures to promote youth employment and create favorable conditions for youth employment, growth and achievements. We will implement a campaign to upgrade the employment skills of millions of young people, focusing on targeted training projects for advanced manufacturing, modern service industries and new vocational development. Implement the development plan of millions of employment internship posts, and strengthen the recruitment of science and technology, technology and management internship posts. We will carry out job-hunting training for young people, develop vocational experience posts, and organize unemployed graduates and registered unemployed young people to take follow-up exercises. We will implement the Youth Employment Sailing Plan and strengthen employment services for registered unemployed youth. Give full play to the role of youth employment posts and provide one-stop employment services such as policy consultation, job docking and job guidance for young job seekers in different places.
(Fifteen) strengthen the guidance of the concept of employment and employment. Promote the establishment of career education and employment guidance disciplines, and integrate employment education into the whole process of personnel training in Colleges and universities. We will carry out publicity and tree selection activities for "the most beautiful college graduates", guide young people such as college graduates to establish a correct outlook on career selection and employment, and create a good atmosphere of public opinion and an inclusive social environment, such as "no noble or humble occupation, respected labor", "360 lines, the best in all walks of life", "grass-roots employment, equally outstanding". Enterprises are encouraged to provide more practical training opportunities for young people such as college graduates, and to strengthen the training of new recruits, so as to realize the common development and growth of enterprises and young people.
(18) Strengthen employment assistance for groups such as people with employment difficulties and registered unemployed persons. We will improve the employment assistance system for people with difficulties, and improve the working mechanism of timely discovery, priority service, precise assistance and dynamic management. We will implement the employment assistance policy, make good use of public welfare posts as a whole, and ensure that zero-employment families are dynamically cleared. The "one thing" of employment assistance for registered unemployed persons will be implemented to realize the linkage and integration of unemployment registration, unemployment insurance benefits application and employment services. Create diversified and individualized jobs suitable for the elderly, and implement the Provisional Regulations on the Protection of the Basic Rights and Interests of Over-age Workers.
7. Promoting the healthy development
of flexible employment and new forms of employment (19) Broadening the development channels of flexible employment and new forms of employment. Promote the innovation and healthy development of platform economy, promote the development of instant distribution, online travel, online freight, live e-commerce, online life services and other industries, and promote more new forms of employment opportunities. We will support flexible employment through multiple channels and guide the orderly and healthy development of part-time employment. Encourage the development of individual businesses, strengthen the precise assistance of classification and classification, and support the cultivation of a number of individual businesses with distinctive characteristics, honest management and great potential for development.
(Twenty) strengthen public services for flexible employment and new forms of employment. We should do a good job in providing public services for flexible employment and new forms of employment, and promote the equalization of basic public services. Standardize the construction of the odd job market and guide the standardized development of the market-oriented Internet odd job platform. We will comprehensively promote the construction of friendly scenes, give full play to the role of Party and mass service centers, trade union posts, youth homes, women's homes and drivers'homes, and promote the solution of flexible employment, accommodation, meals, parking and road access for workers in new forms of employment.
(twenty-one) safeguard the legitimate rights and interests of workers in flexible employment and new forms of employment. We will improve the protection system for the rights and interests of workers in flexible employment and new forms of employment. Establish and improve the occupational injury protection system. Promote platform enterprises to formulate labor rules fairly and employ workers in accordance with the law. Supervise and urge platform enterprises to standardize the algorithm, improve transparency, and protect the right to know, the right to participate and the right to choose the algorithm rules of workers in new forms of employment; supervise and urge platform enterprises and their employment cooperation enterprises to pay labor remuneration in full and on time; supervise and urge network freight platform enterprises to settle freight charges in time. We will strengthen one-stop mediation of labor disputes in new forms of employment and promote the establishment of labor dispute mediation committees in enterprises.
(24) Promoting the high-quality and efficient development of human resources services. We will accelerate the construction of a professional, digital, legalized and internationalized human resources service system, rationally distribute professional and industrial human resources markets and other carriers, and deepen the action of promoting employment in the human resources service industry. Promote the integration and development of human resources service industry and manufacturing industry, implement the support plan of human resources service in health care and other fields, and develop modern agricultural human resources service for rural revitalization. We will implement the assistance plan for the construction of human resources markets in the western and northeastern regions. Build and make good use of the national artificial intelligence application pilot base in the field of human resources, and speed up the artificial intelligence enabling human resources services.We will improve public services for the flow of talents and compile and publish catalogues of talent demand in key regions and key areas. Carry out the "the Belt and Road" human resources service action. We will continue to improve the management system of the human resources market and the supervision policy of online recruitment, and study and formulate measures for the management of the list of serious dishonest subjects in the human resources market.
(twenty-six) improve the wage and income distribution system. We will improve the wage determination, reasonable growth and payment guarantee mechanism for workers, implement the collective wage consultation system, and strengthen the macro-guidance of wage distribution in enterprises. We will improve the mechanism for adjusting the minimum wage. Improve the wage guidance line system. We should speed up the construction of a skills-oriented salary distribution system and promote more workers, more skilled workers and more innovators.
(twenty-seven) improve the labor standard system and the consultation and coordination mechanism of labor relations. We will improve the paid annual vacation system and urge enterprises to implement the provisions on working hours, rest and vacation in accordance with the law. We will improve the tripartite mechanism for coordinating labor relations and build harmonious labor relations. We will fully implement the labor contract system and consolidate the coverage and performance quality of labor contracts. We will improve the collective consultation system and promote the establishment and improvement of a normal communication and consultation mechanism between enterprises and employees. Give full play to the role of trade unions and deepen the reform of the construction of industrial workers. We will improve the mechanism for handling labor and personnel disputes and promote the use of the "Internet + mediation" service platform.
(twenty-eight) improve the social security system. We will accelerate the development of a multi-level and multi-pillar old-age insurance system, expand the coverage of enterprise annuities, and steadily implement the personal pension system. We will continue to increase the proportion of employees participating in basic medical insurance. Promote the wide coverage of unemployment insurance and industrial injury insurance to professional workers, and reasonably determine the standard of unemployment insurance benefits. Increase the participation rate of flexible employees, migrant workers and new forms of employment. We will improve the policy of transferring and continuing social security relations, optimize the unified national social security public service platform and management services, and promote "smart social security" services.
(twenty-nine) strengthen labor security supervision and law enforcement. Investigate and deal with labor security violations in accordance with the law and regulations, and continue to carry out special actions to clean up and rectify the order of the human resources market. We will intensify efforts to rectify wage arrears, improve the long-term mechanism for the management of wage arrears, promote the professionalization of labor and capital administrators and other governance measures, and give full play to the comprehensive effectiveness of various policy tools for the management of wage arrears. Strengthen intelligent supervision and promote the construction of labor credit system. We should improve the system and mechanism of labor security supervision and strengthen the professional and standardized construction of the team.
10. Strengthen employment monitoring, early warning and risk response
(30) Strengthen statistical monitoring of employment and unemployment. We will upgrade and improve the horizontal and vertical employment and unemployment monitoring network, strengthen departmental data sharing and regional work linkage, and dynamically monitor employment growth, employment environment, employment structure, labor relations and market supply and demand. We will improve the statistical system for high-quality full employment and strengthen the statistical analysis of workers in flexible employment and new forms of employment.
(31) Enhance the ability of scientific research and analysis of employment situation. We will carry out regular analysis of the employment situation, conduct regular consultation and judgment on major issues, hot spots and difficulties in the field of employment at home and abroad, and conduct in-depth research on actively responding to the aging of the population, changes in the external environment, and the impact of artificial intelligence on employment. Enhance the ability of employment risk monitoring and early warning, and establish employment monitoring and risk early warning system in key areas, key industries, enterprises, key groups and key periods.
(32) Strengthen the handling of employment risks. We will improve policy reserves and risk response plans, and set up employment risk reserves where conditions permit, so as to effectively play the role of unemployment insurance in guaranteeing life, preventing unemployment and promoting employment. We will improve the early warning and disposal system for employment risks in the application of artificial intelligence, and strengthen the joint response to related labor relations risks.
< IMG SRC = "The https://img7.ccement.com/news/2606/richtext/img/6a335711e08e25774199. will give full play to the role of the coordination mechanism for employment promotion and labor protection, and strengthen overall planning." Enhance joint efforts. All regions and departments should regard employment as the top priority of people's livelihood, pay attention to systematic measures, and carry out the tasks of this plan in accordance with the actual situation. The National Development and Reform Commission and the Ministry of Human Resources and Social Security should strengthen the dynamic monitoring and evaluation of the implementation of the plan, coordinate and solve major problems, and study and optimize tasks and measures according to the actual situation. Major matters shall be reported to the Party Central Committee and the State Council in a timely manner in accordance with the procedures.
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