近年来，我国平台经济、共享经济、零工经济等新经济新业态模式蓬勃发展，灵活就业人员与新就业形态劳动者的权益保障问题日益引发社会广泛关注。尤其是现行工伤保险制度建立在传统劳动关系基础之上，灵活就业人员工伤保障短板亟待补齐。在此背景下，本书系统梳理并比较了国内外在灵活就业人员工伤保障方面的相关情况，深入剖析了该群体参加工伤保险面临的多重困境，总结分析了地方在灵活就业人员工伤保障方面的试点实践，以及新就业形态人员职业伤害保障的试点探索，形成了一系列研究结论，并对未来工伤保险制度的发展框架体系以及灵活就业人员工伤保障的实现路径进行了系统设计。

       翁仁木，中国人民大学公共管理学院社会保障研究所管理学博士，中国劳动和社会保障科学研究院工伤保险研究室副研究员，研究方向为工伤保险、劳动保障等。在《中国劳动》等核心期刊发表多篇学术论文，并多次被人大复印报刊资料全文转载。承担和参与国家社科基金项目，以及人力资源社会保障部、国际劳工组织等部委和组织机构多项课题研究工作。

第一章 灵活就业人员职业伤害保障现状分析 ································ 1

一、灵活就业的概念 ··························································· 2

二、灵活就业是我国就业重要途径 ········································· 3

（一）灵活就业发展的三个阶段 ············································ 4

（三）部分灵活就业人员有商业保险保障 ······························ 17

（四）解决灵活就业人员职业伤害保障问题势在必行 ··············· 20

第二章 灵活就业人员职业伤害保障的制度适配困境 ······················ 22

一、工伤认定机制缺失：灵活就业场景适用性失灵 ··················· 23

（一）当前工伤认定存在的主要问题 ···································· 23

（二）灵活就业人员工伤认定的特殊障碍 ······························ 26

二、待遇政策兼容性不足：保障水平与责任归属冲突 ················ 28

（一）我国工伤保险保障水平较高 ······································· 29

（二）我国工伤保险待遇责任较特殊 ···································· 33

（三）灵活就业人员工伤待遇存在的难题 ······························ 35

三、参保缴费机制僵化：基数核定与责任分担困境 ··················· 37

（一）现有主要规定 ························································· 37

（二）灵活就业人员参保缴费的障碍 ···································· 37

四、经办服务效能滞后：供需失衡与技术支撑薄弱 ··················· 39

（一）工伤保险管理服务基础薄弱 ······································· 39

（二）灵活就业人员参保带来的系统性挑战 ··························· 40

第三章 灵活就业人员职业伤害保障的探索实践 ···························· 42

一、地方探索实践总体情况 ················································· 43

（一）主要制度模式 ························································· 43

（二）主要探索实践地区 ··················································· 44

二、纳入工伤保险制度统筹管理模式 ····································· 45

（一）南通市 ·································································· 45

（二）潍坊市 ·································································· 48

三、自愿参加工伤保险制度模式 ··········································· 50

（一）浙江省 ·································································· 50

（二）广东省 ·································································· 54

（三）四川省 ·································································· 58

四、政府主导的商业保险模式 ·············································· 61

（一）苏州市吴江区 ························································· 61

（二）安徽省 ·································································· 64

五、社会福利制度模式 ······················································· 66

六、地方探索成效评估与经验启示 ········································ 67

（一）地方实践总结和比较 ················································ 68

（二）对各地实践的评价 ··················································· 73

（三）地方实践探索的启示 ················································ 74

七、新就业形态人员职业伤害保障的试点突围 ························· 76

（一）职业伤害保障试点的背景 ·········································· 76

（二）职业伤害保障试点的创新和成效分析··························· 79

（三）职业伤害保障试点面临的挑战 ···································· 83

第四章 他山之石：灵活就业人员工伤保障的全球镜鉴 ··················· 85

一、全球灵活就业人员总体情况 ··········································· 85

二、灵活就业人员工伤保障总体情况和主要思路 ······················ 87

（一）灵活就业人员工伤保障的总体情况 ······························ 87

（二）灵活就业人员工伤保障缺失的深层机理························ 88

（三）不同工伤保险制度模式对灵活就业的适应性分析 ··········· 91

（四）灵活就业人员工伤保障的主要思路 ······························ 94

三、灵活就业人员工伤保障的欧盟经验分析 ···························· 96

（一）自雇者工伤保障的制度覆盖 ······································· 97

（二）自雇者工伤保险模式分析 ·········································· 97

四、新就业形态人员工伤保障的挑战和应对思路 ···················· 100

（一）避免平台工人的错误分类 ········································· 101

（二）重新调整劳动关系认定标准 ······································ 101

（三）设置中间类别法律身份 ············································ 103

（四）扩展劳工权利至平台工人 ········································· 105

（五）纳入原有保障制度框架 ············································ 105

五、国际经验的启示 ························································ 106

（一）以积极态度应对挑战 ··············································· 106

（二）考虑工伤保险制度长远发展 ······································ 107

（三）创新工伤保险管理服务理念 ······································ 107

（四）不断增强制度灵活性和适应性 ··································· 108

第五章 我国灵活就业人员职业伤害保障制度体系构建和路径选择 ·· 109

一、灵活就业人员职业伤害保障基本思路 ····························· 110

（一）主要研究观点 ························································ 110

（二）本书的观点 ··························································· 111

二、积极做好现有保障制度体系下的参保扩面 ······················· 117

（一）拓宽工伤保险制度参保渠道 ······································ 117

（二）拓展职业伤害保障试点覆盖面并不断完善制度 ·············· 120

三、探索建立其他灵活就业人员职业伤害保险制度 ················· 123

（一）制度建设的基本原则 ··············································· 123

（二）制度建设的主要设想 ··············································· 125

四、改革优化现有工伤保险制度 ········································· 131

（一）完善工伤认定情形和技术 ········································· 132

（二）强化工伤保险长期保障功能 ······································ 133

（三）逐步取消工伤发生后用人单位经济责任 ······················· 134

（四）改革工伤保险管理服务体制和流程 ····························· 135

附录 深度实践：典型国家灵活就业人员工伤保障制度样本详析 ····· 137

一、日本工伤保险的“特别加入制度” ································ 138

（一）“特别加入制度”主要内容 ······································· 138

（二）“特别加入制度”主要特点 ······································· 146

（三）平台经济带来的挑战 ··············································· 148

二、韩国“劳务提供者”工伤保险适用问题 ·························· 148

（一）“劳务提供者”的法律地位和规模 ······························ 149

（二）“劳务提供者”参加工伤保险具体规定 ························ 150

（三）平台经济带来的挑战和应对 ······································ 153

三、新西兰全民意外伤害保险制度 ······································ 155

（一）全民意外伤害保险制度主要内容 ································ 155

（二）制度主要特点 ························································ 161

四、马来西亚自雇人员工伤保险制度 ··································· 162

（一）自雇人员工伤保险计划主要内容 ································ 162

（二）主要特点和实践效果 ··············································· 171

参考文献 ············································································ 174

后记 ·················································································· 180

（二）政府总体鼓励灵活就业发展 ········································· 5

三、灵活就业人员规模、构成和趋势 ······································ 5

（一）灵活就业来源和具体表现形式 ······································ 6

（二）不同灵活就业人员规模情况 ········································· 7

（三）灵活就业人员劳动关系情况 ······································· 10

（四）灵活就业发展趋势 ··················································· 12

四、灵活就业人员职业伤害保障制度供给有缺失 ······················ 13

（一）灵活就业人员职业伤害保障需求较大··························· 13

（二）多数灵活就业人员缺乏职业伤害保障··························· 15