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1、民政部、国家发展改革委、公安部、财政部、中国人民银行、市场监管总局、金融监管总局关于加强养老机构预收费监管的指导意见GuidingOpinionsoftheMinistryofCivilAffairs,theNationalDevelopmentandReformCommission,theMinistryofPublicSecurity,theMinistryofFinance,thePeople,sBankofChina,theStateAdministrationforMarketRegulationandtheNationalFinancialRegulatoryAdministrat
2、iononStrengtheningtheRegulationofCollectionofAdvanceFeesbyElderlyCareInstitutions制定机关：民政部国家发袅和改革玄员会(含原国字发机计划案员会、原国掌计划委员会)公安部财政部中国人R银行国宓市埼发特管理总局国拳金融或督菅理总局发文字号：K发2024)19号公布日期：2024.04.23施行日期：2024.10.01效力位阶：部门规范性文件法规臭别：社会福利与社会保障IssuingAuthorityMinist11ofCivilAffairsNationalDevelopment&RCfdnnCommission(i
3、l.formerStateDevelopmentPlanningCommission)Minisr,ofPublicSecurityMinistryofFinancePeoplesBmkofChinaStateAdministrationforMarketRegulationNatitnalfinancialRegulatorAdministrationDocumentNumber：No.192024joftheMinistryofCivilAffairsDateIssued：04-23-2024EffectiveDate：1001-20241.evelofAulhorilyDeparlmen
4、talRegulaloryDoClnnCnISAreaof1.aWSocialWelfaandSocialSecurity民政部、国家发展改革委、公安部、财政部、中国人民银行、市场监管总局、金融监管总局关于加强养老机构预收费监管的指导意见(民发(2024)19号)GuidingOpinionsoftheMinistryofCivilAffairs,theNationalDevelopmentandReformCommission,theMinistryofPublicSecurity,theMinistryofFinance,thePeoplesBankofChina,theStateAdmi
5、nistrationforMarketRegulationandtheNationalFinancialRegulatoryAdministrationonStrengtheningtheRegulationofCollectionofAdvanceFeesbyElderlyCareInstitutions(No.192024oftheMinistryofCivilAffairs)Thecivilaffairsdepartments(bureaus),developmentandreformcommissions,publicsecuritydepartments(bureaus),finan
6、cedepartments(bureaus),administrationsformarketregulation,andfinancialregulatorybureausofallprovinces,autonomousregions,andmunicipalitiesdirectlyundertheCentralGovernment;thecivilaffairsdepartments,developmentandreformcommissions,publicsecuritybureaus,financebureaus,administrationsformarketregulatio
7、n,andfinancialregulatorybureausofallcitiesunderseparatestateplanning;theCivilAffairsBureau,theDevelopmentandReformCommission,thePublicSecurityBureau,theFinanceBureau,theMarketRegulationBureau,andtheFinancialRegulatoryBureauoftheXinjiangProductionandConstructionCorps;andtheShanghaiHeadOfficeofthePeop
8、lesBankofChina(PBC),andallprovincialbranchesandbranchesofallcitiesunderseparatestateplanning:各省、自治区、直辖市民政厅（局）、发展改革委、公安厅（局）、财政厅（局）、市场监管局、金融监管局，各计划单列市民政局、发展改革委、公安局、财政局、市场监管局、金融监管局，新疆生产建设兵团民政局、发展改革委、公安局、财政局、市场监管局、金融监管局；中国人民银行上海总部，各省级分行、计划单列市分行：近年来，一些养老机构采取预收费方式运营，一定程度缓解了设施理设资金不足等问题，纾解了运营压力。但是，也有少数养老机构出
9、现了资金管理使用不规范，资金链断裂后“退费津”、“爆雷”、“跑路”等问题，甚至有的不法分子实施非法集资、诈骗等犯罪行为，严重损害老年人合法权益，扰乱养老服务市场秩序。为贯彻落实习近平总书记关于更好统筹发展和安全、维护老年人合法权益的重要指示精神，依据中华人民共和国老年人权益保障法、中华人Inrecentyears,someelderlycareinstitutionshaveadoptedtheoperationofadvancefees,whichhasalleviatedproblemssuchasinsufficientfundsforfacilityconstructiontoacer
10、tainextentandeasedtheoperationalpressure.However,therearealsoasmallnumberofelderlycareinstitutionsthathavemanagedandusedfundsinanon-standardizedmanner,andproblemssuchasdifficultyinrefunding,financialcrisis,andabscond.Evensomecriminalshaveconductedillegalfund-raising,fraudandothercriminalacts,havings
11、eriouslydamagedthelegitimaterightsandinterestsoftheelderly,anddisruptedtheorderoftheelderlycareservicemarket.ForthepurposesofimplementingthespiritoftheimportantinstructionsofGeneralSecretaryXiJinpingonmakingbetteroverallplanningfordevelopmentandsecurityandsafeguardingthelegitimaterightsandinterestso
12、ftheelderly,thefollowingopinionsonstrengtheningtheregulationofcollectionofadvancefeesbyelderlycareinstitutionsareherebyputforwardinaccordancewiththe1.awofthePeoplesRepublicofChinaontheProtectionoftheRightsandInterestsoftheElderly,the1.awofthePeoplesRepublicofChinaontheProtectionofConsumerRightsandIn
13、terests,theRegulationonthePreventionandTreatmentofIllegalFund-raising,theMeasuresfortheAdministrationofElderlyCareInstitutions,theOpinionsoftheGeneralOfficeoftheStateCouncilonAdvancingtheDevelopmentofElderlyCareServices(No.52019oftheGeneralOfficeoftheStateCouncil),theOpinionsoftheGeneralOfficeoftheS
14、tateCouncilonEstablishingandImprovingaComprehensiveRegulationSystemforElderlyCareServicesandPromotingHigh-QualityDevelopmentofElderlyCareServices(No.482020,GeneralOfficeoftheStateCouncil),andotherlawsandregulations,andtherelevantrulesofthestate.I.Generalrequirements1. Guidingthought.民共和国消费者权益保护法、防范和
15、处置非法集资条例、养老机构管理办法和国务院办公厅关于推进养老服务发展的意见（国办发（2019）5号）、国务院办公厅关于建立健全养老服务综合监管制度促进养老服务高质量发展的意见（国办发（2020）48号）等法律法规和国家有关规定，现就加强养老机构预收费监管提出如下意见。一、总体要求（一）指导思想。以习近平新时代中国特色社会主义思想为指导，全面贯彻落实党的二十大精神，深入落实中央金融工作会议部署,完整、准确、全面贯彻新发展理念，服务加快构建新发展格局，坚持以人民为中心，更好统筹发展和安全，加强养老机构预收费收取、管理、使用、UndertheguidanceoftheXiJinpingThought
16、onSocialismwithChineseCharacteristicsforaNewEra,thespiritofthe20thCPCNationalCongressandtheCentralFinancialWorkConferenceshallbecomprehensivelyimplemented,thedeploymentoftheCentralFinancialWorkConferenceshallbeimplementedinanin-depthmanner,thenewdevelopmentconceptshallbeimplementedinacomplete,accura
17、teandcomprehensivemanner,acceleratingtheconstructionofanewdevelopmentpatternshallbeserved,thepeople-orientationshallbeinsistedon,developmentandsecurityshallbeeffectivelyplannedinanoverallmanner,theregulationofthecollection,administration,useandrefundofadvancefeestoelderlycareinstitutionsshallbestren
18、gthened,thesounddevelopmentofelderlycareinstitutionsshallbestandardizedandguided,therisksofillegalfinancialactivitiessuchasillegalfund-raisingshallbepreventedandresolved,thelegitimaterightsandinterestsoftheelderlyshallbeprotected,andtheorderoffaircompetitionintheelderlycareservicemarketshallbemainta
19、ined,topromotethehigh-qualitydevelopmentofelderlycareservicesinthenewera.2. Generalprinciples.一Seekingtruthfromfactsandadaptingtolocalconditions.Accordingtothedevelopmentrealityofelderlycareinstitutions,usefulexperienceshallbelearnedfromandthemanagementrequirementsshallbespecified.Theimprovementofth
20、eguaranteeleveloffundssecurityshallbeencouragedbybankdeposit,insuranceandothermeansbyvirtueoftheInternet,blockchainandotherinformationtechnologymeans.退费的监管，规范引导养老机构健康发展，防范化解非法集资等非法金融活动风险，保障老年人合法权益，维护公平竞争的养老服务市场秩序，促进新时代养老服务高质量发展。（二）基本原则。一一坚持实事求是、因地制宜。根据养老机构发展实际，借鉴有益经验，明确管理要求。鼓励借助互联网、区块链等信息技术手段，通过银行存管
21、、保险等方式，提高资金安全保障水平。坚持安全发展、守牢底线。全面统筹发展和安全，既包容审慎监管新兴业态，又引导养老机构规范经营，依法打击违法犯罪行为，坚决维护老年人合法权益。Insistingonsafedevelopmentandguardingthebottomline.Developmentandsecurityshallbecomprehensivelyplannedinanoverallmanner.Prudentialregulationofemergingbusinessformsshallbeaccommodatedandelderlycareinstitutionshallb
22、eguidedtostandardizebusinessoperation.Illegalandcriminalactivitiesshallbecrackeddownoninaccordancewiththelaw,andthelegitimaterightsandinterestsoftheelderlyshallberesolutelysafeguarded.Insistingonpragmatic,efficientandcoordinatedinteraction.Therisksincollection,management,useandrefundofadvancefeessha
23、llbesortedoutandanalyzed,practicalandeffectivepreventivemeasuresshallbetaken,andwhatshouldbemanagedshallbeeffectivelymanaged.Cross-departmentalbusinesscoordinationshallbestrengthened,theoverallplanningforandcoordinationofregulationofadvancefeesshallbestrengthened,jointregulationforceshallbeenhanced,
24、andtheefficiencyofcomprehensiveregulationshallbeimproved.3. Mainobjectives.By2025,thecross-departmentalworkingmechanismforregulationofcollectionofadvancefeesbyelderlycareinstitutionsW川beestablishedandimproved,collaborativeregulationwillbefurtheroptimized,thecapabilityformonitoringandearlywarningofad
25、vancefees,investigationintolatentrisks,anddisposeofillegalandirregularbehaviorswillbeeffectivelyenhanced,theelderlycareservicemarketwillbemorefairandorderly,risksandhiddendangersofillegalfund-raisingwillbeeffectivelyreduced,andthesatisfactionoftheelderlywithelderlycareserviceconsumptionwillbesteadil
26、yimproved.II.Standardizingthecollectionofadvancefeesbyelderlycareinstitutions一一坚持务实高效、协同联动。梳理分析预收费收取、管理、使用、退费等环节风险点，采取务实管用的防范措施，切实把该管的管好、管到位。加强跨部门业务协同，强化预收费监管的统筹性和协调性，增强监管合力，提高综合监管效能。(三)主要目标。2025年前，建立健全跨部门养老机构预收费监管工作机制，协同监管进一步优化，预收费资金监测颈警、风险隐患排查和违法违规行为的处置能力有效提升，养老服务市场更加公平有序，非法集资风险院患有效减少，老年人对养老服务消费的满
27、意度稳步提高。二、规范养老机构预收费行为(K)预收费的界定。养老机构预收费是指养老机构提4. Definitionofcollectionofadvancefees.Collectionofadvancefeesbyelderlycareinstitutionsreferstothebehaviorsthatelderlycareinstitutionscollectacertainamountoffeesfromtheelderlyortheiragentsinadvance,andpromisetoprovidecorrespondingelderlycareservicesinaccor
28、dancewiththeserviceagreementwithinacertainperiodoftime.Theadvancefeescollectedbyelderlycareinstitutionsmainlyincludeelderlycareservicefees,guaranteedepositandmembershipfees.Elderlycareservicefeesrefertothebedfees,careandnursingfees,costsofmealsandotherexpenses;guaranteedepositreferstotheexpensesused
29、asguaranteeforemergencyneedssuchasmedicaltreatmentfortheelderly,repaymentofarrears,compensationforpropertylosses,etc.;andmembershipfeesrefertothefeescollectedbyelderlycareinstitutionsintheformofmembershipcardsandVIPcards,whichareusedfortheelderlytoobtainservicequalifications,usefacilitiesandequipmen
30、t,andenjoyserviceconcessions.前向老年人或者其代理人收取一定额度费用，并承诺在一定时间内，按照服务协议约定提供相应养老服务的行为。养老机构预收的费用主要包括养老服务费、押金和会员费。养老服务费是指床位费、照料护理费、餐费等费用；押金是指为老年人就医等应急需要、偿还拖欠费用、赔偿财物损失等作担保的费用；会员费是指养老机构以“会员卡”、“贵宾卡”等形式收取的，用于老年人获得服务资格、使用设施设备、享受服务优惠等的费用。（五）收取要求。养老机构收费属于政府非税收入的，应当执行政府非税收入有关制度规定。鼓励养老机构采用当月收取费用的方式，向老年人提供服务。采用预收费方式的，
31、养老机构应当在服务场所、门户网站等显著位置公示预收费项目、标准等信息，并向负责监管的民政部门报送。营利性养老机构应当向服务场所所在地的县级民政部门报送，非营利性养老机构应当向登记管理机关同级的民政部门报送。省级民政部门可以根据本地情况，会同相关部门确定当地养老服务费最长预收周期5. Collectionrequirements.Wherefeescollectedbyelderlycareinstitutionsbelongtonon-taxincomeofthegovernment,therelevantrulesandregulationsonnon-taxincomeofthegover
32、nmentshallbeimplemented.Elderlycareinstitutionsshallbeencouragedtoprovideservicesfortheelderlybycollectingmonthlyfees.Inthecaseofcollectionofadvancefees,elderlycareinstitutionsshallpublicizeadvancefeeitems,feeratesandotherinformationatprominentplacessuchasservicesitesandportalwebsites,andsubmitthemt
33、othecivilaffairsdepartmentsresponsibleforregulation.For-profitelderlycareinstitutionsshallreporttothecounty-levelcivilaffairsdepartmentswheretheserviceplacesarelocated,andnon-for-profitelderlycareinstitutionsshallreporttothecivilaffairsdepartmentsatthesameleveloftheregistry.Theprovincialcivilaffairs
34、departmentsmay,accordingtothelocalcircumstances,in和押金最高预收额度，但养老服务费预收的周期最长不得超过12个月，对单个老年人收取的押金最多不得超过该老年人月床位费的12倍。对养老机构为弥补设施建设资金不足，收取会员费的，省级民政部门可以按照包容审慎监管原则，明确会员费最高额度等限制性要求。尚未建成或者已建成但尚不具备收住老年人条件的养老机构，不得收取会员费。公办养老机构、公建民营、政府与社会力量合作建设的养老机构，不得收取会员费。养老机构或者其法定代表人（主要负责人）、实际控制人为失信被执行人，或者因非法集资、诈骗受过行政处罚或者刑事处罚，被
35、纳入养老服务、企业、社会组织严重失信主体名单，尚未移出的，不得收取会员费。养老机构不得超过床位供给能力承诺服务，确保交费的老年人总数不得超出其备案床位总数，预收费用总额不得超出其固定资产净额（已经设定担保物权的资产价值不计入固定资产净额）。conjunctionwiththerelevantdepartments,determinethemaximumadvanceperiodofthelocalelderlycareservicefeesandthemaximumadvanceamountoftheguaranteedeposit,butthemaximumadvanceperiodofth
36、eelderlycareservicefeeshallnotexceed12months,andtheguaranteedepositcollectedfromasingleelderlypersonshallnotexceed12timesthemonthlybedfeeoftheelderly.Forelderlycareinstitutionsthatcollectmembershipfeesformakingupforthelackoffundsforfacilityconstruction,theprovincialcivilaffairsdepartmentmay,underthe
37、principleofinclusiveprudentialregulation,specifyrestrictiverequirementssuchasthemaximumamountofmembershipfees.Elderlycareinstitutionsthathavenotyetbeenbuiltorthathavebeenbuiltbuthavenotyetmettheconditionsforacceptingtheelderlyshallnotcollectmembershipfees.Publicelderlycareinstitutions,publicandpriva
38、teinstitutions,andpensioninstitutionsjointlybuiltbythegovernmentandsocialforcesshallnotcollectmembershipfees.Whereelderlycareinstitutionsortheirlegalrepresentatives(primarypersonsincharge),actualcontrollersaredishonestpersonssubjecttoenforcement,orhavereceivedadministrativepenaltiesorcriminalpenalti
39、esduetoillegalfund-raisingandfraud,havebeenincludedinthelistofseriouslydishonestsubjectsforelderlycareservices,enterprises,andsocialorganizations,andhavenotbeenremovedfromthelist,theyshallnotcollectmembershipfees.Elderlycareinstitutionsshallnotpromiseservicesbeyondthecapacityofbedsupply,toensurethat
40、thetotalnumberofelderlypersonspayingfeesshallnotexceedthetotalnumberofbedsforwhichrecordationformalitieshavebeenundergone,andthetotalamountofadvancefeescollectedshallnotexceedtheirnetfixedassets(thevalueofassetsforwhichrealrightsforsecurityhavebeensetupshallnotbeincludedinthenetamountoffixedassets).
41、6. Agreementmanagement.Elderlycareinstitutionsshallfullyprotecttherightoftheelderlyandtheiragentstoknow,truthfullyandaccuratelyexplainthecollectionanduseofadvancefeesandotherrelevantinformation,notifythepossiblerisks,andspecifytheitems,standards,managementmethods,refundconditionsandmethods,andliabil
42、ityforbreachofcontractforadvancefeesintheserviceagreement.Elderlycareinstitutionsshallnotusestandardtermstosetunreasonablerefundrestrictions,excludeorrestricttherightsoftheelderly,increasetheliabilityoftheelderly,reduceorexempttheliabilityofelderlycareinstitutions.Nofalseormisleadingpublicitymaybeco
43、nducted.Noelderlycareinstitutionmayinducetheelderlyortheiragentstopayadvancefeesbypromisingtorepayprincipalandinterestortogiveotherinvestmentreturns.Theelderlyandtheiragentsshallimprovetheirawarenessofriskprevention,consumerationally,payadvancefeesprudently,notbetemptedbyhighreturns,notparticipatein
44、illegalfund-raising,andguardagainstpropertylosses.Elderlycareinstitutionsshallissueinvoicesinaccordancewiththerulesofthestate,andshallnotentercontentinconsistentwiththeactualtransaction,orreplacereceiptvoucherwithreceiptsandotherIOUs.Theelderlyortheiragentsshallaskforandproperlykeepinvoicesorotherco
45、nsumptionvouchersafterpayingfees,andmayclaimrightsaccordingtothelawandregulationsincaseofdisputesoverconsumption.（六）协议管理。养老机构应当充分保障老年人及其代理人知情权，其实、准确说明预收费收取、使用等相关信息，告知可能存在的风险，并在服务协议中明确预收费的项目、标准、管理方式、退费条件及方式、违约责任等。养老机构不得利用格式条款设定不合理的退费限制、排除或者限制老年人权利、加重老年人责任、减轻或者免除养老机构责任。不得作虚假或者引人误解的宣传，不得以承诺还本付息、给子其他投资回
46、报等方式，诱导老年人或者其代理人交纳预收费。老年人及其代理人要提高风险防范意识，理智消费，谨慎交纳预收费，不为高额回报所诱惑，不参与非法集资，谨防财产损失。养老机构预收费应当按照国家规定开具发票，不得填开与实际交易不符的内容，不得以收款收据等“白条”替代收款凭证。老年人或者其代理人交费后要索要并妥善保管好发票或者其他消费凭证，发生消费纠纷时可以依法依规主张权利。（七）使用用途。养老机构预收费用主要用于抵扣老年人入住机构期间需要支付的费7. Purposeofuse.Theadvancefeescollectedbyelderlycareinstitutionsaremainlyusedtoof
47、fsettheexpensesthattheelderlyneedtopayduringtheirstayintheinstitutions,makeupforthelackoffundsforthefacilityconstructionoftheinstitutions,ordevelopingtheelderlycareservicebusinessoftheinstitutions.Guaranteedepositsshallnotbeexpendedexceptforrefunds,paymentofmedicalexpensesfortheelderlyunderemergenci
48、es,deductionofelderlycareservicefeesinarrears,orliquidateddamagesorcompensationthatshallbepaidtoelderlycareinstitutions.Membershipfeesshallnotbeusedforimmovablesnotforonesownuse,negotiablesecurities,financialderivativesandotherhigh-riskinvestment,fordirectlyorindirectlyinvestingincompanieswithtradin
49、gofnegotiablesecuritiesasthemainbusiness,orforotherpurposesofborrowing;andshallnotbeusedforinvestingordonatingtootherenterprisesinthenameofitslegalrepresentative(primaryresponsibleperson)oractualcontroller;andelderlycareinstitutionscarryingoutchainorgroupoperationshallnotinvestinordonatetoaffiliatedenterprises.用、弥补本机构设施建设资金不足，或者发展本机构养老服务业务。押金除办理退费、支付突发情况下老年人就医费用、抵扣老年人拖欠的养老服务费或者应当支付给养老机构的违约金、赔偿金等情形外，不得支出。会员费不得用于非自用不动产、有价证券、金
