NUEVO CALCULO PARA JUBILACIONES

Modificación  inciso a) del Artículo 24 de la Ley N° 24.241

Con el senador Pablo Verani (Río Negro)

Proyecto de Ley – S-1724/10

Artículo 1: Modifícase el inciso a) del artículo 24 de la Ley N° 24.241 y modificatorias, el que quedará redactado de la siguiente manera:

“Artículo 24:

a) si todos los servicios con aportes computados lo fueren en relación de dependencia, el haber será equivalente al UNO Y MEDIO POR CIENTO (1,5%) por cada año de servicio con aportes o fracción mayor de SEIS (6) meses, hasta un máximo de TREINTA Y CINCO (35) años, calculado sobre el promedio de remuneraciones sujetas a aportes y contribuciones actualizadas y percibidas durante los DIEZ (10) años calendario más favorables, continuos o discontinuos, comprendidos en el período integro de servicios. No se computarán los períodos en que el afiliado hubiere estado inactivo, y consecuentemente no hubiere percibido remuneraciones.

Facúltase a la Secretaría de Seguridad Social del Ministerio de Trabajo, Empleo y Seguridad Social a dictar las normas reglamentarias que establecerán los procedimientos de cálculo del correspondiente promedio”.-

Artículo 2: Comuníquese al Poder Ejecutivo Nacional.-

FUNDAMENTOS

 

Sr. Presidente:

El artículo 14 bis de la Constitución Nacional, en su tercer párrafo establece El Estado otorgará los beneficios de la seguridad social, que tendrá carácter de integral e irrenunciable. En especial, la ley establecerá: el seguro social obligatorio, que estará a cargo de entidades nacionales o provinciales con autonomía financiera y económica, administradas por los interesados con participación del Estado, sin que pueda existir superposición de aportes; jubilaciones y pensiones móviles; la protección integral de la familia; la defensa del bien de familia; la compensación económica familiar y el acceso a una vivienda digna”.-

Las jubilaciones y las pensiones son uno de los pilares fundamentales de la seguridad social. En nuestro país, los primeros regímenes de previsión social surgen a inicios de siglo XX.-

En 1904, la Ley N° 4.349, conocida como la ley de la Caja Civil, da nacimiento a los primeros regímenes orgánicos de previsión social y fue el modelo que inspiró a otras leyes jubilatorias que le sucedieron.-

Luego, hasta 1915 rige la Ley N° 9.653. En 1921 se dicta la N° 11.110, en 1923 la Ley N° 11.575 y en 1939 la Ley N° 12.581 que crea la Caja de Jubilaciones y Pensiones de Periodistas. Ese mismo año se crea la Caja de Jubilaciones, Pensiones y Retiros de la Marina Mercante Nacional.-

En 1944, por decreto-ley N° 10.315, se incorpora al régimen de la ley N° 11.110 de servicios públicos, al personal que trabaja en hospitales, institutos médicos, casas de salud, clínicas, policlínicos, sanatorios, establecimientos de baños medicinales, asociaciones profesionales o gremiales, y entidades de socorros mutuos.-

En 1946 se incorpora a todos los obreros industriales a través del decreto ley N° 13.937, llevando la previsión a uno de los grupos de trabajadores mas numerosos del país y que hasta ese entonces carecía de protección.-

En 1949, mediante la Ley N° 14.399, se instituye el régimen previsional para trabajadores rurales y en 1950, por el decreto N° 11.911, se extiende el amparo jubilatorio al servicio doméstico. La Ley N° 14.067 de 1951 declara comprendido en la Ley N° 11.110 a todo el personal de las empresas de transporte automotor colectivo de pasajeros.-

Fue en 1954 donde se dio un gran paso hacia la uniformidad legislativa a través de la Ley N° 14.370. En 1967 se sancionan la leyes N° 17.310 y N° 17.385 que se consideran el anticipo del sistema que rigió por varios años.-

En diciembre de 1968 se sancionan dos leyes de fundamental importancia, la Ley N° 18.037 para los trabajadores en relación de dependencia y la N° 18.038 para los trabajadores autónomos. Ambas reglamentadas por el Decreto N° 8525 de 1968.-

La ley N° 18.037, en su redacción original estableció para la determinación del haber de las prestaciones, lo siguiente:

“ARTICULO 45.- El haber mensual de las jubilaciones ordinaria y por invalidez se determinará de acuerdo con el siguiente procedimiento:

a) Será equivalente al 70 % del promedio mensual de las remuneraciones actualizadas determinado en la forma indicada en los incisos siguientes.

El haber se bonificará con el 1 % de dicho promedio por cada año de servicios que exceda del mínimo de antigüedad requerido para obtener jubilación ordinaria;

b) Si todos los servicios computados fueren en relación de dependencia, se promediarán las remuneraciones actualizadas percibidas durante los tres años calendarios más favorables, continuos o discontinuos, comprendidos dentro del período de diez años inmediatamente anterior al cese.

En el caso de jubilación por invalidez, si el afiliado no acreditare un mínimo de tres años de servicios, se promediarán las remuneraciones actualizadas percibidas durante todo el tiempo computado;

c) Si se computaren sucesiva o simultáneamente servicios en relación de dependencia y autónomos, el haber se establecerá sumando el que resulte de la aplicación de esta ley para los servicios en relación de dependencia y el correspondiente a los servicios autónomos de acuerdo con su régimen propio, ambos en proporción al tiempo computado para cada clase de servicios, con relación al mínimo requerido para obtener jubilación ordinaria.

Sin embargo, los servicios en relación de dependencia no se tendrán en cuenta para determinar el haber, pero si para bonificarlo, cuando no estuvieren comprendidos dentro del período de diez años inmediatamente anterior al cierre del cómputo; en tal caso, cualquiera fuere la Caja otorgante del beneficio, el haber se determinará aplicando exclusivamente el régimen para trabajadores autónomos”.-

En 1983, este artículo ha sido modificado en su primer párrafo del  inciso b), por el que sigue: “Si todos los servicios computados fueren en relación de dependencia, se promediarán las remuneraciones actualizadas percibidas durante los tres (3) años calendarios más favorables, continuos o discontinuos, comprendidos en el período de diez (10) años, también calendarios, inmediatamente anteriores al año de la cesación en el servicio”.-

Por su parte, el régimen establecido para los trabajadores autónomos en la Ley N° 18.038 estableció en materia de haber de las prestaciones:

“ARTICULO 33.- El haber de las jubilaciones ordinarias y por invalidez se determinará de acuerdo con el siguiente procedimiento:

a) Cuando se computaren treinta años de servicios con aportes, ese haber será equivalente al 70 % del promedio mensual establecido en la forma indicada en los incisos siguientes.

Si los años de servicios con aportes no alcanzaren a treinta, los faltantes hasta completar ese número se adicionarán de oficio, incluyéndose en el cómputo como si respecto de ellos se hubiera aportado a la categoría mínima obligatoria que corresponda a la última actividad autónoma.

Por cada año de servicios con aportes que exceda de treinta, el haber se bonificará con el 1 % del promedio indicado.

b) Si todos los servicios computados fueren autónomos, los montos actualizados de las categorías en que revistó el afiliado y los ingresos sujetos a aporte bajo los regímenes de la ley 14.397 y el decreto-ley 7.825/63, también actualizados, se promediaran en relación al tiempo con aportes computados de conformidad con lo establecido en el inciso a);

c) Si se computaren sucesiva o simultáneamente servicios autónomos y en relación de dependencia, el haber se establecerá sumando el que resulte de la aplicación de esta ley para los servicios autónomos y el correspondiente a los servicios en relación de dependencia de acuerdo con su régimen propio, ambos en proporción al tiempo computado para cada clase de servicios, con relación al mínimo requerido para obtener jubilación ordinaria. Sin embargo los servicios en relación de dependencia no se tendrán en cuenta para determinar el haber, pero si para bonificarlo, cuando no estuvieren comprendidos dentro del período de diez años inmediatamente anterior al cierre del cómputo; en tal caso, cualquiera fuere la Caja otorgante del beneficio, el haber se determinará aplicando exclusivamente el presente régimen”.-

En 1986 comienza a reconocerse la debacle de sistema de previsión argentino. Por Decreto N° 2196, el Poder Ejecutivo Nacional declara en estado de emergencia al sistema ordenando la paralización por algo mas de dos años, de los juicios y reclamos administrativos que se fundaban en la impugnación de la determinación del haber, de la movilidad de las prestaciones o la aplicación de límites máximos. Además, modificó las reglas para el cálculo del haber inicial. El decreto, además, suspendió hasta el 31 de diciembre de 1988 la aplicación de las normas que establecían la determinación de los haberes y dispuso que durante esa suspensión el haber de las nuevas prestaciones se determinaría sumando al importe de la jubilación mínima vigente, el 27 por ciento del promedio mensual de las remuneraciones.-

Luego en 1994, a través de la Ley N° 24.241 se establece el actual sistema de determinación del haber, que no ha sido sustituido por la última modificación que ha sufrido el sistema conocida como “la vuelta al reparto”.-

Es así que, a partir de 1994, el haber jubilatorio está compuesto por la prestación básica universal –PBU- mas la prestación compensatoria –PC- y en algunos casos la prestación por permanencia –PP-. La PBU es un monto fijo que determina la Administración Nacional de Seguridad Social –ANSeS- y la PC es la que se determina según los años de servicios con aportes. A este respecto el texto original de la ley N° 24.241 establecía  el modo de determinar ese haber mensual. El inciso a) del original artículo 24 sostenía: “si todos los servicios con aportes computados fueren en relación de dependencia, el haber será equivalente al uno y medio por ciento por cada año de servicio con aportes, o fracción mayor de seis meses, hasta un máximo de treinta y cinco años, calculado sobre el promedio de las remuneraciones sujetas a aportes y contribuciones, actualizadas y percibidas durante el período de diez años inmediatamente anteriores a la cesación en el servicio. Las normas reglamentarias establecerán los procedimientos de cálculo del correspondiente promedio”.-

En Julio de 1994, la Ley N° 24.347, modifica el inciso a) del artículo 24: “El haber mensual de la prestación compensatoria se determinará de acuerdo a las siguientes  normas:

a) Si todos los servicios con aportes computados lo fueren en relación de dependencia, el haber será equivalente al uno y medio por ciento por cada año de servicio, con aportes o fracción mayor de seis meses, hasta un máximo de treinta y cinco años, calculado sobre el promedio de las remuneraciones sujetas a aportes y contribuciones actualizadas y percibidas durante el período de diez años inmediatamente anteriores a la cesación de servicios. No se computarán los períodos en que el afiliado hubiere estado inactivo, y consecuentemente no hubiere percibido remuneraciones. Las normas reglamentarias establecerán los procedimientos de cálculo del correspondiente promedio.

A efectos de practicar la actualización prevista en el párrafo anterior, la ANSeS reglamentará la aplicación del índice salarial a utilizar. Este índice será de carácter oficial;”.-

 

En 1995, se reglamentan por Decreto 679/95 varios artículos de la Ley N° 24.241, entre ellos artículo 24:

“ARTICULO 24. — REGLAMENTACION

1. — A los fines establecidos en el inciso a), se entiende por cesación de servicios la fecha de la extinción del contrato de trabajo o relación de empleo público, o de la solicitud del beneficio, la que ocurra primero.

2. — Para el cálculo del haber de la Prestación Compensatoria (PC), cuando se computen servicios en relación de dependencia, se entenderá que el período de DIEZ (10) años inmediatamente anteriores a la cesación en el servicio será el de CIENTO VEINTE (120) meses durante los cuales el afiliado haya percibido remuneraciones.

3. — El cálculo del promedio de las remuneraciones sujetas a aportes y contribuciones a que hace referencia el inciso a), en el caso de trabajadores que hayan percibido más de una remuneración en relación de dependencia de manera simultánea durante los CIENTO VEINTE (120) meses a que alude el apartado 2 precedente, se efectuará de acuerdo con el siguiente procedimiento:

a) Se sumarán mes a mes las remuneraciones actualizadas percibidas durante los CIENTO VEINTE (120) meses a considerar.

b) Cuando en alguno de los referidos meses la suma de dichas remuneraciones supere el máximo establecido en el primer párrafo del artículo 9º de la Ley Nº 24.241, se considerará este último monto para el cálculo final. Estará exenta de este límite la suma de las remuneraciones imponibles devengadas con anterioridad al 1º de febrero de 1994.

c) Se promediarán los valores que surjan de la aplicación de los incisos a) y b) por CIENTO VEINTE (120) meses.

4. — Cuando se computaren servicios autónomos se tendrán en cuenta los montos o rentas de referencia correspondientes a las categorías en que revistó el afiliado, considerando los valores vigentes al momento de la solicitud de la prestación.

5. — Cuando se computaren sucesiva y/o simultáneamente servicios con aportes en relación de dependencia y autónomos, el cálculo del haber de la Prestación Compensatoria (PC) se realizará de acuerdo con el siguiente procedimiento:

a) Se actualizarán mes a mes las remuneraciones en relación de dependencia correspondientes a los CIENTO VEINTE (120) meses a que hace referencia el apartado 2. Si el período con aportes en relación de dependencia fuera inferior a CIENTO VEINTE (120) meses, se considerarán la totalidad de los meses aportados como trabajador dependiente.

b) Se considerarán los montos o rentas de referencia para los servicios autónomos de igual manera al procedimiento establecido en el apartado 4 anterior.

c) Si durante los meses considerados en el caso de servicios en relación de dependencia existiera simultaneidad con aportes por actividades autónomas, se sumarán las remuneraciones y rentas correspondientes a los servicios en relación de dependencia y autónomos. Si tal suma supera el máximo establecido en el primer párrafo del artículo 9º de la Ley Nº 24.241, el excedente resultante se descontará de manera proporcional de las remuneraciones y rentas de cada uno de los meses considerados.

Estará exenta de dicho límite la suma de las remuneraciones y rentas devengadas con anterioridad al 1º de febrero de 1994.

d) Se calcularán por separado el promedio de las remuneraciones en relación de dependencia y el promedio de los montos o rentas de las categorías de autónomos a partir de los cálculos señalados en los incisos a), b) y c) precedentes.

La suma de los meses computables no excederá de CUATROCIENTOS VEINTE (420), eliminándose los que excedan, tomándolos de los meses menos favorables para el cálculo.

e) Los promedios obtenidos según el inciso d) anterior se aplicarán al cálculo del haber de la Prestación Compensatoria (PC) como se indica en el Anexo I que forma parte del presente decreto.”

La Ley N° 26.222 de febrero de 2007, conocida como de movilidad jubilatoria, no ha modificado el cálculo del haber inicial, siendo éste uno de los puntos mas cuestionados de la norma.-

Finalmente, la restatización del sistema previsional argentino, a través de la ley N° 26.425 de noviembre de 2008 no hace modificaciones en materia de determinación del haber previsional.-

Por lo tanto hoy, el haber previsional está conformado por la prestación básica universal –PBU-, la prestación complementaria –PC y en aquellos casos en que el trabajador se mantuvo en el sistema de reparto mientras coexistieron las AFJP, la prestación por permanencia –PP. En lo que aquí nos convoca, la prestación compensatoria –PC- se calcula actualmente tomando el uno y medio por ciento  por cada año de servicio con aportes hasta un máximo de treinta y cinco años, calculado  sobre el promedio de las remuneraciones sujetas a aportes y contribuciones actualizadas y percibidas durante el período de diez años inmediatamente anteriores a la cesación de servicios.-

 

Es por todos conocidos que las relaciones laborales actuales han modificado la vida laboral de cada trabajador. Así es que, en los albores del sistema previsional argentino, el trabajador llegaba a la cima laboral casi al final de su carrera laborativa, mientras que, en la actualidad y en términos generales, la cima laborativa se alcanza entre los 35 y los 45 años, es decir mucho tiempo antes del final de la carrera.-

Y en correlación, si siguiéramos tomando para el cálculo de la prestación compensatoria los últimos 10 años de la actividad laborativa, ese promedio ni siquiera se acercaría a los mejores años de actividad de cada trabajador.-

Es por ello que, esta iniciativa pretende modificar la normativa actual para que, en el cálculo de la prestación compensatoria, se tome el promedio de los diez mejores años o lo que es lo mismo los diez años mas favorables, continuos o discontinuos, de todo el período de servicios de cada trabajador.-

Esta propuesta tiene su razón de ser en que la jubilación debería ser una prestación económica que debe alcanzar una razonable tasa de sustitución entre lo percibido en actividad y lo que se percibirá una vez jubilado.-

Ya la corte ha sostenido por un lado,  que el salario mínimo, vital y móvil tiene que estar relacionado con el haber jubilatorio porque este último es sustituto del salario. Y, además, en Badaro el máximo tribunal ha dicho que “la movilidad de las jubilaciones supone una previsión que tiene un profundo contenido social, referente a la índole sustitutiva de la prestación jubilatoria, por lo cual es menester que la cuantía mantenga una proporción razonable con el ingreso de los trabajadores”.-

Si tomamos al haber jubilatorio como un sustituto del salario y tenemos como meta brindar a los jubilados una condición que tenga estricta relación con la situación en que se encontraban cuando trabajaron, se torna razonable la modificación aquí planteada, pues hace una evolución de la legislación  reflejando en ella la nueva realidad laborativa.-

Por los fundamentos expuestos, solicito a los Sres. Senadores me acompañen con su voto en la aprobación del presente Proyecto de Ley.

Senador Pablo Verani

Senadores Gerardo Morales; Mario Cimadevilla y Juan Carlos Marino

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