本文以社会养老保险为例,分析社会保险在克服碎片化及低层次统筹过程中作出的努力及面临的困境。面对我国社会保险碎片化的现状,社会保险统筹具有化解碎片化、促进制度公平的重要意义。然而,市县级统筹以地域一体化为目标,而中央和省级政策以社会群体为导向,不同的统筹政策在同时运行的过程中产生互斥,中央和省级政策对地域一体化产生制约作用。本文以东莞市为例,分析了社会养老保险地域化的发展及其面临的制约,提出了建立“省域公民身份”的构想,尝试在统一的省域公民身份基础上,对省内户籍的各类居民实行统一的社会保险制度。 This article takes social pension insurance as an example to analyze the efforts and difficulties faced by social insurance in overcoming fragmentation and low-level co-ordination. Faced with the current situation of the fragmentation of social insurance in our country, social insurance co-ordination has the important significance of defusing fragmentation and promoting the fairness of the system. However, municipal and county-level co-ordination aims to achieve regional integration while central and provincial policies are oriented toward social groups. Different co-ordinated policies generate mutual exclusion in the process of simultaneous operation. Central and provincial policies have constraints on regional integration effect. Taking Dongguan City as an example, this paper analyzes the development of social pension insurance and the constraints it faces. It puts forward the conception of establishing “citizenship of province” and attempts to establish a " Households of all types of residents to implement a unified social security system.