摘要
解决好农业、农村、农民问题,一直事关中国现代化发展大局,成为各级政府全部工作的重中之重。解决好“三农”问题的核心是解决好农民问题,在推进城乡一体化协调发展,努力缩小不断扩大的城乡差距,逐步消除城乡二元经济制度进程中,其重点就是在工业化、城镇化进程中有序、平稳和持续地实现农村富余劳动力向非农产业和城镇转移。中国农村劳动力转移既是现存制度的产物,又不断催生制度变革。进一步改革和完善影响中国农村劳动力转移的相关制度政策,加快推进农民工市民化进程,对从根本上解决“三农”问题具有重要意义。
首先,分析了中国农村劳动力转移的制度背景、制度演变和制度影响过程。农村劳动力向非农产业和城镇转移,是世界各国工业化、城市化进程中带有普遍性的规律。考察发达国家和发展中国家农村劳动力转移进程发现,提供完善的制度保障是解决农村劳动力顺利转移的成功做法。中国的农村劳动力转移是在二元经济制度的推动和市场经济制度的拉动下发生的,先后经历了农村改革的起始阶段、市场经济制度确立与完善阶段和统筹城乡协调发展战略实施阶段,其中相关的制度政策发挥着重要的影响作用。尤其是在土地制度、户籍制度、就业制度、城市公共品供给制度、社会保障制度,以及产业政策和城镇化战略对农村劳动力转移,特别是农民工市民化进程影响最大。
其次,研究了中国农村劳动力转移波动与转移结构失衡问题。中国农村劳动力转移不仅存在波动,而且还具有明显的周期性。这种转移波动给中国经济社会发展带来了重大影响。基于农村劳动力转移存在波动的现实分析,研究了其中的制度影响因素,并通过建立波动分析模型,找出波动与制度变迁的规律性和关联性。减缓波动的制度设计重点在于对土地制度、户籍制度、就业制度、城乡公共品供给制度、社会保障制度的不断改革与完善。中国农村劳动力转移还存在着产业、行业和地区分布结构失衡导致的转移结构失衡问题,造成农村劳动力转移的结构性“短缺”与“过剩”、转移成本上升和转移速度变缓的问题,必须通过促进区域经济协调发展,加快产业结构布局调整步伐和实施农村转移劳动力资源开发战略等政策的完善,解决好转移结构失衡的问题。
再次,设计了中国农村劳动力转移的制度改革与完善方案。第一,在土地制度方面,应重点推进土地产权制度的改革、土地流转制度的改革和农村土地征用制度的改革；第二,在户籍制度方面,进一步明确了户籍制度改革的目标和原则,提出了完善户籍制度改革的配套措施和办法,设计了采取低门槛,渐进式的户籍制度改革路线；第三,在就业制度方面,提出了完善公共就业信息服务制度、完善劳动力市场管理规范制度、完善农民工教育培训制度和完善农民工权益保障制度的创新思路；第四,在社会保障制度方面,设计了分层分类实施保障,分步分阶段推进保障和改进完善社会保障关系转移接续办法的相关措施；第五,在城市公共品供给制度方面,重点对农村劳动力转移影响最大的义务教育制度和城市住房制度提出了完善流入地政府义务教育公共财政供给制度,建立农民工住房保障体系、健全农民工住房公积金制度,科学规划农民工住房供给和保障政策等方面的创新办法。
最后,提出了农村劳动力转移的相关的政策建议。第一,必须在调整产业结构中坚持扩大转移就业的原则,充分发挥第一产业的就业潜力,推动有需求的城镇化建设；优化调整第二产业内部结构,进一步拓展就业空间；优化第三产业内部结构,不断拓展新的就业领域。第二,必须正确处理好城镇化战略与农村劳动力转移的关系,在推进城镇化战略过程中,应重视公共政策创新,应重视统筹城乡协调发展,实现农村劳动力转移与大中小城市、城镇协调发展,良性互动。第三,必须正确处理好新农村建设与农村劳动力转移的关系,同步解决好“减少农民”和“富裕农民”的问题,加强农村人力资源开发,支持和鼓励农民工回乡创业,提高农民工的组织化程度。第四,应充分认识政府责任在农村劳动力转移中的重要作用,进一步明确中央政府和地方政府“集权”与“放权”的关系,进一步重视政府在农村劳动力转移中的长效机制建设。
本文以中国农村劳动力转移的制度完善为研究视角,以发展经济学理论、制度经济学理论为指导,考察分析了制度因素在中国农村劳动力转移进程中的影响作用,旨在进一步创新土地制度、户籍制度、就业制度、城市公共品供给制度和产业政策、城镇化战略,为有效推动农村劳动力转移有序、平稳和持续转移,加快农民工市民化进程提供制度政策保障。本文的研究将有助于丰富和完善农村劳动力转移的理论研究体系,对各地促进农村劳动力转移和农民工市民化工作有一定的指导意义。
Solving the issues of countryside, agriculture and farmer well, has been related to the overall development of China's modernization, is the top priority of all governments'works. The core of solving "Agriculture, Rural areas and Farmer" issues is to solve the issue of farmer, in the process of promoting the coordinated development of urban-rural integration, striving to narrow the widening gap between urban and rural areas, and the eliminating urban-rural dual economic system gradually, the focus is to achieve the transference from the surplus rural labor to non-agricultural industries and cities and towns orderly, smoothly and sustainably in the industrialization and urbanization. The transfer of rural labor in China is the product of the existing system, and constantly gives birth to the change of the system simultaneously. Further reform and improve the relevant institutions and policies which are affecting the transfer of rural labor, and promoting the process of the community of migrant workers quickly, are very important to solve "Agriculture, Rural areas and Farmer" issues fundamentally.
Firstly, the paper analyzes the system background, the process of system evolution and system influence of rural labor transfer. The transference from the rural labor to non-agricultural industries and cities and towns is a universal regular pattern in the process of industrialization and urbanization among countries in the world. During studying the process of the transfer of rural labor between developed countries and developing countries, providing better institutional guarantee is the successful practice to solve smoothly transfer of rural labor. Rural labor transfer in China is driven by the dual economic system and market economic system has undergone the initial stage of rural reform, the stage of establishing and improving the market economic system, and the stage of coordinated development of urban and rural strategy implementation, in which the related system and policies are playing an important role. Land system, household registration system, employment system, urban public goods, social security system, industrial policy and urbanization strategy have a severe effect on rural labor transfer, especially on the members of the public process of migrant workers.
Secondly, the paper studies fluctuations and structural imbalances of rural labor transfer in China. Rural labor transfer in China not only exists fluctuations, but also has obvious periodicity. This transfer fluctuation has a major impact on the China economic and social development. Based on the actual situations of fluctuations of rural labor transfer, this paper studies the institutional factors, and identifies the regularity and relevance between fluctuations and institutional changes by establishing fluctuation analyses. The system design of reducing fluctuations focuses on the continuous reform and improvement of the land system, household registration system, employment system, urban and rural public goods supply system, the social security system. In the rural labor transfer, there are still problems of imbalances of transfer structure caused by structural imbalances of industries and regional distribution, the structural causes of rural labor transfer "shortage" and "excess", the problems which cause structural unemployment, rising costs and the slow transfer speed. It is necessary to promote regional economic development, accelerate the pace of industrial restructuring and implementing rural human resources development strategy, in order to solve the structural imbalance of the transfer.
Thirdly, the paper designs system reform and innovation programs of rural labor transfer in China. Firstly, in the land system innovation, we should focus on promoting the reform of land property rights, land transfer system and rural land expropriation system; Secondly, in the household registration system innovation, which identifies the clear objectives and principles of the household registration system reform, improve package of measures and methods of the household registration system reform, design a low threshold, progressive line of the household registration system reform; Thirdly, in the employment system innovation, which provides to improve the information service system of public employment, the labor market normative systems, education and training system of migrant workers and the system of rural migrant workers innovative ideas; Fourthly, in the social security system innovation, which designs to implementing guarantee by hierarchically and classify, step forward to improve and perfect the relevant measures of continuation methods for transferring social security; Fifthly, in urban public goods innovation, which promotes some innovation for compulsory education system and the urban housing system which have the greatest impact on rural labor transfer, such as improving the inflow to the government supply system of compulsory public finance, establishing of housing security system of migrant workers, improving the housing accumulation fund system of migrant workers, planning housing supply and protection policy of migrant workers.
Finally, the paper proposes the relevant policy and suggestion of rural labor transfer. Firstly, we should adhere to the expansion of transfer employment principle during adjusting the industrial structure, bring employment potential of the first industries into full play, promote urbanization in need; adjust the second intra-industry and further expand employment space; optimize the internal structure of the tertiary industry, and continuously open up new areas of employment. Secondly, we should correctly handle the strategy of urbanization and rural labor relations strategy, in the process of urbanization, we should attach great importance to innovation in public policy, should pay attention to the coordinated development of urban and rural, fulfill the coordinated development and positive interaction between rural labor transfer and cities and towns. Thirdly, we should correctly handle the relations of the new rural construction and the transfer of rural labor, solve the problem of; 'reducing farmers'and'rich peasants', strengthen rural human resources development, support and encourage migrant workers to return home business, improve migrant workers the degree of organization. Fourthly, we should fully understand government responsibility is playing the important role in the transfer of rural labor, further clarify the relations of the central government "authoritarian" and local government "decentralization", pay greater attention to the government construction of a long-term mechanisms during rural labor transfer.
From the perspectives of promoting the system of China rural labor transfer, under the guidance of developed economics and systematic economics, based on analyzing the effects of the institutional factors in the transference of China rural labor force, therefore the aim of paper is providing the innovation in land system, household registration system, employment system urban public goods, social security system, industrial policy and urbanization, so as to establish institutional safeguards to achieve the transference from the surplus rural labor to non-agricultural industries and cities and towns orderly, smoothly and sustainably in the industrialization and urbanization. This paper helps to advance the research theory on transference of rural labor force, meanwhile, also offers specific guidance on the issue of transfer of rural labor force and citizenization of migrant worker.
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