【作者】 张太宇；

【导师】 张桂文；

【作者基本信息】 辽宁大学 ， 劳动经济学， 2014， 博士

【摘要】 人口的合理流动，农村剩余劳动力向非农产业的转移，农村人口的城镇化，是中国跨世纪的伟大而艰巨的社会经济工程。中国作为一个发展中大国，二元经济结构是国民经济结构的基本特征。中国要由二元经济转变为现代经济，要由落后的农业国发展成现代化、工业化国家，关键在于农业劳动力的非农化与城镇化。由此可见，在实现二元经济成功向现代化的一元经济转变这一伟大的进程中，农民工这一群体的社会保障问题是不可回避的，换句话说，农民工社会保障问题是否能够有效解决将直接影响城镇化、工业化和二元经济结构转换的绩效和进程。然而，作为城市的“边缘人”的农民工群体，他们享受的社会保障程度很低。农民工的社会保障问题实际上是在农村富余劳动力向城市转移过程中，如何实现从传统的土地保障向现代化社会保障制度转换的问题。这个问题解决的好，会大大促进农民向城市的转移，加快城市化、工业化的进程，推动中国社会从城乡分割走向城乡协调发展。由此可见，为农民工提供适度的社会保障，既是这个特殊群体的力量发展到一定程度的必然要求，也是经济发展到一定阶段的必然结果，更是有效解决“三农”问题、实现小康社会与和谐社会目标的必然选择。因此，研究农民工的社会保障问题既具有重要的现实意义，更具有重要的战略意义。推进农村剩余劳动力合理有序转移，可以为我国的工业化升级提供人力资源支持；伴随农村剩余劳动力的转移，更多的农民转变为市民，推动了城市化进程；劳动力转移到劳动生产率较高的部门，增加了收入，有利于减小城乡收入差距和推进城乡一体化。反之，农村剩余劳动力转移问题如果解决不好，工业化、城市化、城乡一体化等方面的工作也很难有实质性的突破。因此，农民工社会保障制度的完善有助于提升城市拉力，有效缓解工业化、城市化给农民工群体所带来的经济社会风险，也有助于从根本上解决农民工非永久性乡城迁移问题。由此可见，农民工社会保障问题是我国城乡一体化建设进程中需要给与更多关注和有效加以解决的关键性问题之一。当前，适合农民工就业特点和实际需求的社会保障制度依然缺位，而且，由于二元福利体制的固有局限性，农民工养老保障、医疗卫生保障、工伤保障、失业保障及子女教育、住房等公共福利政策方面仍存在一些不合理的制度安排，社会保障公共服务非均等化问题十分突出，从而使得进城农民工只能作为城市的临时暂住人口，不能享受与城镇居民平等的权利，农民工市民化进程受到阻碍。具体表现在：一是子女入学难问题依然严峻，公办学校仍然存在不同程度的入学门槛。二是公共卫生服务覆盖率不高，作为职业病、流行性疾病发病率普遍较高的群体，农民工就医难问题堪忧。三是尚未将农民工群体普遍纳入城镇住房保障体系，房屋租赁市场仍不健全。四是现行的社会保险制度还不适应非正规就业农民工的特点，导致农民工参保率普遍偏低。就业状态不稳定导致参保困难，农民工工作流动性强，降低了用人单位和农民工的参保积极性，而现有社会保障信息系统不能适应劳动力市场就业灵活性，增加了管理难度。五是其择业单位多为民营企业和个体工商企业等劳动密集型行业，这些企业产品附加值不高，产出效益低，如果按照城镇企业社会保险办法为其缴纳保费，相当一部分企业无力承担，缴纳积极性不高。六是社会保障制度门槛高，转移难。现有新农保、城镇居民养老保险、城镇职工养老保险之间和新农合、城镇居民医疗保险、城镇职工社会保险之间关系衔接难、接续难，导致农民工流动时反复参保、退保，而难以受惠，农民工社会保障权益受到损害。围绕上述问题，论文试图对农民工社会保障现存问题的制度性、深层次原因进行分析，探讨解决我国农民工社会保障制度所存在问题的对策措施。论文主要内容包括以下三个部分：第一部分为理论基础。首先，本文系统梳理与客观评价了国内外学者的相关研究成果。其次主要从理论层面分析了农民工社会保障的劳动力市场效应，经过系统的理论分析和论证，得出的结论是：从长期看农民工适度社会保障有利于扩大劳动力需求和有利于提高劳动力供给质量。这一部分试图从经济学视角对农民工社会保障问题进行理论探索，展阔了理论分析的空间，充实了研究内容，为后续研究奠定了理论基础。第二部分为中国农民工社会保障制度的现状、问题和成因的制度关联分析。首先，从微观角度对农民工乡城迁移过程中所面临的经济社会风险进行了剖析和归纳，将农民工就业特征和所面临的经济社会风险有机结合在一起，经过研究发现：相对于所有雇佣劳动者而言，农民工更需要完善的社会保障制度去分散和化解城市化进程中的收入风险、失业风险、职业安全风险、公共卫生风险、居住风险和教育风险等。其次，在对农民工社会保障制度建设的总体情况、实施特点进行研究的基础上，重点剖析了我国农民工社会保障制度存在的主要问题——保障覆盖面窄、保障水平低、各项制度间衔接性差、主要保障项目缺失、一些保障制度安排激励效应差等；最后，以制度经济学中的制度关联理论为指导，从制度关联视角对引致农民工社会保障问题出现的原因进行了剖析，创新了研究视角，有别于其他学者关于农民工社会保障的理论研究，并为对策性研究奠定了基础。第三部分为对策建议。在上述理论研究、问题及原因分析的基础上，该部分主要围绕：深化二元经济体制改革，加强相关制度安排的协调性；有效解决保障供给单一化与保障需求多样性的矛盾；健全适应农民工就业特点社会保障的运行机制；和加强人力资本投资，提升农民工群体参保能力四个方面进行了对策探讨。更多还原

【Abstract】 As the rational flow of the population，surplus rural labor force is transferred tonon-agricultural industries, and then rural population becoming urbanization which canbe treated as a cross-century arduous social economy project of China. As a developingcountry, using dual-system is the essential feature of Chinese economic structure. IfChina wants to transform dual economic structure into modern economy, as well astransform backward agricultural country into Modern industrialized countries, the keypoint will be the non-agriculturization and urbanization of the agricultural labor force. Ascan be seen, during the processing of succeed realize transform the dual economystructure into the modern economy structure, peasant Migrant Workers’ social securityproblem is inevitable. In another words, whether peasant Migrant Workers’ socialsecurity problem can be solved will affect the performance and process of theurbanization、industrialization and dual economic structure transition as well. However,the group of peasant migrant workers, as the urban “marginal person”, which aresuffering lower level social security. Actually, the Peasant migrant workers’ socialsecurity problem is the fact how to realize transforming traditional land security intosocial security system when transforming the surplus rural labor into urban. If thisproblem can be solved effectively, the benefits are many, such as, largely promotingtransforming of the peasant into urban, speeding up the process of urbanization andindustrialization, promoting the development of Chinese society from division of urbanand rural stage to urban-rural coordination stage. Obviously, providing moderate socialsecurity to peasant Migrant Workers is not only because of the developing of the group,but also a necessary result of national economic development. More than that, it will bean effective way to find a solution of the “Agriculture, rural areas and farmers "issue.Also, it will be a inevitable choice to realize well-off and harmonious society’s target.Consequently, to do research on peasant migrant workers social security problem hasimportant practical significance, even more the important strategic significance.Promoting rational transfer of surplus rural labor force can provide human recoursessupporting for national industry updating. Company with transferring surplus rural labor force, more and more peasant becoming citizen, it largely promoted the urbanizationprocess; labor force transfer to upper labor productivity department, increasing revenuein favor of decreasing urban-rural income gap, and then promoting the city andcountryside integration. Otherwise, if the rural surplus labor migration transferringproblem can not be solved, the works, such as Industrialization, urbanization, urban-ruralintegration, can not have a substantial breakthrough. Therefore, the benefits of perfectionof Peasants Migrants Workers’ social security system are many, such as increasing cityauto, easing the industrialization, the urbanization effectively for migrant workersentailed by the economic and social risks, solving the Peasants Migrants Workerspermanent rural-urban migration basically. It is the fact that Peasants Migrants Worker’ssocial security problem can be one of the key problems that should be paid moreattention and solved on time in the process of integration of urban and rural construction.Currently, Suitable for migrant workers employment characteristics and actualdemand is still lack of social security system. Because of the dual welfare system’sinherent limitation, there are still some irrational problems during the public welfarepolicy, such as,the migrants’ old-age insurance system, Medical Security system,unemployment insurance system, Children’s Education, lodgings and so on. As thenon-equalization of the social security services have been highlighted, it makes thepeasants who worked at urban areas only can be the temporary resident population,which can not suffer the equal right with the citizens. The migrants’ urbanizationprocessing has been hampered. The performance showed as followed: First, there are stillsome problems when their children want to enrolled at a public school. Second, theportion of Public health Service is not coverage at a high level. Generally, peasantmigrant worker, as a high rate of incidence of a disease group, which includingoccupational disease and epidemic disease, going to see a doctor can be another troubleissue. Third, the immigrants is still out of housing security system, the housing propertyleasing is still imperfect. Forth, social security system is still not fit for the feature ofinformally employed Peasant Migrant Workers. This can lead to a lower rate of joiningsocial insurance of the migrants. Employment is not in a stable situation which largelyleads to join insurance difficultly. It decreased the initiative of the employer and themigrants themselves to join the insurance because of the high liquidity of the migrants. However, the social security information system is not flexible enough to be suitable forthe labor force market. The difficulty of management enhanced. Fifth, most of themigrants choose the labor-intensive industry, such as private-held enterprise and soleproprietorship enterprise. Such industries own a lower added value, lower output effectas well. If they followed the Town business social insurance principle to charge theirinsurance fee, quite a lot of enterprise can be hard to suffer. Sixth, social security systemhas a high enter level and social security relation is hard to transfer. The relationshipbetween new peasant insurance, urban residents’ endowment insurance, Town workerendowment insurance and new rural cooperative medical system, the medical insurancefor urban residents, urban workers social insurance can be hard to be connected andcontinued. This fact leads to the peasants join and quit insurance repeatedly and then themigrants will suffer damages and be hard to enjoy the benefits. Surrounding by theproblems showed above, this essay trying to discuss the institutional cause of the existingsocial security problems, the deep reason for the issue of Peasant Migrant Workers’ socialsecurity. Furthermore, to get more experience of transferring rural population by usingthe successful reference from typical countries. Finally, to discuss the countermeasure onhow to solve the migrant’s social security problems.The main parts of the report shows as followed:The first part of this article is the theoretical basis elements. Primarily, this essaysystematicly introduced and objectively judged the internal and external scholars’ corelational research in global content. Subsequently, this essay analyzed the labor forcemarket effect of the Peasant Migrant Workers’ social security. Then summarized theconclusion that afford the moderate social security to the migrant not only can benefit theexpanding the demand of labor force, but also increasing supply. This section trying tomake a theory exploring by an economic vision, find another way to show the space oftheory analyzing, and enriching the research contents as well. It affords the basis for thefollowing theoretical researching.The second part of this article is the institutional association analysis of socialsecurity system problems during the current situation, problems and causes of ChinesePeasant Migrant Workers. Firstly, this part analyzed and summarizes the economicalsociety risk of the migrants by the micro perspective when they were facing with rural-urban immigrant process. Also, it makes a dynamic integration between themigrants’ employment feature and economical society risk. The findings after researchare: During the urbanization process, the migrants need a perfect social security todispersing and neutralizing income risk, unemployment risk, Occupational safety risk,Public health risks, living risks, education risks and so on. Next, based on the research ofpeasant migrant workers’ social security system construction’s overall situation,implement features, take more attention on the problems of the new migrants socialsecurity system—the narrow coverage security system, the low security level, negativeconnecting during such systems, major deficiency of security program, some of thesecurity system have less incentive effect and so on. Finally, this part guided by therelevant theory of the systemic economy, applied the institutionalized linkage view toanalyze the reason of the peasant migrants’ social security problem, and then created newpoint of view, which is different from the other scholars’ theory research.The third part of the article is the countermeasure and suggestion. Based on thetheory analysis, current status investigating and learning from international experiencesshowed above, this part is presented as followed: deepening the dual economic reform,promoting the correlative system to make a coordinated reforming, getting a solution ofthe conflict between singularity of security supplement and diversity of securityrequirement, fitting the employment character of Peasant Migrant Workers, establishingthe perfect social security operating mechanism and enhancing the amount of investmenton the migrants’ human capital, promoting the insured ability of peasant migrant workergroup.更多还原