【作者】 黄红华；

【导师】 郁建兴；

【作者基本信息】 浙江大学 ， 行政管理， 2009， 博士

【摘要】 人口结构变化、经济周期调整以及产业转型升级使统筹城乡就业工作面临新的挑战和机遇。新时期统筹城乡就业需要开展体制机制的持续创新,也需要对政策工具进行匹配、组合与优化。在既定体制下,后者显得尤为重要。统筹城乡就业就是在二元经济结构下消除城乡劳动力市场的分割,并最终消解二元经济结构。在其中,政府需要创造城乡居民平等就业的市场环境,缩小劳动力市场中用人单位和农民工的力量不均衡,减少劳动力转移中的信息不完全和不对称,帮助弱势群体实现就业以及为进城务工人员提供公共就业服务。落实上述政府责任的政策工具包括强制性政策工具、激励性政策工具、指导性政策工具、信息性政策工具和服务性政策工具。强制性的政策工具包括进入管制、取消管制、价格管制以及劳动监察、劳动争议仲裁、裁决和惩戒。它以国家强制力作为后盾,具有高度的有效性和公平性,但容易导致市场扭曲。统筹城乡就业需要通过法律法规设定逐步开放户籍制度的条件和配套改革,逐步用社会失业率取代城镇失业率,逐步建立可以在不同地区接续以及在不同身份间转换的社会保险体系,并实现省级以上政府统筹。激励性政策工具主要包括经费补贴、财政补贴、税费补贴以及贷款和奖励等。它主要用于扶持和培育农民工组织、购买就业管理和服务以及激励创业活动。当前运用最多的领域是劳动力转移培训。在这一过程中,服务主体筛选、补贴方式选择以及服务质量监督至关重要。指导性政策工具主要是提供就业和工资指导,提供劳动力市场指导价位和企业工资指导线,协调工资集体协商活动以及调解劳动纠纷等。它的核心在于公布参考信息、培育农民工组织以及协调劳资双方工资福利谈判。信息性政策工具主要包括信息网络建设、信息供给以及政策咨询等。它主要用于工作搜寻、工资福利协商以及农民工权益保护等方面。工具生效程度与信息网络的完备性和可及性以及信息的及时性和可靠性等因素直接相关。服务性政策工具包括政府直接供给、建立公共企业供给、服务外包以及社区服务等。它主要用于就业岗位搜寻与提供、就业与社会保障服务、培训服务以及改善进城务工人员居住和生活等方面基本公共服务的供给。服务性政策工具要求贴近需求和高效提供,供给方式选择以及财政体制的改革非常重要。已有法律法规、政策尽管为强制性政策工具的实施提供了依据,但由于经济与社会发展政策目标之间的冲突以及执法监察力量的不足,农民工在工资发放、劳动时间、合同签订以及加入社会保险等方面的合法权益仍未得到较好保障。激励性政策工具的运用在劳动力转移培训方面产生了积极的效果,但培训质量仍然有待提高。同时,促进弱势群体在城镇就业的政府补贴政策尚未对农民工开放。因为政府指导性信息的形成能力不足、集体工资协商制度尚未推广、农民工的组织化程度以及工会的独立性不够等方面的影响,指导性政策工具的运用能力和效果仍然较差。信息性政策工具运用效果的增强,有赖于信息网络的跨区域和跨城乡性的加强以及农民工信息意识的增强。服务性政策工具在农民工子女就学方面的效果较为明显,但在住房、医疗卫生等基本领域仍有待改善,社区就业服务也有待向农民工群体开放。基于上述分析和考察,各级政府可以从推进就业管理社会化、改善就业管理与服务中的“委托-代理”关系、增强农民工的组织化以及工会的独立性、扩大就业服务对象和改善就业服务供给机制等途径优化政策工具。同时,政府内部管理与外部政策之间实现匹配也十分重要。更多还原

【Abstract】 Balancing urban and rural employment is facing new challenges and opportunities in the context of changing demography, the cyclical economic movement, and industrial transformation and upgrading. It is not only necessary to carry out the continuous innovation of institution and mechanisms, but also need to choose, combine and optimize the policy instruments. At the established regime, the latter is particularly important.The objective of balancing urban and rural employment is to eliminate the urban and rural labor market segmentation, and finally remove the dual economic structure. In this process, the responsibility of governments is to create an equal labor market for both urban and rural residents, reduce the gap between power of employers and migrant workers, reduce asymmetric information in labor market, and assist vulnerable groups to achieve employment and providing public employment services for people who apply for a job in city. To implement the above policy, the following policy instruments is needed, such as mandatory policy instruments, incentives policy instruments, instructive policy instrument information policy instruments and service instruments.Mandatory policy instruments include access control, deregulation, price control, and labor supervision, as well as labor dispute arbitration, adjudication and punishment. They are based on public power, with a high degree of effectiveness and fairness, but it is apt to cause market distortions. Make a unified plan for rural and urban employment need to set the conditions of an open household registration system by laws and regulations, to replace the urban unemployment rate with social unemployment, as well as to establish a social insurance system that can join and enjoy in different regions and different status, and be financed by governments above the provincial level. The incentive policy instruments mainly include financial subsidies, tax subsidies, loans and bounty. It is used to support and foster migrant worker organizations, purchase employment management and services and incent entrepreneurial activities. It is frequently used in labor force training area. In this process, the choice of service provider, the way to provide subsidy, and the quality supervision is all essential. The instructive policy instrument mainly includes fallowings: employment and wages instruct, labor price and salary guidance, collective wage negotiation coordination and the labor dispute mediation. Promulgating reference information, fostering migrant worker organizations, as well as coordinating the negotiations between employers and employees for wage and welfare are central to the instructive policy instrument. The information policy instruments include building information networks, information supply and policy advice, and so on. They are mainly used for job search, wage and benefit negotiation, as well as the protection of migrant workers and so on. The effect of the information instruments is directly related to the completeness of the information network and information accessibility, as well as the timeliness and reliability of the information.Service policy instruments include service supplied by governments, public enterprises, service contracts, and communities. They are mainly applied to job searching and providing employment and social security services, training services, as well as migrant worker’s housing and living condition improvement. Service policy instrument requires closing to the need of its clients and providing service with efficiency, so the choice of supply methods and the reformation of the financial system are very important.The existent laws and regulations have provided a basis for the implementation of a mandatory policy instrument. However, the wage of migrant workers, working hour constrain, the signing up of employment contract, as well as social insurance etc. have not been well implemented because of the conflict between economic development and social development as well as the lack of monitor forces in governments. The implement of incentive policy instruments used in the training of labor force has had a positive effect, but the quality of the training is still to be enhanced. The subsidies provided by governments that to promote the disadvantaged groups in labor market is still not accessible for migrant workers. Since the government capacity on production of guiding information is not strong, the system of collective wage negotiations have not yet promoted, the organizing level of migrant workers as well as the independence of trade unions is not high enough. Therefore the effectiveness of incentive policy instruments is still poor. The enhancement of information policy instrument depends on the building of cross-regional information network and the strengthening of information awareness among inter-urban and rural migrant workers. The effect of service policy instruments is more significant in education of migrant workers’ children. But there is still much space for improvement of housing, medical care and other basic areas of hygiene.Based on the analysis above, suggestions on optimizing the policy instrument in balancing the urban-rural employment are as follows : pushing the socialization of employment, promoting and improving the "principal - agent" relationship in employment management and service, enhancing the organization of migrant workers and the independence of trade unions, expanding the coverage of employment service, as well as improving the supply mechanisms of employment services. At the same time, internal management and external policies is also important to achieve the matching between them.更多还原