本文關(guān)鍵詞：我國失地農(nóng)民社會保障體系研究——以川渝兩地失地農(nóng)民為研究對象，由筆耕文化傳播整理發(fā)布。

刁一玲：我國失地農(nóng)民社會保障體系研究——以川渝兩地失地農(nóng)民為研究對象（2007屆） 新聞中心 (閱讀:3450次)

　　　　　　　　　　　　　　　　　摘　　要

　　城市化是我國經(jīng)濟社會新一輪發(fā)展的突破口，是我國承接信息化、提升工業(yè)化、提前基本實現(xiàn)現(xiàn)代化的必然要求。而城市化的推進必然要占用大量耕地，必然會產(chǎn)生失地農(nóng)民。在全面正式的農(nóng)村社會保障體系尚難以建立的情況下，土地實際擔負著農(nóng)民基本的生活保障功能，具有無可替代的地位。因此，加快建立失地農(nóng)民的社會保障體系意義重大，有利于維護社會穩(wěn)定、完善社會保障制度、健全社會保障體系、擴大社會保障覆蓋面，有利于消除城鄉(xiāng)二元結(jié)構(gòu)，統(tǒng)籌城鄉(xiāng)經(jīng)濟社會發(fā)展，加快推進城鄉(xiāng)一體化進程。文章主要通過對川渝兩地失地農(nóng)民情況的調(diào)查分析和研究，為建立失地農(nóng)民社會保障體系做一些有益的探索。

　　主體部分遵循“提出問題-分析問題-解決問題”的基本思路，分為四大部分展開論述：

　　第一部分主要對農(nóng)民失地問題進行厘清，指出農(nóng)民失地與工業(yè)化、現(xiàn)代化的必然聯(lián)系，并在此基礎(chǔ)上分析失地農(nóng)民產(chǎn)生的原因。首先指出失地農(nóng)民的生存現(xiàn)狀，其次在區(qū)分農(nóng)民、失地農(nóng)民的基礎(chǔ)上，分析失地農(nóng)民的特征，即身份的過渡性及“三無”的特點，指出失地農(nóng)民是新的弱勢群體，解決失地農(nóng)民問題應(yīng)該成為解決“三農(nóng)”問題的重中之重。最后，辯證地對待農(nóng)民失地現(xiàn)象，引用大量數(shù)據(jù)分析失地農(nóng)民問題產(chǎn)生的種種原因，并指出由于中國尖銳的人地矛盾以及工業(yè)化、城市化的要求而導(dǎo)致農(nóng)民失地的必然性，以及產(chǎn)生失地農(nóng)民問題并非農(nóng)民失地的必然結(jié)果的觀點。

　　第二部分在回顧我國農(nóng)地保障的歷史以及比較現(xiàn)階段各地對失地農(nóng)民所采取的各種安置方式的前提下，闡述建立失地農(nóng)民社會保障體系的必要性：即建立失地農(nóng)民社會保障體系是替代土地保障功能的合理選擇；有利于加快農(nóng)民向城鎮(zhèn)居民的轉(zhuǎn)變，推進城市化進程；有利于擴大社會保障網(wǎng)，增強社會保障的調(diào)節(jié)功能，為最終實現(xiàn)城鄉(xiāng)社會保障一體化奠定基礎(chǔ)�？偟膩碚f，建立健全失地農(nóng)民社會保障問題是解決失地農(nóng)民問題的基礎(chǔ)性工程。然后，分析我國失地農(nóng)民的社會保障及就業(yè)現(xiàn)狀，指出失地農(nóng)民社會保障體系需要社會保障與就業(yè)統(tǒng)籌考慮，這是實現(xiàn)失地農(nóng)民可持續(xù)發(fā)展，順利實現(xiàn)農(nóng)村城市化、農(nóng)民市民化的重要保證。

　　在歷史、現(xiàn)實與理論的分析之后，第三部分直接引用大量數(shù)據(jù)資料，對四川、重慶兩地針對失地農(nóng)民而采取的安置模式和一些政策措施作基本介紹和成效分析。通過比較，認為政府的重視和支持是建立失地農(nóng)民社會保障體系的重要保證。另外，建立失地農(nóng)民社會保障體系需要因地制宜逐步推進，其“有利于探索和積累經(jīng)驗，也有利于減緩政府一次性投入過多資金所產(chǎn)生的財政壓力”。

　　第四部分為全文的重點，，對如何建立失地農(nóng)民社會保障體系進行系統(tǒng)闡述。

　　首先準確把握建立失地農(nóng)民社會保障體系的指導(dǎo)思想：公平優(yōu)先，兼顧效率；城鄉(xiāng)一體、有機兼容，把建立失地農(nóng)民社會保障制度作為社會保障城鄉(xiāng)一體化的突破口；完善制度、嚴格執(zhí)法、因地制宜、逐步推進。

　　其次，在上述原則的指導(dǎo)下選擇失地農(nóng)民社會保障體系的模式：即保障水平介于城鄉(xiāng)現(xiàn)有制度之間、政府主導(dǎo)型的社會保障體系，這既是社會保障的內(nèi)在要求，也是城市化發(fā)展的根本體現(xiàn)，它具有理論與現(xiàn)實的雙重意義。由于我國失地農(nóng)民社會保障體系的構(gòu)建滯后于就業(yè)制度的變革，失地農(nóng)民常以自我保障為主，保險觀念普遍淡薄，保障效果不理想。在現(xiàn)行戶籍制度和征地制度下，農(nóng)民的失地完全是被動行為，屬于社會風(fēng)險，直接將失地農(nóng)民納入城鎮(zhèn)社會保障體系并不能夠很好的解決問題，而不考慮失地農(nóng)民的特殊性繼續(xù)將其留在農(nóng)村制度體系內(nèi)，也無法有效地維護其合法權(quán)益。在制度設(shè)計中，對失地農(nóng)民社會保障體系的主體、社會保障基金及社會保障類型提出了自己的見解，認為被保障對象包括保養(yǎng)人員、剩余勞動力及被撫養(yǎng)人三類；在社�；饋碓瓷�，必須進一步完善資金的籌措機制，堅持社會統(tǒng)籌與個人賬戶相結(jié)合的原則，采取政府、集體和個人三方負擔的方式建立失地農(nóng)民社會保障基金；而失地農(nóng)民社會保障基金管理機構(gòu)應(yīng)當與經(jīng)營機構(gòu)分開設(shè)置，建立強制性的準政府性質(zhì)的社會保障資金管理機構(gòu)，將資金委托商業(yè)銀行管理，多家競爭性的管理公司專門負責社會保障資金的保值增值，并且實行統(tǒng)籌基金和個人賬戶相結(jié)合省縣兩級運營、分賬管理的分級運營機制，降低成本，增大基金的抗風(fēng)險能力，以確�；鸢踩�。在保障類型上，應(yīng)當建立全方位的包括養(yǎng)老保障、最低生活保障、醫(yī)療保障和失業(yè)保障在內(nèi)的失地農(nóng)民社會保障體系；而這四項內(nèi)容應(yīng)當是依次進行，逐步建立。

　　再次，作為統(tǒng)籌考慮的就業(yè)服務(wù)制度建設(shè)，強化地方政府的就業(yè)引導(dǎo)功能是建立失地農(nóng)民政府主導(dǎo)型社會保障的關(guān)鍵所在。與失地農(nóng)民失業(yè)保險制度相對應(yīng)，失地農(nóng)民的就業(yè)服務(wù)對象主要是指已滿16周歲以上的尚未喪失勞動能力的剩余勞動力。其中，在條件允許的情況下還應(yīng)當尤其關(guān)注女性的就業(yè)。確定了服務(wù)對象后，提出三點建議并作簡要闡述：為失地農(nóng)民的非正規(guī)就業(yè)提供必要的法規(guī)政策保障；將失地農(nóng)民就業(yè)納入政府就業(yè)計劃；探索建立失地農(nóng)民創(chuàng)業(yè)支持體系。

　　最后，就失地農(nóng)民的家庭保障和必要的法律援助作特別說明，認為在關(guān)注失地農(nóng)民社會保障體系建立健全的同時，也不能忽視家庭保障的重要作用，從長遠的戰(zhàn)略意義上說，“重視家庭的價值，強化家庭的凝聚力，充分發(fā)揮家庭作為社會資源再分配的基本單元的功能，應(yīng)該是發(fā)展和健全我國社會保障體系永遠的不能動搖的基點”。而必要的法律援助，則是基于現(xiàn)行法律在對我國農(nóng)民權(quán)益保障方面的規(guī)定實際操作相對較差的情況所作的考慮。

　　關(guān)鍵詞：城市化；失地農(nóng)民；安置；社會保障；就業(yè)

　　　　　　　　　　　　　　　　　Abstract

　　Urbanization is a new round of economic and social development, the inevitable requirement of receiving information, enhancing industrialization and basically realizing modernization ahead. With the quickening urbanization process of our country making rural land acquisition larger and larger in area, the problems about landless peasants become outstanding day by day. Under the situation that a formal system of rural social security is still difficult to build, the land does have the most essential function in fact for ensuring the life of a peasant, and so to have its non-fungible status. It is very important to speed up the rural social security system for the peasants who lost land in the land requisition, and it is also in favor of eliminating the urban-rural dualistic structure, making a whole plan for the development of urban-rural social economy, and quickening the urban-rural integration. Through the investigation of landless peasants in Sichuan and Chongqing, we try to do some helpful exploration for establishing a social security system of landless peasants.

　　The main part of article describes the establishment of the social security system for landless peasants, followed the basic ideas of "question-analytical problem-solving".

　　On the first part, we point out the survival status of landless peasants at first. Second, on the basis of the distinction between farmers and landless peasants, we analyze the characteristics of landless peasants to point out that this is a new vulnerable group, solving the problem of landless peasants should be the highest priority in "three rural" issue. Finally, treat landless peasants dialectically. Under a lot of data analysis for various reasons, we conclude the view that because of the sharp contradictions between human and land, and with the request of China's industrialization and urbanization, farmers lose their land inevitably, and also we know that the problem of landless peasants is not the inevitable outcome of the farmers losing their land.

　　On the second part, in reviewing of the history of protect agricultural land in our country, and around a comparison of the various resettlement of landless farmers, we explained the necessity of establishing a social security system for landless peasants: it is a reasonable choice for alternative land security function; It would also help accelerate the transformation from peasants to urban residents and promote the process of urbanization; it could be conducive to expanding the social safety net, strengthen the regulatory functions of social security, to lay the foundation for the eventual realization of the integration of urban-rural social security. Overall, establish a sound social security for landless peasants is the basis project to solve the problem. And then under the analysis of the social security and employment situation of landless peasants, we concluded that considering the social security and employment for landless peasants together would be the most important guarantee to bring sustainable development of them and rural urbanization into reality.

　　After the analysis of the history, reality and theory about landless peasants, we quoted a large number of data directly aimed to introduce and analyze the basic situation and the results of resettlement policy about Sichuan and Chongqing models on the third part of the paper. By comparison, we know that the government’s attention and support take a significant part in the establishment of the social security system of landless peasants. In addition, the system needs to establish step-by-step. Its conducive to not only accumulate experience, but also reduce the financial pressure.

　　The full text of part four of the focus on how to establish the social security system of landless peasants systematically explained.

　　First, grasp the guiding ideology on establishing the social security system for landless peasants accurately. Fair priorities, taking into consideration efficiency, integrated urban and rural areas, organic compatibility, as it is a breakthrough of the establishment of the integration of the social security system. And perfect the system, strictly enforcing conditions, developing step-by-step in accordance with the principle of locality difference, combine social pooling and individual accounts.

　　Second, choose the model under the guidance of the principles of the social security system: Because our social security system of landless peasants lagged behind changes in the employment system, they often lack of the concept of insurance under self-protection.

　　Under the existing land requisition system and the household registration system, the landless peasants are completely passive as social risk. Directly put them into urban social security system is not a good solution to the problem. Therefore constructing a government-dominated social security system is an inherent requirement of social security, the fundamental expression of urban development, it has a double meaning in theory and in reality. In my opinion, the support staff was of three including maintenance, surplus labor and dependents. Basic social security items as retirement insurance, basic life insurance, medical insurance and unemployment insurance should be established comprehensively and gradually.

　　Moreover, the key to the government-dominated social security for landless peasants is to strengthen employment guidance functions of the local government. Corresponding to the unemployment insurance system for landless peasants, the main objects are over 16 years of age and older who have not lost the ability to work called surplus labor. Besides, in the situation where conditions permit should pay particular attention to women’s employment. And then, briefly put forward three suggestions and illustrate: provide the necessary security regulations and policies for the informal employment of landless peasants. Put landless peasants into government’s employment arrangements. And explore to establish entrepreneurial support system .

　　At the end of the paper, there was a special assistance for the family support and the necessary legal protection. We must not overlook the family support meanwhile concerned the establishment of a sound social security system for landless peasants. From a long-term strategic sense, "family values and family cohesiveness give full play to the family as the basic unit of social redistribution of resources functions, it would always be the basic point to develop and improve the social security system in China". Another, the necessary legal assistance is considered under the situation of relatively poor operational about the protection of the rights and interests of peasants.

　　Key Words：urbanization; landless peasants; resettlement; social security; employment

　　　　　　　　　　　　　　　　　目　　錄

引　　言 1

一、問題的提出 1

二、確定該論題的原因 1

第一部分　從農(nóng)民失地到失地農(nóng)民問題的產(chǎn)生 3

一、失地農(nóng)民現(xiàn)狀 3

二、農(nóng)民、失地農(nóng)民 4

（一）中國農(nóng)民的界定 4

（二）中國意義上的失地農(nóng)民 5

三、中國失地農(nóng)民問題 5

（一）農(nóng)民失地到失地農(nóng)民問題產(chǎn)生 5

1、農(nóng)民失地的必然性 5

2、產(chǎn)生失地農(nóng)民問題的制度性原因 8

（二）失地農(nóng)民問題對經(jīng)濟社會發(fā)展的影響 10

結(jié)論： 11

第二部分　建立失地農(nóng)民社會保障體系是歷史與現(xiàn)實的必然選擇 12

一、我國失地農(nóng)民社會保障概述 12

（一）我國農(nóng)民土地保障歷史回顧 12

（二）現(xiàn)有失地農(nóng)民安置模式概述 12

二、建立失地農(nóng)民社會保障體系是解決失地農(nóng)民問題的現(xiàn)實選擇 14

（一）建立失地農(nóng)民社會保障體系的理論基礎(chǔ) 14

1、社會保障及社會保障法的基本含義 14

2、社會保障的功能 15

（二）建立失地農(nóng)民社會保障體系的必要性 15

三、失地農(nóng)民社會保障及就業(yè)安置需統(tǒng)籌考慮 16

結(jié)論： 17

第三部分　基于川渝兩地失地農(nóng)民安置模式的實證分析 19

一、四川模式 19

（一）基本情況 19

（二）失地農(nóng)民失業(yè)保險制度 19

（三）“失地農(nóng)民進社�！� 20

二、重慶模式 23

（一）基本情況 23

（二）“政府+保險公司+農(nóng)民”三結(jié)合模式 23

（三）“以農(nóng)就業(yè)”服務(wù) 25

（四）農(nóng)轉(zhuǎn)非就業(yè)培訓(xùn)基金 25

三、基于川渝兩地失地農(nóng)民安置模式的比較分析 26

結(jié)論： 27

第四部分　失地農(nóng)民社會保障體系之構(gòu)建 28

一、失地農(nóng)民社會保障體系建立的指導(dǎo)思想 28

（一）我國社會保障立法的價值取向——公平優(yōu)先，兼顧效率 28

（二）城鄉(xiāng)一體、有機兼容，把建立失地農(nóng)民社會保障制度作為社會保障城鄉(xiāng)一體化的突破口 29

（三）完善制度、嚴格執(zhí)法、因地制宜、逐步推進 29

二、失地農(nóng)民社會保障模式選擇 30

（一）建立保障水平介于城鄉(xiāng)現(xiàn)有制度之間、政府主導(dǎo)的失地農(nóng)民社會保障體系 30

（二）失地農(nóng)民社會保障的制度安排 31

1、失地農(nóng)民社會保障主體 31

2、失地農(nóng)民社會保障基金 32

3、失地農(nóng)民社會保障類型 33

三、失地農(nóng)民就業(yè)服務(wù)制度建設(shè) 35

（一）強化地方政府的就業(yè)引導(dǎo)功能是建立失地農(nóng)民政府主導(dǎo)型社會保障的關(guān)鍵所在 35

（二）就業(yè)服務(wù)對象 35

（三）失地農(nóng)民就業(yè)服務(wù)的制度建議 35

1、為失地農(nóng)民的非正規(guī)就業(yè)提供必要的法規(guī)政策保障 35

2、將失地農(nóng)民就業(yè)納入政府就業(yè)計劃 36

3、探索建立失地農(nóng)民創(chuàng)業(yè)支持體系 37

四、需要特別說明的問題 38

（一）不能忽視的家庭保障 38

（二）必要的法律援助 38

結(jié)　語 40

參考文獻 41

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