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

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

　　　　　　　　　　　　　　　　　摘　　要

　　城市化是我國(guó)經(jīng)濟(jì)社會(huì)新一輪發(fā)展的突破口，是我國(guó)承接信息化、提升工業(yè)化、提前基本實(shí)現(xiàn)現(xiàn)代化的必然要求。而城市化的推進(jìn)必然要占用大量耕地，必然會(huì)產(chǎn)生失地農(nóng)民。在全面正式的農(nóng)村社會(huì)保障體系尚難以建立的情況下，土地實(shí)際擔(dān)負(fù)著農(nóng)民基本的生活保障功能，具有無(wú)可替代的地位。因此，加快建立失地農(nóng)民的社會(huì)保障體系意義重大，有利于維護(hù)社會(huì)穩(wěn)定、完善社會(huì)保障制度、健全社會(huì)保障體系、擴(kuò)大社會(huì)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(jì)社會(huì)發(fā)展，加快推進(jìn)城鄉(xiāng)一體化進(jìn)程。文章主要通過(guò)對(duì)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(huì)保障體系做一些有益的探索。

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

　　第一部分主要對(duì)農(nóng)民失地問(wèn)題進(jìn)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(guò)渡性及“三無(wú)”的特點(diǎn)，指出失地農(nóng)民是新的弱勢(shì)群體，解決失地農(nóng)民問(wèn)題應(yīng)該成為解決“三農(nóng)”問(wèn)題的重中之重。最后，辯證地對(duì)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(wèn)題產(chǎn)生的種種原因，并指出由于中國(guó)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(wèn)題并非農(nóng)民失地的必然結(jié)果的觀點(diǎn)。

　　第二部分在回顧我國(guó)農(nóng)地保障的歷史以及比較現(xiàn)階段各地對(duì)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(huì)保障體系的必要性：即建立失地農(nóng)民社會(huì)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(jìn)城市化進(jìn)程；有利于擴(kuò)大社會(huì)保障網(wǎng)，增強(qiáng)社會(huì)保障的調(diào)節(jié)功能，為最終實(shí)現(xiàn)城鄉(xiāng)社會(huì)保障一體化奠定基礎(chǔ)�？偟膩�(lái)說(shuō)，建立健全失地農(nóng)民社會(huì)保障問(wèn)題是解決失地農(nóng)民問(wèn)題的基礎(chǔ)性工程。然后，分析我國(guó)失地農(nóng)民的社會(huì)保障及就業(yè)現(xiàn)狀，指出失地農(nóng)民社會(huì)保障體系需要社會(huì)保障與就業(yè)統(tǒng)籌考慮，這是實(shí)現(xiàn)失地農(nóng)民可持續(xù)發(fā)展，順利實(shí)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(shí)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(duì)四川、重慶兩地針對(duì)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(guò)比較，認(rèn)為政府的重視和支持是建立失地農(nóng)民社會(huì)保障體系的重要保證。另外，建立失地農(nóng)民社會(huì)保障體系需要因地制宜逐步推進(jìn)，其“有利于探索和積累經(jīng)驗(yàn)，也有利于減緩政府一次性投入過(guò)多資金所產(chǎn)生的財(cái)政壓力”。

　　第四部分為全文的重點(diǎn)，，對(duì)如何建立失地農(nóng)民社會(huì)保障體系進(jìn)行系統(tǒng)闡述。

　　首先準(zhǔn)確把握建立失地農(nóng)民社會(huì)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(jī)兼容，把建立失地農(nóng)民社會(huì)保障制度作為社會(huì)保障城鄉(xiāng)一體化的突破口；完善制度、嚴(yán)格執(zhí)法、因地制宜、逐步推進(jìn)。

　　其次，在上述原則的指導(dǎo)下選擇失地農(nóng)民社會(huì)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(huì)保障體系，這既是社會(huì)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(shí)的雙重意義。由于我國(guó)失地農(nóng)民社會(huì)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(xiǎn)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(dòng)行為，屬于社會(huì)風(fēng)險(xiǎn)，直接將失地農(nóng)民納入城鎮(zhèn)社會(huì)保障體系并不能夠很好的解決問(wèn)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(wú)法有效地維護(hù)其合法權(quán)益。在制度設(shè)計(jì)中，對(duì)失地農(nóng)民社會(huì)保障體系的主體、社會(huì)保障基金及社會(huì)保障類型提出了自己的見解，認(rèn)為被保障對(duì)象包括保養(yǎng)人員、剩余勞動(dòng)力及被撫養(yǎng)人三類；在社�；饋�(lái)源上，必須進(jìn)一步完善資金的籌措機(jī)制，堅(jiān)持社會(huì)統(tǒng)籌與個(gè)人賬戶相結(jié)合的原則，采取政府、集體和個(gè)人三方負(fù)擔(dān)的方式建立失地農(nóng)民社會(huì)保障基金；而失地農(nóng)民社會(huì)保障基金管理機(jī)構(gòu)應(yīng)當(dāng)與經(jīng)營(yíng)機(jī)構(gòu)分開設(shè)置，建立強(qiáng)制性的準(zhǔn)政府性質(zhì)的社會(huì)保障資金管理機(jī)構(gòu)，將資金委托商業(yè)銀行管理，多家競(jìng)爭(zhēng)性的管理公司專門負(fù)責(zé)社會(huì)保障資金的保值增值，并且實(shí)行統(tǒng)籌基金和個(gè)人賬戶相結(jié)合省縣兩級(jí)運(yùn)營(yíng)、分賬管理的分級(jí)運(yùn)營(yíng)機(jī)制，降低成本，增大基金的抗風(fēng)險(xiǎn)能力，以確保基金安全。在保障類型上，應(yīng)當(dāng)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(huì)保障體系；而這四項(xiàng)內(nèi)容應(yīng)當(dāng)是依次進(jìn)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(qiáng)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(huì)保障的關(guān)鍵所在。與失地農(nóng)民失業(yè)保險(xiǎn)制度相對(duì)應(yīng)，失地農(nóng)民的就業(yè)服務(wù)對(duì)象主要是指已滿16周歲以上的尚未喪失勞動(dòng)能力的剩余勞動(dòng)力。其中，在條件允許的情況下還應(yīng)當(dāng)尤其關(guān)注女性的就業(yè)。確定了服務(wù)對(duì)象后，提出三點(diǎn)建議并作簡(jiǎn)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(jì)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(shuō)明，認(rèn)為在關(guān)注失地農(nóng)民社會(huì)保障體系建立健全的同時(shí)，也不能忽視家庭保障的重要作用，從長(zhǎng)遠(yuǎn)的戰(zhàn)略意義上說(shuō)，“重視家庭的價(jià)值，強(qiáng)化家庭的凝聚力，充分發(fā)揮家庭作為社會(huì)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(guó)社會(huì)保障體系永遠(yuǎn)的不能動(dòng)搖的基點(diǎn)”。而必要的法律援助，則是基于現(xiàn)行法律在對(duì)我國(guó)農(nóng)民權(quán)益保障方面的規(guī)定實(shí)際操作相對(duì)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(huì)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(wèn)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(wèn)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(guó)農(nóng)民的界定 4

（二）中國(guó)意義上的失地農(nóng)民 5

三、中國(guó)失地農(nóng)民問(wèn)題 5

（一）農(nóng)民失地到失地農(nóng)民問(wèn)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(wèn)題的制度性原因 8

（二）失地農(nóng)民問(wèn)題對(duì)經(jīng)濟(jì)社會(huì)發(fā)展的影響 10

結(jié)論： 11

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

一、我國(guó)失地農(nóng)民社會(huì)保障概述 12

（一）我國(guó)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(huì)保障體系是解決失地農(nóng)民問(wèn)題的現(xiàn)實(shí)選擇 14

（一）建立失地農(nóng)民社會(huì)保障體系的理論基礎(chǔ) 14

1、社會(huì)保障及社會(huì)保障法的基本含義 14

2、社會(huì)保障的功能 15

（二）建立失地農(nóng)民社會(huì)保障體系的必要性 15

三、失地農(nóng)民社會(huì)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(shí)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(xiǎn)制度 19

（三）“失地農(nóng)民進(jìn)社�！� 20

二、重慶模式 23

（一）基本情況 23

（二）“政府+保險(xiǎn)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(huì)保障體系之構(gòu)建 28

一、失地農(nóng)民社會(huì)保障體系建立的指導(dǎo)思想 28

（一）我國(guó)社會(huì)保障立法的價(jià)值取向——公平優(yōu)先，兼顧效率 28

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

（三）完善制度、嚴(yán)格執(zhí)法、因地制宜、逐步推進(jìn) 29

二、失地農(nóng)民社會(huì)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(huì)保障體系 30

（二）失地農(nóng)民社會(huì)保障的制度安排 31

1、失地農(nóng)民社會(huì)保障主體 31

2、失地農(nóng)民社會(huì)保障基金 32

3、失地農(nóng)民社會(huì)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(qiáng)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(huì)保障的關(guān)鍵所在 35

（二）就業(yè)服務(wù)對(duì)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(jì)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(shuō)明的問(wèn)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(yǔ) 40

參考文獻(xiàn) 41

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