我国人口流动及公共服务提供机制研究

发布时间：2018-05-11 02:15

本文选题：人口流动 + 公共服务　；参考：《财政部财政科学研究所》2014年博士论文

【摘要】：改革开放以来,我国人口流动呈现出错综复杂的局面。社会主义市场经济制度的逐步建立和完善,劳动力成为重要的生产要素,经济因素逐步成为人口流动的主要驱动因素。除了受经济因素驱动的人口流动外,由于大型水电工程、高速公路等基础设施建设引致的非自愿人口流动规模庞大,由于局部地区生态环境恶化导致的生态人口流动压力也以日剧增。本文从厘清流动人口的概念开始,回顾了人口流动理论的发展脉络,回答了我国流动人口的规律、机制,并对人口流动的过程进行了分析。在此基础上按驱动流动人口的因素把流动人口分为市场驱动的流动人口,工程非自愿人口流动及生态人口流动。并研究了人口流动对区域经济的影响。最后分别正对市场驱动的人口流动和非自愿人口流动提出了相应的公共服务供给对策。人口流动的根源是什么?驱使人口流动的动力是什么?人口流动并不是完全无序,也不是单纯由环境或者政策的压力所驱使,而是遵循一定的经济规律。人口流入地的拉力和人口流出地的推力共同作用决定了人口流动,这就是著名的“推拉理论”。“推拉理论”从“推”和“拉”两种角度对人口流动这一社会现象进行了揭示。人口流动对整个社会经济会产生一系列的宏观经济效应,比如：经济增长效应、通货膨胀效应、收入效应与替代效应、人口压力效应等。改革开放以来,市场经济逐步取代了原来的计划经济,市场成为资源配置的基本手段,劳动力商品化成了可能,这为劳动力这一要素追逐与资本、技术和市场的最佳配置,寻求劳动报酬最大化奠定了基础。市场经济建立于完善、社会管理制度的变革、传统农业社会向工业经济的转变以及民营经济的崛起成为我国市场驱动人口的流动大的宏观背景。同历史上我国人口流动情况相比,现阶段我国人口迁移进程发生了显著地变化。主要体现在：农村非户籍迁移人口成为主流,农村人口为了追逐经济利益跨区域就业规模日益庞大；人口迁移的城乡模式发生了变化,在人口从农村向城镇迁移的大趋势下,部分农民工回流、回乡创业的趋势也比较明显；人口流动的区域模式也在逐步变化,珠三角对流动人口的吸纳能力逐步让位于长三角,以此同时随着西部大开发战略、中部崛起战略等区域发展战略的实施,东、西部人口流出的强度也在逐渐减弱。由于我国工程非自愿人口流动理论研究的滞后及我国土地制度的不完善,我国工程非自愿人口流动贫困性风险比较突出。工程人口流动主要导致物质损失的风险、就业方式转变的风险、失去享有公共资源的风险三类风险。同时由于我国人口流动补偿制度的不完善,进一步加剧了我国工程人口流动的贫困风险,成为工程人口流动二次人口流动或者返乡的一个重要因素。我国现有的工程人口流动的补偿制度主要由法律、法规和地方性规章组成。系统性和权威性不强,碎片化严重,在执行过程中“弹性”较大。主要体现在征地补偿标准制定不合理,标准低,并且弹性大,在实际操作过程中政府的自由裁量权大；我国土地产权制定的约束,在我国土地属于国家和集体所有,农民只有使用权而没有所有权,这在人口流动补偿的实践过程中,对如何保护人口流动的土地权益设置了障碍；人口流动安置方式固化,没有充分考虑到我国正处于快速市场化及快速城镇化这一国情,过分注重以土安置模式,从而造成人口流动发展空间受限,造成二次人口流动；忽视人口流动社会资本的损失,在人口流动补偿过程中,没有考虑对人口流动的社会资本的补偿。随着经济社会的发展,我国生态人口流动的规模和压力也日益增大。在实现经济、社会、生态和谐发展的同时,如何引导和保护好生态人口流动成为当今社会的热点问题。不同于工程非自愿人口流动,生态人口流动的补偿主体不明确、受益对象也比较模糊,这导致我国生态人口流动补偿制度缺陷不少。主要体现在生态人口流动补偿原则不明确、补偿标准低、补偿期限短、补偿程序不规范以及生态人口流动缺少行政救济途径等。为了完善我国流动人口公共政策,引导和促进人口有序合理流动,需要我们以提供动态的公共服务、实现流动人口流动公共服务均等化,切实解决人口流动所带来的负面影响,提高劳动力资源同其他生产要素的有效组合,促进区域经济协调发展。具体而言有以下几条政策；(1)优化基本公共服务,通过明确各级政府职责,优化公共财政政策,解决流动人口贫困等因人口流动产生的负面影响(2)优化财政支出结构,加大支出力度,加强监督监管进一步完善流动人口社会保障制度,建立城乡基本统一的社会保障网络。(3)针对非自愿人口流动所带来的公共福利损失及人口流动聚居地公共服务缺失等问题,要进一步明确在非自愿人口流动过程中中央政府和地方各级政府的事权划分,明确权责。在明确政府提供公共服务的主导地位的前提下,进一步加强和培育非政府组织的力量,完善市场提供公共服务的机制。通过法治化的政府行为、层级化的功能供给、契约化的合作机制、一体化的服务体系建设,来缓解当前我国费自愿人口流动公共服务供给过程中的公共产品供给能力不足、公共服务质量不高、公共资源配置不均等现实问题。推动经济、社会和谐健康发展。
[Abstract]:Since the reform and opening up, the population flow in China has become a complex situation. The gradual establishment and improvement of the socialist market economy system, the labor force become an important factor of production, and the economic factors have gradually become the main driving factor of the population flow. Besides the population flow driven by the economic factors, the large hydropower project, high speed public There is a large scale of involuntary population flow caused by the construction of infrastructure and other infrastructures. Because of the deterioration of ecological environment in local areas, the pressure of ecological population flow is also increasing. This article reviews the development of the population flow theory from the definition of the floating population, and answers the law, mechanism and the population flow of the floating population in China. The dynamic process is analyzed. On this basis, the floating population is divided into a market driven floating population, an involuntary population flow and an ecological population flow according to the factors driving the floating population, and the impact of the population flow on the regional economy is studied. Finally, the market driven population flow and the involuntary population flow are put forward respectively. Corresponding countermeasures for the supply of public services.
What is the root of the flow of population? What is the driving force for the movement of the population? Population flow is not completely disordered, nor is it driven solely by the pressure of the environment or policy, but a certain economic law. The force of the population inflow and the thrust of the outflow of population determines the flow of population, which is known as "the famous" Push pull theory. "Push and pull theory" reveals the social phenomenon of population flow from two angles of "push" and "pull". Population flow will produce a series of macroeconomic effects on the whole social economy, such as economic growth effect, inflation effect, income effect and substitution effect, population pressure effect and so on.
Since the reform and opening up, the market economy has gradually replaced the original planned economy, the market has become the basic means of resource allocation, and the labor commodity has become possible. This has laid a foundation for the pursuit and capital of the labor force, the best allocation of technology and the market and the maximization of labor remuneration. The market economy is established and the social management system is established. The change of the degree, the transformation of the traditional agricultural society to the industrial economy and the rise of the private economy have become the macro background of the flow of the market driven population in our country. Compared with the situation of the population flow in our country, the process of population migration has changed significantly at the present stage. The main body is that the non domicile population in rural areas has become the mainstream, The rural population in order to pursue economic interests cross regional employment scale is increasingly large; the urban and rural mode of population migration has changed. In the trend of population migration from rural to cities and towns, some migrant workers return, the trend of returning home to start a business is more obvious; the regional model of population flow is also changing gradually, the Pearl River Delta is to the floating population. At the same time, with the implementation of regional development strategy, such as the strategy of the western development and the strategy of the rise of the central region, the intensity of the outflow of population in the East and the west is gradually weakening.
Due to the lag of the research on the involuntary population flow theory in China and the imperfect land system in China, the risk of the impoverished mobility of the involuntary population flow in China is more prominent. The engineering population flow mainly leads to the risk of material loss, the risk of the transformation of the employment mode, and the loss of the risk of the three types of risks that enjoy the public resources. The imperfect system of population flow compensation has further aggravated the poverty risk of the flow of Engineering population in China, and became an important factor in the two times of population flow or return to the country. The existing compensation system for the flow of Engineering population is mainly composed of laws, regulations and local regulations. The system and authority are not strong and broken. In the execution process, it is serious that "elasticity" is larger in the process of execution. It is mainly reflected in the unreasonable establishment of land requisition compensation standard, low standard and great flexibility. In the process of actual operation, the government's discretion is large; the restriction on the formulation of land property right in our country belongs to the state and the collective in our country, and the peasants have only the right to use but have no ownership, During the practice of population flow compensation, the land rights and interests of how to protect the flow of population have been set up, and the way of population migration and resettlement is not fully taken into account that China is in the situation of rapid marketization and rapid urbanization, and over paying attention to the settlement pattern of soil, resulting in the limited space of population flow development, resulting in two times. Population mobility, ignoring the loss of social capital in population movement, did not consider the compensation for social capital in the process of compensation for population movements.
With the development of economy and society, the scale and pressure of ecological population flow in China are increasing. At the same time to realize the harmonious development of economy, society and ecology, how to guide and protect the ecological population flow has become a hot issue in today's society. Different from the involuntary population flow in the project, the compensation subject of the ecological population flow is not clear, and the benefit is not clear. The object is also vague, which leads to a lot of defects in the compensation system of the ecological population flow in China. It is mainly reflected in the unclear principle of the compensation for the ecological population flow, the low compensation standard, the short period of compensation, the non standard compensation procedure and the lack of administrative remedy for the ecological population flow.
In order to improve the public policy of the floating population in our country and to guide and promote the orderly and rational flow of the population, we need to provide dynamic public service, realize the equalization of public service for floating population, solve the negative effects of the population flow, improve the effective combination of labor resources and other factors of production, and promote the regional economy. Coordinated development. In particular, there are several policies. (1) optimizing basic public services, optimizing public financial policies at all levels, optimizing public financial policies, solving the negative effects of floating population poverty and so on (2) optimizing the structure of financial expenditure, increasing the degree of expenditure, strengthening supervision and supervision to further improve the social security of floating population. A social security network of basic unity between urban and rural areas is established. (3) in view of the loss of public welfare and the lack of public service in the populated area of population flow, the rights and responsibilities of the central government and local governments at the involuntary population flow should be further clarified, and the power and responsibility should be clearly defined. On the premise of the leading position of public service, we should further strengthen and cultivate the power of non-governmental organizations and improve the mechanism of public service in the market. Through the rule of law government behavior, the hierarchical function supply, the contractual cooperation mechanism and the integrated service system construction, to alleviate the current public service of the voluntary population flow in our country. The supply capacity of public products in the supply process is insufficient, the quality of public services is not high, and the allocation of public resources is not equal, and the economic and social harmonious and healthy development will be promoted.

【学位授予单位】：财政部财政科学研究所
【学位级别】：博士
【学位授予年份】：2014
【分类号】：D631.42

【参考文献】