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城市化進(jìn)程中失地農(nóng)民的再就業(yè)安置是當(dāng)前面臨的一個(gè)重要問(wèn)題。對(duì)此進(jìn)行理論分析和實(shí)際考察，具有重要的理論價(jià)值和現(xiàn)實(shí)意義。從公平與效率的關(guān)系出發(fā)，客觀分析和闡述了在我國(guó)城市化建設(shè)中，政府與市場(chǎng)在失地農(nóng)民再就業(yè)安置中應(yīng)承擔(dān)的職責(zé)，并通過(guò)考察國(guó)內(nèi)外失地農(nóng)民再就業(yè)安置的經(jīng)驗(yàn)，指出了我國(guó)政府在解決失地農(nóng)民再就業(yè)安置中的責(zé)任，并提出相關(guān)建議與對(duì)策，希望有助于我國(guó)失地農(nóng)民再就業(yè)安置問(wèn)題的解決，有助于社會(huì)主義和諧社會(huì)的建設(shè)。

失地農(nóng)民的出現(xiàn)是社會(huì)發(fā)展注重效率的必然結(jié)果，其再就業(yè)安置則體現(xiàn)了社會(huì)公平的程度。隨著人類(lèi)對(duì)于自然界的認(rèn)識(shí)及改造能力的增強(qiáng)，追求效率的結(jié)果是以群居為特征的城市的出現(xiàn)及社會(huì)城市化進(jìn)程的加快。這是以占有原農(nóng)村土地為代價(jià)的，因此就產(chǎn)生了大量的失地農(nóng)民。所以說(shuō)失地農(nóng)民的出現(xiàn)是社會(huì)追求效率的必然結(jié)果。另一方面農(nóng)民失去了土地，也就失去了原來(lái)賴以生存的手段;而且其整體文化素質(zhì)不高，參政能力有待提高，這就決定了失地農(nóng)民在社會(huì)上處于弱勢(shì)群體的地位。社會(huì)公平就是要解決社會(huì)上弱勢(shì)群體的平等地位。從反方面來(lái)看，如果沒(méi)有很好的解決失地農(nóng)民再就業(yè)安置問(wèn)題，失地農(nóng)民很容易成為社會(huì)發(fā)展的消極因素，進(jìn)而影響社會(huì)效率的提高。

政府作為執(zhí)行公共權(quán)力的主體，在維護(hù)公平方面，起主導(dǎo)作用。其主要通過(guò)建立和實(shí)施相關(guān)制度，用它來(lái)規(guī)范社會(huì)中行為主體人的行為，維護(hù)社會(huì)秩序。

政府在促進(jìn)就業(yè)中應(yīng)承擔(dān)的職責(zé)包括以下幾個(gè)方面:提供就業(yè)政策，建立健全就業(yè)相關(guān)法規(guī)制度;為就業(yè)者提供公平的就業(yè)環(huán)境，完善就業(yè)服務(wù)體系;充分發(fā)揮比較優(yōu)勢(shì)，搞好產(chǎn)業(yè)結(jié)構(gòu)調(diào)整，多渠道、多層次、多形式開(kāi)發(fā)就崗位;為失業(yè)者提供社會(huì)保障，以保證失業(yè)者在就業(yè)前的基本生活。

研究發(fā)達(dá)國(guó)家在城市化進(jìn)程中對(duì)失業(yè)農(nóng)民的安置過(guò)程，我們發(fā)現(xiàn)，各國(guó)政府都積極的發(fā)揮作用:通過(guò)立法制定嚴(yán)格的法律、法規(guī)及相應(yīng)政策，盡量保護(hù)農(nóng)民利益;用工廠和農(nóng)場(chǎng)來(lái)吸收剩余勞動(dòng)力，加強(qiáng)就業(yè)培訓(xùn)、利用多種途徑促使剩余勞動(dòng)力的就業(yè);設(shè)立失地農(nóng)民社會(huì)保障，降低他們的風(fēng)險(xiǎn)。

通過(guò)對(duì)長(zhǎng)春市凈月潭旅游經(jīng)濟(jì)開(kāi)發(fā)區(qū)的失地農(nóng)民再就業(yè)安置問(wèn)題的實(shí)地研究，比較我國(guó)其它地區(qū)失地農(nóng)民再就業(yè)安置情況，目前在無(wú)統(tǒng)一的政策規(guī)定的情況下，各級(jí)地方政府采取的就業(yè)安置模式主要有:浙江模式，以土地?fù)Q保障為中心的以商業(yè)化運(yùn)作為特點(diǎn)的多渠道多形式的就業(yè)安置模式;咸嘉的“留地集中安置，綜合開(kāi)發(fā)建設(shè)”模式;南海的集體土地股份制模式;以杭州和山東為代表的開(kāi)發(fā)性安置模式。綜合來(lái)看，各種安置模式都存在一些共性的問(wèn)題:如目前各地幾乎還沒(méi)有真正建立失地農(nóng)民的社會(huì)保障制度，保障方式單一，水平過(guò)低;政府沒(méi)有履行其應(yīng)盡的職責(zé);制度方面不能有效的保證失地農(nóng)民的權(quán)益;以土地?fù)Q社保的模式強(qiáng)調(diào)、突出了保障，但對(duì)就業(yè)能力的提高，再就業(yè)的安置關(guān)注不夠等等。

在失地農(nóng)民再就業(yè)安置過(guò)程中農(nóng)民自身存在的問(wèn)題主要包括:文化素質(zhì)和勞動(dòng)技能偏低;自身的適應(yīng)性較差，在思想、觀念上沒(méi)有做好充分的準(zhǔn)備去適應(yīng)這種非農(nóng)轉(zhuǎn)變;農(nóng)民缺乏捍衛(wèi)自身權(quán)益的思想意識(shí)，不知道如何利用法律武器保護(hù)自己;農(nóng)民組織化程度空前弱化，農(nóng)民基本上喪失自我保護(hù)能力;失地農(nóng)民中的“弱勢(shì)群體”的生活難問(wèn)題尤為突出。

在失地農(nóng)民再就業(yè)安置過(guò)程中政府存在的問(wèn)題包括:1、政府責(zé)任錯(cuò)位:政府沒(méi)有更好的為被征地者提供生活基礎(chǔ)—補(bǔ)償安置款;政府對(duì)提高失地農(nóng)就業(yè)能力和再就業(yè)的安置關(guān)注不夠;個(gè)別政府和商家勾結(jié)，犧牲農(nóng)民利益以謀取私利。2、由政府失職導(dǎo)致的制度缺失表現(xiàn)在:制度有效供給不足一一失地農(nóng)民再就業(yè)安置法律法規(guī)不完善，相關(guān)政策落實(shí)不到位;土地征用補(bǔ)償制度不合理，監(jiān)督機(jī)制不健全，補(bǔ)償費(fèi)用被基層政權(quán)截留;社會(huì)保障制度缺失。

為解決上述問(wèn)題，政府在對(duì)失地農(nóng)民再就業(yè)安置的過(guò)程中要做到:1,政府要保證有效制度供給:首先要制定符合失地農(nóng)民特點(diǎn)的社會(huì)保障制度;其次要完善征地制度及相關(guān)法律法規(guī)，保護(hù)被征地農(nóng)民利益;再次，政府要提高自身執(zhí)法水平保證各項(xiàng)制度法規(guī)的有效落實(shí)。2、政府有責(zé)任指導(dǎo)失地農(nóng)民的再就業(yè)。3、政府要從多方面幫助失地農(nóng)民實(shí)現(xiàn)再就業(yè):首先要完善失地農(nóng)民就業(yè)培訓(xùn)機(jī)制和體系，幫助失地農(nóng)民提高勞動(dòng)技能;其次制定適合失地農(nóng)民特點(diǎn)的就業(yè)促進(jìn)政策，多創(chuàng)造崗位，扶持失地農(nóng)民逐步致富;再次建立完善的勞動(dòng)力市場(chǎng)體系，營(yíng)造健康的就業(yè)環(huán)境。另外，為更好地解決失地農(nóng)民再就業(yè)安置問(wèn)題，還應(yīng)充分發(fā)揮市場(chǎng)機(jī)制優(yōu)勢(shì)，并提高農(nóng)民自我維權(quán)水平。

英文：

Atpresent,wehavetofacetheseriousproblemhowtofindjobsforthepeasantswholosttheirlandintheprocessofurbanizationinchina.Therefore,itisoftheoreticalvalueandrealisticmeaningcarryingonthetheoreticalanalysisandpracticalinvestigationtotheproblem.Thepaperanalysesobjectivelyandexpoundthedutyofthegovernmentandthemarketintheprocessofthereemploymentandsettlementaboutthepeasantswholosttheirland,andpointsoutreemploymentandsettlementofpeasantswhothegovernment''''sdutyduringlosttheirterritories,andbringsrelevantsuggestionswhich,Ihope,maybefavorabletoresolvetheproblemandconstructionofsocialistharmonioussocietyinChinathroughtheexperiencesbothathomeandabroadaboutthereemploymentandsettlementaboutthepeasantswholosttheirterritories.

Itisaninevitableoutcomeforustopayattentiontoefficiencyinsocialdevelopmentthatthepeasantslosttheirterritorytakesplace.Itreflectsthedegreeoffairnessinoursocietythattheyhasbeenreemployedandsettleddown.Withmankind''''sdevelopmentoftheabilitytounderstandandtransformnature,theresultofpursuingefficiencybringsaboutappearanceofthecitywiththecharacteristicoflivingingroupsandquickeningtheprocessofthesocialurbanization.Thisisatthecostofoccupyingtheoriginalruralland,whichmakesalargenumberofpeasantslosttheirterritories.

Therefore,itisaforegoneconclusionforthesocietytopursueefficiencythatthepeasantslosttheirland.Itsuggeststhatthepeasantslosttheirterritoriesmeanthattheylosttheoriginalwaytheydependonforexistence.Th

epooreducationofthewholepeasantsgetandtheabilitytoparticipateingovernmentandpoliticalaffairsneedsdeveloping,allofwhichdeterminethepositionofdisadvantagedgroupsinthesocietythatthepeasantslostterritorieshavetobe.Afairsocietyshouldjustsolvetheproblemoftheequalfooting,whichthedisadvantagedgroupsinthesocietyshouldget.

Otherwise,thepeasantsoflostterritoryareveryapttobecomethenegativefactorofsocialdevelopment,whichwillbeabadinfluenceontheimprovementofsocialefficiency,iftheproblemofreemployingandsettlingdownthepeasantsoflostterritoryissolvednotverywell.

Asthesubjectofcarryingoutpubicpower,thegovernmentplaysaleadingroleinkeepingfairness.Itstandardizesthebehavioralagents''''behaviorinsocietybythewaytosetupandadministerrelevantsystems,andkeepsthecivilorder.

dutythatthegovernmentshouldtakeinpromotingemploymentincludestherespectsasfollows:Firstly,offertheemploymentpolicies,setupandperfecttherelevantlawsandregulationsonemployment;Secondly,offerthefairemploymentenvironmenttoemployees,perfectservicesystemofemployment;Thirdly,givefullplaytocomparativeadvantage,dowellinindustrialrestructuring,tryhardtocreatetheopeningsbythemultifacetedways;Finally,offerthesocialsecuritytothejobless,soastoensuretheirbasiclifebeforetheyareemployed.

Studyingtheprocessoffindingplacesfortheunemployedpeasantsintheprocessofurbanizationinthedevelopedcountry,we''''vefoundthatthegovernmentsofvariouscountriesallshaveplayedtheroleofactivesupport.Throughlegislatingtomakethestrictlawsandregulationsandcorrespondingpolicies,whichtrytheirbesttoprotecttheinterestsofthepeasants;Absorbthesurpluslabor,strengthenemploymenttraining,impelthesurpluslaborerstobeemployedbyasmanywaysaspossible;Setupthesocialsecurityforthepeasantsoflostterritoryandreducetheirrisk.

Throughon-the-spotresearchesonthesettlementoftheproblemofpeasantswholosttheirterritoriesinChangchunJingyuetanTourist&EconomicDevelopmentZone,comparingthesituationsofreemploymentandsettlementofthepeasantswholosttheirterritoriesinotherareasofourcountry,underthesituationthatthereisnounifiedpoliciesandregulationsatpresent,themainreemploymentandsettlementmodesofthelocalgovernmentsareasfollows:ThemodeofZhejiang,themulti-channelandmultiformmodesofreemploymentandsettlement,takesexchanginglandforsocialsecurityaskeyandtakescommercializedoperationasitscharacteristics;themodeof"reservinglandforintegratesettlement,comprehensivedevelopmentandconstruction"hasbeenusedinXianjia;theshareholdingmodeofcollectivelandinNanhai;thetypicalcreativemodesinHangzhouCityandShandong.Ingeneral,therearesomeproblemsincommonamongthesesettlementmodes,suchasalmostnorealsocialsecuritysystemforthepeasantswholosttheirterritoriesatpresenthasbeenmadeandmeanwhile,thewaysofsocialsecurityistoosimpleandfarfromperfect;thegovernmentdoesn''''tdoitsdutywhichitoughttodo;itcan''''teffectivelysecuretherightsandinterestsofpeasantswholosttheirterritories.Themodeofexchanginglandforsocialsecurityemphasizesthesocialsecurity,butdoesn''''tpayenoughattentiontotheimprovementofemploymentabilityandthearrangementofreemploying,etc.

Duringthereemploymentandsettlementofthepeasantswholosttheirterritories,thepeasantshavetheirownproblemsandtheyaremainly:education,laborskillspoor;andtheirownadaptabilityarepoor;theymakenofullpreparationforfacingthechangefromagriculturaltonon-agriculturallaborerintheconceptorideas.Peasantshavenotheideologyofdefendingtheirownrightsandinterests,don''''tknowhowtousetheweaponsoflawtoprotectthemselves;thepeasant''''sorganizationisweakenedinunprecedentedway,peasantsloseself-protectionabilitybasically;theproblemsofhardtoliveforthe"disadvantagedgroups"amongthepeasantswholosttheirterritoriesareparticularlyserious.

Intheprocessofthereemploymentandsettlementofthepeasantswholosttheir

territoriesthegovernmenthastheproblemsasfollows:1.improperpositionofthegovernment''''sresponsibilities:thegovernmentdoesn''''tprovidethepeasantswhoselandisacquiredwithbetterlivingcondition-compensationforsettlement;thegovernmentdoesn''''tpayenoughattentiontoimprovingtheabilityofemploymentandreemploymentandsettlementofthepeasantswholosttheirland;somegovernmentsandbusinessmencollaboratewitheachotherandencroachupontheinterestsofthepeasantstoseekpersonalgain.2.thegovernmentneglectsitsdutytocausethelackofinstitutionasfollows:theinsufficientoftheinstitutionaleffectivesupply-theimperfectofthelawsandregulationsonthereemploymentandsettlementofpeasantswholosttheirterritoriesandrelevantpoliciesarenotfullyimplemented;theinstitutionoflandacquisitioncompensationisunreasonable，supervisionmechanismisnotperfect,compensationexpensesarekeptbythepoliticalauthorityatroot-level;thesocialsecuritysystemislacked.

Inordertosolveabove-mentionedproblems,duringthereemploymentandsettlementaboutpeasantwholosttheirterritories,thegovernmentshouldaccomplishwhatasfollows:1.Thegovernmentshouldguaranteetheeffectiveinstitutionsupply.First,formulatethesocialsecuritysystemwhicharesuitabletothecharacteristicsofthepeasantswholosttheirterritories;second,perfecttheinstitutionoflandacquisitionandtherelevantlawsandregulationstoprotecttheinterestsofthepeasantswhoselandareacqu

ired;thelast,thegovernmentitselfshouldimproveitslaw-enforcementlevelinordertoguaranteetheeffectiveimplementofeveryinstitutionandregulation.2.Thegovernmenthastheresponsibilitytoguidethereemploymentofpeasantswholosttheirterritories.3.Thegovernmenthasthedutytohelppeasantswholostterritoriesgetreemployedinmanyways:First,perfecttheemploymentmechanismandsystemforthepeasantswholostterritories,helpthemimprovetheirlaborskills;second,formulatethepromotionalpoliciesofpromotingemploymentsuitabletothemandcreatemorepoststosupportthemtolivemorecomfortablygradually;last,setupperfectlaborforcemarketsystemandbuildfineemploymentenvironment.Inaddition,tobettersolvetheproblemofreemploymentandsettlementofthepeasantswholosttheirterritories,weshouldexploitadvantagesofthemarketmechanismtothefullandimprovethelevelofsafeguardingtheirownrightsofpeasantswholosttheirterritories.