中国农村人力资源开发政府行为研究
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摘要
中国是一个农村人口占大多数的国家,按照科学发展观的要求,统筹城乡区域经济社会协调发展,全面建设小康社会,加快和谐社会的构建是中国社会主义现代化建设面临的重大历史任务。建设现代农业、推动产业结构升级、加快城镇化进程和新农村建设步伐等是有效推进这一重大历史任务的重要举措,但这又必须以高素质的农村人口为重要条件。而中国大量的素质较低的农村人口已成为推进这一历史性任务的重大障碍。因此,大力发展农村教育、医疗卫生事业,加快开发农村人力资源,迅速提高农村人口素质显得尤为迫切。由于中国农村人均收入水平低,加之思想认识水平所限,以及企业的投资具有“天然性”特征和社会捐赠、彩票发行等其他开发农村人力资源方式在农村发展相当不成熟等原因,因此,在市场经济条件下,完全依靠市场机制和市场力量开发农村人力资源显然存在着诸多局限。有鉴于此,充分发挥政府在农村人力资源开发中的主导作用具有极其重要的理论与实践意义。
新中国成立后,尤其是进入新世纪以来,党和政府高度重视农村人力资源开发工作,大力推进农村教育、医疗卫生事业,农村人力资源素质有了很大提高,但与国民经济社会发展对农村人力资源素质的要求还有相当的距离,效果也难如人意,特别是现阶段政府强有力的推动与农村劳动力参加职业教育和培训的意愿及其效果不强,农民严重缺乏发展现代农业的知识和技能以及大量进城农民工失业与企业技能性岗位人才短缺现象并存的局面,促使人们深深地思考一个十分重要的课题——政府如何有效地推进农村人力资源开发。本文基于政府行为理论、人力资本理论、二元经济理论等相关理论,系统地分析了政府经济行为、法律行为、行政行为对农村人力资源开发的影响,并进而探讨了政府三大行为之间的协调问题,并在借鉴国外经验教训的基础上提出政府有效开发农村人力资源的相关政策建议。本文研究的主要内容为:
1.国外农村人力资源开发政府行为及其经验借鉴的分析。该内容为本文的第三章。国外政府开发农村人力资源取得了许多成功经验对加快中国农村人力资源开发具有一定的借鉴意义。本文在探讨了美国、德国、日本、韩国和印度等世界上发达国家和发展中国家政府开发农村人力资源的成功经验,并在此基础上,结合中国实际,提出了建立科学有效的教育、科研、推广三位一体的农业科技教育体系以及良好的农村人力资源开发政府管理和运作机制等经验借鉴。
2.农村人力资源开发的政府经济行为分析。该内容为本文的第四章。农村人力资源开发中的政府经济行为主要指政府财政投入、动员社会资金和运用信贷、税收优惠等手段支持农村人力资源开发。本章分析了农村人力资源投资的渠道、投资的效益、政府投资农村人力资源开发特点与作用;进而分析了政府投资农村教育、卫生保健等现状;对城乡、区域间投资进行了比较分析,并以浙江省长兴县政府开发农村人力资源等为典型案例进行了剖析。在此基础上,分析了农村人力资源开发政府投入严重不足、投资结构不合理、投资体制存在弊端、政府运用其他经济手段不够等问题及其产生原因。进而提出了改革农村人力资源开发的政府财政投资管理体制,加大农村人力资源开发的财政投入力度,完善投资结构,特别是加大农村职业教育和技能培训以及公共卫生服务的财政投入,政府运用其他经济手段,构建多元化的农村人力资源开发的投入体系等路径选择。
3.农村人力资源开发的政府法律行为分析。该内容为本文的第五章。法律行为是一定社会中,与一定的意志或意识表示相一致,具有法律意义能够引起相应法律后果的行为。立法行为是其他法律行为的先导。本章仅从国家立法的视角,探讨了农村人力资源开发的政府法律行为。论文分析了建国以来中国中央政府及有关部委等制定的有关农村人力资源开发的教育、卫生等法律法规及其特征,进而分析了目前农村人力资源开发法律法规存在着滞后性、权威性不高和法律体系不完善等问题,并对完善农村人力资源开发的政府法律行为的立法层次、相关政策以及综合协调和监管机制等进行了探讨。
4.农村人力资源开发的政府行政行为分析。该内容为本文的第六章。农村人力资源开发的政府行政行为主要指国家行政机关通过行政权力加强对发展农村教育、卫生事业的行政推动、管理和监督,提高农村人口素质的政府行为。本章分析了新世纪以来中央政府采取一系列发展农村基础教育、职业教育、成人教育和医疗卫生等措施,进而分析了农村人力资源开发的政府行政行为存在着行政管理制度不完善,行政管理体制与农村发展的形势不相适应、公共服务和行政监管不到位等问题,并提出了制定农村人力资源开发规划,加强行政管理制度建设,加强农村教育、卫生管理体制改革、提高政府行政效率,加强公共服务体系建设和加强行政监管等政府行政行为的完善与创新。
5.农村人力资源开发政府三大行为协调关系分析。该内容为本文的第七章。本章阐释了协调关系的概念;构建了农村人力资源开发中政府经济行为是基础、政府法律行为是核心、政府行政行为是保障的协调关系的分析框架;进而从基础薄弱、核心不突出、保障不力及其三大行为间协调性不强等方面分析了协调政府三大行为,加快开发农村人力资源的必要性,并提出了突出法律核心地位、务实经济基础、提升行政保障力度等协调政府三大行为,推进农村人力资源开发的构想。
基于上述研究,本文得出以下主要结论:基于涉及农村人力资源开发的教育、医疗卫生等事业的公共产品或半公共产品的属性,政府行为作为公共产品的供给者,应当成为现阶段农村人力资源开发的主导力量;政府财政投入不足,其他投资方式运用不多以及投资结构不合理乃是导致农村人力资源开发明显不足的重要原因;政府对农村人力资源开发的法律法规体系不健全与执法不力,制约了农村人力资源的开发进程;政府对农村人力资源开发的行政管理行为的不到位以及农村人力资源开发管理机制的不健全,影响了农村人力资源开发工作的有序进行;政府开发农村人力资源三大行为间的协调性不够,加剧了农村人力资源开发工作的滞后性。进而提出了在农村人力资源的开发过程中,加强政府的经济行为、法律行为、行政行为三者间的协调等相关政策建议。
China is a rural population accounting for the majority of countries. As called for by the scientific development concept, what faces China now is to balance the social and economic development between urban and rural areas, to build a well-off society and to speed up the building of a harmonious society. To achieve these, effective measures have been taken, such as modernizing the traditional agriculture, upgrading industrial structure and speeding up the urbanization and the building of a new socialist countryside. However, all these can not be realized without educated farmers. Unfortunately, most farmers now are poorly educated, which constitutes a bottleneck to fulfill the historical task which China now faces. In order to improve farmer literacy, it is urgent to strengthen education, medical care and sanitation and to accelerate the development of human resources in rural areas. Currently, farmer incomes are relatively low and ways to develop human resources, such as investment, donations and lottery industry, are not mature in rural areas. As a result, it is not right to depend totally on the market to develop human resources in rural areas. In view of this, it is extremely important theoretical and practical significance to let the government play a leading role in developing rural human resources
After the founding of the PRC, especially since entering the new century, the Chinese Communist Party and the government have attached great importance to the development of human resources in rural areas. Education, medical care and sanitation have been pushed forward and farmer literacy has been improved noticeably. However, farmer literacy still failed to meet the demand by social and economic development. On one hand, the government is doing its best to promote vocational education and training ,but the farmers are reluctant to take part in and they are still lack of knowledge and skills for modern agriculture. On the other hand, it is difficult for migrant workers to get a job in cities while skilled workers are badly needed in enterprises. All this makes us to ask an important question, that is, how the government can effectively push forward the development of human resources in rural areas. Based on theory of government behaviors, human capital theory, dual economy theory and so on, this paper systematically analyzed the effect on human resources development in rural areas which government economic, legal and administrative behaviors have. How to coordinate three government behaviors has also been discussed. Learning from the experience of other countries, this paper put forward relevant policy recommendations on how the government can develop human resources effectively in rural areas. The main contents of this paper are as follows:
1. ChapterThree is about the using the experience of other countries for reference. We can learn form other countries. The experiences of the USA, Germany, Japan, the Republic of Korea and India have been examined. Taking the reality in China into consideration, this paper holds that scientific and effective educational system for agricultural technology, namely, the combination of teaching, scientific research and popularization, should be established. Government management and functioning mechanism for human resources should also be established.
2. Chapter Four analyzes government economic behaviors in human resource development in rural areas. Government economic behaviors include government finance input, mobilizing social funds and the use of credit, preferential taxation policy to support human resources development. Investment channels for the development of human resources in rural areas, investment benefit, features and effects of government investment are discussed in this chapter. The current situation of government investment in education and medical care and sanitation in rural areas are analyzed. Comparative study between urban investment and rural investment has been carried out. Changxing County in Zhejiang province has been taken as a typical case in terms of human resources development in rural areas. Problems are discussed and reasons for these problems are figured out. These problems include severe shortage of government investment in human resources development, irrational investment structure and investment mechanism. Based on the analysis, this paper holds that we should reform management system for government investment for human resources development, perfect investment structure, enhance government investment in vocational education and training and public medical care, use other economic means and to promote diversification in investment in human resources development in rural areas.
3. Chapter Five analyzes government legal behaviors in human resource development in rural areas. Legal behaviors are behaviors that are consistent with certain wills or consciousness, of legal significance and could lead to corresponding legal results. Legislation is the basis for other legal behaviors. From the angle of legislation, governmental legal behaviors are discussed in this chapter. Educational and sanitation laws and regulations relevant to human resources development made by the central government and relevant ministries are analyzed. This paper holds that these laws and regulations often lag behind the real situation, that they are lack of authority and that legal system need to be perfect too. Ways to improve lawmaking process, relevant policies, and coordination and supervision mechanisms are also discussed.
4.Chapter Six analyzes government administrative behaviors in human resource development in rural areas. Governmental administrative behaviors are behaviors that are intended to develop, manage and supervise rural education and medical care in order to improve farmer literacy. A series of measures taken by the central government since 2000 to develop rural primary education, vocational education, adult education and medical care and sanitation are analyzed. This paper holds that government administrative behaviors are far from perfection. Many problems still exist. Administrative management systems are incompatible with the real situation in countryside and should be improved. Public service and administrative supervision are not fully implemented. Therefore, we should have clear plans for human resources development, improve administrative management system, strengthen rural education, reform sanitation management system, improve government efficiency and strengthen the construction of public service system and supervision.
5. Chapter Seven is about how to coordinate three major government behaviors in human resources development in rural areas. The concept of coordination of three major governmental behaviors is defined in this chapter. Analytical frame work was established in which governmental economic behaviors are the basis and governmental legal behaviors the core and government administrative behaviors guarantee. This paper holds that in current China the basis is rather weak, that the core is not highlighted and the guarantee is also not strong. Therefore, it is necessary to coordinate the three major government behaviors so as to accelerate the development of human resources in rural areas. Conceptions are put forward that the laws should be highlighted, economic basis should be strengthened, and administrative guarantee should be enhanced.
The major conclusions of this paper are as follows: since rural education and medical care related to human resources development can be seen as public goods or semi-public goods, the government, as a supplier of public goods, should play a leading role in developing human resources in rural areas at present. Among others, lack of government investment and other means of investment and irrational investment structures are main factors which hamper the development of human resources. The process of human resources development was delayed due to imperfect relevant laws and regulations. In addition, administrative supervision was not fully implemented and the management mechanism is imperfect. As a result, human resources development can't go smoothly. The lack of coordination among three governmental behaviors delayed the process of development of human resources in rural areas. Finally policy suggestions are put forward that government economic、legal、administrative behaviors' coordination should be strengthened in rural human resources development process.
新中国成立后,尤其是进入新世纪以来,党和政府高度重视农村人力资源开发工作,大力推进农村教育、医疗卫生事业,农村人力资源素质有了很大提高,但与国民经济社会发展对农村人力资源素质的要求还有相当的距离,效果也难如人意,特别是现阶段政府强有力的推动与农村劳动力参加职业教育和培训的意愿及其效果不强,农民严重缺乏发展现代农业的知识和技能以及大量进城农民工失业与企业技能性岗位人才短缺现象并存的局面,促使人们深深地思考一个十分重要的课题——政府如何有效地推进农村人力资源开发。本文基于政府行为理论、人力资本理论、二元经济理论等相关理论,系统地分析了政府经济行为、法律行为、行政行为对农村人力资源开发的影响,并进而探讨了政府三大行为之间的协调问题,并在借鉴国外经验教训的基础上提出政府有效开发农村人力资源的相关政策建议。本文研究的主要内容为:
1.国外农村人力资源开发政府行为及其经验借鉴的分析。该内容为本文的第三章。国外政府开发农村人力资源取得了许多成功经验对加快中国农村人力资源开发具有一定的借鉴意义。本文在探讨了美国、德国、日本、韩国和印度等世界上发达国家和发展中国家政府开发农村人力资源的成功经验,并在此基础上,结合中国实际,提出了建立科学有效的教育、科研、推广三位一体的农业科技教育体系以及良好的农村人力资源开发政府管理和运作机制等经验借鉴。
2.农村人力资源开发的政府经济行为分析。该内容为本文的第四章。农村人力资源开发中的政府经济行为主要指政府财政投入、动员社会资金和运用信贷、税收优惠等手段支持农村人力资源开发。本章分析了农村人力资源投资的渠道、投资的效益、政府投资农村人力资源开发特点与作用;进而分析了政府投资农村教育、卫生保健等现状;对城乡、区域间投资进行了比较分析,并以浙江省长兴县政府开发农村人力资源等为典型案例进行了剖析。在此基础上,分析了农村人力资源开发政府投入严重不足、投资结构不合理、投资体制存在弊端、政府运用其他经济手段不够等问题及其产生原因。进而提出了改革农村人力资源开发的政府财政投资管理体制,加大农村人力资源开发的财政投入力度,完善投资结构,特别是加大农村职业教育和技能培训以及公共卫生服务的财政投入,政府运用其他经济手段,构建多元化的农村人力资源开发的投入体系等路径选择。
3.农村人力资源开发的政府法律行为分析。该内容为本文的第五章。法律行为是一定社会中,与一定的意志或意识表示相一致,具有法律意义能够引起相应法律后果的行为。立法行为是其他法律行为的先导。本章仅从国家立法的视角,探讨了农村人力资源开发的政府法律行为。论文分析了建国以来中国中央政府及有关部委等制定的有关农村人力资源开发的教育、卫生等法律法规及其特征,进而分析了目前农村人力资源开发法律法规存在着滞后性、权威性不高和法律体系不完善等问题,并对完善农村人力资源开发的政府法律行为的立法层次、相关政策以及综合协调和监管机制等进行了探讨。
4.农村人力资源开发的政府行政行为分析。该内容为本文的第六章。农村人力资源开发的政府行政行为主要指国家行政机关通过行政权力加强对发展农村教育、卫生事业的行政推动、管理和监督,提高农村人口素质的政府行为。本章分析了新世纪以来中央政府采取一系列发展农村基础教育、职业教育、成人教育和医疗卫生等措施,进而分析了农村人力资源开发的政府行政行为存在着行政管理制度不完善,行政管理体制与农村发展的形势不相适应、公共服务和行政监管不到位等问题,并提出了制定农村人力资源开发规划,加强行政管理制度建设,加强农村教育、卫生管理体制改革、提高政府行政效率,加强公共服务体系建设和加强行政监管等政府行政行为的完善与创新。
5.农村人力资源开发政府三大行为协调关系分析。该内容为本文的第七章。本章阐释了协调关系的概念;构建了农村人力资源开发中政府经济行为是基础、政府法律行为是核心、政府行政行为是保障的协调关系的分析框架;进而从基础薄弱、核心不突出、保障不力及其三大行为间协调性不强等方面分析了协调政府三大行为,加快开发农村人力资源的必要性,并提出了突出法律核心地位、务实经济基础、提升行政保障力度等协调政府三大行为,推进农村人力资源开发的构想。
基于上述研究,本文得出以下主要结论:基于涉及农村人力资源开发的教育、医疗卫生等事业的公共产品或半公共产品的属性,政府行为作为公共产品的供给者,应当成为现阶段农村人力资源开发的主导力量;政府财政投入不足,其他投资方式运用不多以及投资结构不合理乃是导致农村人力资源开发明显不足的重要原因;政府对农村人力资源开发的法律法规体系不健全与执法不力,制约了农村人力资源的开发进程;政府对农村人力资源开发的行政管理行为的不到位以及农村人力资源开发管理机制的不健全,影响了农村人力资源开发工作的有序进行;政府开发农村人力资源三大行为间的协调性不够,加剧了农村人力资源开发工作的滞后性。进而提出了在农村人力资源的开发过程中,加强政府的经济行为、法律行为、行政行为三者间的协调等相关政策建议。
China is a rural population accounting for the majority of countries. As called for by the scientific development concept, what faces China now is to balance the social and economic development between urban and rural areas, to build a well-off society and to speed up the building of a harmonious society. To achieve these, effective measures have been taken, such as modernizing the traditional agriculture, upgrading industrial structure and speeding up the urbanization and the building of a new socialist countryside. However, all these can not be realized without educated farmers. Unfortunately, most farmers now are poorly educated, which constitutes a bottleneck to fulfill the historical task which China now faces. In order to improve farmer literacy, it is urgent to strengthen education, medical care and sanitation and to accelerate the development of human resources in rural areas. Currently, farmer incomes are relatively low and ways to develop human resources, such as investment, donations and lottery industry, are not mature in rural areas. As a result, it is not right to depend totally on the market to develop human resources in rural areas. In view of this, it is extremely important theoretical and practical significance to let the government play a leading role in developing rural human resources
After the founding of the PRC, especially since entering the new century, the Chinese Communist Party and the government have attached great importance to the development of human resources in rural areas. Education, medical care and sanitation have been pushed forward and farmer literacy has been improved noticeably. However, farmer literacy still failed to meet the demand by social and economic development. On one hand, the government is doing its best to promote vocational education and training ,but the farmers are reluctant to take part in and they are still lack of knowledge and skills for modern agriculture. On the other hand, it is difficult for migrant workers to get a job in cities while skilled workers are badly needed in enterprises. All this makes us to ask an important question, that is, how the government can effectively push forward the development of human resources in rural areas. Based on theory of government behaviors, human capital theory, dual economy theory and so on, this paper systematically analyzed the effect on human resources development in rural areas which government economic, legal and administrative behaviors have. How to coordinate three government behaviors has also been discussed. Learning from the experience of other countries, this paper put forward relevant policy recommendations on how the government can develop human resources effectively in rural areas. The main contents of this paper are as follows:
1. ChapterThree is about the using the experience of other countries for reference. We can learn form other countries. The experiences of the USA, Germany, Japan, the Republic of Korea and India have been examined. Taking the reality in China into consideration, this paper holds that scientific and effective educational system for agricultural technology, namely, the combination of teaching, scientific research and popularization, should be established. Government management and functioning mechanism for human resources should also be established.
2. Chapter Four analyzes government economic behaviors in human resource development in rural areas. Government economic behaviors include government finance input, mobilizing social funds and the use of credit, preferential taxation policy to support human resources development. Investment channels for the development of human resources in rural areas, investment benefit, features and effects of government investment are discussed in this chapter. The current situation of government investment in education and medical care and sanitation in rural areas are analyzed. Comparative study between urban investment and rural investment has been carried out. Changxing County in Zhejiang province has been taken as a typical case in terms of human resources development in rural areas. Problems are discussed and reasons for these problems are figured out. These problems include severe shortage of government investment in human resources development, irrational investment structure and investment mechanism. Based on the analysis, this paper holds that we should reform management system for government investment for human resources development, perfect investment structure, enhance government investment in vocational education and training and public medical care, use other economic means and to promote diversification in investment in human resources development in rural areas.
3. Chapter Five analyzes government legal behaviors in human resource development in rural areas. Legal behaviors are behaviors that are consistent with certain wills or consciousness, of legal significance and could lead to corresponding legal results. Legislation is the basis for other legal behaviors. From the angle of legislation, governmental legal behaviors are discussed in this chapter. Educational and sanitation laws and regulations relevant to human resources development made by the central government and relevant ministries are analyzed. This paper holds that these laws and regulations often lag behind the real situation, that they are lack of authority and that legal system need to be perfect too. Ways to improve lawmaking process, relevant policies, and coordination and supervision mechanisms are also discussed.
4.Chapter Six analyzes government administrative behaviors in human resource development in rural areas. Governmental administrative behaviors are behaviors that are intended to develop, manage and supervise rural education and medical care in order to improve farmer literacy. A series of measures taken by the central government since 2000 to develop rural primary education, vocational education, adult education and medical care and sanitation are analyzed. This paper holds that government administrative behaviors are far from perfection. Many problems still exist. Administrative management systems are incompatible with the real situation in countryside and should be improved. Public service and administrative supervision are not fully implemented. Therefore, we should have clear plans for human resources development, improve administrative management system, strengthen rural education, reform sanitation management system, improve government efficiency and strengthen the construction of public service system and supervision.
5. Chapter Seven is about how to coordinate three major government behaviors in human resources development in rural areas. The concept of coordination of three major governmental behaviors is defined in this chapter. Analytical frame work was established in which governmental economic behaviors are the basis and governmental legal behaviors the core and government administrative behaviors guarantee. This paper holds that in current China the basis is rather weak, that the core is not highlighted and the guarantee is also not strong. Therefore, it is necessary to coordinate the three major government behaviors so as to accelerate the development of human resources in rural areas. Conceptions are put forward that the laws should be highlighted, economic basis should be strengthened, and administrative guarantee should be enhanced.
The major conclusions of this paper are as follows: since rural education and medical care related to human resources development can be seen as public goods or semi-public goods, the government, as a supplier of public goods, should play a leading role in developing human resources in rural areas at present. Among others, lack of government investment and other means of investment and irrational investment structures are main factors which hamper the development of human resources. The process of human resources development was delayed due to imperfect relevant laws and regulations. In addition, administrative supervision was not fully implemented and the management mechanism is imperfect. As a result, human resources development can't go smoothly. The lack of coordination among three governmental behaviors delayed the process of development of human resources in rural areas. Finally policy suggestions are put forward that government economic、legal、administrative behaviors' coordination should be strengthened in rural human resources development process.
引文
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