中国农民公共就业服务政策演变的逻辑、趋势与展望

The Evolution Logic,Trends and Prospects of Chinese Farmers’ Public Employment Services Policies Since 1949

本文构建"政策目标—目标群体—权利授予和意义—价值取向"的四维政策学习观察框架,系统梳理了新中国成立以来国家农民公共就业服务政策。研究发现:与基于社会学习的注意力分配理论逻辑相契合,也与城乡二元分立到城乡一体化发展的城乡关系演变趋势相适应,国家农民公共就业服务政策实现了"从无到有",再"从有到优"的转变。其具体演变历程包括农民公共就业服务缺失、城镇公共就业服务体系吸纳和覆盖城乡公共就业服务体系构建等三个阶段,并呈现出政策目标日趋科学化、政策确立的服务价值取向日趋合理化、政策确立的服务理念日趋成熟和政策构建的服务体系日臻完善等特征。适应农民高质量充分就业之需要,未来农民公共就业服务政策设计要进一步引导优化服务目标、重塑服务价值取向、创新服务理念、扩展服务功能,实现政策供给"从优到精"的转变。

Based on a four-dimensional analysis framework of"objective","target group","rights granting and significance"as well as"value orientation",this article systematically analyzes the evolution of public employment services policies in rural China since 1949.The findings suggest that,farmers’public employment services policies have gradually improved along with the transformation process starting from scratch,which seems in line with the theoretical logic of attention allocation on the basis of social learning,and also in line with the evolution trend of urban-rural relationship from separation to integration.Specifically,the evolution process of public employment services policies includes three stages,namely,a stage without public employment services for farmers,a stage of services provision in urban areas,and a stage of construction of services provision system covering both urban and rural areas.Meanwhile,the evolution process shows that the characteristics of policy objectives have become increasingly scientific,the service value orientation of policy establishment has become increasingly rational,the service concept of policy establishment has become gradually mature,and the service system of policy construction has been increasingly improved.To satisfy the need of farmers’high-quality and full employment,the design of public employment services policies should further guide the employment services objectives,reshape the service value orientation,innovate the service concepts,expand the service functions,and strive to further promote the transformation of public employment services policies for farmers in China.