发达国家和地区引进外籍农业劳动力的政策特点及启示——以欧盟、美国和韩国为例

Policy Characteristics and Implications of Foreign Agricultural Labor Importation in Developed Countries and Regions——A Case Study of the European Union, the United States and South Korea

欧盟、美国和韩国等发达国家和地区为缓解农业劳动力短缺问题,多年来实行引进外籍农业劳动力政策。基于本区域发展现状和特点,这三个发达国家和地区在制定政策方面各有侧重。欧盟对于外籍农业劳动力工作许可的有效期限较短,注重外籍农业劳动力的权益保障和职业培训。美国赋予外籍农业劳动力弹性入境期限,引进过程体现雇主主导、政府监督配合的自下而上型特征。韩国向外籍农业劳动力提供的签证种类多样且具有互补性,且因农业人口老龄化现象严重,引进过程呈现政府主导的自上而下型特征。此外,相较于欧盟和美国,韩国在引进外籍农业劳动力数量方面配额特征明显,对申请条件规定得更为具体且明确。鉴于此,本文建议在农业“用工荒”警报拉响前做好引进外籍农业劳动力的政策制度设计,同时构建与现代农业相适应的统计监测体系有效辅助相关政策制定和落实,并充分利用人文及地理优势条件实现农业劳动力优化配置,以缓解中国农业劳动力结构性短缺和实现农业劳动力有效供给。

The European Union, the United States and South Korea have implemented policies to attract foreign agricultural labor force over the years to alleviate the domestic shortage of agricultural labor force.The policies formulated by these developed countries and regions have their respective focuses based on regional development levels and conditions.The European Union provides a short validity period of work permits for the foreign agricultural labor force and focuses on rights protection and vocational training for such labor force.The United States grants a flexible entry period to the foreign agricultural labor force.Moreover, the entry process reflects the bottom-up characteristics of employer-led and government-supervised cooperation.South Korea provides diversified and complementary visas for the foreign agricultural labor force.The entry process reflects government-led top-down characteristics.In addition, compared with the European Union and the United States, South Korea shows more significant quota characteristics in terms of the number of imported foreign agricultural labors and sets more specific and precise conditions for application.Against this background, this paper proposes to properly design the import system of agricultural labor before the shortage of agricultural labor in China raises the alarm, establish a powerful statistical monitoring system that adapts to modern agriculture, and take advantage of cultural and geographical conditions to optimize the allocation of agricultural labor to alleviate the structural shortage of agricultural labor in China.