改革开放40年来农民工政策的范式转变——基于985份政策文献的量化分析  

The Paradigm Change of China's Migrant Workers Policy since the Reform and Opening—Up: Based on Quantitative Analysis of 985 Policy Documents

作　　者：徐增阳[1,2] 付守芳[1] XU Zengyang;FU Shoufang(School of Public Administration,Central China Normal University;Research Center of Hubei Local Government Governance and Local Development,Wuhan,Hubei,430079)

机构地区：[1]华中师范大学公共管理学院,湖北武汉430079 [2]华中师范大学湖北地方政府治理与地方发展研究中心,湖北武汉430079

出　　处：《行政论坛》2019年第1期13-21,共9页Administrative Tribune

基　　金：国家社会科学基金项目"基于居民自治单元下沉的城市社区治理改革研究"(17BGL167)

摘　　要：农民工是极具中国特色的现象,农民工政策提供了一个公共政策变迁的独特经验。基于政策范式的理论框架,以1978—2017年985份中央层面的农民工政策文献为样本,运用政策文献量化分析方法分析政策目标、政策价值取向、政策工具、政策主体、政策对象在时间维度上的变化特征。研究表明,我国农民工政策经历控制(1978—1991年)、管理(1992—2005年)、服务(2006—2017年)等三次范式转变,体现了改革开放以来我国政府职能转变的过程:政策目标经历由纳入管控、规范管理向保障权益与促进融入的调适;政策价值取向经历由农村偏好、城市偏好向城乡统筹的转换;政策工具经历由单纯依靠行政命令向行政命令、市场调节、法律规范等多重工具并用的过渡;政策主体经历由中共中央、国务院为主向中央职能部门为主的变动;政策对象的称谓经历由歧视话语向正面话语、具有劳动力价值向具有城镇化意义和关注农民工个人向关注随迁及留守家属的变化。The group of rural migrant workers in china is unique in the world, and the migrant workers policies provide special experience of public policy change. Based on the theoretical framework of policy paradigm and taking the 985 central-level policy documents during the period from1978 to 2017 as samples, the article quantitatively analyses the policy objectives, policy value orientation, policy tools, policy subjects, and policy objects of the policy documents in order to explain the shift of China’s migrant workers policy paradigm. The research shows that the migrant workers policies has experienced three paradigm shifts, that is, control(1978-1991), management(1992-2005) and service(2006-2017), reflecting the transformation process of government functions since the reform and opening up in 1978. Policy objectives have been gradually adjusted from control and regulatory management to rights protection and promoting integration, the policy value orientation has experienced the transformation from the preference of rural to preference of urban then to urban-rural balance;policy tools have experienced the transformation from relying solely on the executive orders to the combination of executive orders, market regulations and legal norms, and the policy subjects has decentralized from the central government including the CPC Central Committee and the State Council to functional departments, i.e. different ministries under the central government. Attitudes towards the policy objects in policy documents has converted from negative to positive. Migrant Workers are not viewed as only labor force to promote economic development of the city. Rather, governments regard them as an integral part of the city. Even the livelihoods and wellbeing of their migrant and left-behind families are carefully considered by government policies.

关 键 词：农民工政策 政策范式 政策变迁 

分 类 号：F323.6[经济管理—产业经济]