我国县域公共就业服务的碎片化及其整体性治理
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摘要
就业是民生之本,是一个国家长治久安繁荣富强的根本动力。失业的治理是各国学术界与政界普遍关注的焦点。中国是一个人口大国,人口组成结构复杂,就业问题尤其显得凸出。
公共就业服务作为政府主动解决失业问题的一种重要职能途径,越来越受到国际社会的关注。2011年3月国务院颁布的《中华人民共和国国民经济和社会发展第十二个五年规划纲要》指出,要健全统一规范灵活的人力资源市场,完善城乡公共就业服务体系,推动就业信息全国联网,为劳动者提供优质高效的就业服务。近年来党和国家提出大力发展新型城镇化的改革目标,大批农村剩余劳动力需要转移,就业问题显得格外引人注目。解决就业严峻问题的关键是在充分发挥劳动力市场资源配置决定性作用的基础上实现政府公共就业服务效用的最大化。
县域政府处于我国地方政府结构的基层,在未来城镇化的发展与就业服务政策实施过程中起着基础性和决定性作用,县域地方政府的治理改革正逐步引起学术界的高度关注。但是我国县域公共就业服务体系囿于其特殊的发展阶段与现实局限,存在诸多影响其应有功能发挥的问题。因此,在积极顺应世界地方政府治理改革潮流与推进中国新型城镇化战略目标背景下,研究发展我国县域政府公共就业服务体系的课题具有重要价值。
本文在前人理论研究成果与实地调研观察基础上,以整体性治理为研究视角,采用规范分析与实证分析、量化分析与质性分析相结合的方法,以实地调研数据资料为依据,借助系统权变模型从不同角度针对我国鲁鄂两省典型县级地区的公共就业服务碎片化现状进行系统研究,并深入分析症结原因,据此提出相应解决对策,以促进我国县域就业服务体系的改革与完善。
本文写作的逻辑结构可分为以下九大模块：
第一模块：选题意义与研究起点。研究的开展首要的是研究主题的确定。本模块首先阐述县域公共就业服务的研究背景,表明现阶段开展中国县域公共就业服务的相关研究具有重要的现实与理论价值,然后对本文的相关概念与研究方法作出界定与阐释。
第二模块：文献检视与简要评价。搜集、梳理与分析国内外公共就业服务相关研究文献,并对国内外已有的相关研究成果作出总体评价,以为本文选题立意的确定、研究思路的构建、研究假设的提出以及研究重点的聚焦等提供重要的学术支持。
第三模块：概念工具与理论视角。针对县域公共就业服务中的棘手难题,借助碎片化概念工具开展研究,并利用适洽的整体性治理理论视角,明晰其要义精髓,以为本项研究工作卓有成效地开展提供基本遵循。
第四模块：研究模型与理论假设。本文选取“5×1”即“六要素”系统权变模型作为贯穿“县域公共就业服务”议题研究全过程的理论模型,同时根据文献研究理论成果与问卷调查结果提出本文的理论假设。
第五模块：研究设计与数据采集。根据前文的理论假设,针对系统权变模型所确定的六个系统开展变量的定义和测量、问卷设计与访谈规划,然后在山东省与湖北省地区选取十一个具有代表性与均衡性的县域样本展开调研活动,确保数据的可靠性与有效性。
第六模块：调研结果与数据分析。利用SPSS软件对调查问卷数据进行科学的量化分析,并结合访谈与实地观察材料的质性分析,客观验证前文相关理论假设,并深入挖掘公共就业服务要素间的关系机理。同时,综合运用实证分析与规范分析的方法对调研结果作出阐释与分析。
第七模块：结果讨论与原因探究。全面总结与探讨数据材料验证假设的结果,并从宏观、中观与微观角度对公共就业服务碎片化的症结与整体性治理改革的难点展开探究。
第八模块：对策思考与建议。根据前文数据分析结果,运用历史、比较和规范研究法,以系统权变为分析模型,以整体性治理为视角,集合“政治学”、“行政学”、“劳动经济理论”、“社会学”、“系统科学”等多学科的理论,对县域公共就业服务体系碎片化现状提出破解策略。
第九模块：研究总结与展望。概述本项研究的主要成果,指明本项研究存在的局限及后续研究的方向。
本文的创新意图主要体现在以下四个方面：
(1)研究议题的创新：县域公共就业服务体系的完善与发展对于解决中国的失业问题具有重要的意义,鉴于国内学术界相关研究文献的不足,本文选取东中部地区的十一个典型县域公共就业服务体系进行理论和实证研究,具有研究议题的创新性。
(2)研究模型应用的创新：以美国系统与权变管理学派杰出代表卡斯特与罗森茨韦克提出的“5×1”即“六要素”系统权变模型(即环境超系统、目标与价值分系统、体制结构分系统、管理分系统、社会心理分系统、技术分系统分析模型)为框架,综合运用网络化治理、复杂科学理论、劳动经济理论等科学理论方法,坚持规范分析与实证分析相结合、制度分析与比较分析相结合、定性分析与定量分析相结合,开展县域公共就业服务体系完善问题的研究,这在国内学术界并不多见。
(3)研究视角应用的创新：整体性治理理论已逐渐成为国际上主导政府改革的理论范式,正在引起学界与政界人士的广泛关注。在此背景下本文选择我国县域政府面临的公共就业服务碎片化难题为出发点,以整体性治理理论为视角,从整体上构建新型县域公共就业服务体系,这在国内学术界同样鲜见。
(4)观点对策的创新：本文将县域公共就业服务的困境定位于“碎片化”,并运用前沿性的整体性治理理论,结合其深刻的系统权变内涵,在利用多种定量性统计分析方法的基础上,从“六维一体”的角度提出构建与完善县域公共就业服务体系的整体性策略,具有鲜明的创新性和政策咨询价值。
Employment, which is vital to people's livelihood, is a fundamental impetus to a country's stability and prosperity. Employment and unemployment's management has been one of focal issues which academic and political circles all over the world are generally concerned on. Especially in China, a most populous nation with complicated demographical constitution, the problem of employment becomes particularly acute.
The public employment service, as a significant approach of government to undo unemployment initiatively, gains increasingly attentions from international community. The Twelfth Five-Year Plan of the People's Republic of China for National Economic and Social Development, established in the NPC and CPPCC (National People's Congress and Chinese People's Political Consultative Conference) in2011, signs that unified flexible personnel resource market, urban-rural public employment service and employment information in the national network need to be improved in order to provide labors excellent and efficient employment service. In recent years, the Party Central Committee has put forward the reform objectives of developing new-type urbanization, which needs to shift a large numbers of surplus rural labors. Therefore, the problems of employment appear. The key of solving dire employment situations is that the government should maximize its functions in public employment service based on the market allocation system of labor force.
County government levels among provinces, cities and townships (towns), as a link between the preceding and the following layers, connecting cities and countryside, is a bond local regime between the central and the grassroots governments. It plays a critical role in realizing the policy of public employment service. The function of our county government's public employment service is confined due to its specific developing stage and reality limits. Therefore, research over innovative approach of county government's public employment system is of important theoretical value and realistic significance.
Based on previous theoretical researches, this thesis strives to analyze one representative county government's public employment service's fragmentary circumstance systemically and profoundly analyzes reasons. In the perspective of Holistic Governance, it adopts systematic adaptation model, combines normative analysis and empirical analysis in addition to qualitative analysis and quantitative analysis, and utilizes quantitative analytic data and sported surveys. Accordingly, it put forwards relevant solutions to promote reformation and improvement of county governments' public employment service of our country
The logical frame can be divided into nine modules:
The first module:theme's value and origin. On the basis of the origin and value of the study, China's county government's public employment service system is chosen as subject. After carding and analyzing foreign and domestic relative researches, this part explores fruits and drawbacks of the subject, holding the function of reference and innovation. And definition of relative concepts confines the research area and object.
The second Module:literature review and brief evaluation. This part mainly collect, analyze and briefly evaluate the related literature at home and abroad. So that it can provide academic evidence for selection, construction, assumption and the focal points of this paper.
The third module:concept tool and theoretical perspective. The part clearly defines Holistic Governance theory and Fragmentation Theory related to the subject so as to provide innovative theory view and research evidence.
The fourth module:research model and theoretical assumption. This part moulds organizing systematic adaptation model through the subject's theoretical and empirical study. Meanwhile, it puts forwards theoretical assumptions on the basis of previous theoretical achievements and spotted surveys.
The fifth module:empirical design and data collection. According to assumptions as are mentioned above, the thesis give respective definitions, measures, questionnaire designs and interview plans to the six systems fixed by systematic adaptation model. Then it elects the representative and equitable sample, county of Shandong and Hubei Province, for investigative research to make sure reliability and validity of data.
The sixth module:survey result and data analysis. Making use of the SPSS software, it scientifically analyzes the questionnaire data in order to check the relative theoretical assumptions mentioned. At the same time, it makes relative illustrations and provides reasons with empirical and normative analysis.
The seventh module:result discussion and cause analysis. This part mainly focuses on summarizing and investigating the results from gather data and results, and exploring the reasons of difficulties in the reform from the perspectives of macro, meso and micro levels.
The eighth module:measures and research conclusions. According to the mentioned data analytic result, this part gives strategies to improve county government's public employment service system's fragmentary circumstance, applying historic study, comparison study and normative analysis. It moulds systematic contingency and uses "Networking Management""Labor Economic Theory""New Public Service""Complex Science Theory" in the perspective of Holistic Governance.
The ninth module:this module summarizes the paper's fruits and defects, and then indicates the direction of further study.
This paper has five innovations:
(1) Research fields:improvement and development of county government's public employment system is of great significance to tackle China's unemployment problems. Considering deficiency in the relative research field in domestic academic circles, the author chooses a typical county government's department of public employment service to conduct a omnibearing study, which possesses theoretical significance full of exploration in some extent.
(2) Method of studying mould:The thesis sets six-element systematic analysis model (that contains Environmental Supersystem, Object-Value Subsystem, Organizational Structure Subsystem, Management Subsystem, Sociopsychological Subsystem, Technical Subsystem) as the analyzing frame proposed by F.E.Kast and J.E.Rosenzweig, outstanding representatives of American systematic adaptation management school. And it also applies Networking Management, Complex Science Theory and Labor Economic Theory and other advanced scientific theory to assume the research over improvement of county regions'public employment service system, combining normative analysis and empirical study, institutional analysis and comparative analysis, qualitative analysis and quantitative analysis.
(3) The new visual angle:Holistic Governance Theory has gradually been the mainstream theoretic form that internationally directs governments'reforms, arousing an extensive attention in academic and political circles. In this situation, this thesis focuses on public employment service's fragmental problem as the starting point. And in the perspective of Holistic Governance Theory, it designs a new-style county government's public employment system, which is orientated by the society's demand for public employment service.
(4) Research viewpoint:In this paper, county government's public employment service's predicament was located in "fragment". The thesis comes up with holistic strategies to establish and improve county government's public employment system in six different views objectively and scientifically, applying relatively forward Holistic Governance Theory, combining profound system adaptation connotation, making use of multiple quantitative statistical analysis method.
公共就业服务作为政府主动解决失业问题的一种重要职能途径,越来越受到国际社会的关注。2011年3月国务院颁布的《中华人民共和国国民经济和社会发展第十二个五年规划纲要》指出,要健全统一规范灵活的人力资源市场,完善城乡公共就业服务体系,推动就业信息全国联网,为劳动者提供优质高效的就业服务。近年来党和国家提出大力发展新型城镇化的改革目标,大批农村剩余劳动力需要转移,就业问题显得格外引人注目。解决就业严峻问题的关键是在充分发挥劳动力市场资源配置决定性作用的基础上实现政府公共就业服务效用的最大化。
县域政府处于我国地方政府结构的基层,在未来城镇化的发展与就业服务政策实施过程中起着基础性和决定性作用,县域地方政府的治理改革正逐步引起学术界的高度关注。但是我国县域公共就业服务体系囿于其特殊的发展阶段与现实局限,存在诸多影响其应有功能发挥的问题。因此,在积极顺应世界地方政府治理改革潮流与推进中国新型城镇化战略目标背景下,研究发展我国县域政府公共就业服务体系的课题具有重要价值。
本文在前人理论研究成果与实地调研观察基础上,以整体性治理为研究视角,采用规范分析与实证分析、量化分析与质性分析相结合的方法,以实地调研数据资料为依据,借助系统权变模型从不同角度针对我国鲁鄂两省典型县级地区的公共就业服务碎片化现状进行系统研究,并深入分析症结原因,据此提出相应解决对策,以促进我国县域就业服务体系的改革与完善。
本文写作的逻辑结构可分为以下九大模块：
第一模块：选题意义与研究起点。研究的开展首要的是研究主题的确定。本模块首先阐述县域公共就业服务的研究背景,表明现阶段开展中国县域公共就业服务的相关研究具有重要的现实与理论价值,然后对本文的相关概念与研究方法作出界定与阐释。
第二模块：文献检视与简要评价。搜集、梳理与分析国内外公共就业服务相关研究文献,并对国内外已有的相关研究成果作出总体评价,以为本文选题立意的确定、研究思路的构建、研究假设的提出以及研究重点的聚焦等提供重要的学术支持。
第三模块：概念工具与理论视角。针对县域公共就业服务中的棘手难题,借助碎片化概念工具开展研究,并利用适洽的整体性治理理论视角,明晰其要义精髓,以为本项研究工作卓有成效地开展提供基本遵循。
第四模块：研究模型与理论假设。本文选取“5×1”即“六要素”系统权变模型作为贯穿“县域公共就业服务”议题研究全过程的理论模型,同时根据文献研究理论成果与问卷调查结果提出本文的理论假设。
第五模块：研究设计与数据采集。根据前文的理论假设,针对系统权变模型所确定的六个系统开展变量的定义和测量、问卷设计与访谈规划,然后在山东省与湖北省地区选取十一个具有代表性与均衡性的县域样本展开调研活动,确保数据的可靠性与有效性。
第六模块：调研结果与数据分析。利用SPSS软件对调查问卷数据进行科学的量化分析,并结合访谈与实地观察材料的质性分析,客观验证前文相关理论假设,并深入挖掘公共就业服务要素间的关系机理。同时,综合运用实证分析与规范分析的方法对调研结果作出阐释与分析。
第七模块：结果讨论与原因探究。全面总结与探讨数据材料验证假设的结果,并从宏观、中观与微观角度对公共就业服务碎片化的症结与整体性治理改革的难点展开探究。
第八模块：对策思考与建议。根据前文数据分析结果,运用历史、比较和规范研究法,以系统权变为分析模型,以整体性治理为视角,集合“政治学”、“行政学”、“劳动经济理论”、“社会学”、“系统科学”等多学科的理论,对县域公共就业服务体系碎片化现状提出破解策略。
第九模块：研究总结与展望。概述本项研究的主要成果,指明本项研究存在的局限及后续研究的方向。
本文的创新意图主要体现在以下四个方面：
(1)研究议题的创新：县域公共就业服务体系的完善与发展对于解决中国的失业问题具有重要的意义,鉴于国内学术界相关研究文献的不足,本文选取东中部地区的十一个典型县域公共就业服务体系进行理论和实证研究,具有研究议题的创新性。
(2)研究模型应用的创新：以美国系统与权变管理学派杰出代表卡斯特与罗森茨韦克提出的“5×1”即“六要素”系统权变模型(即环境超系统、目标与价值分系统、体制结构分系统、管理分系统、社会心理分系统、技术分系统分析模型)为框架,综合运用网络化治理、复杂科学理论、劳动经济理论等科学理论方法,坚持规范分析与实证分析相结合、制度分析与比较分析相结合、定性分析与定量分析相结合,开展县域公共就业服务体系完善问题的研究,这在国内学术界并不多见。
(3)研究视角应用的创新：整体性治理理论已逐渐成为国际上主导政府改革的理论范式,正在引起学界与政界人士的广泛关注。在此背景下本文选择我国县域政府面临的公共就业服务碎片化难题为出发点,以整体性治理理论为视角,从整体上构建新型县域公共就业服务体系,这在国内学术界同样鲜见。
(4)观点对策的创新：本文将县域公共就业服务的困境定位于“碎片化”,并运用前沿性的整体性治理理论,结合其深刻的系统权变内涵,在利用多种定量性统计分析方法的基础上,从“六维一体”的角度提出构建与完善县域公共就业服务体系的整体性策略,具有鲜明的创新性和政策咨询价值。
Employment, which is vital to people's livelihood, is a fundamental impetus to a country's stability and prosperity. Employment and unemployment's management has been one of focal issues which academic and political circles all over the world are generally concerned on. Especially in China, a most populous nation with complicated demographical constitution, the problem of employment becomes particularly acute.
The public employment service, as a significant approach of government to undo unemployment initiatively, gains increasingly attentions from international community. The Twelfth Five-Year Plan of the People's Republic of China for National Economic and Social Development, established in the NPC and CPPCC (National People's Congress and Chinese People's Political Consultative Conference) in2011, signs that unified flexible personnel resource market, urban-rural public employment service and employment information in the national network need to be improved in order to provide labors excellent and efficient employment service. In recent years, the Party Central Committee has put forward the reform objectives of developing new-type urbanization, which needs to shift a large numbers of surplus rural labors. Therefore, the problems of employment appear. The key of solving dire employment situations is that the government should maximize its functions in public employment service based on the market allocation system of labor force.
County government levels among provinces, cities and townships (towns), as a link between the preceding and the following layers, connecting cities and countryside, is a bond local regime between the central and the grassroots governments. It plays a critical role in realizing the policy of public employment service. The function of our county government's public employment service is confined due to its specific developing stage and reality limits. Therefore, research over innovative approach of county government's public employment system is of important theoretical value and realistic significance.
Based on previous theoretical researches, this thesis strives to analyze one representative county government's public employment service's fragmentary circumstance systemically and profoundly analyzes reasons. In the perspective of Holistic Governance, it adopts systematic adaptation model, combines normative analysis and empirical analysis in addition to qualitative analysis and quantitative analysis, and utilizes quantitative analytic data and sported surveys. Accordingly, it put forwards relevant solutions to promote reformation and improvement of county governments' public employment service of our country
The logical frame can be divided into nine modules:
The first module:theme's value and origin. On the basis of the origin and value of the study, China's county government's public employment service system is chosen as subject. After carding and analyzing foreign and domestic relative researches, this part explores fruits and drawbacks of the subject, holding the function of reference and innovation. And definition of relative concepts confines the research area and object.
The second Module:literature review and brief evaluation. This part mainly collect, analyze and briefly evaluate the related literature at home and abroad. So that it can provide academic evidence for selection, construction, assumption and the focal points of this paper.
The third module:concept tool and theoretical perspective. The part clearly defines Holistic Governance theory and Fragmentation Theory related to the subject so as to provide innovative theory view and research evidence.
The fourth module:research model and theoretical assumption. This part moulds organizing systematic adaptation model through the subject's theoretical and empirical study. Meanwhile, it puts forwards theoretical assumptions on the basis of previous theoretical achievements and spotted surveys.
The fifth module:empirical design and data collection. According to assumptions as are mentioned above, the thesis give respective definitions, measures, questionnaire designs and interview plans to the six systems fixed by systematic adaptation model. Then it elects the representative and equitable sample, county of Shandong and Hubei Province, for investigative research to make sure reliability and validity of data.
The sixth module:survey result and data analysis. Making use of the SPSS software, it scientifically analyzes the questionnaire data in order to check the relative theoretical assumptions mentioned. At the same time, it makes relative illustrations and provides reasons with empirical and normative analysis.
The seventh module:result discussion and cause analysis. This part mainly focuses on summarizing and investigating the results from gather data and results, and exploring the reasons of difficulties in the reform from the perspectives of macro, meso and micro levels.
The eighth module:measures and research conclusions. According to the mentioned data analytic result, this part gives strategies to improve county government's public employment service system's fragmentary circumstance, applying historic study, comparison study and normative analysis. It moulds systematic contingency and uses "Networking Management""Labor Economic Theory""New Public Service""Complex Science Theory" in the perspective of Holistic Governance.
The ninth module:this module summarizes the paper's fruits and defects, and then indicates the direction of further study.
This paper has five innovations:
(1) Research fields:improvement and development of county government's public employment system is of great significance to tackle China's unemployment problems. Considering deficiency in the relative research field in domestic academic circles, the author chooses a typical county government's department of public employment service to conduct a omnibearing study, which possesses theoretical significance full of exploration in some extent.
(2) Method of studying mould:The thesis sets six-element systematic analysis model (that contains Environmental Supersystem, Object-Value Subsystem, Organizational Structure Subsystem, Management Subsystem, Sociopsychological Subsystem, Technical Subsystem) as the analyzing frame proposed by F.E.Kast and J.E.Rosenzweig, outstanding representatives of American systematic adaptation management school. And it also applies Networking Management, Complex Science Theory and Labor Economic Theory and other advanced scientific theory to assume the research over improvement of county regions'public employment service system, combining normative analysis and empirical study, institutional analysis and comparative analysis, qualitative analysis and quantitative analysis.
(3) The new visual angle:Holistic Governance Theory has gradually been the mainstream theoretic form that internationally directs governments'reforms, arousing an extensive attention in academic and political circles. In this situation, this thesis focuses on public employment service's fragmental problem as the starting point. And in the perspective of Holistic Governance Theory, it designs a new-style county government's public employment system, which is orientated by the society's demand for public employment service.
(4) Research viewpoint:In this paper, county government's public employment service's predicament was located in "fragment". The thesis comes up with holistic strategies to establish and improve county government's public employment system in six different views objectively and scientifically, applying relatively forward Holistic Governance Theory, combining profound system adaptation connotation, making use of multiple quantitative statistical analysis method.
引文
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