「客工」生涯結束？中國大陸農民工社會保障制度變遷之探析

No Longer a Guest Worker? Institutional Changes of Social Security for Migrant Workers in China

本研究延續中國農民工社會公民權的討論，探討近年來中央與地方政府開展的農民工市民化政策變遷之脈絡。我們採用次級資料分析以及田野訪談的方式，說明農民工社會保障政策已出現制度變遷：首先，改革開放之初，發展主義至上以及國家在社會福利場域的缺位，民工保障制度面臨殘補式的保障制度與社會邊緣化的困境。但是，自2003年起，數個容納眾多外來人口的大城市開始為民工規劃一套參保及待遇標準皆低的保險體系。近年來，中國開始施行《社會保險法》，凡在城市正式就業的成員都有權利加入社保項目，不受戶籍身分的限制。同時針對農民工在客居地的生活需求，也有較強的政策支持。從這些農民工社會保障的制度變遷趨勢，可以看出其社會保障模式已逐漸從「制度性排除」、「既納入又排除」轉變到「以就業為基準」的保險模式。相較於以往的制度排除，農民工已經被賦予「勞動公民權」，可以有條件的享有城鎮社會保障待遇。

Social protection for migrant workers has become an important issue in China; and the government has made great endeavors in this policy area. This paper focuses on the citizenship discussion in China studies by examining the development of social welfare policies for rural migrants of the central government as well as the local practice of coastal regions with high concentration of migrant workers, such as Beijing, Shanghai, Zhejiang, and Shenzhen. Based on the survey data and expert interviews we conducted, we argue that significant institutional changes have been taking place in social security for migrant workers. While migrant workers were denied citizenship in terms of no entitlement to urban social security schemes due to their rural resident status during the early reform era, several coastal cities have begun establishing separate programs to meet migrant workers’ social needs and granted them access to some basic social provisions since 2003. Moreover, the central government has introduced new reforms in recent years allowing all urban employees to join the urban social insurance programs, regardless of their urban or rural resident status. These developments have set in motion significant changes in social security for migrant workers from “institutional exclusion” and “differential citizenship” to “employment-centered inclusion”, with current programs granting migrant workers social citizenship conditional on their labor participation.