城乡一体化中农民权利保护研究

中国城乡关系的转型是世界上绝无仅有的超大规模的社会变迁。在这一转型过程中，党的十八大提出了解决“三农”问题是全党工作的重中之重，城乡一体化是解决好“三农”问题的根本途径。这实际上就确定了城乡一体化成为我国“三农”工作的根本指针和基本精神。在学术界，城乡一体化问题逐渐开始演变为广为关注的学术热点。从农民权利视角研究城乡一体化，或者把城乡一体化研究和农民权利结合起来目前是不多的。许多学者还是从城乡布局、要素流动、信息化、城镇化等角度研究城乡一体化，把农民和农民的权利放在中心进行研究，尚有待加强。本书以城乡一体化中农民的权利为视角，以马克思主义理论为指导，深入研究农民权利的状况，分析农民权利受损的原因，以构建在城乡一体化进程中保护农民权利的宏观体系。本书正文是由导言和第一至五章两部分组成。导言部分主要是相关概念的厘定和国内外理论界对城乡一体化和农民权利保护的文献综述以及研究意义和研究方法。第一章是探讨我国城乡一体化中农民权利保护的理论渊源。指导我国进行中国特色社会主义建设的理论是马克思主义，指导我国城乡一体化中保护农民权利的依然是马克思主义。本章研究马克思主义经典作家马克思、恩格斯和列宁关于农民权利保护的思想的主要内容，探究了中国共产党以毛泽东、邓小平、江泽民、胡锦涛和习近平同志为代表的保护农民权利思想的发展脉络。第二章分析了城乡一体化和农民权利保护的内在逻辑。城乡一体化和农民权利保护应该紧密地结合在一起。一方面，城乡一体化要解决的实质问题是城乡居民的权利关系问题，重点是农民的权利。城乡一体化为解决农民权利问题提供了契机，为保护农民权利创设平等和有利的法律环境、社会环境和文化环境。另一方面，保护农民权利才能有效推进城乡一体化向前发展。农民权利保护状况是衡量城乡一体化得失成败的基本尺度。实现城乡一体化的发展目标，需要解决农民权利保护问题；解决农民权利保护问题才能突破城乡一体化发展瓶颈。总体来看，我国在推进城乡一体化中已经具备了保护农民权利的物质条件和思想条件。第三章从政治、经济、文化和社会权利的角度探讨了我国城乡一体化中农民权利保护存在的问题。城乡一体化中农民的政治权利缺损现状从农村社会公共事务的自主决定权、农民担任国家公职的权利和农民对国家权力监督的权利进行了探讨；农民的经济权利存在的主要问题有中国农民劳动权的缺失，特别是农民土地财产权缺失比较突出，存在着农民土地产权主体虚置，有地无权，有地无益或者少益，注重生存权忽略发展权。农业投资领域中的农民投资权利问题包括财政收益权问题和农民金融权问题，存在着贷款利率高、贷款条件严苛，手续烦琐，贷款金额少、贷款期限短等问题。城乡一体化中农民的文化权利存在的主要问题是农民文化生活权匮乏、文化基础设施使用权和服务权释放不足，农民的文化参与和管理权缺损，民主管理缺乏。我国农民社会保障权存在的问题是社会养老保险需求旺盛，但保障水平创新不够，保障权法制化落后，新型农村合作医疗保障力度和理赔范围不宽，内容不全面。城乡一体化中的环境权利存在的问题包括农民环境知情权缺失、农民环境参与权不足、环境使用权受到影响和农民环境侵害请求权很难得到保护等。城乡一体化中的农民受教育权利存在着教学设施不健全、师资力量薄弱和农民职业教育权难以得到保护等问题。留守儿童教育权利缺损、随父母进城的农民工子女教育权问题和农民工教育培训权问题，也是农民受教育权利缺损的重要表现。第四章对我国城乡一体化中农民权利缺损的原因进行分析。城乡二元结构对农民权利缺损影响深远。本章梳理了城乡二元结构的形成和运行机制，讨论了城乡二元结构形成后对农民的权利的影响，造成了向上流动机会的稀缺性、农民水平流动的非均衡性和权利的城乡差别。农民权利缺损也有其经济原因。农民权利实现水平与经济发展的程度息息相关，经济的迅速发展带来农民物质生活水平的提高，极大地增强了他们获取更多权利的欲望；同时也带动了交通和通信网络技术水平的迅速发展，为权利的保护提供了更加便利的条件，并与公共利益界定不清和利益分配不合理联系在一起。国际惯例对“公共利益”大多采取列举式或概括式进行严格界定，目的就是杜绝“因公之名”而发动侵权的可能。我国存在的公共利益界定不清和利益分配不合理等问题，最终导致农民的权利受损，国家的威信受到影响。城乡一体化中农民权利缺损的政治因素包括农村基层政府的自利性亢奋和政治沟通机制存在的缺陷。自利性亢奋导致乡级政府工作人员的个人利益突出，造成地方和部门利益膨胀并引发乡级政府机构利益扩张。政治沟通机制的缺陷主要表现为人民代表大会制度存在着代表结构不合理，保护农民利益力量不足，代表与选民缺乏有效联系，从而制约着农民权利的表达与传递。沟通机制问题还表现在信访制度的缺陷上。城乡一体化中农民权利缺损也有其文化诱因。传统文化对农民权利的负面影响主要有君权至上的服从意识、清官文化的负面影响和等级差序格局观念的不利浸润，另外农民整体素质不高，权利效能感低也是重要文化原因。第五章是城乡一体化中农民权利保护的宏观体系的建构。城乡一体化中农民权利保护应该坚持的核心原则包括坚持党的领导原则、维护政治稳定原则、注重公平正义原则、突出顶层设计原则、坚持有序渐进原则。在城乡一体化中要保护好农民权利，就要尊重农民的主体地位，承认农民是权利主体。这就要培养农民的权利意识，建立有效的农民利益表达机制。在城乡一体化中还要明确农民权利保护的责任主体，正确处理好责任主体和权利主体之间的关系。具体来说，就是要在处理国家权力与农民权利之间的关系时，农民权利是第一位的，国家权力是第二位的，把农民权利的保护和实现放在突出显要和中心的位置，确保农民权利的实现。在处理经济发展与农民权利矛盾的时候，以农民权利的保护和实现为底线来协调两者之间的矛盾，以实质平等为宗旨对农民权利保护尽到责任和义务。在农民权利的实现有赖于国家时，国家权力应为农民权利的实现创造条件、提供保护。国家责任主体地位的发挥主要通过对农村公共物品的财政支持、农业市场的财政调控和农民权利保护的法律确权来实现。除了为农村提供最低生活保障制度、公共卫生、义务教育财力支持，还要加强对农业信贷市场的调控，建立农业保险以及补贴制度。法律确权主要有完善农民权利的相关立法，建立违宪审查和违宪诉讼制度，规范农村行政执法，健全司法救济制度，多渠道增加法律援助经费，提高法律援助人员的数量和质量。要走集体化道路，发展集体经济。ABSTRACTThe transformation between urban and rural areas is the largest scale social change in the world.In this transformation process，the Eighteenth National Congress of the CPC has proposed that it is prior to other work to solve the problems of agriculture，countryside and peasants and the integration between urban and rural areas is the fundamental way to settle the problem.This fact determines the urban and rural integration become the fundamental and basic spirit of China's work of agriculture，countryside and peasants.In academic circles，integration of urban and rural has gradually evolved into an academic hotspot issues.It is not much from the perspective of peasants' rights to study the integration of urban and rural，or from Combination between urban⁃rural integration and t peasants' rights together.Many scholars study the urban⁃rural integration from the layout of urban and rural areas，factor mobility，information construction and so on.The perspective to put farmers' rights on the center for research，still needs to be strengthened.The dissertation would take the rights of peasants on the integration of urban and rural areas as the perspective，be guided by Marx theory，research their present status and analyze the cause of farmers' rights to be damaged，and construct the macro system to protect their rights in the urban⁃rural integration process.This dissertation is divided into the introduction and the five chapters.The introduction part mainly deals with related concepts and mades the literature review both on the integration of urban⁃rural areas and on the protection on their rights.It has showed the research significance and research method.The first chapter is to explore the theoretical origin of protecting the rights of the peasants during integration of urban and rural areas in China.The theory to guide Chinese socialist construction is the Marxism and the theory to protect peasants' rights during the integration of urban and rural in China is still the Marxism.The main contents of this chapter is to studie the thought of Marxist classic writers including Marx，Engels and Lenin to protect the rights of peasants，and to explore the development of Chinese Communist Party thought to protect the rights of the peasants with Mao Zedong，Deng Xiaoping，Jiang Zemin，Hu Jintao and Xi Jinping as its representatives.The second chapter analyzes the internal logicbetween the urban⁃rural integration and peasants' rights protection.The urban⁃rural integration should be close together with peasants'rights protection.On the one hand，the substantive issue of urban⁃rural integration is to solve the right problems of urban and rural residents，especially peasants' rights.The integration provides an opportunity to solve the problem of peasants' rights and to create equal and favorable legal，social and cultural environment.On the other hand，protection on the peasants' rights can effectively promote the development of urban⁃rural integration.The protection of peasant rights is the basic tool to measure the gain and loss of urban⁃rural integration.To achieve the development goals of urban⁃rural integration，protection issues of peasants' rights need to be solved.We must solve the problem of peasants'rights protection in order to break the development bottleneck of urban⁃rural integration.Chinese material and ideological condition have been met to promote peasants' rights protection during the urban⁃rural integration vigorously.The third chapter discusses the peasants' protection problems during the Chinese urban⁃rural integration from political，economic，cultural and social rights.The political rights defect of the peasants in the urban⁃rural integration includes The right to self⁃determine rural social public affairs，take the national public posts，supervise the state power and act jointly.The main problems of the peasants' economic rights have included deficiency of working right.Especially，lack of the peasants'land property rights is prominent.The hollow position of the subject of land property rights appeared.They have land but no right，or no interests or little interests.They pay attention to the survival right but ignore the right to development.Thepeasants' investment rights problems of agricultural field include ones of fiscal income right and financial right for peasants.They are facing high interest rate，loan conditions harsh，cumbersome procedure，less loan amount and short duration.The main problems of cultural rights existing in the urban⁃rural integration is the lack of peasants cultural life right，shortage to use the cultural infrastructure and service releasing，and the peasants' right defect of cultural participation and management.The social security right problems of the peasants is，although the demand of social endowment insurance demand is exuberant，security level of innovation is not enough，security right legalization is backward.The potency of new rural cooperative medical insurance is not enough and the scope of claim settlement range is narrow.The content is not comprehensive.The problems of the peasants' environmental right include the right to know the environment is losing，deficient environmental participation right，affected right to use environment and farmers'environmental rights cannot be guaranteed.The right problems to be educated include teaching facilities is not perfect and teaching staff weak.Their occupational education right cannot be guaranteed.As for Left⁃behind children education rights defects，the education right of children of migrant workers in town，the right problem of migrant workers to be educated and trained，these are all the performance of peasants' education rights defects.The fourth chapter has an analysis on the reason of the peasants' rights defect in the urban⁃rural integration.The dual economic⁃social structure between urban⁃rural areas has a profound side effect on the peasants'rights.This chapter reviews the mechanisms of formation and operation of the dual economic⁃social structure between urban⁃rural areas，discussed the influence of the structure on the peasants' rights.It cause the scarcity of the peasants' upward mobility opportunity，non⁃equilibrium of horizontal flow and the rights differences between residents of urban⁃rural areas.The defect reasons of peasants'rights are also connected with economic factors.The level of their rights to achieve is closely related with the level of economic development.The rapid development of the economy brings the increase of material living standard and greatly enhances their desire for more rights.At the same time it also has led to the rapid development of transportation and communication technology network，which provides more convenient conditions for their protection of the rights.It is connected with unclear definition and unreasonable distribution of public interests.International conventions on the public interest are strictly defined by list or generalization in order to put an end to infringement in the name of public interest.Chinese public interests are not clearly defined and the unreasonable distribution of interests finally affected the peasants' rights and national prestige.Political factors of the peasants' rights defect in the urban⁃rural integration include the rural grassroots government self⁃interest excitement and existing political communication mechanism problems.Such a self⁃excitement causes prominence of township government staff's personal interest and expansion of local and departmental interests，and trigger interest extension of the township government institutions.The defect of the political communication mechanism mainly lies in unreasonable representative structure in the people' s congress system.The deficient strength of the structure to protect the interests of the peasants and the lack of effective link between representatives and voters restricts the expression and the transmission of their rights.The problem of the communication mechanism is also reflected in the defect of the petition.The defect of the peasants' rights in urban⁃rural integration have Chinese cultural causes.The negative influence of traditional culture includes the sense of obedience to the monarchical power，the negative impact of a culture of honest and upright official，and adverse infiltration of grade difference pattern concept.Moreover，the low overall quality of the peasants and low right efficacy is an important cause of culture.The fifth chapter is to construct the macro system to protect the peasants' rights in the urban⁃rural integration.The core principles to protect peasants' rights should include of the Party leadership，political stability，the principle of fairness and justice，the principle of the top⁃level design and the principle of gradual and orderly development.To protect the peasants' rights in the urban⁃rural integration，we must respect their subject status and admit they are the subject of rights.This is to cultivate the awareness of their rights，to establish an effective mechanism for expressing their interests.In the integration，the main responsibility subject must be made clear and both should correctly handle the relationship between the power subject and the responsibility subject.Specifically，in the relationship between state power and the rights of farmers，we must emphasize the peasants' rights as the standard，give priority to protect and realize the peasants' rights.In dealing with the conflict between the economic development and the peasants' rights，we should take the protection and realization of their rights as the bottom line to coordination between the two，and take essential equality as the purpose to realize responsibility and obligation to protect.If the realization of their rights would depend on the nation，national power should create and provide protection conditions for them.The state responsibility subject status should play mainly through financial support of the public goods，agricultural market financial regulation and establishment of law.In addition we should provide financial support to the minimum life guarantee system，public health and compulsory education，strengthen the regulation and control of agricultural credit market，and establish agricultural insurance and subsidies.The law construction is mainly to improve the relevant legislation of their rights，establish judicial review and constitutional litigation system，regulate the rural administrative law enforcement，improve the judicial relief system，increase legal aid funds through multiple channels，improve the quality and quantity of legal aid workers.We should choose the road of collectivization in the future and develop collective economy.

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