中國0—3歲托育服務需求與政策體系研究

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摘要摘要：投資更大範圍、更高質量的育兒照護是一個國家尋求人力資本積累和經濟轉型的重要戰略選擇，構建0—3歲嬰幼兒托育服務體系是促進人口長期均衡發展、積極應對人口老齡化的重要舉措。本書利用全國人口與家庭動態監測調查數據，分析中國家庭0—3歲幼兒托育服務需求特徵，探討家庭養育與生育支持政策對家庭生育意願、生育行爲、女性勞動決策與職業發展等產生的潛在影響，評估主要發達國家托育服務政策的實際效果，提出符合中國國情的0—3歲幼兒托育服務政策體系。2019年年末中國0—3歲幼兒入托率爲8.26%，入托孩子年齡主要集中在兩歲半以後，按照OECD的統計口徑（0—36個月），目前中國幼兒入托率僅爲4.29%，遠低於OECD國家的平均水平。入托家庭的月入托費用佔家庭月均收入比重爲14.57%。現有托育服務主要依託幼兒園，專業的0—3歲托育機構發展滯後。制約托育服務發展存在供給側和需求側兩方面因素：需求側主要來自父母觀念，認爲有人照看沒必要送、孩子年齡太小；供給側主要包括孩子年齡太小機構不接受、距離太遠/附近沒有托育機構、收費太高。家庭選擇托育機構時最關心的三個因素是安全條件、師資能力和離家距離。當前對於幼兒年齡自7個月（女性產假結束）起至3歲甚至接近4歲的近2.5—3.5年這段時間如何實現托育照料是存在制度缺失的，這樣的制度缺失會影響這期間女性的就業，女性可能在近3年的時間內與勞動力市場脫節使得其難以適應新的崗位需求，進而難以再次進入勞動力市場。有效的托育制度建設可以提高女性整體的勞動參與水平，有助於提高農村戶籍的外來勞動力從事生產率更高進而獲得更高收入的工作，最終從勞動參與率和收入提高兩個方面帶來潛在的社會經濟收益。對於受教育程度更高的城市戶籍女性來說，能夠從更完善的托育制度中減輕養育負擔，進而提高就業參與率，更加充分地實現其較高的人力資本帶來的收入以及對於經濟社會的實際貢獻。根據研究估算，全部來自托育制度釋放的就業潛力（包括參與率提高以及收入提高兩個方面）的實際經濟貢獻佔當前女性總經濟產出貢獻的4%—6%。幼兒入托率與一國的社會福利制度、經濟發展水平以及社會文化有關。經濟發展水平影響托育服務供給能力，但並不是一國入托率的主要決定性因素，社會福利模式更大程度上決定了托育服務供給體系，從而影響一國的入托率。傳統文化和價值觀在其中扮演着根深蒂固的作用，而人口結構轉變與經濟轉型形成了壓力，通過推動公共政策改變，加快家庭托育選擇方式的適應性調整。世界主要國家面向家庭的公共政策主要包括現金轉移支付、服務與實物補貼、稅收減免三類。政府公共投入對於促進托育服務社會化具有關鍵作用，家庭政策體系建設是提高入托率和入園率的重要保障。托育服務發展總體上有利於女性參與勞動力市場。托育服務的直接作用就是緩解家庭和女性在育兒照料中的壓力，實現政府、社會與家庭共同承擔養育責任，分擔養育成本。女性從育兒照料中釋放的生產力，通過參與勞動力市場發揮其價值，並作爲政府和社會發揮養育功能的經濟補償。托育服務有助於降低就業率性別差異，對於促進勞動力市場性別平等具有積極意義，托育服務鼓勵女性以兼職就業方式參與勞動力市場。托育服務發展的初衷之一是提高生育率，但入托率對生育率的實際作用尚不清晰。托育服務發展傾向於鼓勵女性延遲生育年齡，婚外生育比例提高是托育服務發展的另一個意料之外的作用。托育服務發展不僅僅解決幼兒照料問題，同樣也發揮早期教育開發的重要功能。2000年以來0—2歲平均入托率與15歲青少年PISA測試成績呈現顯著的正相關關係，入托率越高的國家，青少年閱讀水平越高，數學計算能力越強，科學素養也更高，男性和女性青少年都呈現類似特徵。托育服務體系應該能夠基本滿足各類家庭的托育需求，不同類型家庭的托育服務需求存在差異，差異體現在托育時間安排、托育方式、托育內容以及服務質量等方面。中低收入家庭的托育服務需求通過政府主導的公共托育機構或普惠性托育機構得以滿足，中高收入家庭的多樣化托育服務需求通過市場托育機構獲得。托育機構是承擔托育服務的載體，按照資源配置方式和運行機制基本上可以分爲兩大類：一類是政府主導的公共或準公共屬性的托育機構；另一類是發展托育服務市場，按照市場化方式建設各類托育機構。托育服務發展的政策工具，按照托育服務供給方和需求方可以分爲兩大類：對於服務供給方的各類托育機構，重點是鼓勵社會各方力量投入，刺激投資需求，擴大托育服務供給能力；對於服務需求方的各類家庭，重點是鼓勵他們根據自身情況將孩子送到托育機構，在降低養育成本的同時釋放家庭生產力。托育服務事業和托育服務市場的健康發展都需要一個良好的生態系統，有必要在師資力量、課程體系、行業監管、財政投入等方面強化保障機制。關鍵詞：托育服務；女性勞動參與；生育率；人力資本積累Abstract: Investing in high quality childcare is an important strategic choice for a country's accumulation of human capital and economic transformation.The construction of childcare service system for children aged 0-3 years is an important measure to actively deal with the aging.Using the data of the national population and family dynamic monitoring survey,this study analyzes the characteristics of the demand of childcare services for children aged 0-3 years in Chinese families,discusses the potential impacts of family support policies on reproductive preferences,reproductive behavior and female employment,evaluates the practical effects of childcare service policies in major developed countries,and provides reference for the con-struction of China's childcare service system for children aged 0-3 years.At the end of 2019,China'snursery attendance rate for children aged 0-3 years was 8.26%.According to the OECD's statistics（aged 0-36 months）,China's nursery attendance rate is only 4.29%,which is well below the OECD national average.The cost of childcare for a family is 14.57% per cent of household income.At present,the development of China's professional nursery institutions for children aged 0-3 years lag behind.The factors restricting the development of childcare services include supply-side and demand-side:The demand side mainly comes from the parents'attitude that children are too young to be sent; the supply side mainly comes from the fact that the nurseries are reluctant to accept children who are too young.At present,there is a lack of system in China's childcare services,which leads to women interrupting their occupation and facing difficulties in reentering the labor market.The childcare system can improve women's labor participation and help them achieve higher quality employment,thereby improving overall economic benefits.According to the study,the potential economic benefits of childcare account for 4 to 6 percent of women's total economic output.There are three main types of family-oriented public policies in the world's major countries: cash transfer payments,services and inkind subsidies,and tax breaks.The development of childcare servicesis generally conducive to women's participation in the labor market.The direct role of childcare services is to relieve the pressure on families and women in childcare and to realize the shared responsibility of government,society and the family for parenting.Childcare services help to reduce the gender gap in employment and play an important role in promoting gender equality in the labor market.One of the original intentions of the development of childcare services is to increase fertility,but the actual effect on total fertility rate is not clear.The development of childcare services tends to en-courage women to delay childbearing age.The development of childcare services has also played an important role in the development of early education.The average nursery attendance rate for children aged 0-2 years since 2000 was significantly positively correlated with the PISA test scores for teenager aged 15 years.In countries with higher nursery attendance rate,the higher the reading level of young people,the stronger the mathematical computing ability and the higher the sci-entific literacy.There are differences in the demand for childcare services in different types of families,mainly reflected in the timing of childcare,the way of childcare,the content of childcare and the quality of service.The demand for childcare services for lowand middleincome families is met through government-oriented public care institutions or inclusive childcare institutions,and the diversified demand for child-care services for middleand highincome families is met through market-oriented care institutions.For all kinds of care institutions on the service supply side,the emphasis is on encouraging the input of all social forces,stimulating investment demand and expanding the supply capacity of childcare services.For families on the demand side of services,the focus is on encouraging them to send their children to institutions of care,reducing the cost of parenting while freeing up family productivity.The healthy development of the childcare service and the childcare service market all need a good ecosystem,and it is necessary to strengthen the guarantee mechanism in the aspects of teach-ers,curriculum system,industry supervision and financial input.Key words:Childcare Services; Labor Force Participation Rate for Female; Total Fertility Fate; Human Capital Accumulation

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