唐代诗人王维的诗-经费请示报告

中国的人力资源状况
前 言
中国是世界上人口最多的发展中国家，13亿人 口中蕴涵着极其丰富的人力资源。积极开发人力资
源，充分发挥每个人的潜能和价值，促进人的全面发展 ，为国家现代化建设提供强大的人力和智
力支撑，实现由人力资源大国向人力资源强国的转变，是中国政 府始终面临的重大课题和不懈推
进的重大事业。
新中国成立后特别是20世纪70年代末实行 改革开放以来，中国政府坚持以人为本的理念，积极贯
彻“尊重劳动、尊重知识、尊重人才、尊重创造” 的方针，制定了一系列解决就业问题和发展教
育、科技、文化、卫生、社会保障事业的政策措施，努力为 实现人的全面发展创造良好的环境和
条件。当前，中国就业形势保持总体稳定，国民受教育程度和健康水 平显著提高，一大批国家建
设急需的各类人才脱颖而出，为推动中国经济社会各项事业发展发挥了重要作 用。
按照建立社会主义市场经济体制的要求，为推动科学发展，促进社会和谐，中国政府注重发挥市< br>场配置人力资源的基础性作用，大力推进经济、科技、教育等体制改革，不断深化干部人事制度
改 革，实施科教兴国战略、人才强国战略和积极的就业政策，建立和完善人力资源培养、吸引、
使用和保障 机制，加快人力资源法制建设，走出了一条适合中国国情的人力资源开发道路
中国人力资源的基本状况
人口众多、劳动力资源丰富是中国的基本国情。多年来，中国政府采取积极有效的政策措施，大
力加强人力资源的开发利用，使中国的人力资源状况发生了显著变化。人力资源规模不断扩大。
截至20 09年底，中国总人口达到133474万人（不含香港、澳门特别行政区和台湾省），其中，劳
动力资 源106969万人，比2000年增加11267万人；就业人员77995万人，其中，城镇就业人员311 20
万人，分别比2000年增加5910万人和7969万人。
国民受教育水平明显提高。 中国实行教育优先的发展战略，建成了比较完善的现代国民教育体系。
2000年实现了基本普及九年制 义务教育和基本扫除青壮年文盲的目标。高中阶段教育普及率大幅
伴随着中国经济社会的发展和人民生 活水平的提高，中国的人力资源事业有了长足进步。但中国
作为一个发展中国家，仍然面临着就业压力大 、人力资源结构性矛盾突出、高层次创新型人才匮
乏等问题。中国人力资源发展面临的机遇和挑战前所未 有。
在新的历史起点上，中国政府将坚持以人为本，关心人的全面发展，鼓励和支持人人都作贡献，< br>人人都能成才；坚持以促进教育公平为重点，以提高教育质量为核心，构建完备的终身教育体系，
让全体人民学有所教、学有所成、学有所用；坚持就业是民生之本，更好地实施扩大就业的发展
战略和更 加积极的就业政策，促进以创业带动就业；坚持人才优先，更好地实施人才强国战略，
突出培养创新型科 技人才，大力开发国民经济社会发展重点领域急需紧缺专门人才，统筹推进各
类人才建设；坚持管理创新 ，通过不断深化改革，扩大开放，破除不合时宜的体制机制障碍，营
造充满活力、富有效率、更加开放的 社会环境。
在未来的岁月里，中国人民的智慧与力量一定会更好地迸发出来，国家的发展与进步一定会 有更
加坚实的人力与人才资源基础
人才资源开发取得积极进展。人才是指具有一定的专业知识 或专门技能，进行创造性劳动并对社
会作出贡献的人，是人力资源中能力和素质较高的劳动者。中国政府 制定和实施一系列重大方针
政策，统筹推进党政人才、企业经营管理人才、专业技术人才、高技能人才、 农村实用人才和社
会工作人才等各类人才队伍建设。经过多年努力，人才资源总量不断增加，人才素质明 显提高，
人才结构进一步优化，人才使用效能逐渐提高。截至2008年底，全国人才资源总量达到1. 14亿人。

收入、卫生、社会保障等人力资源发展的保障条件逐步改善。随着社会经济持续 快速发展，城乡

居民收入实现了稳步增长。城镇居民人均可支配收入，由1949年的不 足100元人民币提高到2008
年的15781元人民币；农村居民人均纯收入由1949年的44元 人民币提高到2008年的4761元人民币。
国家大力开展公共卫生体系建设，为国民健康水平的提高 提供保障，截至2009年底，全国共有卫
生机构28.9万个、卫生技术人员522万人、医院和卫生 院床位396万张。近年来，中国政府大力推
动社会保障制度建设，加快建立覆盖城乡居民的社会保障体 系，努力实现人人享有基本生活保障。
2009年，城镇基本养老保险参保人数达23550万人；城镇 职工基本医疗保险、城镇居民基本医疗
保险和新型农村合作医疗保险参保人数合计超过12亿人；失业、 工伤和生育保险参保人数分别达
到12715万人、14896万人和10876万人。中国实行最低生 活保障制度，截至2009年底，有2347.7
万城镇居民和4759.3万农村居民享受了政府最低 生活保障。国家在全国范围内实施有计划、有组
织的大规模扶贫开发，2009年农村贫困人口减少为3 597万人，贫困发生率为3.6%
二、人力资源开发的法律体系
中国坚持依法治国方略， 积极推进民主立法、科学立法，为人人享有公正平等的发展权利，为科
学开发人力资源提供法制保障。经 过多年发展，中国逐步形成以宪法为根本依据，以劳动法、公
务员法为基础，以劳动合同法、就业促进法 、劳动争议调解仲裁法为主体，其他单项法律和行政
法规为重要组成部分的人力资源开发法律体系。
促进就业的法律制度
为实现扩大和稳定就业的发展目标，1994年中国颁布《中华人民共和 国劳动法》，明确提出国家
通过促进经济和社会发展，创造就业条件，扩大就业机会。2007年颁布《 中华人民共和国就业促
进法》，确立了国家执行“劳动者自主择业、市场调节就业、政府促进就业”的方 针，建立促进
就业的政府责任体系，实施有利于促进就业的产业、投资、财税政策，统筹城乡、区域和不 同社
会群体的就业，建立失业预警制度，完善公共就业服务制度、职业培训制度和就业援助制度。这些法律的实施，有效推动了经济发展与促进就业的良性互动。
国家保障劳动者依法享有平等就业和 自主择业的权利。1988年以来，颁布了《中华人民共和国残
疾人保障法》、《中华人民共和国妇女权 益保障法》、《中华人民共和国未成年人保护法》和《女职
工劳动保护规定》、《禁止使用童工规定》、 《残疾人就业条例》等法律和行政法规。《就业促进法》
专门设立了“公平就业”章，规定劳动者就业不 因民族、种族、性别、宗教信仰等不同而受歧视，
并特别指出农村劳动者进城就业享有与城镇劳动者平等 的劳动权利。
国家通过立法促进职业教育和职业培训。1995年以来，颁布了《中华人民共和国教育 法》、《中华
人民共和国职业教育法》、《中华人民共和国民办教育促进法》等法律，建立了“市场引导 培训、
培训促进就业”的职业教育与培训机制。依托各级各类职业院校和职业培训机构，完善多形式、< br>多层次的职业培训，形成不同层次教育相衔接、职业教育和普通教育相沟通的职业教育和职业培
训 制度。
国家积极规范专业技术人员的管理。1993年至今，中国颁布了《中华人民共和国教师法》、 《中华
人民共和国执业医师法》、《中华人民共和国律师法》、《中华人民共和国注册会计师法》、《中 华人
民共和国注册建筑师条例》等法律法规，对专业技术人员的资质条件、职业资格标准、接受继续教育权利以及职业道德规范作出明确规定，规范了专业技术人员的职业准入，提高了专业服务质
量。
公共人力资源管理的法律制度
1993年，中国颁布《国家公务员暂行条例》，实行公务员制 度。2006年开始施行《中华人民共和
国公务员法》，并陆续出台了公务员录用、培训、考核、奖励、 职务任免与升降、调任、处分、
申诉、辞去公职、辞退、录用考试违纪违规行为处理、新录用公务员任职 定级等一系列配套规章。
在机关与事业单位工资福利、事业单位人事管理、人才流动管理、人力资源宏观 调控等方面，国
家制定规范性文件1000多件，涵盖了公共人力资源管理的主要环节。

人力资源权益保护的法律制度
20世纪80年代中期，中国开始试行劳动合同 制度。到90年代，《中华人民共和国劳动法》正式确
立了劳动合同制度。2007年颁布的《中华人民 共和国劳动合同法》及此后出台的《中华人民共和
国劳动合同法实施条例》，进一步完善了劳动合同制度 ，明确用人单位和劳动者的权利和义务，
对劳动合同的订立、履行、变更、解除或者终止以及相应的法律 责任作出了明确规定，同时针对
劳动用工形式多样化的发展趋势，对劳务派遣和非全日制用工等行为专门 进行了规范。
中国积极发挥集体协商和集体合同制度的作用。《中华人民共和国劳动法》和《中华人民 共和国
劳动合同法》相继对集体合同制度作出了规定。鼓励企业积极开展集体协商，签订集体合同。逐< br>步形成以企业集体协商为主体、以区域性和行业性集体协商为补充的集体合同制度框架。近年来，
集体合同制度覆盖面不断扩大，实效性逐步增强，初步建立了以工会或职工代表与企业或企业组
织平等协 商为特征的集体劳动关系调整机制。
为公正、及时解决劳动争议，中国2007年颁布了《中华人民共 和国劳动争议调解仲裁法》，明确
劳动争议调解和仲裁的范围、程序、组织机构、人员和处理机制。建立 由政府部门、工会组织、
企业组织共同协调劳动关系的三方机制，强化调解、完善仲裁、加强司法救济， 及时妥善处理劳
动争议，维护当事人合法权益。颁布实施《劳动保障监察条例》，明确了劳动保障监察的 职责、
实施、法律责任，为维护劳动者的合法权益提供重要法律保障
三、履行政府公共管理服 务职责
近年来，中国政府积极发挥人力资源公共管理与服务的职能作用，加
快职能转变，健全政 府责任体系，努力为劳动者的体面劳动和优秀人才的脱颖而出，创造良好的
政策环境与社会环境。
实施积极的就业政策
长期以来，中国面临着劳动力供大于求的总量性矛盾，稳定和扩大就业的 任务十分繁重。中国政
府始终把促进就业作为经济社会发展的优先目标，以充分开发和合理利用人力资源 为出发点，实
施扩大就业的发展战略和积极的就业政策，促进城乡劳动者提高整体素质，逐步实现更加充 分的
社会就业。不断强化各级政府在促进就业方面的责任，持续加大公共投入，促进平等就业。通过加强就业援助，开展职业技能培训，帮助就业困难人员和零就业家庭实现就业。建设城乡统一的
人力 资源市场，为城乡劳动者提供平等的就业机会和服务。通过政策扶持和市场导向，解决了国
有企业300 0多万下岗职工再就业问题，实现下岗职工基本生活保障向失业保险的并轨。2005年至
2009年， 全国城镇新增就业5000多万人，农业富余劳动力向非农产业转移就业近4500万人。2009
年末 ，城镇登记失业人数921万人，城镇登记失业率4.3%。
2008年国际金融危机爆发后，为应对 国际金融危机的冲击，中国政府实施更加积极的就业政策。
实施困难企业缓缴社会保险费或降低部分社会 保险费率、相关税收减免等政策，鼓励企业稳定和
增加就业。实施特别职业培训计划，开展就业服务系列 活动，多渠道开辟就业岗位。以高校毕业
生就业为重点，大力促进高校毕业生到城乡基层、到中小企业和 非公有制企业就业。2009年全年
城镇新增就业超过1100万人，高校毕业生就业率达到87.4% ，下岗失业人员再就业超过500万人，
困难群体再就业超过150万人。
实施人才强国战略
人才是经济社会发展的第一资源，在国家现代化建设中发挥着越来越重要的作用。中国历来重视
人才工作，进入新世纪作出实施人才强国战略的重大决策，努力造就数以亿计的高素质劳动者、
数以千万 计的专门人才和一大批拔尖创新人才，建设规模宏大、结构合理、素质较高的人才队伍。
2001年，中 国政府将实施人才战略纳入国民经济和社会发展五年规划。2006年以来，加强对人才
资源开发的顶层 设计和系统规划，先后制定《国家中长期科学和技术发展规划纲要（2006—2020
年）》、《国家 中长期人才发展规划纲要（2010—2020年）》和《国家中长期教育改革和发展规划纲
要（201 0—2020年）》等三个国家中长期发展规划纲要，确立在经济社会发展中人才优先发展的
战略布局， 统筹城乡、区域、产业、行业和不同所有制人才资源开发，促进人人平等享受人才政

策和 平等参与人才开发，努力实现各类人才队伍协调发展。
为适应建设创新型国家的需要，中国政府设立“ 863计划”、“973计划”、国家科技支撑计划、
自然科学基金等国家科技计划（基金），建设国家 工程研究中心和国家工程实验室，实施“百千
万人才工程”、“长江学者奖励计划”等重大人才项目，不 断增加科技投入，实施专业技术人才
知识更新工程，培养造就了一支具有较大规模和较高水平的科技人才 队伍，引进了一批海外高层
次人才。2008年，全国研究与发展（R&D）折合全时人员达196.5 4万人年，其中科学家和工程师
159.34万人年，分别是1991年的2.9倍和3.4倍；全国设 立博士后科研流动站2146个、博士后科研
工作站1642个，博士后研究人员达7万多人。
为适应走新型工业化道路和产业结构优化升级的需要，中国政府实施国家技能人才振兴计划，建
立公共 实训基地和国家高技能人才培养示范基地，努力培养造就一支门类齐全、技艺精湛的技能
人才队伍。国家 大力培养农村实用人才队伍，实施农村实用人才素质提升计划和新农村实用人才
培训工程，全面提高农村 实用人才的科技素质、职业技能和经营能力，大力培养教师、医生、农
业技术人员等农村发展急需人才， 鼓励和引导各类人才向农村流动。
促进教育公平
全面实现城乡免费义务教育。从2006年 开始，中国政府改革并逐步调整完善了农村义务教育经费
保障机制，并从2008年开始，免除城市义务 教育阶段学生学杂费，将九年义务教育全面纳入国家
财政保障范围。
积极推进义务教育均衡发 展。坚持公共教育资源向农村地区、边远贫困地区和民族地区倾斜，实
施国家贫困地区义务教育工程、西 部地区农村寄宿制学校建设工程、农村中小学现代远程教育工
程、中西部农村初中改造工程、中西部地区 特殊教育建设规划等扶持计划，努力缩小城乡和区域
差距，保障困难群体接受教育。
健全国家 助学体系。中国政府在普通高校、职业学校实行国家奖学金、助学金和国家助学贷款等
制度，加大资助力 度，保障家庭经济困难学生不因贫困而失学。2009年底，中等职业学校学生受
助面达到90%，高等 学校学生受助面超过20%，资助学生4306万人次。从2009年开始，国家对中等
职业学校农村家 庭经济困难学生和涉农专业学生免除学费。
加强人力资源培训
国家把干部教育培训摆在突出 位置，制定颁布了《干部教育培训工作条例（试行）》、《2006—2010
年全国干部教育培训规划 》和《关于2008—2012年大规模培训干部工作的实施意见》。围绕政府
中心工作以及职位要求， 对公务员进行初任培训、任职培训、专门业务培训和在职培训，实施对
口培训计划，促进学历培训，实行 挂职锻炼，有效开发公务员人力资源，促进公务员职业的发展。
国家对专业技术人员实施专业技术人才 知识更新工程，有计划、有步骤地在经济社会发展和科技
发展的重要领域，对中高层专业技术人才，开展 新理论、新知识、新技术、新方法的专项培训，
2005年至2009年，共培训300万名中高级专业 人才。构建分层分类的专业技术人才继续教育体系，
充分发挥各方面积极性，逐步形成以需求为导向，政 府主导与单位自主相结合，个人履行义务与
自觉自愿学习相结合的继续教育运行机制。2009年，全国 专业技术人员参加继续教育达3000万人
次。为加强西部地区人才开发，中国政府制定《关于进一步加 强西部地区人才队伍建设的意见》，
实施新疆、西藏少数民族科技骨干和青海三江源地区专业技术人才培 养计划。2009年共培养2888
名少数民族科技骨干人才和急需专业技术人才。
针对不同 群体就业需要和劳动者职业生涯发展不同阶段需要，国家开展相应的职业培训，建立了
以技工学校为骨干 、职业培训机构为补充的职业培训体系，并充分发挥工会、共青团、妇联等人
民团体和社会组织在职业培 训等方面的作用。截至2009年底，全国共有技工学校和就业训练中心
6000多所、民办职业培训机 构2万多所；建立巾帼科技示范基地26万多个，为1.2亿人次妇女提供
各类教育培训，增强了妇女的 自我发展能力。针对城乡未能继续升学的初高中毕业生，实施劳动

预备制培训，帮助其掌 握一门职业技能或取得相应职业资格证书后再进入劳动力市场。针对失业
人员开展再就业培训，加强培训 的针对性、实用性和有效性，提高失业人员的再就业能力。针对
有创业愿望并具备一定创业条件的城乡劳 动者开展创业能力培训，提高其创办小企业的能力。针
对拟向非农产业和城镇转移的农村富余劳动力开展 职业技能培训，实施“阳光工程”、“农村劳
动力转移培训计划”、“星火科技培训”、“雨露计划”等 专项培训，提高其转移就业能力。
为全面提高劳动者素质，增强劳动者的就业能力和工作能力，199 4年以来，国家建立职业资格证
书制度。截至2009年底，全国累计有1843.3万人取得各类专业 技术人员职业资格证书；累计有超
过1亿人次取得不同等级技能人员职业资格证书。
完善人力资源公共服务
逐步增加公共投入。2008年，中国人力资本投资占GDP比例达到 10.75%。2009年，中央财政用于
教育支出1981.39亿元人民币，比2007年增长84 .1%；用于医疗卫生支出1273.21亿元人民币，比
2007年增长91.66%；用于就业和社 会保障支出3296.67亿元人民币，比2007年增长43.2%；用于科
学技术领域的支出151 2.02亿元人民币，比2007年增长51.2%。
完善公共就业和人才服务体系。建立县区以上综 合性服务机构，街道（乡、镇）社区服务窗口以
及就业训练、创业服务等服务实体，形成了覆盖省、市、 县（区）、街道（乡、镇）、社区（行政
村）的五级服务网络。截至2009年底，全国共有县（区）以 上公共就业和人才服务机构1万多个；
街道、乡、镇服务窗口共3.7万个，覆盖了97%的街道和89 %的乡、镇。公共就业和人才服务职能
不断增强，免费开展政策咨询、市场供求信息发布、职业介绍、职 业指导、就业援助、创业服务，
承担就业登记、失业登记管理，提供人力资源社会保障事务代理、档案管 理、考试认证、专家服
务等服务项目。
提高人力资源服务的信息化程度。实施“金保工程”， 初步建立以中央、省、市三级网络为依托，
覆盖全国的统一的劳动和社会保障电子政务系统。通过发行社 会保障卡，开通12333专用公益服
务电话号码、短信平台和建立政府服务网站等形式，为政策咨询、 信息获取、业务办理、个人账
户查询等提供便捷的信息化服务。
深化干部人事制度改革 改革开放以来，中国不断深化干部人事制度改革，先后颁布《深化干部人事制度改革纲要》和
《20 10—2020年深化干部人事制度改革规划纲要》，针对党政机关、事业单位和国有企业的不同
特点实 行分类管理，逐步形成广纳群贤、人尽其才、能上能下、公平公正、充满活力的干部人事
制度。
党政机关推行公务员制度。从进入队伍到职务晋升引进竞争机制，普遍推行公开选拔、竞争上岗
等竞争 性选拔干部方式，促进了优秀人才脱颖而出。2006年至2009年，全国通过考试共录用公务
员52 .8万余人。2003年至2009年，全国共公开选拔党政领导干部4万人，各级党政机关通过竞争
上 岗走上领导岗位的干部共33.9万人。在干部选拔任用、考核评价、管理监督等环节充分发扬民
主，民 主推荐成为干部选拔任用的必经程序，民意调查、民主测评得到广泛运用，干部工作民主
化程度进一步提 高。干部交流力度不断加大，重点部门、关键岗位领导干部交流形成制度，围绕
国家经济社会发展战略和 人才战略、地方经济社会发展布局和支柱产业及重大项目的建设，加强
了市、县和中央国家机关、省级党 政机关之间领导干部的相互交流，从中央国家机关和东部发达
地区选拔大批干部到西部地区挂职、任职。 2003年至2009年，全国机关干部共交流230.2万人。
完善职务任期、退休和辞退、辞职等制 度，推进干部能上能下，形成正常的更新交替机制。实行
国家统一的职务与级别相结合的公务员工资制度 ，合理体现了工作职责大小与工资高低的关系。
事业单位推行人员聘用制度。通过签订聘用合同，规范 单位和职工的人事关系。建立岗位设置、
公开招聘、竞争上岗、考核奖罚、辞职辞退等制度，逐步形成权 责清晰、分类科学、机制灵活、
监管有力的事业单位人事管理制度。截至2009年底，全国事业单位签 订聘用合同的人员达到80%。
2009年，22个省（区、市）事业单位新进人员中，采用公开招聘方 式的占总数80%以上。事业单

位实行岗位绩效工资制度，初步建立了与工作人员岗位职 责、工作业绩、实际贡献紧密联系和鼓
励创新创造的分配激励机制，调动了事业单位各类人力资源的积极 性和创造性。
国有企业人事制度不断健全完善。按照现代企业制度要求，国有企业推进规范董事会的建 设，为
企业持续快速健康发展提供了体制保障。建立健全企业经营管理人才选拔任用、业绩考核、激励< br>监督等管理制度。建立市场机制调节、企业自主分配、职工民主参与、政府监控指导的工资分配
制 度，促进了企业的发展和职工工资水平的提高。注重发挥市场配置人才的基础性作用，初步建
立起市场化 选人用人机制，2003年至2009年通过公开招聘、竞争上岗等方式选聘的经营管理人才，
从33. 4万人增加到52.1万人。
建立国家荣誉和表彰奖励制度
中国政府坚持精神奖励与物质奖 励相结合、以精神奖励为主的原则，建立健全国家荣誉和奖励制
度。
国家设立“全国劳动模范 ”和“全国先进工作者”荣誉称号，授予在国家建设事业中作出重大贡
献的劳动者。1989年以来，中 国政府一般每五年召开一次全国劳动模范和先进工作者表彰大会，
对全国各行各业涌现出的先进人物予以 表彰，其中授予工人、农民、企业管理人员等“全国劳动
模范”荣誉称号，授予机关事业单位工作人员“ 全国先进工作者”荣誉称号。截至目前共表彰
“全国劳动模范”和“全国先进工作者”14578人。
国家设立科学技术奖，奖励在科学技术工作中作出突出贡献的公民、组织。自2000年以来，共有27772人获得国家科学技术奖。其中有16名杰出科学家获得国家最高科学技术奖。国家设立科学
院和工程院院士称号，中国科学院院士和中国工程院院士是国家在科学技术领域和工程科技领域
设立的 最高学术称号，截至2009年底，共评选产生中国科学院院士1143人、中国工程院院士861
人。 自1990年起，中国政府实行政府特殊津贴制度，向作出突出贡献的专家、学者、技术人员和
高技能人 才颁发荣誉证书，发放政府特殊津贴。到2009年，全国共有15.8万人享受政府特殊津贴。
建立全 国优秀专业技术人才表彰制度，自1999年以来共有200人获得“全国杰出专业技术人才”
称号。建 立中华技能大奖和全国技术能手评选表彰制度，自1995年以来已有120人荣获“中华技
能大奖”称 号，2976人荣获“全国技术能手”称号，树立了一批中国高技能人才楷模人物。建立
全国农村优秀人 才表彰制度，自2000年以来已表彰了160名全国农村优秀人才
四、发挥市场配置的基础性作用
随着社会主义市场经济体制在中国的逐步建立，中国政府遵循人力资源开发的客观规律，以市场
配置人力资源为改革取向，尊重劳动者的自主择业权，努力培育和发展人力资源市场，逐步实现
人力资源 从计划配置到市场配置的转变。
人力资源市场配置机制基本形成
20世纪80年代以来，以 公有制为主体，多种所有制形式共同发展，逐步形成了多元化的市场用人
主体。1998年至2009年 ，在城镇从业人员中，国有单位就业人员从9058万人下降到6420万人，占
城镇就业人员总数的比 例从41.9%下降到20.6%；有限责任公司和股份有限公司就业人员从894万
人上升到3389 万人，占城镇就业人员总数的比例从4.1%上升到10.9%；私营单位和个体经济就业
人员从323 2万人上升到9789万人，占城镇就业人员总数的比例从15.0%提高到31.5%。
20世纪8 0年代中期以来，中国逐步改革计划经济体制下“统包统配”的固定工制度，落实单位用
工自主权和劳动 者自主择业权，以双向选择、自主协商、订立劳动合同作为确立劳动关系的基本
方式，增强了人力资源市 场的活力和效率。为适应建立社会主义市场经济体制的要求，中国政府
改革社会保障制度、户籍制度、高 校毕业生分配制度，不断破除劳动者自由流动的体制性障碍，
劳动者跨地区、跨部门、跨行业流动日趋活 跃。2009年，在各类人力资源服务机构登记求职的劳
动者达到9700万人次，成功实现就业和转换 工作的达到3600万人次，分别比2000年增加7700万人
次和2600万人次。同年，全国外出 就业和本地非农从业6个月以上的农村劳动力总数达到22978万

人，其中外出农民工 达到14533万人，就近到二、三产业实现就业的本地农民工达到8445万人。
人力资源服务业发展迅速
20世纪80年代以来，中国人力资源服务业发展规模和水平不断提 升。服务领域和内容日益多元化，
从最初的招聘服务、人事代理发展到包括培训服务、劳务派遣、就业指 导、人才测评、管理咨询
和人力资源服务外包等多种业务，形成较为完善的服务产业链。2008年，全 国各类人力资源服务
机构达4.9万余家，基本形成由公共就业和人才服务机构、民营人力资源服务机构 、中外合资人
力资源服务机构共同组成的多层次、多元化的人力资源市场服务体系。
中国加入 世界贸易组织以来，积极履行承诺，使进入中国市场的外资人力资源服务机构逐步增加。
2009年，中 国境内的中外合资人才服务机构从2003年的30家增加到160家
五、加强对劳动者权益的保护
尊重人的劳动权利，注重劳动者的权益保护，实现人的体面劳动，促进人的全面发展，是中国政
府一贯坚持的发展理念。中国政府采取一系列政策措施加强劳动者权益保护，有效促进人力资源
的良性发 展。
保障平等就业
近年来，中国政府加强统一规范的人力资源市场的建设与管理，努力打破 历史原因造成的城乡分
割、身份分割和地区分割等问题，消除人力资源市场的体制性障碍，形成城乡劳动 者平等就业的
制度。国家有关部门通过完善市场监管体系，开展人力资源市场执法检查活动，清理整顿市 场不
法行为，有力维护了求职者等市场主体的合法权益。
国家高度重视并保障妇女享有与男子 平等的劳动权利，努力消除阻碍妇女平等就业的壁垒。动员
和组织社会力量拓宽吸纳女性劳动力就业的渠 道，制定和执行扶持妇女自主创业的政策。充分发
挥各级妇联组织在反映妇女诉求、促进平等就业和同工 同酬、提供维权服务等方面的积极作用。
到2008年，全国就业人口中女性超过45.4%。
中国政府加强对残疾人就业的统筹规划，实行集中就业与分散就业相结合的方针，保障残疾人的
劳动权 利。制定和实施促进残疾人就业政策，规定用人单位安排残疾人就业的比例不得低于1.5%，
对安置残 疾人员达到职工总数25%比例的集中使用残疾人的用人单位给予税收优惠，指导和帮助
残疾人组织兴办 残疾人福利企业，鼓励和支持残疾人通过多种形式灵活就业。中国各级残疾人联
合会努力维护残疾人合法 权益，帮助残疾人平等参与社会生活。建立省、市、县级残疾人就业服
务机构3043个，专门为残疾人 提供就业援助服务。截至2009年底，全国城镇实际在业残疾人数
443.4万，农村残疾人有175 7万实现了稳定就业。
国家高度重视保障农民工权益。农民工是中国改革开放和工业化、城镇化进程中 出现的特殊劳动
群体，为国家经济和社会发展作出了重要贡献。2006年，国务院建立农民工工作联席 会议制度，
统筹协调和指导全国农民工工作。取消各种针对农民进城就业的不合理限制，加强劳动安全卫 生
培训，扩大农民工参加社会保险覆盖面，建立养老保险接续转移制度，实施“春暖行动”、“春
风行动”等专项扶持计划。截至2009年底，有8014.82万农民工成为工会会员，近80%的农民工随
迁子女在城镇公办中小学免费接受义务教育，全国参加工伤保险、医疗保险、城镇企业职工基本
养老保险、失业保险的农民工分别达到5587万人、4335万人、2647万人和1643万人。
建立劳动关系协调机制
全面推进劳动合同制度的实施。截至2009年底，全国规模以上企业 劳动合同签订率达到96.5%；
劳动合同内容趋于规范，劳动合同履行情况良好。积极推进集体协商和 集体合同制度，增进劳动
者与用人单位之间的相互理解和信任，推动劳动关系双方互利共赢。截至200 9年底，全国当期有
效集体合同达到70.3万份，覆盖职工9400多万人。

充分发挥协调劳动关系三方机制的作用。2009年，全国地级以上城市和26个省份的县（市）区建
立了由政府、工会和企业方面代表组成的协调劳动关系三方机制，各级协调劳动关系三方机制组
织共计1 .4万多家。协调劳动关系三方机制围绕劳动关系的重大问题，积极沟通，加强合作，消
除分歧，在促进 劳动关系和谐稳定中发挥了重要作用。
大力推动和谐劳动关系创建活动。2006年，中国开始开展“ 创建劳动关系和谐企业与工业园区”
活动，通过制定、实施和谐劳动关系创建标准、推动建立劳动关系协 调机制、表彰先进典型等措
施，促进企业和工业园区内劳动关系的和谐稳定。截至2009年底，全国3 1个省（区、市）开展了
和谐劳动关系创建活动。
积极发挥工会组织的重要作用。中国工会组 织是职工利益的代表者和维护者，在创建和谐劳动关
系的过程中，发挥着重要的、不可替代的作用。20 09年，全国基层工会组织有184.5万个，覆盖
企事业机关单位395.9万家，全国工会会员总数 达2.263亿人。各级工会组织积极履行维权职责，
帮助指导劳动者与用人单位依法订立劳动合同，代 表职工与企业开展集体协商和签订集体合同，
组织职工参与本单位民主决策、民主管理和民主监督，参与 劳动人事争议调解仲裁，为职工提供
法律服务，督促用人单位遵守国家法律法规。
加强对企业 职工的人文关怀。近年来，针对个别企业用工方面存在的问题，中国各级政府采取积
极措施，督促、倡导 企业切实加强对职工的人文关怀，改善职工生产生活条件，完善职工诉求表
达机制，建立职工交流互助平 台，开展职工心理健康咨询服务。同时积极引导社会舆论，努力形
成共建和谐劳动关系的良好社会氛围。
公正及时解决劳动人事争议
通过调解仲裁解决劳动人事争议，是一项具有中国特色的权益救济 和保障制度。仲裁委员会由政
府行政主管部门代表、工会代表和用人单位代表三个方面组成，以保证争议 案件审理过程的透明
度和公正性。截至2009年底，中国共有仲裁办案机构4800多个、仲裁员3. 3万人。
劳动人事调解仲裁工作遵循公正原则，鼓励协商，先行调解，及时妥善处理劳动人事争议，维 护
当事人合法权益。2009年，全国各级劳动人事争议仲裁机构共处理劳动人事争议案件87.5万件 ；
立案受理劳动争议案件68.4万件，比上年下降1.3%；涉及劳动者101.7万人，比上年下降 16.3%。
依据中国法律，当事人对劳动人事争议仲裁裁决不服的，可以向人民法院提起诉讼。200 9年，中
国各级人民法院审结劳动争议案件31.7万件，有效维护了当事人双方合法权益。
加大劳动保障监察力度
劳动保障监察执法是维护劳动者合法权益的重要途径。劳动保障监察机 构的主要职责是，积极宣
传劳动保障法律法规，接受并依法查处劳动者投诉举报案件，并主动对用人单位 守法情况进行监
督检查。截至2009年底，中国共建立劳动保障监察机构3291个，配备专职监察员 2.3万名。
近年来，劳动保障监察机构开展专项检查，对违反劳动保障法律法规的突出问题进行集中 整治；
加强对社会反映强烈的重大违法案件的专项督办工作，及时组织查处。通过监察执法，保障了劳< br>动者在职业介绍、劳动合同签订、工作时间、工资支付、社会保险、特殊劳动保护等方面权益的
落 实。2009年，全国劳动保障监察机构共主动检查用人单位175.1万户，涉及劳动者9029.8万人，< br>查处各类劳动保障违法案件43.9万件，督促用人单位为1073.7万名劳动者补签劳动合同。 从2009年起，中国政府在全国60个城市开展了劳动保障监察网格化、网络化管理工作试点，对用
人单位进行全面动态监管，实现对劳动纠纷的早期预防和及时介入。试点工作取得良好成效，即
将在全 国范围逐步推行
六、积极开展国际交流与合作
中国政府高度重视人力资源领域的国际交流与 合作，认真履行国际义务，不断拓宽渠道和领域，

推动形成全方位、多层次的交流与合作 格局。
中国尊重《联合国宪章》促进人权和基本自由的宗旨与原则，致力于维护人的生存权和发展权，
合理确定、依法颁布和逐步完善劳动标准。中国政府结合本国经济社会发展实际，先后批准了《男
女同工同酬公约》、《准予就业最低年龄公约》、《消除最恶劣形式童工公约》、《消除就业和职业歧
视公约》等25个国际劳工公约，并积极实施有关公约。中国不断完善本国人力资源开发的法律法
规，推 动包括国际劳工组织核心劳工公约的批准进程。
中国政府高度重视与国际劳工组织、联合国开发计划署 、亚太经合组织、世界银行、亚洲开发银
行等国际组织或机构建立人力资源领域的合作关系，积极发展与 其他国家或地区双边或多边的人
力资源交流与合作。中国政府自1983年正式恢复在国际劳工组织的活 动以来，积极参加国际劳工
事务，在促进就业、完善社会保障制度、建立和谐劳动关系以及制定劳动法律 法规方面开展了一
系列国际合作。2004年和2007年，中国与国际劳工组织共同举办了“中国就业 论坛”和“亚洲就
业论坛”。自1992年以来，中国政府积极参与亚太经合组织人力资源开发领域的合 作并发挥出重
要作用。2001年，中国成功举办亚太经合组织人力资源能力建设高峰会议，通过了《北 京倡议》。
2010年9月，第五届亚太经合组织人力资源开发部长级会议在北京举行，为亚太各经济体 讨论金
融危机后的就业、人力资源开发等提供重要平台。中国1994年加入国际社会保障协会成为正式 会
员。2004年第28届国际社会保障协会全球大会在北京召开，通过了《北京宣言》。截至2009 年底，
中国政府人力资源和社会保障部门已经与80多个国家和一些重要的国际组织建立了合作伙伴关< br>系。为便利人员流动，中国先后与德国、韩国签署了社会保险互免协定。
改革开放以来，中国实 施更加开放的人才政策。中国政府坚持“支持留学、鼓励回国、来去自由”
的留学方针，努力拓宽留学渠 道，积极吸引人才回国，为留学人员回国工作、为国服务、回国创
业提供支持，创造良好的生活和工作环 境。从1978年至2009年底，中国各类出国留学人员总数达
162.07万人，留学回国人员总数 达49.74万人。实施“中国留学人员回国创业启动支持计划”和
“海外赤子为国服务行动计划”，鼓 励和吸引海外留学人员回国工作、创业。中国重视和支持外
国公民来华留学，从1978年至2009年 ，中国接受的来华留学人员累计达到169万人次，辐射190个
国家和地区。中国积极利用国际教育培 训资源培养人才，实施领导干部经济管理培训项目、高级
公务员海外培训项目等培训计划，2009年共 选派5.02万人出国（境）培训。中国积极协助联合国
在华举行“国家竞争考试”，推荐优秀人才到国 际组织任职，截至2009年底，共有1002名中国国
际职员在各类国际组织中任职。中国政府积极引 进国外智力，2009年来中国大陆工作的境外专家
约48万人次。2009年末持外国人就业证在中国 工作的外国人共22.3万人。截至2009年底，中国累
计授予1099名外国专家“友谊奖”，授予 43名外国专家“国际科学技术合作奖
结束语
伴随着中国经济社会的发展和人民生活水平的 提高，中国的人力资源事业有了长足进步。但中国
作为一个发展中国家，仍然面临着就业压力大、人力资 源结构性矛盾突出、高层次创新型人才匮
乏等问题。中国人力资源发展面临的机遇和挑战前所未有。 < br>在新的历史起点上，中国政府将坚持以人为本，关心人的全面发展，鼓励和支持人人都作贡献，
人 人都能成才；坚持以促进教育公平为重点，以提高教育质量为核心，构建完备的终身教育体系，
让全体人 民学有所教、学有所成、学有所用；坚持就业是民生之本，更好地实施扩大就业的发展
战略和更加积极的 就业政策，促进以创业带动就业；坚持人才优先，更好地实施人才强国战略，
突出培养创新型科技人才， 大力开发国民经济社会发展重点领域急需紧缺专门人才，统筹推进各
类人才建设；坚持管理创新，通过不 断深化改革，扩大开放，破除不合时宜的体制机制障碍，营
造充满活力、富有效率、更加开放的社会环境 。
在未来的岁月里，中国人民的智慧与力量一定会更好地迸发出来，国家的发展与进步一定会有更加坚实的人力与人才资源基础
China's Human Resources

Foreword
China is a developing country with the largest population in the world. Its 1.3 billion people are a vast reservoir of
human resources. Actively developing human resources, bringing into full play the po-tential ability and value of each
individual and promoting the people's all-round development so as to provide powerful labor and intellectual support
for China's modernization drive and to realize its transformation from a country rich in human resources to one with
powerful human resources, is a significant aim the Chinese government has been cher-ishing and a major undertaking it
has been unremittingly advancing.

Since the founding of New China in 1949, and especially since the reform and opening-up policies were introduced in
the late 1970s, the Chinese government, upholding the idea of putting people first, has ac-tively implemented the
principle of respecting labor, knowledge, talent and creativity, and has adopted a series of policies and measures to
boost employment and develop education, science and technology, culture, public health and social security, striving to
create a favorable environment and conditions for the people's all- round development. Currently, China's employment
situation is stable on the whole; the people's education and health levels have been remarkably improved; and a galaxy
of talented people in various fields urgently needed by national construction has appeared. They are playing an
important role in promoting the development of all economic and social undertakings.

In accordance with the requirements of the socialist market econ-omy system, and to promote sustainable development
and social har-mony, the Chinese government pays attention to the fundamental func- tion of the market in deploying
human resources, while vigorously promoting institutional reforms in the fields of economy, science, technology and
education, constantly deepening the reform of the cad-re related system, and pursuing the strategy of rejuvenating the
country through science and education and that of strengthening the nation with trained personnel, and a proactive
employment policy. It has also established and improved the human resources development mecha-nism to train, attract,
use and support talented people, and accelerated human resources legal construction, thereby opening up a human
re-sources development path conforming to China's national conditions

I. The Basic Situation of China's Human Resources
A large population and rich human resources constitute the basic national situation of China. For years, the Chinese
government has pursued proactive and effective policies and measures to enhance the development and utilization of
human resources, bringing about re-markable changes in this field.

Human resources growing in scale. By the end of 2009 China's total population had reached 1.33474 billion (excluding
that of the Hong Kong and Macao Special Administrative Regions and Taiwan Province), which contains a labor force
of 1.06969 billion persons, 112.67 million more than in 2000; the number of employees had reached 779.95 million, of
whom 311.2 million were urban employees, increases of 59.1 million and 79.69 million, respectively, compared with
the year 2000.
chart 1 Changes in Labor Force (2000-2009) (Unit: 10,000 people) Chart 2 Changes in the Number of Employees in
Urban and Rural Areas (2000-2009) (Unit: 10,000 people)

Remarkable improvement of education. China gives priority to education in its development strategy, and has
established a com-paratively complete national modern educational system. In 2000 Nine-Year Compulsory Education
was made universal throughout the country, and illiteracy among people between the ages of 20 and 50 was basically
eliminated. The number of teenagers attending senior middle school has increased greatly; vocational education has
been especially enhanced; and higher education is becoming more popular. In 2009 the total number of senior middle
school students in China amounted to 24.3428 million; students at various secondary vocational schools numbered
21.9516 million; undergraduates studying at all sorts of universities and colleges numbered 21.4466 million and
postgradu-ate students 1.4049 million. The development of national education has remarkably raised employees'
educational level. By the end of 2009, the average schooling of people above 15 years old had reached nearly 8.9 years,
while that of the majority of the working population was 9.5 years, of which 9.9% had received higher education. The

average edu-cation time of newly increased labor force amounted to 12.4 years.
Chart 3 Changes in the Number of University and College Graduates (2001-2009) (Unit: 10,000 people)

Optimized employment structure. With China's economic de-velopment and industrial structure adjustment, the
proportion of those employed in primary industry has dropped significantly while that in tertiary industry has risen
greatly. In 2009 the proportion of employ-ment in primary, secondary and tertiary industries changed to 38.1%, 27.8%,
and 34.1% from 50%, 22.5% and 27.5%, respectively in 2000.
Chart 4 Changes in the Employment Structure of Primary, Secondary and Tertiary Industries (2000-2009)

Good progress in talent development.

People having professional knowledge or special skills who con-tribute to society through creative work are highly
regarded in China. They are a high-ability and high-quality labor force among human re-sources. The Chinese
government has drawn up and implemented a se-ries of major principles and policies to advance the building of
contingents of people of all kinds for the Party and government, enter-prise operation and management, professional
techniques, high tech-nology, rural affairs and social work in an all-round way. Through years of efforts, the number of
talented people has maintained a stable increase, with improved quality, optimized structure and gradually ris-ing
utilization efficiency. By the end of 2008 the total number of such people in China had reached 114 million.

Gradual improvement of income, health care and social se-curity as guarantees for human resources development.

With the country's sustained and rapid socioeconomic develop-ment, the income of urban and rural residents has
maintained a stable growth. The average disposable income of urban residents increased from less than RMB 100 yuan
in 1949 to 15,781 yuan in 2008; and the average net income of rural residents increased from RMB 44 yuan in 1949 to
4,761 yuan in 2008. Great efforts have been mobilized to build up the public health system so as to provide guarantee
for improving the health of people nationwide. By the end of 2009 there were 289,000 medical institutions nationwide,
5.22 million medical workers and 3.96 million hospital beds in total. In recent years, the Chinese government has
vigorously accelerated the building of the social secu-rity system to cover rural and urban residents and to provide basic
life assurance for each individual. In 2009, urban basic retirement insur-ance covered 235.5 million people; the total
number of urban employ-ees covered by basic medical insurance, urban residents covered by basic medical insurance
and people in the countryside covered by the new rural cooperative medical insurance reached 1.2 billion;
unemployment insurance, work- related injury insurance and maternity insurance covered 127.15 million, 148.96
million and 108.76 million people, respectively. China implements a subsistence allowance sys-tem. By the end of
2009, 23.477 million urban residents and 47.593 million rural residents had enjoyed subsistence allowances from the
government. China has implemented planned and organized large- scale poverty relief programs throughout the country.
In 2009, the rural population living in poverty was reduced to 35.97 million, with the nationwide poverty rate dropping
to 3.6%
II. Legal System for Human Resources Development
II. Legal System for Human Resources Development

Adhering to the strategy based on the rule of law, China actively promotes democratic and scientific legislation to
provide legal security for the fair and equal rights of individual development for everyone, and the scientific
development of human resources. Through years of development, China has established a human resources
development legal system with the Constitution as the essential basis, the Labor Law and the Civil Servant Law as the
foundation, the Labor Contract Law, the Employment Promotion Law, and the Law on Mediation and Arbi-tration of
Labor Disputes as the main contents, and other separate laws and administrative regulations as major components.

Legal system for promoting employment

To achieve the goal of expanding and stabilizing employment, China promulgated the Labor Law of the People's

Republic of China in 1994, which expressly states that the state strives to create job op-portunities and expand
employment through promoting economic and social development. The Employment Promotion Law of the People's
Republic of China adopted in 2007 has laid down the principle of
based on market forces and the promotion of employment by the government,
responsibility system for promoting employment, the implementing of industry, investment, finance and taxation
policies favorable for boosting employment, making an over- all plan for balanced employment between urban and rural
areas, in various regions and among different social groups. According to this Employment Promotion Law the state
will establish an unemployment precaution system, improve the public employment service, vocational training and
employment aid systems. The enforcement of these laws has greatly facilitated the interaction between economic
development and employment promotion.

The state ensures that workers in China enjoy the rights of equal employment and independent job-seeking in
accordance with the law. Since 1988 China has promulgated the Law of the People's Republic of China for the
Protection of Disabled Persons, Law of the People's Republic of China for the Protection of Women's Rights and
Interests, Law of the People's Republic of China for the Protection of Minors, Regulations Concerning the Labor
Protection of Female Staff and Workers, Provisions Concerning the Prohibition of the Use of Child Labor, Regulations
on the Employment of the Disabled, and other laws and administrative regulations. The Employment Promotion Law
has a special chapter on equal employment, which stipulates that no em-ployees shall be discriminated against on the
grounds of ethnicity, race, gender and religion, and specially provides that rural employees work-ing in cities should
enjoy the same labor rights as urban employees.

The state also promotes vocational education and training through legislation. Since 1995 China has promulgated the
Education Law of the People's Republic of China, Vocational Education Law of the Peo-ple's Republic of China, Law
of the People's Republic of China on Promotion of Privately-run Schools and similar laws, and has estab-lished a
vocational education and training mechanism on the principle of
on vocational education institutions and training organizations at various levels, China has
improved multi-form and multi-level vo-cational education, and formed a vocational education and training system
connecting education at various levels, and linking vocational education with general education.

Proactive efforts have been made by the state to standardize the management of professional and technical staff. Since
1993 China has promulgated the Teachers Law of the People's Republic of China, Law of the People's Republic of
China on Medical Practitioners, Law of the People's Republic of China on Lawyers, Law of the People's Republic of
China on Certified Public Accountants, Regulations of the People's Republic of China on Certified Public Architects,
and other related laws and regulations. These laws and regulations stipulate the qualifi-cations and certificate standards
of professional and technical staff, and their right to receive continuing education as well as their professional ethics,
thereby standardizing the employment requirements for profes-sional and technical staff and improving the quality of
professional services.

Legal system for public human resources management

In 1993 China promulgated the Interim Regulations on Civil Ser-vants, which launched the civil service system. The
Civil Servants Law of the People's Republic of China went into effect in 2006, since when a series of related
regulations have been issued concerning the employ-ment and training, assessment and award, appointment and
removal, promotion, demotion and transfer, punishment and appeal, resignation and dismissal of civil servants,
penalties for violating civil service en-trance examination rules, and appointment and ranking of new recruits. Over
1,000 regulations have been issued, covering the major compo-nents of public human resources management, including
the wages and welfare of employees in government departments and public institu-tions, human resources management
in public institutions, personnel mobility management and macro-control of human resources.

Legal system for human resources rights protection

In the mid-1980s China started the trial implementation of the la-bor contract system, which was officially established
through the promulgation of the Labor Law of the People's Republic of China in the 1990s. The Labor Contract Law of
the People's Republic of China, promulgated in 2007, and the later Regulations on the Implementa-tion of the Labor
Contract Law of the People's Republic of China, have further improved the labor contract system, specified the rights
and obligations of employers and employees, the rules for signing, implementing, revising, canceling or terminating
labor contracts and corresponding liabilities, and, taking into account the trend toward diversified forms of employment,
made provisions about how to regulate labor dispatch services and part-time employment, and other aspects.

Collective consultation, together with a collective contract system, is being actively implemented in China. The Labor
Law of the Peo-ple's Republic of China and the Labor Contract Law of the People's Republic of China both prescribe a
collective contract system, encour-aging enterprises to adopt collective consultation and to sign collective contracts.
The framework of the collective contract system with collec-tive enterprise consultation as the main body, and with
regional and trade collective consultation as the supplement, has been gradually formed. In recent years, the coverage
of the collective contract system has been continuously enlarged with increasing effectiveness. A col-lective labor
relations coordination system characterized by equal consultation between trade union or employee representatives and
en-terprise or enterprise organization representatives has been basically established. For the fair and timely settlement
of labor disputes, the Law of the People's Republic of China on Mediation and Arbitration of Labor Disputes was
adopted in 2007, stipulating the scope, procedures, or-ganizations, personnel and mechanism for labor dispute
mediation and arbitration. In addition, a tripartite labor relations coordination mecha-nism has been established,
comprising government departments, trade unions and enterprises, so as to better mediate and arbitrate labor disputes
and give better legal redress for the timely and appropriate settlement of labor disputes and safeguarding the legitimate
rights and interests of the relevant parties. The Regulations on Labor Security Supervision have been issued and put
into effect, specifying the func-tions, implementation and legal liabilities of labor security supervision, thereby
providing significant legal support for safeguarding the legiti-mate rights and interests of employees
III. The Government Shoulders Human Resources Public Management and Public Service Responsibility
In recent years the Chinese government has played an active role in public management of and public service for
human resources, accel-erated the transformation of its functions, and improved the govern-ment accountability system,
to create a favorable policy and social environment for workers to work with dignity and for talented people to excel
others.

Implementing an active employment policy

Long facing the difficulty that supply of labor outstrips demand, China always has the arduous task to secure stable
employment and create more jobs. The Chinese government always makes employment promotion the top priority for
economic and social development. To fully develop and make effective use of human resources, it imple-ments a
strategy that promotes job creation and a policy that actively increases employment, and strives to help urban and rural
workers en- hance their overall qualities, gradually expanding employment. The government is shouldering more
responsibilities in promoting em-ployment, and government investment has been increased to provide equal
employment opportunities for all. By intensifying its efforts in offering employment assistance such as occupational
skill training courses, the government helps zero-employment families and people who have difficulty finding
employment land jobs. A unified labor market has been set up to provide equal opportunities and services for both
urban and rural workers. Relying on policy support and market orientation, the government has solved the
re-employment problem for over 30 million workers laid off by state-owned enterprises, and incorporated subsistence
allowances of laid-off workers into their unemployment insurance. From 2005 to 2009, over 50 million new jobs were
provided in urban areas, and nearly 45 million surplus rural workers were transferred to non-agricultural sectors. At the
end of 2009 the number of registered unemployed persons in urban areas was 9.21 million, with an unemployment rate
of 4.3%.

After the 2008 financial crisis swept the world, the Chinese gov-ernment adopted a more active employment policy to

meet the chal-lenge. For enterprises in difficulties, it postponed their payment of social insurance premiums or lowered
the rate of some social insurance premiums; and it adopted relevant tax reduction or exemption policies, encouraging
enterprises to maintain or increase their levels of em-ployment. Moreover, the government carried out a special
vocational training program, and launched a series of employment service activi-ties, striving to create more jobs
through multiple channels. Focusing on college graduates, it encouraged them to find jobs at the primary level, in
medium-sized and small, and non-public enterprises. In 2009 a total of 11 million urban jobs were created; the
employment rate of college graduates reached 87.4%; over five million laid-off workers found new jobs; and over 1.5
million people with difficulty finding jobs got re-employed.

Implementing the strategy of rejuvenating China through human resources development

Human resources are the primary factor in economic and social development, and are playing an increasingly important
role in China's modernization. China has always paid great attention to human re-sources development. In the new
century, China has made a major de-cision to rejuvenate the nation through human resources development, aiming to
train thousands of millions of high-quality workers, hun-dreds of millions of professionals and a large group of
top-notch inno-vative personnel, and set up a large-scale and rationally structured contingent of high-caliber personnel.
In 2001 the Chinese government incorporated this strategy into the Five-Year Plan for National Eco-nomic and Social
Development. Since 2006 it has intensified efforts in the sphere of top-level design and systematic planning of human
re-sources development. It formulated the Outline of the National Plan for Medium- and Long-term Scientific and
Technological Develop-ment (2006-2020), Outline of the National Plan for Medium- and Long- term Human Resources
Development (2010-2020) and Outline of the National Plan for Medium- and Long-term Educational Reform and
Development (2010-2020), focusing on a strategy of prioritizing human resources development in the course of
economic and social development. The plans formed the country's guidelines on the overall development of human
resources in urban and rural areas, among dif-ferent regions, industries and trades, and among the public and
non-public sectors, ensuring that everyone has an equal opportunity in benefiting from related policies and participating
in human resources development, and striving to realize a coordinated development of human resources of all types.

To meet the need of establishing an innovative nation, the Chinese government has launched the National High-tech
R&D Program (863 Program), National Key Basic Research Program (973 Program), Na-tional Key Technology R&D
Program, National Natural Science Foundation and other national programs and foundations. It has also built the
National Engineering Research Center and the National En-gineering Laboratory, implemented the Skills Training Plan
of the Thousand Project,Changjiang Scholars Program and some other major human
resources-related programs. In addition, it has invested more in science and technology and imple-mented the Project
on Upgrading the Knowledge of Technical Profes- sionals. As a result, it has trained a large number of scientific and
technical professionals with high qualifications, and attracted high-caliber personnel from overseas. In 2008 the
full-time R&D per-sonnel nationwide reached 1,965,400, some 2.9 times the 1991 figure. Among these there were
1,593,400 full-time scientists and engineers, 3.4 times the 1991 figure. A total of 2,146 centers for post-doctoral studies
and 1,642 post-doctoral workstations were set up, and the number of post-doctoral researchers exceeded 70,000.

To meet the needs of taking a new road to industrialization and op-timizing and upgrading the industrial structure, the
Chinese govern-ment has implemented the National Plan for Developing Skilled Personnel, set up public training bases
and national demonstration bases for the training of highly-skilled personnel, and striven to create a contingent of
skilled personnel for different industries. The state has made great efforts to train people with practical skills for the
country-side, implemented a plan to enhance these people's quality and put in place a project to train such people for
the new countryside, and worked hard to improve the scientific and technical attainments, voca-tional skills and
business capabilities of such people. It has also trained teachers, doctors and agricultural technicians to meet the urgent
needs of rural development, and encouraged and guided personnel with dif-ferent qualifications to work in the
countryside.

Promoting equity in education

Free nine-year compulsory education is now available to all chil- dren, urban or rural, throughout the country. Since
2006 the Chinese government has reformed and adjusted the mechanism for ensuring funding for rural compulsory
education; and since 2008 urban students undergoing compulsory education have been exempted from tuition and other
fees. Nine-year compulsory education has been fully incor-porated into the national financial security system.

China has been active in promoting balanced compulsory educa-tion. The government has prioritized rural areas,
outlying poor areas and regions inhabited by ethnic-minority groups in allocating public educational resources, and
implemented programs such as the National Compulsory Education in Poor Areas, Building Boarding Schools in
Western China's Rural Areas, Modern Distance Education for Ele-mentary and Middle Schools in Rural China,
Renovating Junior Mid-dle Schools in Central and Western China and the Plan for Special Education in Central and
Western China, so as to narrow the gap be-tween urban and rural areas and between different regions and guaran-tee
that disadvantaged groups have access to education.

The financial aid system has been improved. The Chinese govern-ment adopts a national scholarship system, student
subsidy system and national student loan system applicable to regular institutions of higher learning and vocational
schools. It has provided more financial aid to ensure that students from families with financial difficulties can con-tinue
their studies. By the end of 2009 some 90% of students from secondary vocational schools and 20% of university
students had re-ceived financial aid on a total of 43.06 million occasions. Since 2009 students from poor rural families
studying at secondary vocational schools and students studying agriculture-related subjects in such schools have been
exempted from tuitions.

Strengthening human resources training

The Chinese government has put cadre education and training in a prominent place. The state has drawn up and issued
the Regulations on the Work of Cadre Education and Training (Trial), National Plan for Cadre Education and Training
(2006-2010) and Opinions on the Im- plementation of Cadre Training Work on a Large Scale (2008-2012). With focus
on the requirements of major government work and civil service posts, the government has conducted initial training,
post-related training, professional training and in-service training, carried out train-ing plans geared to the needs of the
posts, promoted formal schooling training, and sent cadres to temporary posts in other places, thus effec-tively
developing the human resources of the civil service and pro-moting career development for civil servants.

The Chinese government has carried out the Project on Upgrading the Knowledge of Technical Professionals. The state
has, with specific and effective plans and step by step, conducted special training pro-grams on new theories,
knowledge, technologies and methods for mid- dle- and high-level professionals in the fields important for economic,
social, scientific and technological development. From 2005 to 2009, altogether three million middle- and high-level
professionals partici-pated in such training programs. The government has worked hard to build a continuing education
system for technical specialists, a system that sets clear levels and categories, and that brings into full play the initiative
of all aspects, gradually forming a demand-driven, continuing education mechanism characterized by the combination
of the gov- ernment guidance and employers' initiative, individuals' fulfillment of their duties and studying on their own
initiative. In 2009 professionals involved in continuing education around China reached 30 million persontimes. To
promote human resources development in Western China, the Chinese government issued the Opinions on
Strengthening Human Resources Development in Western China and carried out a training plan for the backbone
personnel in the scientific and techno-logical field in the Xinjiang Uygur and Tibet autonomous regions, and for
professionals in the Sanjiangyuan area of Qinghai Province. In 2009 China trained 2,888 backbone scientific and
technical personnel and much-needed professionals of ethnic-minority groups.

To meet the demands of different groups in finding employment, and geared to different stages of careers, the
government has con-ducted vocational training programs, set up a vocational training sys-tem with technical schools as
the mainstay and vocational training institutions as the supplement, and given full play to the roles of trade unions,

Communist Youth League, women's federation, and other mass and social organizations. By the end of 2009 there were
over 6,000 technical schools and employment training centers, over 20,000 pri-vately-run vocational training
institutions, and over 260,000 demonstra-tion bases of science and technology for women, providing different
education and training programs for women on 120 million occasions and enhancing women's capability of
self-development. For junior and senior high school graduates who have failed to gain higher education, the
government offers pre-job training courses to help them master some vocational skill or obtain a professional certificate
before job hunting. For unemployed people, the government offers re-employment training courses that are relevant,
practical and effective, so as to better prepare unemployed people for re-employment. For urban and rural workers who
want to start businesses of their own and who have the qualifications, the government offers entrepreneurship training
courses to enhance their abilities to start small businesses. For surplus rural workers who want to transfer to
non-agricultural fields and urban areas, the government offers vocational training and carries out such special programs
as the Sunshine Project, Training Plan for the Transfer of Rural Labor Force, Spark Technical Training and Yulu Plan to
enhance their abilities to find employment in new sectors.

Since 1994, in order to comprehensively improve the quality of workers and strengthen their capabilities in finding jobs
and doing their work well, China has established a professional qualification cer-tificate system. By the end of 2009 a
total of 18.433 million profes-sionals in various fields throughout the country had obtained the required qualifications,
and over 100 million qualification certificates for workers of different skill levels were issued.

Improving public service for human resources

The Chinese government has gradually increased its input in this area. In 2008 China's investment in human capital
accounted for 10.75% of its GDP. In 2009 the state treasury spent 198.139 billion yuan on education, an increase of
84.1% over 2007; 127.321 billion yuan on medical and health care, an increase of 91.66% over 2007; 329.667 billion
yuan on employment and social security, an increase of 43.2% over 2007; and 151.202 billion yuan on science and
technology, an increase of 51.2% over 2007.

The government has worked hard to improve the public employ-ment and human resources service system. It has set up
integrated ser-vice institutions at the county or district level, and service centers and entities providing employment
training and entrepreneurship service at the sub-district (township) and community levels, thereby forming a five-level
network providing services at the province, city, county or district, sub-district (town and township) and community
(administra- tive village) levels. By the end of 2009 there were over 10,000 public employment and human resources
service institutions at or above the county or district level nationwide, and 37,000 service centers at the sub-district,
town or township level, covering 97% of the country's sub- districts and 89% of its towns and townships. The
government has improved its functions in public employment and human resources service, providing free services
such as policy information, release of supply and demand information of the market, information about job vacancies,
vocational guidance, employment assistance and entrepre-neurship training, shouldering responsibilities such as
employment and unemployment registration and management, and providing such ser-vices as social security
management, archive management, examination and certification, and specialized services.

The government has made human resources service more IT-based. It has carried out the Golden Social Security
Project, and set up an e-government system of labor and social security that covers the whole country and is based on
networks at three levels: the central govern-ment level, provincial and municipal levels. It provides services such as
policy consultation, access to information, handling business-related affairs and personal account checking by issuing
social security cards, activating the 12333 public service line and SMS center, and building government service
websites.

Deepening the reform of the personnel system for cadres

Since the reform and opening-up policies were introduced in 1978, China has made constant efforts to deepen the

reform of the personnel system for cadres. It has successively issued the Guideline on Deepen-ing the Reform of the
Personnel System for Cadres and the Outline of the Plan on Deepening the Reform of the Personnel System for Cadres
(2010-2020). It has adopted a system of classified management of cadres based on different characteristics of Party and
government or- gans, public institutions and state-owned enterprises; and has gradually brought into being a personnel
system for cadres that is fair and just, and full of vitality and under which people of ability have suitable posts, are able
to display their abilities to the full, and can be promoted or demoted in their positions.

The civil servant system has been implemented in Party and gov-ernment organs. A competitive mechanism, under
which open selection, competition for positions and other competitive methods are used for cadre selection from
appointment to promotion, has been introduced, and consequently competent cadres and personnel can stand out. From
2006 to 2009 over 528,000 people were recruited as civil servants through examinations. From 2003 to 2009 a total of
40,000 leading cadres of the Party and government were appointed through open selec-tion, and 339,000 Party and
government cadres at different levels took leading posts through competition. The principle of democracy is fully
applied in the selection and appointment, performance assessment, management and supervision of cadres; democratic
recommendation has become a compulsory procedure during the selection and appoint-ment of cadres; public opinion
surveys and democratic assessment are widely used; and cadre-related work has become more democratic. Cadre
transfer work has been improved and has been institutionalized at key departments and critical posts. Centering on
national strategies of economic and social development and strategies of human resources development, local plans for
economic and social development, and the construction of pillar industries and major projects, leading Party and
government cadres are transferred between cities, counties, provinces and central Party and government departments;
and a large group of cadres have been selected from central organs and developed regions in Eastern China and sent to
work in the western parts of the country. From 2003 to 2009 a total of 2.302 million cadres were transferred around
China. The system regarding cadres' term of office, retirement, dismissal and resignation has been improved, making it
possible for cadres to be promoted or demoted, and thus a mechanism for regular renewal and rotation of cadres has
come into being. A wage system for civil servants that combines post and rank has been adopted, rationally showing the
relationship between responsibilities and wages.

A personnel employment system has been introduced in public in-stitutions. By means of employment contracts, the
relationship between employing units and employees is clearly defined. By institutionalizing post setting, open
recruitment, competition for positions, performance assessment and subsequent rewards and punishment, as well as
resig-nation and dismissal, it has gradually brought into being a personnel management system for public institutions
that has clearly defined rights and responsibilities, scientific classifications, flexible mecha-nisms and effective
supervision. By the end of 2009 some 80% of the total staff in public institutions around China had signed employment
contracts. In 2009 over 80% of all the new employees in public institu-tions in 22 provinces, autonomous regions and
municipalities directly under the central government were recruited through open recruitment. Public institutions have
put in place a wage system based on post and performance, as well as a payment and incentive mechanism that closely
links payment and bonus to responsibilities, performance and contribution, and encourages innovation and creation.
These efforts have brought into full play the enthusiasm and creativity of human resources in these institutions.

Personnel system of state- owned enterprises has been improved. In line with the requirements of the modern corporate
system, state-owned enterprises have started to form standard boards of directors, providing an institutional guarantee
for the sustained, rapid and healthy develop-ment of these enterprises. They have established and improved systems
concerning the selection and appointment, performance assessment, and incentives and supervision of managerial and
administrative per-sonnel. They have put in place a wage system with regulation by the market, distribution
independently by enterprises, democratic partici-pation of employees, and supervision and guidance by the government,
thus promoting the development of enterprises and enhancing em-ployees' wages. As a result, the basic role of the
market in allocating human resources has been brought into full play, and a mechanism of personnel selection and
appointment by the market has been estab- lished. From 2003 to 2009 the number of managerial and administra-tive
personnel employed by way of open recruitment and competition for positions increased from 334,000 to 521,000.

Establishing a national system of honors and rewards

The Chinese government adheres to the principle of combining morale boosting with material reward, with the focus on
the former, and has therefore set up a national system of honors and rewards which is being constantly improved.

The state awards workers who have made major contributions to national development with the honorary titles of
Model Workerand Outstanding Worker— the former for work-ers, farmers and managerial
personnel of enterprises, and the latter for personnel of government departments and public institutions. Since 1989 the
Chinese government has held a national conference once every five years to award such titles to model and outstanding
workers from all walks of life. So far 14,578 people have received one of the titles.

The state honors citizens and organizations making brilliant con-tributions to scientific and technological development
with the Science and Technology Award. Since 2000, a total of 27,772 people have won this award, and among them 16
prominent scientists won the State Preeminent Science and Technology Award of China. China has two titles for
academicians: One is Member of the Chinese Academy of Sciences, the highest title in the field of science and
technology, and the other is Member of the Chinese Academy of Engineering, the highest title in the field of
engineering and technology. By the end of 2009 there were 1,143 academicians of the Chinese Academy of Sci-ences
and 861 academicians of the Chinese Academy of Engineering, all of whom won the title by way of assessment and
selection. Since 1990, China also practices a system of special government allowances. The Chinese government has
issued certificates of honor to experts, scholars, technicians and highly-skilled personnel who have made bril-liant
contributions to their fields. In addition, it gives special govern-ment allowances to these people. By 2009, 158,000
people had received such allowances. In addition, the state has put in place a national sys-tem for rewarding
outstanding professionals. Since 1999 a total of 200 people have won the title of
Since 1995 a total of 120 people have won the state's
Technical Expert
national system to reward prominent personnel from rural areas, and 160 people have been commended under this
system since 2000

IV. Bringing into Play the Fundamental Role of Market Allocation
As a socialist market economy is gradually taking root in China, the Chinese government — by way of following the
objective laws of human resources development — has set out to reform the cur-rent human resources system to enable
the market to play its due role in the allocation of human resources and respect workers' freedom to choose jobs. The
government has been making efforts to foster and develop the human resources market, gradually achiev-ing the
transition from a planned to a market allocation of human resources.
A market allocation mechanism for human resources has basically taken shape.

Since the 1980s a multi-dimensional human resources market has gradually been formed in China as its economy,
dominated by the public ownership, is growing along with diverse forms of ownership. From 1998 to 2009, the number
of those working in state- owned en-tities dropped from 90.58 million to 64.20 million, a decrease from 41.9% of all
urban employees to 20.6%; the number of those work-ing in limited liability companies and companies limited by
shares rose from 8.94 million to 33.89 million, an increase from 4.1% of all urban employees to 10.9%; and those
working in private entities or self-employed grew from 32.32 million to 97.89 million, a rise from 15% to 31.5%.
Chart 5 Percentage of China's urban employees in different forms of ownership in 2009

Since the mid-1980s China has gradually been reforming its per-manent worker system established under the planned
economy, known as the distribution of the work gives employers the right to freely choose their
workers while at the same time gives work-ers the right to freely choose their jobs, thus establishing a new mode of
labor relations, formed basically through mutual choices, free con- sultation and the signing of employment contracts
between employers and employees. All these factors have improved the vibrancy and effi-ciency of the human
resources market. To adapt to the needs of a so-cialist market economy, the Chinese government has removed one

obstacle after another in mechanisms that restrain the free flow of the work force, by reforming social security,
household registration and university graduate distribution systems. These measures have con-tributed to the vibrant
flow of labor force across the country's regions, industries and trades. In 2009 workers registered for employment at
various human resources service agencies was 97 million, and 36 million people succeeded in landing jobs or changing
their jobs, an increase of 77 million and 26 million respectively, as compared with the year 2000. In 2009 farmers who
went to cities to seek employ-ment or worked in non-agricultural sectors in local areas for at least six months totaled
229.78 million, of which migrant workers working outside their localities accounted for 145.33 million and those
em-ployed in secondary or tertiary industry not far from their villages reached 84.45 million.
Human resources service industry has grown rapidly.
Since the 1980s China has constantly expanded the scale and ele-vated the level of the human resources service
industry. The service has become diversified in terms of scope and content, moving from recruitment and personnel
agencies in the early period to training, la-bor dispatch, employment guidance, professional assessment, man- agement
consultation and human resources service outsourcing. As a result, a relatively complete service chain in this respect
has been formed. In 2008 China had more than 49,000 agencies providing human resources services, basically forming
a multi-level, multi- dimensional human resources service system, which consists of govern-ment-sponsored
employment and personnel service agencies, private human resources service agencies and Chinese-foreign joint
ventures specializing in human resources service.

Since its entry into the WTO in 2001 China has actively fulfilled its commitments, leading to a steady rise in the
number of for- eign-invested human resources service agencies. In 2009 there were 160 Sino-foreign human resources
service agencies in Chinese territory, compared to 30 in 2003
V. Strengthening the Protection of the Legitimate Rights and Interests of Workers

It has been the Chinese government's consistent development con-cept to respect people's right to work, stress the
protection of workers' rights and interests, realize the dignity of labor and promote people's all-round development. The
Chinese government has adopted a series of policies and measures to strengthen the protection of the legitimate rights
and interests of workers, and is effectively promoting the sound development of human resources.
Guaranteeing equal employment
In recent years, the Chinese government has endeavored to strengthen the building and management of a unified and
standard market of human resources, overcome the divide between urban and rural areas, between people of different
identities and between differ-ent regions — which is caused by historical factors, eliminate institu-tional obstacles to
the development of the human resources market, and establish an equal employment system for urban and rural
workers. By improving market supervision, carrying out examination of law enforcement in the human resources
market, and cleaning up and rectifying illegal acts in the market, the relevant departments of the Chinese government
has effectively protected the lawful rights and interests of all market elements, including job seekers.

The state makes every effort to ensure that women have equal rights to employment with men, and endeavors to
remove barriers to women's equal employment. The country mobilizes various non-governmental sectors to expand the
employment channels for women, and formulates and implements policies supporting women's self-employment. The
positive role of women's federations at all levels is brought into full play in making known to authorities women's
demands, in promoting equal employment and equal pay for equal work, and in providing rights protection services. By
2008 women workers accounted for more than 45.4% of the working population nationwide.

The Chinese government is formulating an overall plan for the em-ployment of the disabled and has adopted the
principle of combining centralized and decentralized employment, so as to guarantee the right to employment for the
disabled. It formulates and implements policies favorable for the disabled people's employment, stipulating that every
employer must hire at least one and a half persons with disabilities out of every 100 employees working in the company.
Any employer with one quarter of its employees being persons of disabilities will enjoy tax preference. The
government also gives advice to and helps the disabled to establish welfare enterprises of persons of disabilities, and
encour-ages and supports them to explore flexible ways of employment. The China Disabled Persons' Federation at all

levels protects the legitimate rights and interests of disabled persons and promotes their equal par-ticipation in social
life. A total of 3,043 employment service agencies have been set up at the provincial, municipal and county levels to
pro-vide special employment services for the disabled. By the end of 2009 the number of disabled employees in urban
areas nationwide had reached 4.434 million, and 17.57 million disabled persons in the rural areas had found stable jobs.

The state pays great attention to the protection of rural migrant workers' rights and interests. Rural migrant workers are
a special group of workers that has emerged in the process of China's reform and opening-up, industrialization and
urbanization. They have made great contributions to the economic and social development of the country. In 2006 the
State Council established the Joint Conference System to coordinate and guide the work on rural migrant workers
across the country. China has eliminated many unreasonable restric-tions on rural migrant workers' seeking jobs in
cities, strengthened work safety and public health training, expanded social insurance to cover more migrant workers,
established a retirement pension scheme, which ensures continuity of one's retirement insurance wherever he or she
lives, and carried out such supporting programs as
2009 a total of 80.1482 million rural migrant workers had become members of trade unions, almost 80% of the migrant
workers' children were receiving free compulsory education at public schools in urban areas, and the number of
migrant workers covered by insurance for work- related injuries, medical insurance, basic retirement insurance for
employees of enterprises in urban areas and unemployment insurance had reached 55.87 million, 43.35 million, 26.47
million and 16.43 million, respectively.

Establishing a coordination mechanism for labor relations

China promotes the all-round implementation of the labor contract system. By the end of 2009, some 96.5% of China's
state-owned en-terprises and enterprises of other ownership with annual sales revenue over five million yuan had
signed labor contracts with their employees. The contents of labor contracts had become more standardized, and most
of the labor contracts were being properly observed. China ac-tively promotes group consultations and the group
contract system, so as to enhance mutual understanding and trust between employers and employees, and seek mutual
benefits for both parties to the labor con- tracts. By the end of 2009, the number of effective group contracts had
reached 703,000, covering more than 94 million employees.

China brings into full play the function of the tripartite labor rela-tions coordination mechanism. In 2009 a total of
14,000 tripartite labor relations coordination organizations had been established in cities above the prefecture level and
counties (including county-level cities and districts) of 26 provinces (autonomous regions and municipalities directly
under the central government), which comprised government, trade union and enterprise representatives. Centering on
major issues of labor relations, the tripartite mechanism plays an important role in promoting harmonious and stable
labor relations through active com-munication, enhanced cooperation and elimination of differences.

China is vigorously promoting the building of harmonious labor relations. In 2006 the government began the campaign
to establish harmonious labor relations in enterprises and industrial parks. By for-mulating and implementing standards
of harmonious labor relations, promoting the establishment of a coordination mechanism for labor relations and
commending successful examples, China promoted har-monious and stable labor relations in enterprises and industrial
parks. By the end of 2009, a total of 31 provinces, autonomous regions, and municipalities directly under the central
government had engaged in building harmonious labor relations.

China gives full play to the important role of trade unions. China's trade unions, which represent and safeguard
workers' interests, play an important and irreplaceable role in promoting harmonious labor rela-tions. In 2009 there
were 1.845 million trade unions at the grassroots level, covering 3.959 million enterprises and public institutions, and
the number of trade union members nationwide had reached 226.3 mil-lion. Trade unions at various levels work
actively to safeguard the rights of the workers, provide guidance and help for workers in signing labor contracts with
employers according to law, represent workers in group consultations and signing group contracts with employers,
or-ganize workers' participation in democratic decision making, man- agement and supervision, take part in labor

dispute mediation and arbitration, provide legal services to workers and urge employers to abide by state laws and
regulations.

China is showing more care for enterprise employees. In recent years, the Chinese government has adopted active
measures to deal with the misconduct of some enterprises in labor employment, urged them to give more care to the
well-being of workers, improve their employees' working and living conditions, improve the mechanism for workers to
voice their demands, establish platforms for workers to communicate with and help each other, and provide
psychological and health consultation services for employees. Meanwhile, China properly guides public opinion with a
view to creating a favorable social at- mosphere conducive to the building of harmonious labor relations.

Settling labor disputes fairly and promptly

Settling labor disputes through mediation and arbitration is a reme-dial system with Chinese characteristics for
safeguarding legitimate rights and interests of employees. To guarantee fairness and transpar- ency in dealing with labor
dispute cases, arbitration commissions are composed of three parties, namely, the representatives of appropriate
departments of the government, trade unions and employers. By the end of 2009, China had 33,000 arbitrators in some
4,800 arbitration organizations.

The method of mediation and arbitration in settling labor disputes adheres to the principle of fairness, encourages
parties in dispute to settle their disputes properly through consultations and mediation, and protects the legitimate rights
and interests of parties concerned. In 2009 labor dispute arbitration organizations at various levels nation-wide handled
875,000 cases. Some 684,000 cases were accepted for arbitration, a decrease of 1.3% compared to the previous year.
The cases involved 1.017 million workers, a decrease of 16.3% compared to the previous year. According to Chinese
law, parties that disagree with labor dispute arbitration award may institute proceedings to the people's courts. In 2009
people's courts at various levels completed 317,000 labor dispute cases, and successfully protected the legitimate rights
and interests of the parties in dispute.

Enhancing labor security supervision

Law enforcement as regards labor security supervision is an im-portant way to protect the legitimate rights and interests
of workers. Labor security supervision organizations are mainly responsible for publicizing laws and regulations
concerning labor security, accepting and handling workers' complaints and reports, and supervising em-ployers'
observance of the relevant laws. By the end of 2009, China had established 3,291 labor security supervision
organizations staffed by a total of 23,000 supervisors.

In recent years, China's labor security supervision organizations have launched campaigns to investigate breaches of
laws and regula-tions related to labor security, and strengthened supervision on and timely handled major law-breach
cases with serious social impacts. The supervision of law enforcement protects workers' rights in career introduction,
labor contract signing, working hours, salary payment, social insurance and special labor protection. In 2009 China's
labor security supervision organizations inspected 1.751 million employers, involving 90.298 million workers; they
examined and dealt with 439,000 cases of violation of labor security laws, and ordered employ-ers who failed to sign
labor contracts with their employees to sign la-bor contracts with 10.737 million employees.

Since the beginning of 2009 the Chinese government has launched pilot projects of online labor security supervision
and management in 60 cities so as to carry out comprehensive and dynamic supervision of employers for labor dispute
prevention and timely intervention. Now, with the pilot projects working well, the new method will soon be ap-plied
nationwide

VI. Actively Developing International Exchanges and Cooperation

The Chinese government attaches great importance to international exchange and cooperation in human resources
development, earnestly fulfilling its international obligations and continuously expanding the corresponding channels
and scope so as to promote the establishment of the pattern for omni-directional and multi-level exchanges and
co-operation in this regard.

China values the purposes and principles for the promotion of hu-man rights and fundamental freedoms set forth in the
Charter of the United Nations, committing itself to the protection of people's rights to subsistence and development. It
establishes, promulgates and improves labor standards in a rational and gradual manner. The Chinese gov- ernment, in
line with its own economic and social development, has ratified 25 international labor conventions, such as the
Convention Concerning Equal Remuneration for Men and Women Workers for Work of Equal Value, Convention on
the Minimum Age for Admission to Employment, Convention on the Elimination of the Worst Forms of Child Labor,
and Convention Concerning Discrimination in Respect of Employment and Occupation, and has implemented these
conventions. China is improving the laws and regulations concerning its human re-sources development, and promoting
the ratification of conventions concerning labor, including the core ones under International Labor Organization.

The Chinese government sets great store by establishing coopera-tive relations with international organizations or
agencies such as the International Labor Organization (ILO), United Nations Development Program (UNDP),
Asia-Pacific Economic Cooperation (APEC), World Bank and Asian Development Bank (ADB) in the field of human
re-sources development, actively developing bilateral or multilateral ex- change and cooperation with other countries
and regions in this regard. Since China resumed its activities in the ILO in 1983, it has actively participated in
international labor- related affairs, and engaged in inter-national cooperation to boost employment, improve the social
security system, establish harmonious labor relations, and formulate labor laws and regulations. In 2004 and 2007,
respectively, China and the ILO jointly held the China Employment Forum and Asia Employment Fo-rum. Since 1992
the Chinese government has actively participated and played an important role in cooperation with APEC concerning
the development of human resources. In 2001 China hosted the APEC High-level Meeting on Human Capacity
Building, and adopted the Beijing Initiative. In September 2010 the 5th APEC Ministerial Meet-ing on Human
Resources Development will be held in Beijing, serving as an important platform for Asia-Pacific economies to discuss
issues such as employment after the financial crisis and human resources de-velopment. China became a full member
of the International Social Security Association (ISSA) in 1994, and held the 28th ISSA Interna-tional Conference in
Beijing in 2004, at which the Beijing Declaration was adopted. By the end of 2009, human resources and social
security departments of the Chinese government had established cooperative partnership relations with more than 80
countries and some important international organizations. The Chinese government has signed ac-cords for mutual
exemption of social insurance premiums with Ger-many and the Republic of Korea to facilitate the flow of labor.

China has implemented a more open human resources policy since its adoption of reform and opening up to the outside
world some three decades ago. The Chinese government upholds a policy that encour-ages people to study abroad and
return home to work, and gives them perfect freedom to make their own decisions. It strives to provide more
opportunities for people to study abroad, and actively attracts the tal-ented people to come back, providing the
necessary support for those who return to find work or start their own businesses, and creating good working and living
conditions for them. From 1978 to the end of 2009, Chinese people who studied abroad totaled 1.6207 million, of
whom 497,400 had returned to China upon completion of their studies. China implements the Support Plan for
Overseas Students to Return and Start Businesses and the Project for Returned Overseas Students to Serve the Country,
encouraging and attracting its overseas students to return home to work and start businesses. The Chinese government
encourages foreigners to study in China and pays great attention to relative work. From 1978 to 2009, the number of
foreign students from 190 countries and regions studying in China reached 1.69 mil- liontimes. China actively uses
international education and training re-sources to cultivate talented people, initiating economic management training
programs for leading officials, and overseas training programs for senior civil servants. It sent a total of 50,200 people
overseas on training programs in 2009. It actively assists the United Nations in its organization of examinations in
China, recommending qualified people to work in various international organizations. By the end of 2009, there were
1,002 Chinese working in different international organiza-tions. The Chinese government has been active in bringing in

foreign talent, and the number of foreign experts who came to work in China reached 480,000 persontimes in 2009. By
the end of 2009, there were 223,000 foreigners working in China with employment permits. By the end of 2009, China
had conferred Awardson 1,099 for-eign experts, and Scientific and Technological
Coopera-tion Awards

Conclusion
Along with its economic and social development, and improvement in people's living standards, China has made
remarkable headway in its human resources development. But as a developing country, China is still faced with many
problems such as great challenges in employ- ment, structural imbalance in human resources development, and lack of
high-level, innovative people. China faces unprecedented opportu-nities and challenges in the sphere of human
resources development.

In the new phase of the new century, the Chinese government will put people's interests first, concentrate its care on
all-round human de- velopment, and encourage and support everyone to make contributions and become accomplished
in one or more fields. It will build a com-plete lifelong education system with the focus on making education more
equitable and with improving educational quality as the core, so that all the people can enjoy their rights to education,
make progress and apply what they have learned to practice. Bearing in mind that employment is the bedrock of the
people's livelihood, the government will work harder to implement the strategy for increasing employment and a more
active employment policy, encouraging people to start their own businesses to create more job opportunities. It will
give priority to cultivating competent personnel, work harder to carry out the strategy of strengthening our nation
through human resources development, focus on cultivating innovative scientists and engineers, train profes-sionals
who are in short supply and are needed by key areas for na-tional economic and social development, and develop all
types of human resources in a coordinated and all-round way. At the same time, it will persist in management
innovation, break down outdated insti-tutional barriers by deepening the reform and opening wider to the outside world,
and strive to create a social environment that is full of vitality, highly efficient and more open.

In the future, wisdom and strength of the Chinese people will play a still better role, and there is bound to have a more
solid foundation of human capability and human resources for the development and progress of China