外国人在中国就业规制法律体系完善

　　摘要

　　外国人在华就业,主要是指取得在中国居留许可、就业许可的外国人,依据法律规定在我国工作并获得工作报酬的就业行为。根据我国《出入境管理法》规定,在源头上,我国对外国人在境内就业实行的是“就业许可”制度,外国人欲到中国就业应先到人力资源与社会保障部门申请并取得《就业证》,经过就业地主管部门批准并签发“邀请函”后申请相应的工作签证,入境后取得《就业证》及《居留证》等手续后才可在我国就业。我国就业许可制度除少数无需经过许可及特定行业的禁止或限制外,主要是以经过许可为原则。就业许可制度在外国人在华就业法律规制方面起到很重要的作用,但是近年来发生的外国人在华非法就业事件,如北京小伙在华非法就业案,不得不让人反思我国在就业方面对外国人规制的不足。

　　目前在我国就业的外囯人的人数众多且难以统计、准确估算;在地域上分布的不平衡;另外,外教、菲佣甚至一些技术含量较高的岗位非法就业的现象十分严重。外国人在华就业尤其是非法就业产生极其恶劣的影响,既直接影响我国的公共安全和囯家主权,还影响到正常的社会经济秩序和国内的劳动力市场秩序。深究其因有二,外部与内部原因,外部原因是受世界范围内的外国人非法就业大环境的影响,内部原因是我国经济发展快速,已拉幵周边的国家较大差距,国内生活成本较低,人民对外国人较友好。然而,我国的就业规制制度存在许多问题,外国人在华非法就业问题,既是弱项,也是个难题。我国在立法方面,没有规制外国人就业的专门立法,现有法律落后于社会现实,且内容零散,未形成法律体系;执法方面,缺乏统一的管理监督机构,各部门之间分工分散、不明,效率低下;司法方面,针对外国人在华就业的审判标准不够统一,且缺乏我国与各劳务输出国的司法协助。从其他国家看,美国、日本主要是通过建立健全的管理机构及颁布一系列的法律法规来规范外国人的就业规制,此外美国、日本都有本国特色的法律制度、政策,在保护外国人就业基本权利的同时,运用灵活、健全的制度规制外国人就业。

　　外国人就业作为一项基本人权,应充分保护,尤其是我国参与和批准了一系列国际人权公约后,应结合我国国情合理规制外国人就业;同时应看到,作为劳动行为’外国人就业的发展应当遵循市场规律。外国就业者对全球化下的中国劳动者雇佣关系的变化有着重要的影响,对外国人在华就业规制,不仅应有立法上进行管理,也要制定一系列政策引导;既要维护法律和社会治安、国家安全,还要服务于国家宏观调控。规制外国人在华就业目的是使外国人就业管理工作更好地开展,使社会稳定,经济更好地发展,促使相关制度更加规范。

　　进行外国人就业规制制度研究,运用法律制度优化劳动力资源配置,充分合理地利用国内外劳动资源,以保护本国劳动力市场。我们应该立足本国国情,借鉴美国、日本等外国的先进经验,建立适合本国国情的外国人就业规制制度。在处理好提倡引进高层次的管理、科技人才与充分保护本国劳动者就业的权益,建设好投资大环境与依据国际对等原则的基础上,完善外国人就业规制制度。

　　结合本国国情,我国应完善外国人在中国就业规制法律体系;改革外国人就业管理部门,建立中国移民管理局,以移民管理局为主导,使公安机关、劳动监察部门能信息共享,联动执法;吸引借鉴外国具体劳务政策,利用灵活多样的劳务政策合理利用外国劳动力资源;依法严厉打击外国人非法就业行为,尤其是完善相关方的法律责任,加大对非法雇佣外国人的雇主处罚力度,同时完善对非法就业外国人的处罚措施;加强外国人就业管理的国际合作,尤其是与主要劳务输出国的合作。

　　关键词:外国人 就业 法律规制

　　Abstract

　　Foreigner employment in our country is mainly refers to the employmentbehavior of foreigners who have achieved the employment license and residencepermits in China and according to the law of our country have worked and obtainedthe labor remuneration. According to the regulations of the Law on Exit and EntryAdministration of PRC,on the source,the employment of foreigners in China shallpractice a system of employment permit. Foreigners who want to be employed inChina should apply for and obtain the Employment Permit of the People's Republic ofChina from labor bureau, get invitation letter and approval of the competentdepartaent, apply for a work visa from the country's embassies consulates in China,after arrival and apply for the employment permit and residence permit formalitiesrear can employment in our country. The main content of the employment, permit.isystem including requiring permission as fundamental principle, without permissionas exceptions, as well as the specific industry prohibitions or restrictions.

　　Employment permit system plays a very important role in the aspect of law regulationon foreigners' employment in China, but the events of foreigners' illegal employmentin China such as Beijing guy,illegal employment in China makes people have toreflect on the lack of regulation in terms of foreigners' employment in China.

　　At present,the number of foreigners employed in China is numerous anddifficult to accurately estimated and imbalance in regional distribution. In addition,the phenomenon of illegal employment in foreign language teachers, Filipinodomestic workers, and even some jobs with higher technology is very serious. Thephenomena of illegal employment of foreigners have negative influence on thesovereignty and security of China and the normal social economic order in China.

　　Investigating its reason,the external reason is the influence of worldwide illegalemployment problem, and the internal reason is that Chinafs rapid economicdevelopment and the widening gap between the neighboring countries makesrelatively low cost of living and the Chinese people's attitude toward foreigners aremore moderate. There are many problems in the regulation of employment system inour country, the problem of illegal employment of foreigners in China is not only aweakness, but also a conundrum. In the aspect of legislation, no specific legislation ofalien employment regulation, the existing legal lag behind the social reality, and itscontent is fragmented, in addition there is no specific law and lack of legal system. Inthe aspect of law enforcement, there's lack of unified management and supervisionorganization, the division of the various departments is ambiguity, unknown andinefficient. In the aspect of justice, the judgment standard in view of the employmentof foreigners in China is not unified, besides, there is lack of judicial assistancebetween our country and the labor services exporting countries. In foreign countries,the United States and Japan are mainly through a series of laws and regulations, aswell as a sound foreigners management agencies to regulate employment regulation,in addition, the United States and Japan have their own national characteristics inpolicies and law to protect foreigner employment basic rights, at the same time,regulate foreigners' employment by using flexible and sound systems.

　　Foreigners' employment as a basic human right should be fully protected,especially China has involved and approved a series of conventions on human rights,and should reasonably regulate foreigners' employment combined with China'snational conditions. At the same time, we should see that foreigners' employment inChina is a kind of labor behavior, the change development of which should follow theobjective law of market economy. Under the influence of globalization, foreignworkers will play an important role in the relationship of Chinese workersemployment in China. The regulation on foreigners' employment in China, we shouldnot only on the legislative management, but also should formulate a series of policiesto guide, as well as the maintenance of law and social security, national security andserve the national macroeconomic regulation and control. Regulation of foreigners inChina, employment is the employment in order to better carry out foreignersmanagement work, maintain social stability and healthy economic development,make the foreigner employment permit system for more standardized andinstitutionalized. The regulation on employment of foreigners in China aims at bettercarry out management work on foreigners' employment, maintain social stability andthe health development of economy, which makes the permit system of foreigners'employment more institutionalized and standardized. The research on regulationsystem of foreigners' employment in China, using legal system to optimize theallocation of labor resources, make full use of international and domestic laborresources reasonably, and protect labor market from the huge shock. We should bebased on our national conditions and draw lessons from foreign advanced experience,such as the United States and Japan and so on,to establish a system of employmentregulation suited to our own national conditions. We should improve the legal systemof our country's foreigner's employment by encouraging the introduction ofhigh-level management of high-tech talent, protecting the domestic :Jaborers'employment rights and interests, creating a good investment environment, andaccording to the principle of reciprocity. To improve the legal system of foreignersemployment in China, we should reform employment management authority, toestablish Administration of Chinese Immigrants^ dominated by Administration ofImmigration,sharing the information and joint law enforcement between PublicSecurity Bureau and the Labor Inspection Department; drawing lessons from foreignconcrete labor policies,using flexible labor policy to rational use foreign laborresources; to crack down on illegal employment in accordance with the law,especially improve the relevant legal liability, to increase the intensity of punishmentfor illegal employers of foreigners, at the same time improve the penalties for illegalemployment of foreigners; To strengthen the international cooperation onmanagement of foreigners' employment,especially the cooperation with major laborservices exporting countries.

　　Keywords: Foreigners; Employment; Legal Regulation


　　目录

　　摘要

　　Abstract

　　一、我国外国人就业规制制度存在的问题

　　(一)立法方面

　　(二)执法方面

　　(三)司法方面

　　二、国际条约的相关规定

　　(-)《世界人权宣言》

　　(二)《经济、社会及文化权利国际公约》

　　(四)国际劳工组织《1949年移民就业公约》及相关公约

　　(五)WTO《服务贸易总协定》

　　三、外国人在华就业规制制度的完善

　　(-)加强与各国在外国人就业规制方面的国际合作

　　(二)完善外国人在华就业规制法律体系

　　(三)设立移民局

　　(四)完善相关责任追究机制

　　结语

　　参考文献

　　致谢