The insufficient institutions based on current census register system and social insurance system are the basic reason for insufficient peasant-workers, however, the insufficient right protection because of the short of legal right realization is the direct reason for the insufficient peasant-workers. China should deepen census register system reform, promote the integration of urban-rural residents, perfect the social security protection system of peasant-workers, protect the right of peasant-workers, enhance supervision on the implementation of labor law, perfect the related provisions of the labor law, rationalize the place of governments, realize effective management and supervision, set up middle stratum of the society, and moderate the contradiction between peasant-workers ,governments and market.