城市户籍制度改革的困境与突围--来自深圳的经验启示

The Dilemma and Breakthrough of Urban Household Registration System Reform——Implications from Shenzhen Experience

中国的户籍制度有其特殊的历史起源,这种限制人口自由流动的行政制度在本质上与城市化发展存在冲突。在制度变迁过程中,制度变革滞后于发展背景的转换,发展主义政府以GDP为导向的发展策略,关于大城市发展的认识误区等多重因素致使户籍制度延续着路径依赖产生了明显的自我强化效应,从而给城市化的发展造成了重要障碍,也使得大城市的户籍制度改革进展缓慢。回顾深圳市的户籍制度改革历程,其从制度起点上就与其他城市存在明显不同,更为广阔的制度环境、特殊的城市状况也为城市治理者进行更为包容性和开放性的户籍制度改革提供了可能性。未来城市户籍制度改革的政策取向应该是利益扩散与利益剥离同步推进,制度包容性与制度汲取性均衡把握,工具性目标与价值性目标合理平衡。

China＇s household registration system can date from a special historical context. This administrative system restricts the free flow of population, which, in essence, conflicts with urban development. In the course of the institutional change, system reform falls behind the changes of the development context, and the GDP-oriented strategy of the government advocating developmentalism. Due to the factors such as misunderstanding of the development of megacities, household registration system continues to follow the old paths, which creates a self- reinforcing effect upon itself, and thus makes a major barrier to urbanization and also results in slow progress in the household registration system in megacities. Reviewing the history of Shenzhen household registration system reform, the author discovers Shenzhen is significantly different from other cities at the starting point of the system, and that the broader institutional？environment and the special state of the city also make it possible for the administrators to conduct more inclusive and open reform on the household registration system. This paper argues that the policy orientation of household registration system reform lies in the simultaneous promotion of interest diffusion and interest diversion, the balance between the inclusiveness and absorptiveness of the system, and the reasonable balance between instrumental objectives and objectives of value.