农民工落户悖论与市民化政策转型

The Paradox of Rural Migrant Workers’Settlement in Cities and the Transformation of Citizenization Policy

长期以来,户籍制度被认为是阻碍农民工市民化的关键制度安排,而推动农民工在流入城市落户并构建起以能力为导向的落户优先序,就成为了新一轮户籍制度改革的主要举措。然而,从政策效果看,农民工落户数量十分有限,市民化的进展比较缓慢。本文通过分析与“农民工须市民化、市民化须落户、农民工未能落户”这一悖论相关的三个认识误区,提出了准确认识农民工落户和市民化问题的新视角,并据此得出应通过一系列政策转型来推进农民工市民化的结论,包括:将推进农民工市民化的重点由异地市民化向就地市民化转变,将落户政策由有能力者优先向有意愿者优先转变,将市民化目标由户籍市民化向常住市民化转变。

The household registration system has long been considered as a key obstacle to impede the citizenization of migrant workers.As a result,promoting migrant workers’residence registration in cities and building a capacity-oriented priority order has become the main move in the new round of household registration system reform.However,from the perspective of policy effect,the progress of citizenization is relatively slow.By analyzing the three misunderstandings related to the paradoxes,namely,“citizenization is needed by migrant workers,citizenization requires settling down and migrant workers seldom settle down”,this article raises a new perspective to accurately understand the problems of migrant workers’settlement and citizenization.Based on this,the study puts forward that migrant workers’citizenization should be promoted through a series of policy transformation,including an emphasis of promoting local citizenization of migrant workers rather than cross-regional citizenization,converting the settlement policy from a capacity-oriented priority order to a willingness-oriented priority order,and transforming the objective of citizenizationfrom settling down ofrural migrantworkers to equalizing residents’welfare.