人口跨域流动中的国家意志、制度惯性及融合治理

State Will, Institutional Inertia and Integrated Governance in Cross-Region Population Movement

新时期以来,我国人口流动整体上呈现流域扩大、中心集聚、融合加速的结构性特征。在规模上,流动人口数量持续大幅增加,但近年来增速放缓;在流向上,随着我国城市化及区域一体化水平的不断提高,人口流动逐步从城乡单向流动为主转向城乡双向流动、城城流动、大中心集聚的多头态势。具体而言,人口从流入地向流出地的回流迁移持续存在,近年有所加速;跨省流动人口比例在本世纪头几年达至峰值后逐渐下降,而省内跨城流动人口规模一直较大,近年又重拾升势。在新型城镇化背景下,我国人口政策已经不再对人口流动进行严格控制,而是通过差异化的人口调控政策来引导人口跨域流动。一方面鼓励地方政府改革户籍制度,提高超大、特大城市以及城市群的人口吸纳能力;另一方面推动县域城镇化发展,引导人口向中小城市流动。然而,紧缩的人口调控政策仍然有其制度惯性,阻碍人口流动的各种不同程度的地方性壁垒依然存在。为此,流动人口治理必须恪守“人民城市”的根本属性,加大城乡间、城市间、区域间基本公共服务均等化资源配置的力度,同时大力扶持人口流失严重的中小城市、县城转型发展,探索以区域融合为导向的人口治理路径。

Since the New Period, population movement in China as a whole has shown the structural characteristics of flow region expansion, central concentration and accelerated integration. In terms of scale, the number of mobile population has continued to increase significantly, but the growth rate has slowed down in recent years;in terms of flow direction, with the increasing urbanization and regional integration in China, the population movement has gradually shifted from a predominantly one-way urban-rural population movement to a multi-headed posture of twoway urban-rural movement, urban-urban movement, and metropolitan areas of city clustering. Specifically, the population backflow from inflow to outflow persists and has accelerated in recent years;the proportion of cross-provincial mobility has gradually declined after reaching its peak in the first few years of this century, while the scale of cross-city mobility within the province has been large and has regained momentum in recent years. In the context of new urbanization, China’s population policy has moved away from strict control of population movement and instead has guided cross-regional population movement through differentiated population regulation policies. On the one hand,local governments are encouraged to reform the household registration system to allow mega-cities and city clusters to accept more population;on the other hand, the development of county urbanization is promoted to guide the flow of population to small and medium-sized cities. However, the strict population control policy is institutionalized, which is a policy barrier to cross-region migration at local level. In this regard, it is necessary to be clear about the fact that the city is fundamentally of the people in the governance of population movement, increase the resource allocation for the equalization of basic public services between urban and rural areas, cities and regions, while vigorously supporting the transformation and development of small and medium-sized cities and counties with serious population loss, and work on the approaches for population governance aimed at regional integration.