以人为本推进超大特大城市户籍制度改革的路径选择

Path Selection for People-oriented Household Registration Reform in Mega-Large Cities

自上一轮户籍制度改革实施以来,常住人口300万以下城市的落户门槛已经完全放开,破解部分常住人口300万以上的大城市和超大特大城市的落户限制成为户籍制度改革接下来的突出任务。当前,户籍制度改革的福利扩散(落户)与福利剥离(居住证)二元并行路径面临困境,在政策上陷入了“落户悖论”:如果推进落户,在超大特大城市户籍门槛很难进一步降低,且在农业转移人口落户意愿不高的背景下,落户已很难继续推进;如果不推进落户转而依靠居住证,在核心公共服务难以进一步与户籍脱钩的条件下,农业转移人口仍需要通过落户实现市民化。破解“落户悖论”,推进以人为本的新型城镇化,可实施“愿落尽落+负面清单”改革方案:在完全放开超大特大城市落户限制的同时,将少数高含金量公共服务列入负面清单,落户者须满足负面清单中公共服务的提供部门所制定的附加条件,才能享受该公共服务。这一改革方案具备较好的经济性、道义性和可操作性,是放开超大特大城市落户限制的可行路径。

Since the implementation of the new round of household registration system reform,the household registration restrictions for cities with a permanent population below 3 million have been completely lifted.However,some large cities with a permanent population above 3 million and mega-large cities have become the last strongholds of household registration reform.Currently,the dual parallel paths of welfare diffusion(settlement)and welfare separation(residence permit)in the household registration system reform face challenges and are caught in the"settlement paradox"in policy terms:if settlement is promoted,it is difficult to further lower the household registration threshold in mega-large cities,and with a low willingness of the agricultural migrant population to settle down,settlement is difficult to further advance;if settlement is not promoted and reliance on residence permits is emphasized,given the difficulty in further decoupling core public services from household registration,the agricultural migrant population still needs to achieve urbanization through settlement.To resolve the"settlement paradox",a feasible reform proposal is to implement the"willing to settle down as far as possible+negative list"approach,to realize people-oriented urbanization.While completely lifting the settlement restrictions in mega-large cities,a few high-value public services shall be included in the negative list.Settlers must meet additional conditions set by the departments providing the public services in the negative list to enjoy those public services.This reform proposal has good economic feasibility,ethical considerations,and operability,representing a viable path to overcome the last stronghold of household registration in mega-large cities.