地方政府控制落户的行为逻辑及其制度基础  

The Behavior Logic of Local Governments'Reform on Household Registration System and Its Institutional Foundation

作　　者：高翔[1] 

机构地区：[1]浙江大学公共管理学院,浙江杭州310058

出　　处：《浙江大学学报（人文社会科学版）》2015年第5期91-100,共10页Journal of Zhejiang University:Humanities and Social Sciences

基　　金：国家社会科学基金青年项目(14CZZ029);国家社会科学重大招标项目(13&ZD040)

摘　　要：21世纪以来,公民社会权利话语主导了户籍制度改革的理论探讨,并开始进入官方话语体系。但实践中,地方政府仍然设置了有条件的落户门槛,并基于户籍身份向公民提供有差别的公共服务和社会福利。如何理解地方政府以资格取代权利的控制落户行为?现有从工具性视角、政治性视角给出的解释突出了公共品供给中的政府问责性、回应性,但较不重视公共品生产中地方政府的财政收支平衡问题。财政分权化改革后,地方政府是公共服务和社会福利的主要支出者,其财政支出将随着户籍人口数增加而快速膨胀,其财税收入却不会因户籍人口数变化而显著变化。由此,地方政府形成了以地方财力确定人口承载力的单向、静态行为模式。超越公民社会权利的单一逻辑,构建以人口为基准的地方财税收入与财政支出相挂钩的机制,是落实以公民社会权利为导向的户籍制度改革的重要保障。How to empower migrant workers with citizen social rights?This is a critical issue in reforming China's Household Registration System(HRS).Recently,the discourse of citizen social rights is not only dominating the academic discussion on HRS,but has been officially accepted in the government documents.For instance,Opinions on Further Promotion of the Reform of Household Registration System,issued by the State Council in July 2014,explicitly recognizes″protecting citizens'rights and interests according to the law″as its main goal.In practice,however,local governments retain household registration barriers for migrant workers and prevent them from gaining full access to public services and social welfare.How to explain local governments'behavior of replacing″entitlement″with″eligibility″in HRS reform?Current studies tend to explain migrant workers'lack of social rights as a problemof government accountability and responsiveness.They argue that migrant workers are incapable of influencing public policy under the current political system,while the HRS is still playing an important role in maintaining social stability and promoting economic development.Without external pressure and internal motivation,local governments are unwilling to change the status quo.However,this argument is not sufficient to explain local governments'selective social rights safeguarding,as they are willing to provide full public services and social welfare to local peasant workers,but not to migrant workers.Based on a combination of empirical study and institution analysis,this paper argues that the taxation system and the public service provision system are the important institutional foundation of local governments'selective social rights safeguarding.After China's decentralization reform in1980 s,local government has become the main fund-raiser for public service and social welfare of its local residents.Thus,its expenditure will increase significantly when the number of local residents grows.Meanwhile,local fiscal revenue has a

关 键 词：户籍制度 地方政府 公民社会权利 农民工 

分 类 号：D631.42[政治法律—政治学]