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The Economics of the Hukou System in China

Perfect mobility is quintessential to achieve efficiency in a free market economy. Be it improving the financial conditions of migrants, providing them greater job opportunities or enhancing their productivity, perfect mobility offers a plethora of advantages to the migrants & leads to a weakening of the rural-urban divide.

In China, a system of household registration known as the ‘Hukou System’ was established with the motive of controlling internal migration & maintaining social stability, thus limiting perfect mobility of workers. After being transformed quite a lot of times, this system has come under scrutiny.

 

The Hukou system is a home registration system in China which came into force in 1958. According to this system, each Chinese citizen is categorised as a Rural Hukou Holder or an Urban Hukou Holder on the basis of his/her household registration record which includes his/her name, parents’ name, spouse’s name and date of birth, thus providing a sort of an identity card to make the citizen a permanent resident of a region. A hukou would be allotted to a person if he meets certain criteria like minimum years of experience, education level, technical expertise, owns a house etc. An option of buying a hukou directly by paying a fee is also available albeit to certain terms. The premise of the Hukou system is that a person’s primary residence will serve as the basis for access to public services like healthcare, education for their children, pension etc. This means that a migrant working in a Chinese city won’t be able to avail the most basic services in that area as his primary residence is different. This also results in migrants leaving their children in the countryside, while they work in the cities as their children won’t be able to attend educational institutions in the city. If the migrants don’t possess an Urban Hukou Card, they are forced to live in rented apartments or travel long distances from their primary residence to their place of work. Supporters of this hukou system, most of them being from the urban class in megacities assert its necessity as it would enable in removing the possibility of emergence of slums which would degrade the inherent charm of these urban cities. The State’s viewpoint was that rural areas had greater capacity to absorb excess labour, so the majority of population should be concentrated in these regions. Hence, the Hukou system would facilitate legal migration & provide numerous benefits to the migrants ranging from health insurance, retirement allowance to a housing fund(only if they purchase a house). 

 

Contrary to the government’s objectives, however, the Hukou system is being reformed due to its inherent bottlenecks.

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“Chart showing the disparity between the urban & the countryside per capita income and greater urban rural divide in China post 1990” 

It became clear that while urban residents were allotted benefits, the rural folk were left to fend for themselves. Additionally, in the middle of the 20th century, farmers paid three times higher taxes than the urban dwellers but continued to experience a lower standard of life, education, healthcare, thus, accentuating the divide. Various other hurdles emerged within the hukou system. An imbalance in public spending between the cities & countryside emerged, resulting in unequal access to goods & services, defeating the very basis of socialism which is to achieve equality. Instead of achieving effective competition in the labour market, with people competing for the jobs, the system gave rise to a situation wherein citizens of certain cities(the cosmopolitan cities) became better equipped for the labour market. On one hand, urban areas were being beautified with tall buildings constructed by the migrant labour & on the other hand, the migrants without a hukou were subject to dangerous living conditions in those very cities. 

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“Graph comparing the urban population, urban hukou population & migrant population in China till 2020.” 

On a positive note, however, the goal of urbanisation was achieved to a certain extent but it came at a huge cost. The success of this system, as quoted by its advocates, has become a subject of debate among the rich & poor factions of the Chinese economy. Even after the proposed urbanisation, about 200 million migrants lived in the urban areas without a hukou which meant that they were living illegally, thus pointing towards the ineffective implementation of this complex system. 

 

Boosting the Chinese economy & providing equality to rural & urban people were the issues that came to the limelight; hence, the State took the initiative to reform this rigid hukou system. In 2014, it launched its ‘New Urbanisation Plan’ which promised to assist over 100 million residents in the process of swapping their rural hukou for an urban one in order to create a new, greater level of equality. Instead of targeting only the big cities, the government has made policies for the smaller cities as well. On this note, cities with more than 1 million population were advised to offer a hukou to any applicant & the same has been expanded to cities with fewer than 3 million citizens as well. Also, local governments have been given the authority in their territories in matters pertaining to forming the criteria for hukou eligibility. As a domino effect of the same, an interesting ‘Talent War’ has emerged in which the affluent cities have raised the status to allot a hukou to the migrants whereas the inland cities have lowered them so as to retain the talented workforce. Now, for becoming a legal resident in big cities like Shanghai or Beijing, the migrants are offered 4 paths to hukou- becoming an investor in local business, purchasing a home, holding a university degree or having a qualifying job. Indirectly, the option to purchase a home to become eligible for hukou has been done to boost the real estate sector & entice home buyers. There’s no element of surprise that this has become one of the reasons for the insane housing prices thus contributing to China’s rising debt problems. 

 

The resulting deadweight losses in terms of social welfare would lead one to call for the abolition of the entire hukou system but economic and political researchers have suggested that complete abolition of this system would become a herculean task, so its orderly reform is the need of the hour. Hence, given the social and economic problems of this system, strong alternatives to increase residential consumption are needed. The hukou system is a great example of how an economic plan devoted solely to urbanisation & controlling internal migration has resulted in dismantling the economic equality between the rural and urban dwellers. Perfect mobility is, thus, very essential in today’s globalised world and any restriction on the same would lead to the kind of situations being experienced by the migrants in China. As far as the issues like development of slums & squatters due to overcrowding, excess unemployment due to excess supply of labour or congestion in cities are concerned, the State should take measures to provide low cost affordable housing, efficient rail system, and so on and so forth.

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Harshita Goel

Hansraj College

* The comments section is open for a healthy debate and relevant arguments. Use of inappropriate language and unnecessary hits towards

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By Harshita Goel

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