Chinese SocietyChinese SocietyGEE 2190KGEE 2190K

Instructor: Ho-fung HungInstructor: Ho-fung Hung

Week 4.Week 4.Household Registration SystemHousehold Registration System

The Household Registration system – The Household Registration system – the Hukou the Hukou (( 戶口戶口 )) or Huji or Huji (( 戶籍戶籍 )) system system – is a social system instituted in Mao’s – is a social system instituted in Mao’s period and is still affecting the lives of period and is still affecting the lives of many people in mainland China.many people in mainland China.

The basic idea of the system is to The basic idea of the system is to restrict migration from rural to urban restrict migration from rural to urban areas (as well as intra-urban and intra-areas (as well as intra-urban and intra-rural migration) through administrative rural migration) through administrative means. means.

China’s Internal Migration before China’s Internal Migration before 19491949

Before 1949, people living in China were free to Before 1949, people living in China were free to move to wherever they like.move to wherever they like.

For example, many peasants originally living in For example, many peasants originally living in rural villages could move to the cities to look for rural villages could move to the cities to look for jobs and to improve their livings.jobs and to improve their livings.

Peasants who faced famine and other disaster Peasants who faced famine and other disaster could also temporarily move to other areas for could also temporarily move to other areas for relief.relief.

In less busy seasons in agricultural production, In less busy seasons in agricultural production, peasant would leave their village and seek peasant would leave their village and seek temporary employment in nearby towns and cities.temporary employment in nearby towns and cities.

Freedom of movement before 1949, Freedom of movement before 1949, though provided opportunities for the though provided opportunities for the people to improve their livelihoods people to improve their livelihoods through migration, created a lot of through migration, created a lot of urban problems: Many peasants who urban problems: Many peasants who moved into big cities could not find moved into big cities could not find jobs and became beggars or jobs and became beggars or gangsters, hence creating law and gangsters, hence creating law and order problem in the cities.order problem in the cities.

During the civil war between the During the civil war between the Communist and the Guomindang, a Communist and the Guomindang, a lot of peasants left their village and lot of peasants left their village and entered the cities to avoid war, as entered the cities to avoid war, as most battles were carried out in rural most battles were carried out in rural areas.areas.

The Rise of Household Registration The Rise of Household Registration System in the mid-1950s.System in the mid-1950s.

After the founding of the People’s After the founding of the People’s Republic, there were no formal Republic, there were no formal restriction on internal migration. restriction on internal migration. Peasants were still free to move Peasants were still free to move around the country.around the country.

The establishment of food rationing The establishment of food rationing (( 糧食配給糧食配給 )) system, free medical and system, free medical and education systems in urban areas education systems in urban areas attracted more and more peasants to attracted more and more peasants to move to the cities from their home move to the cities from their home villages, where social security and villages, where social security and social welfare was provided by rural social welfare was provided by rural co-operatives and not guaranteed by co-operatives and not guaranteed by the government.the government.

But the large and continuously But the large and continuously increasing migrant population in the increasing migrant population in the big cities began to create problems big cities began to create problems of unemployment and overload of of unemployment and overload of public facilities.public facilities.

In response to this social problem, In response to this social problem, the Communist government began to the Communist government began to develop measures to curb rural-develop measures to curb rural-urban migration.urban migration.

In 1949-53, the government basically In 1949-53, the government basically relied on persuasion to urge peasant relied on persuasion to urge peasant migrants in big cities to resettle in the migrants in big cities to resettle in the village. The relocation was basically village. The relocation was basically voluntary.voluntary.

But in 1953, the government thought that But in 1953, the government thought that the excessive rural-urban migration was so the excessive rural-urban migration was so serious that it had to be checked through serious that it had to be checked through more coercive methods. The government more coercive methods. The government began to refer to peasant migrants as began to refer to peasant migrants as “blind migrants” “blind migrants” (( 盲流盲流 ).).

Between 1953 and 1958, the Between 1953 and 1958, the government kept tightening its grip government kept tightening its grip on rural-urban migration. It started on rural-urban migration. It started with the 1953 “Directive on with the 1953 “Directive on Dissuading Peasants from Blind Influx Dissuading Peasants from Blind Influx into Cities” by the State Council (into Cities” by the State Council ( 國國務院關於防止農村人口盲目外流的指示務院關於防止農村人口盲目外流的指示 ) in ) in 1953 and ended with the passing of 1953 and ended with the passing of the “Regulations on Household the “Regulations on Household Registration in the People’s Republic Registration in the People’s Republic of China” (of China” ( 中華人民共和國戶口登記條中華人民共和國戶口登記條例例 ) in 1958.) in 1958.

Initial approaches of the government to check Initial approaches of the government to check rural-urban migrations included:rural-urban migrations included:

- Prohibiting urban units from making private Prohibiting urban units from making private arrangements to recruit rural workers;arrangements to recruit rural workers;

- Directing local governments to halt Directing local governments to halt uncoordinated recruitment uncoordinated recruitment (( 招工招工 )) in the villages; in the villages;

- Ordering managers and union leaders to instruct Ordering managers and union leaders to instruct workers not to invite people from their villagers to workers not to invite people from their villagers to come to the cities in search of work.come to the cities in search of work.

- Setting up checkpoints at traffic nodes (such as Setting up checkpoints at traffic nodes (such as ports and train stations) to stop peasant migrants ports and train stations) to stop peasant migrants and send them back to their villages.and send them back to their villages.

When the initial approaches turned When the initial approaches turned out to be insufficient, the government out to be insufficient, the government resorted to the very rigid hukou resorted to the very rigid hukou system to stop the migration.system to stop the migration.

Under the system, every citizen of Under the system, every citizen of China had to register as a citizen of a China had to register as a citizen of a definite locality with the local public definite locality with the local public security unit security unit (( 公安單位公安單位 ). Every citizen ). Every citizen was issued a registration card (was issued a registration card ( 戶口戶口証証 ).).

Under this system, everybody who wanted Under this system, everybody who wanted to migrate from one place to another had to migrate from one place to another had to get change-of-residence permission to get change-of-residence permission from local public security unit in advance, from local public security unit in advance, in addition to documents from working or in addition to documents from working or education units in the destination. education units in the destination. Application for that permission was very Application for that permission was very difficult (difficult (公民由农村迁往城市，必须持有城市劳公民由农村迁往城市，必须持有城市劳动部门的录用证明，学校的录取证明，或者城市动部门的录用证明，学校的录取证明，或者城市户口登记机关的准予迁入的证明，向常住地户口户口登记机关的准予迁入的证明，向常住地户口登记机关申请办理迁出手续。“登记机关申请办理迁出手续。“ [[第第 1010条条 ]; "]; "公公民因私事离开常住地外出、暂住的时间超过三个民因私事离开常住地外出、暂住的时间超过三个月的，应当向户口登记机关申请延长时间或者办月的，应当向户口登记机关申请延长时间或者办理迁移手续；既无理由延长时间又无迁移条件的，理迁移手续；既无理由延长时间又无迁移条件的，当返回住地。“当返回住地。“ [[第第 1616条条 ] ).] ).

Anybody living in a city but does not Anybody living in a city but does not have the hukou of that city was not have the hukou of that city was not entitled to the education, medical entitled to the education, medical services, food rationing, and services, food rationing, and government apartments of that city government apartments of that city (Everybody needs to show their (Everybody needs to show their household registration card or grain household registration card or grain ticket [ticket [ 糧票糧票 ] to access these ] to access these benefits).benefits).

The household registration system not The household registration system not only restricted rural-urban migration, but only restricted rural-urban migration, but also rural-rural and urban-urban migration, also rural-rural and urban-urban migration, though the system was designed to target though the system was designed to target on the first kind of migration.on the first kind of migration.

Theoretically, migration was still possible. Theoretically, migration was still possible. But in practice, the government has But in practice, the government has restricted the quota of annual permission restricted the quota of annual permission of rural-urban migration (of rural-urban migration ( 農轉非農轉非 ) in the ) in the past 40 years to 0.15 % of the total past 40 years to 0.15 % of the total population.population.

Impacts of the Household Registration Impacts of the Household Registration SystemSystem

One result of the system is the lack of One result of the system is the lack of geographical mobility of the whole geographical mobility of the whole Chinese population in the past 40 years Chinese population in the past 40 years (except during the Cultural Revolution, (except during the Cultural Revolution, when millions of youngsters were sent when millions of youngsters were sent from the cities to the countryside).from the cities to the countryside).

Another result is the total segregation of Another result is the total segregation of urban and rural China. Under this urban and rural China. Under this segregation, peasants became second segregation, peasants became second class citizens of the People’s Republic.class citizens of the People’s Republic.

《人民日报》的凌志军先生是这样评价户口制度《人民日报》的凌志军先生是这样评价户口制度的。的。 "" 每一个普通的市民和农民，都可以从身边的诸多每一个普通的市民和农民，都可以从身边的诸多小事感觉到城市与乡村的不同。维持这种隔离的最成功小事感觉到城市与乡村的不同。维持这种隔离的最成功的制度，要算户籍制度，中国人由此被分成两类：农业的制度，要算户籍制度，中国人由此被分成两类：农业人口和非农业人口。这两类人虽同属一个国家，同讲一人口和非农业人口。这两类人虽同属一个国家，同讲一种主义，但却在几乎所有的方面各自体验不同的生活。种主义，但却在几乎所有的方面各自体验不同的生活。其中包括粮食、住宅、燃料、就业、教育、医疗、社会其中包括粮食、住宅、燃料、就业、教育、医疗、社会保险、兵役、婚姻、生育，等等。这些制度如此周密，保险、兵役、婚姻、生育，等等。这些制度如此周密，几乎包括了中国人生活的一切方面。所以，至少到目前，几乎包括了中国人生活的一切方面。所以，至少到目前，中国人实际上是生活在两种环境中，一个是中国人实际上是生活在两种环境中，一个是 ''都市中都市中国国 ''；一个是；一个是 ''乡土中国乡土中国 ''，其间障碍，虽然不是诸，其间障碍，虽然不是诸如如 ''柏林墙柏林墙 ''那样的有形物体，但却难以逾越。对与城那样的有形物体，但却难以逾越。对与城里人来说，收缴城市的户口以及驱入农村，是除了杀头里人来说，收缴城市的户口以及驱入农村，是除了杀头坐牢之外的最严厉的惩办。这是中国人里连坐牢之外的最严厉的惩办。这是中国人里连 55岁稚子也岁稚子也知道的事。对于乡下人来说，成为非农业的人乃是他们知道的事。对于乡下人来说，成为非农业的人乃是他们最为期待的前途。所以人们经常听到乡下的人以服兵役最为期待的前途。所以人们经常听到乡下的人以服兵役考大学当劳模的办法摆脱其农民身份，甚至不惜行贿卖考大学当劳模的办法摆脱其农民身份，甚至不惜行贿卖身来取得进入城市的合法资格。身来取得进入城市的合法资格。 "" （凌志军：《中国经（凌志军：《中国经济改革备忘录》，济改革备忘录》， 19891989 －－ 19971997，第，第 1616 页，东方出页，东方出版中心版中心 19991999 年版） 年版）

Some argue that the household Some argue that the household registration system violates the basic registration system violates the basic human right of “freedom of human right of “freedom of movement.”movement.”

Some argue that the system is good Some argue that the system is good for China, as it prevents the for China, as it prevents the formation of huge urban slumsformation of huge urban slums (( 都市都市貧民窟貧民窟 ) and many social problems ) and many social problems associated with it.associated with it.

Loosening of the Household Loosening of the Household Registration SystemRegistration System

After the beginning of the market After the beginning of the market reform in the 1980s, the household reform in the 1980s, the household registration system began to loosen, registration system began to loosen, when rural migrant laborers were when rural migrant laborers were increasingly seen as necessities for increasingly seen as necessities for industrial development in the coastal industrial development in the coastal cities.cities.

A “leaving the place but not leaving A “leaving the place but not leaving the village” the village” (( 離土不離鄉離土不離鄉 ) policy was ) policy was adopted: peasants were allowed to adopted: peasants were allowed to leave their village and work in the leave their village and work in the cities, but their hukou was still based cities, but their hukou was still based on their native place.on their native place.

This policy created a lot of social This policy created a lot of social problems: problems:

郭书田等在《失衡的中国》中摘登了一封读者来郭书田等在《失衡的中国》中摘登了一封读者来信，信中说：信，信中说： ""我在四川省难部县工作，南部县我在四川省难部县工作，南部县城位于嘉凌江边。有时我在江边看到一具具女城位于嘉凌江边。有时我在江边看到一具具女尸。听人指点说：尸。听人指点说： ''这具女尸是绸厂的这具女尸是绸厂的 ''、、 ''这具这具女尸是织布厂的女尸是织布厂的 ''、、 ''这具女尸是丝厂的这具女尸是丝厂的 ''、、 ''这这

……具……具 ''后来我了解到，他们中的一些人是近年后来我了解到，他们中的一些人是近年进入城市做民工的农村姑娘。因为没有城镇户进入城市做民工的农村姑娘。因为没有城镇户口，往往很难与市民男青年结婚，她们又不愿回口，往往很难与市民男青年结婚，她们又不愿回到农村和农民结婚。随著年龄的增长，在巨大的到农村和农民结婚。随著年龄的增长，在巨大的社会与心理压力下，选择了含恨嘉凌江的道社会与心理压力下，选择了含恨嘉凌江的道路。路。 ""（郭书田、刘纯彬著：《失衡的中国》－（郭书田、刘纯彬著：《失衡的中国》－－－城市化的过去、现在与未来，第一部，第－－城市化的过去、现在与未来，第一部，第 7373－－ 7474页，河北人民出版社页，河北人民出版社 19901990 年版。） 年版。）

Recently, further reforms of the Hukou Recently, further reforms of the Hukou system is being discussed in the system is being discussed in the government. In 1998, a new regulation is government. In 1998, a new regulation is passed which:passed which:

- Cancels the policy which designates a Cancels the policy which designates a baby’s hukou according to its mother’s baby’s hukou according to its mother’s hukou.hukou.

- Allows a person to follow his or her spouse’s Allows a person to follow his or her spouse’s hukou.hukou.

- Allows senior person to follow his or her Allows senior person to follow his or her offsprings’ hukou.offsprings’ hukou.

- Allows person investing in a definite city to Allows person investing in a definite city to have hukou of that city.have hukou of that city.

More reforms and even total abolition More reforms and even total abolition of the hukou system is under way.of the hukou system is under way.

http://www.china.org.cn/chinese/difanghttp://www.china.org.cn/chinese/difang/101842.htm/101842.htm