中國銅陵的經濟增長妙方 改革戶籍制度

Tongling, a copper-mining center since the Ming dynasty, is running low on ore. The Yangtze River city wants to turn itself into a manufacturing center, but it lacks a critical ingredient: a steady supply of factory workers.

長江流域的銅礦產業中心銅陵市希望轉型爲一個製造業中心，但缺乏一個關鍵要素：穩定的工人供給。

So it is doing what many places in China are unwilling to do. It is inviting migrants and their families to settle, giving them the same rights to education, health care and housing as locals, and even letting émigrés from China's villages retain their exemption from China's notorious one-child policy, so they can have a second child.

因此該市採取了中國許多地區不願採取的措施，那就是邀請移民及其家人前來定居，並給予他們與本地人同等的教育、醫療和居住權利，甚至允許來自中國農村的移民保留豁免中國一胎政策的權利，這樣他們依然可以生二胎。

The approach shows signs of working. Tongling's population is growing, while overall Anhui province's is falling, and the local economy is getting a small boost. 'Farmers are leaving their land and coming to work in the city's factories,' says Chen Lei, a manager at the Tongling subsidiary of Hailiang Group, which makes copper tubes and plans to more than double its workforce of 280 in the next three years. 'We're seeing that now.'

有跡象顯示這一措施取得了成效。在安徽省總體人口數量下降之際，銅陵市人口正在增長，當地經濟也獲得了些許提振。海亮（安徽）銅業有限公司總經理助理陳磊說，農民正在離開他們的土地，來到銅陵市的工廠工作，我們正在看到這些變化。該公司是海亮集團(Hailiang Group)旗下子公司，主要生產銅管，該公司計劃未來三年讓員工數量從目前的280人增加一倍多。

Since 2010, this dusty city of 750,000 in eastern China has made reform of the city's residency-permit system a centerpiece of its economic strategy.

自2010年以來，這座塵土飛揚、有75萬人口的中國東部城市已經將戶籍制度改革作爲其經濟戰略的中心部分。

All Chinese have what's known as a hukou--a document that entitles them to live in a certain place, usually their hometown, and divides them into rural or urban residents. Social benefits derive from hukou status and vary widely. World Bank researchers estimate that China's richest provinces spend eight times as much, per person, overall as the poorest ones.

所有中國人都有戶口，戶口賦予他們在某個地區生活（通常是他們的家鄉）的權利，並把他們劃分爲城市和農村居民。戶口情況決定了居民享受的社會福利，並且存在巨大差異。世界銀行(World Bank)研究員估計，中國最富裕省份的人均社會福利支出是最貧困省份的八倍。

'China is like a lot of small kingdoms with different levels of welfare,' says He Fan, a senior researcher at the Chinese Academy of Social Sciences. 'People try to move to better places. Hukous keep them out.'

中國社會科學院研究員何帆說，中國各地就像許多小王國，福利水平各不相同，人們嘗試移居到福利水平更高的地區，但戶口成爲他們的一大阻礙。

Chinese economists say that a Communist Party conference that starts Saturday and is scheduled to release an economic blueprint for the next decade will discuss making China's hukou system more equitable. In June, China's National Development and Reform Commission--the old State Planning ministry--released a report saying China should relax hukou controls, starting in smaller cities like Tongling, but only slowly make such changes in larger ones.

中國經濟學家說，定於週六舉行的中共十八屆三中全會將討論使中國戶籍制度更公平的問題。今年6月份，中國國家發展和改革委員會（簡稱：發改委）在一份報告中說，中國應當從銅陵市這樣的小城市開始放開戶籍管制，但在更大型城市只緩慢推進這一改革。

More-sweeping change is opposed by major cities, whose social-welfare benefits are greater than in smaller cities like Tonglingand thus would face greater outlays for migrant families, say researchers involved in putting together the party economic plan.

據參與彙總中共經濟方案的研究員說，更徹底的戶籍制度改革受到大城市的反對，它們的社會福利更高，因此移民家庭將加重它們的福利支出負擔。

Looking to replace the hukou system altogether, the Development Research Center, an influential Chinese government think tank, has urged the party leadership to create a national package of social benefits, so Chinese living standards won't depend so much on differences in localities.

具影響力的中國政府智庫國務院發展研究中心已敦促中共領導層制定一個全國性的社會福利一攬子方案，完全替換掉戶籍制度，這樣中國人的生活水平就不會在那麼大程度上取決於不同的所在地了。

Under the current system, a Beijing hukou gives students a leg up in getting into the capital's universities, which are among the best in China, and medical insurance that can help pay for treatment at some of the country's better hospitals. A rural hukou gives farmers rights to the land they farm--usually enough for a dependable, though subsistence living--and much more modest medical care than is available in cities.

根據現行制度，北京戶口讓學生在進入北京的大學時佔有優勢，而中國很多最好的大學都位於北京。此外，北京戶口還讓北京居民得以享受在中國一些較好醫院就診的醫療保險。農村戶口讓農民有權耕種他們的土地，這通常可以爲農民帶來一個基本有保障的生活，但享有的醫療保障則遠不及城市戶口。

The hukou system dates back to 1958 when the Communist Party wanted to make sure enough people were tilling the fields. The policy helped China avoid some of the problems of Latin America and Africa, where big cities are ringed with shantytowns. But by limiting the ability of Chinese to move their families to the cities where they work, the hukou system also made migrants wary of adopting freer-spending urban lifestyles, a trend running counter to Chinese leaders' broader goals of shifting to a consumer-led economy.

戶口制度源自1958年，當時中共希望確保有足夠的人耕種土地。這項政策幫助中國避免了拉美和非洲出現的一些問題，即大城市中散落的貧民窟。但由於戶口制度限制了中國國人舉家遷移至他們工作城市的能力，該制度讓生活在大城市的移民不願更自由的消費，而這種趨勢與中國領導人將中國轉變爲消費主導型經濟的更大目標背道而馳。

A report by the World Bank and Development Research Center estimates that shifting 10% of China's workforce out of the agricultural sector could boost China's GDP by 6.4%, with higher gains in the less-developed western and central parts of China.

世界銀行和國務院發展研究中心聯合發佈的一份報告估計，將中國10%的農業人口轉變爲城鎮居民可能會給中國國內生產總值(GDP)帶來6.4%的提振作用，欠發達的中國中西部地區受到的提振會更大。

For decades Anhui province, where Tongling is located, has sent migrants to Shanghai, Guangzhou and other coastal cities in search of work in China's burgeoning export businesses. Migrant labor powered China's rise to become the world's second largest economy but at a heavy personal cost for migrants. Many of them left their kids in their home villages to be raised by grandparents because they couldn't get local hukous, making it extraordinarily difficult for them to put their children in local public schools.

數十年來，銅陵市所在的安徽省向上海和廣州等沿海城市輸送了大量移民，他們在中國增長迅速的出口行業尋找工作。移民工人推動中國崛起爲全球第二大經濟體，但他們也付出了沉重的個人代價。他們當中許多人都將孩子留在了家鄉，讓父母代爲照看，因爲他們無法獲得當地戶口，難以讓孩子進入當地公立學校讀書。

From 2008 to 2012, as Anhui province's population fell 2.4%, Tongling's edged up 0.4%, according to government statistics. Industrial profits rose 6% between 2010 and 2012 in the city, much slower than during the boom years before the global financial crisis, but still in the plus column while the city makes its economic transformation.

據政府數據顯示，2008年至2012年期間，安徽省人口數量下降了2.4%，而銅陵市人口小幅增長0.4%。2010年至2012年期間該市工業利潤增長了6%，遠低於全球金融危機前繁榮時期的增速，但在該市經濟轉型之際仍實現了正增長。

In 2005, Tongling eliminated the education surcharge of around 750 yuan ($124) per semester for each migrant child in Tongling public schools, says Zhong Heping, deputy director of Tongling's urban and rural unification office. Over the past three years, the city also made migrants eligible for public housing and the same medical insurance as locals.

銅陵市城鄉一體化工作辦公室副主任鍾和平說，2005年，銅陵市已取消公立學校移民子弟每人每學期約人民幣750元的贊助費。過去三年，該市還讓移民可以享受到公共住房政策，並與本地人享有同等的醫療保險。

Zhou Xiaocui, a 49-year-old clothing store owner, from Anqing, about 55 miles from Tongling, says the city's open door to migrants convinced her to settle there. She says she is impressed that she doesn't have to pay extra for her 13-year-old son to attend the local junior high school. 'I heard good things about Tongling,' she says. 'That's why we moved here.'

現年49歲的服裝店店主周小翠說，銅陵市向移民敞開大門的政策吸引她來此定居。她來自距離銅陵市約88公里的安慶。她說，最打動她的是她13歲的兒子讀本地初中不用交贊助費。她說：我聽說銅陵這裏對外來人口不錯，所以我們就搬過來了。

Wu Jiaxiang, a Tongling native who now lives in Beijing and writes books about Chinese politics, says the core of Tongling's reform is 'equal rights for all.'

吳稼祥，銅陵人，現居北京，中國政治類書籍作家。他說，銅陵改革的核心命題是平權。

Tongling has been known for reform since 1991, when the young mayor, Wang Yang, published an article, 'Wake Up, Tongling,' urging the town to embrace market economics and be open-minded about the changes sweeping China. It caught the attention of then-paramount leader Deng Xiaoping, Chinese media accounts say, which put Mr. Wang on a fast track to higher office.

1991年，時任銅陵市長的汪洋發表了一篇題爲《醒來吧，銅陵》的文章，從那時開始，銅陵市就以改革而聞名於世。在這篇文章中，汪洋敦促銅陵發展市場經濟，以開放性的思維應對整個中國所發生的變化。根據中國媒體的紀錄，這篇文章引起了當時中國最高領導人鄧小平的注意，汪洋的仕途也由此踏上快速上升的軌道。

He burnished his reformist reputation as party chief of coastal Guandong province, pressing local businesses to boost their global competitiveness, and is now a vice premier overseeing economic issues. Locals say he can be counted on to help Tongling.

在擔任廣東省委書記期間，汪洋通過鼓勵當地企業加強國際競爭力而進一步鞏固了他作爲改革派的聲譽。汪洋目前擔任主管經濟問題的國務院副總理。銅陵的當地人說，可以指望汪洋幫助銅陵。

The city's current mayor, Hou Ximin, was a Beijing housing official before he was dispatched to Tongling as a way to round out his resume for higher office, says Mr. Wu, the Tongling political writer.

現任的銅陵市市長是原在北京擔任住房建設官員的侯淅珉。吳稼祥說，他被派往銅陵擔任市長是爲下一步的晉升積攢資歷。

Tongling's move to equalize benefits came after other attempts flopped. Over the past decade, the city required rural residents to give up their land in exchange for an urban hukou and a city apartment. While the city set the compensation at levels higher than elsewhere, many former farmers ran through the money and wound up unemployed. These 'lost land' farmers now congregate around housing projects playing cards and looking for tiny plots of undeveloped to plant beans.

在讓居民平等享有福利之前，銅陵採取的其他措施曾遭遇失敗。在過去的10年裏，銅陵市出臺了讓農村人口放棄土地以換取城市戶口和住宅的政策。雖然銅陵市制定的補償比其他地方更高，但許多農民在用光了補償款之後就陷入失業的困境。如今，這些失去土地的農民聚集在住宅項目周圍，一邊打牌，一邊尋找沒有被開發的可以種些豆子的地方。

City officials and academics studied the massive efforts of Chongqing, with a population of 30 million, to turn 10 million rural residents into urban ones, so they could become a workforce for the factories the city was wooing from China's coast. But Chongqing requires farmers to give up their land within three years in exchange for urban benefits and many balk, figuring that their land acted as a kind of insurance policy. Even if they were laid off from the factory, they could come home and farm, say farmers in rural Chongqing districts.

銅陵市官員和學者們把重慶市的大規模戶籍制度改革作爲研究的樣本。重慶市擁有3,000萬人口，在吸引沿海地區企業工人到重慶就業的同時，重慶市還計劃讓1,000萬農民進城，把這些農村人口轉變成工廠工人。但根據重慶市的要求，農民必須在三年內放棄自己的土地以換取城市福利，許多農民不願這麼做，在這些農民眼中，土地就像一張保險單。重慶郊區農村的農民們說，即使被工廠解僱了，他們仍可以回家種地。

Tongling puts less demand on migrants. They can keep their land and still get urban benefits. That is what Ms. Zhou, the clothing store owner decided to do. 'I definitely don't want to give up my land back at home,' she says. 'I think every farmer feels the same way.'

銅陵則沒有給移民設定那麼多條件。銅陵農民在獲得城市福利的同時還可以保有土地。這也正是周小翠的決定，這個服裝店店主說：我肯定不想放棄家裏的土地，每個農民應該都是這麼想的。

For its part, Tongling is experimenting with new ways to convince rural residents and migrants to become urban workers. The city is teaming with a trust company to offer farmers a chance to pool their lands so the fields can be farmed more efficiently and raise higher value crops. Lease payments and dividends, Tongling planners say, could put more money in farmers' bank accounts and encourage them to leave their farms and move to cities where wages are higher.

銅陵也在嘗試用新的方法吸引農村和外來人口進城當工人。銅陵正與一家信託公司合作，使農民有機會將土地集中起來，以便提高耕作效率並種植價值更高的作物。銅陵的政策規劃者們說，土地的租金和紅利會讓農民的銀行帳戶裏面有更多的錢，鼓勵他們離開土地，到工資水平更高的城市落戶安家。