Chapter 11 1. to exploit outsiders
Although many media commented on Shanghai's household registration reform as "breaking the ice of China's urban household registration system reform", in fact the Shanghai Municipal Government announced the implementation of the "New Household Registration Policy" on February 23, 2009 (try out for three years) ), not a free lunch.
Wang Xixin, a professor at Peking University, said that Shanghai's approach runs counter to the fundamental logic of China's household registration system reform.It looks at academic qualifications and contributions, and regards Shanghai Hukou as a paid reward, but in the end it is just an expedient measure to satisfy its own interests.
On February 23, 2009, the Shanghai Municipal Government issued a notice on the "Trial Measures for Applying for Permanent Residence in Shanghai for Persons Holding a Shanghai Residence Permit".According to regulations, those who meet the following conditions can apply for permanent residence in this city:
(1) Hold the "Shanghai Residence Permit" for seven years; (2) Participate in the city's urban social insurance for seven years during the period of holding the certificate; (3) Pay income tax in this city according to law during the period of holding the certificate; (4) The city is employed as an intermediate professional technical position or above, or has a professional qualification above the technician (national vocational qualification certificate above level two), and the profession and type of work correspond; (5) No violation of the national and municipal family planning policies, public security management Punish the above-mentioned illegal and criminal records and other bad behavior records.
Note that the above conditions must be met at the same time, rather than "choose one".The harsh conditions can be seen at a glance.
Wang Xixin, a professor of Peking University, said in CCTV's "News 1+1" on the second day after the new policy was promulgated: Although some of Shanghai's practices are based on the current situation and the needs of specific issues, it is understandable, but It is contrary to the fundamental logic of our household registration system reform.
The core of the reform of the household registration system is to solve the dual division of urban and rural household registration system, and realize the integration and unification of urban and rural household registration. However, this new policy in Shanghai is still mainly a household registration management, and more specifically, it is about household registration access management. some reforms.
The reason why Shanghai Hukou is so attractive is because there are benefits such as medical care, welfare, education, employment opportunities, pension insurance, social security, public services, etc. behind it.The fundamental purpose of the household registration reform is to dilute the gold content of the household registration, but the Shanghai household registration reform will not reduce the gold content, but will make the weight of the residence permit even heavier.
At first, when I heard that holding a "Shanghai Residence Permit" for seven years would allow me to "become a regular", more than 4.5 million of Shanghai's more than 6 million migrants with residence permits cheered.Looking forward to the further announcement of the detailed rules.However, when the time came when "the east wind blows the dream to Shanghai", the burden was shaken off, and what I saw was a frustrating "brain teaser".
It turns out that the legendary "seven-year period" has additional conditions: one is to participate in Shanghai's urban social insurance for seven years during the period of holding the certificate, and pay income tax in Shanghai according to law during the period of holding the certificate. This is an economic condition; the other is It is an identity condition to be hired as an intermediate or above professional technical position in Shanghai, or to have a professional qualification of a technician (national vocational qualification certificate above level two) or above, and the profession and type of work correspond.
According to Ding Jinhong, director of the Population Research Institute of East China Normal University, Shanghai is now facing increasingly severe competition for high-end talents, and the household registration problem has actually become a bottleneck for talent introduction.Household registration reform is in the interests of urban development. On the other hand, there are very limited talents who can fully meet the standards.Ding Jinhong said frankly that, as a tool of the government, the household registration reform must serve Shanghai's own interests.
Ding Jinhong said: "First of all, the government has done what it should do and fulfilled a promise. I think Shanghai's introduction of residence permits for talents is a strategic idea that gives priority to talents or development. That is, Shanghai will establish four Center. Especially in economic and financial centers, retaining and making good use of talents is a necessary prerequisite.”
However, Ding Jinhong also pointed out: "To a certain extent, Shanghai's new household registration policy is still a choice of disliking the poor and loving the rich. So the government should use it as a tool to attract talents.” He said, “That is, the value of the city is paramount. This is not a very noble value. The interests of the city must be fully protected, and the value of the city must be given priority. People also have the strongest right to speak, so these also determine that the city's own interests will be considered in a more important position."
As far as the purpose of Shanghai is concerned, the adjustment of the household registration threshold is to attract talents.Over the past 30 years of reform and opening up, Shanghai has adjusted its household registration migration policy three times in 1994, 2002, and 2004. This reform of "residence certificate transfer to household registration" is called Shanghai's fourth household registration system reform.
"I've been looking forward to the new policy for many years, but I didn't expect it to be so far behind." Tian Xiaoqing is 34 years old and has worked hard in Shanghai for 10 years. When it comes to the new household registration policy, he is a little disappointed.
Tian Xiaoqing applied for a Shanghai residence permit at the end of 2004, but was stuck on the threshold of 7 years. "Now it seems that although the conditions are attractive, there are probably only a few people who can actually get the hukou." The residence permit must be held for 7 years, and this condition is almost difficult for all the "Shanghai drifters" in their company.Shanghai has implemented a residence permit system since 2002. In their foreign-funded company, most of their colleagues obtained residence permits from 2004 to 2005.
However, for more outsiders, they face more than just the threshold of time.
Chen Chongbin and Zhao Xuelin are from Fujian. They just got the talent residence permit in 2008 and have been engaged in steel business in Shanghai for many years.Chen Chongbin said: "It has been 15 years since we arrived in Shanghai on July 1, 1994. We also look forward to becoming a new Shanghainese, but we came out early, and the cultural learning is relatively weak. Intermediate or senior professional titles, this cannot be achieved.”
His wife, Zhao Xuelin, said: "Outsiders have also made a lot of contributions to Shanghai. It stands to reason that we have contributed more to this city than ordinary people with intermediate titles, because we have also solved the employment of many people. Including taxes and so on."
To this end, they dialed the Shanghai Human Resources and Social Security Bureau's consultation telephone number.However, the answer I got was "you can't apply for a household registration without an intermediate professional title, and the policy will change after three years."Such an answer disappointed the couple.
In fact, there are only 3,000 people in the first batch who meet the "accumulated 7 years" conditions, and the number of people who meet other conditions will be even smaller.Today, there are more than 6 million migrant workers in Shanghai, and more than 4.5 million people have applied for residence permits. Among them, the number of people who have Shanghai talent residence permits and have the opportunity to obtain Shanghai household registration is only about 300,000 people, the proportion is less than one-tenth. In fact, this household registration reform has nothing to do with the other 4.2 million people.
Some people used the so-called international experience to explain Shanghai's "transfer" conditions, but they were immediately condemned on the Internet. Some netizens pointed out: "These experiences are used to deal with international immigration issues between countries, and they are used to deal with domestic flows. population or 'non-registered population', is that appropriate?"
"Taking a step back, even if these international experiences are available, Shanghai's regulations are more stringent. For example, Sweden stipulates that you can be naturalized after living in Sweden for 6 years. I know a case that has been unemployed after immigrating to Sweden. But after 6 years, you can still be naturalized. In international practice, in addition to "sitting in immigration prison", there are also skilled immigrants and investment immigrants, but there is no time limit for them. As long as you meet the conditions, you can go through the procedures immediately. Now The 'New Deal' is that all conditions must be met at the same time, which is much stricter than international immigration."
According to the relevant regulations of Shanghai, it is quite difficult for people like Chen Chongbin and his wife without high education to even obtain a residence permit for talent introduction, let alone a local household registration in Shanghai.Among the millions of migrants in Shanghai, those who can really meet the five conditions are very rare.In the end, the Shanghai Household Reform New Deal, which has been placed with high expectations, feels like a lot of thunder and little rain.
Someone said: "In the short term, those who have obtained Shanghai household registration will benefit, but in the medium and long term, it will benefit the economic development of Shanghai as a whole."
Regarding this point of view, Professor Wang Xixin said: "Conditional agreement, because in the short term, I think this short term needs to be added with a long-term condition, that is, some special benefits behind the account must be maintained. If maintained, I It is only useful to get a hukou. If I get a hukou just as a symbol of being a Shanghainese, and the latter special benefits are gone, then we may not necessarily get it in the short term, so you have to admit that these benefits must be guaranteed In the long run, whether it will be a boost to Shanghai's economy, of course, it is still difficult for us to predict. But I can say that in the long run, we need to consider the country's overall strategy for the reform of the household registration system, for example around 2020 Scholars estimate that at that time we will start a substantial reform of the household registration system. The goal of the reform of the household registration system is the integration of urban and rural areas, and the system of dual urban-rural division may be abolished. However, such a reform may be far from that goal. of."
The implication is that once the reform of the household registration system is officially launched across the country, it is also the general trend. Then, after working hard for seven years in Shanghai, in order to keep their jobs and pay various taxes on time, diligent outsiders will turn Shanghai residence permits into After the Shanghai hukou, what you get is just a symbol of a Shanghainese. The precious benefits attached to the hukou will be broken due to the comprehensive reform of the household registration system-you have it, and people from the hometown in the countryside also have it.Experts predict that this may happen within the next decade.So, what was the reason for the forbearance and persistence in the metropolis?Maybe many people will be both happy and worried.
Ding Jinhong also believes that because it does not meet the fundamental purpose of household registration reform, Shanghai's "new household registration policy" is destined to become an expedient policy like the previous three reforms in Shanghai.
Policies will change at any time, and the seven years of youth you spent for Shanghai will never return.If you just swallow your breath and stay in this city just for a Shanghai hukou, then you should seriously consider again whether such an exchange is worth it?
In fact, in addition to attracting talents to work in Shanghai and using their ingenuity to contribute to the city, obtaining economic benefits from outsiders and directly squeezing money is also the reason why Shanghai is more "enlightened" in its attitude towards immigrants. ——"Social insurance (full name social insurance, for residents, social insurance is commonly referred to as "five insurances and one housing fund", "five insurances" means endowment insurance, medical insurance, unemployment insurance, work-related injury insurance and maternity insurance, 'one housing fund' That is, the housing provident fund) fund is seriously bottomed out. In 2008 alone, Shanghai’s municipal fiscal revenue was 17-18 billion yuan for the Shanghai Social Security Fund, accounting for about 17-18% of the municipal fiscal revenue. It is expected to increase by 60% this year. -7 billion to fill the hole in the social security fund." On January 6, 2009, Yu Zhengsheng, secretary of the Shanghai Municipal Party Committee, said in a discussion with members of the CPPCC.
In 2008, Shanghai's local fiscal revenue was 238.23 billion yuan, a year-on-year increase of 13.3%.In contrast, Shanghai's local fiscal expenditure in 2008 was 261.77 billion yuan, an increase of 18.9% over 2007.In the eyes of the outside world, behind the serious imbalance of local fiscal revenue and expenditure, it reflects that Shanghai is facing an increasingly prominent problem of fiscal revenue and expenditure contradictions.
Apparently, the Shanghai municipal government has "more than enough energy" in terms of fund allocation. "Many people ask why Shanghai doesn't rent out buses like Beijing. Shanghai has no conditions. Beijing doesn't subsidize social pensions, so more than 10 billion is subsidized for buses every year, while Shanghai has to subsidize 16 billion for pension insurance every year." Shanghai Municipal People's Government Mayor Han Zheng said when meeting with members of the Chinese People's Political Consultative Conference in 2009.
Han Zheng said: "At present, Shanghai has more than 230 kilometers of rail transit lines in operation, with a daily passenger flow of more than 3 million. In 2008, the revenue was 3.5 billion, but the interest that needs to be repaid is as high as 2.8 billion. The income is only enough to pay the interest. The principal of the bank loan How the gold will be returned is still unknown.”
Han Zheng also made two calculations for the CPPCC members on purpose.Han Zheng said: "According to the plan, the total mileage of Shanghai's rail transit lines 1-13 is 350 kilometers, with an estimated total investment of 238 billion yuan. The government must provide at least 35% of the capital fund of nearly 83.3 billion yuan. When the recovered funds are used for the capital of newly-started line projects, only nearly 70 billion yuan has been put in place now, and there are still 20 billion yuan, and I don’t know where they come from.”
According to the "Report on the Implementation of Shanghai's 2008 Budget and the 2009 Draft Budget" made by the Shanghai Municipal Bureau of Finance at the Second Session of the Thirteenth Shanghai Municipal People's Congress, the 2009 municipal financial arrangements have a significant impact on social insurance. Funds and other subsidies amounted to 12.14 billion yuan.With the deepening of Shanghai's aging population and the characteristics of "intergenerational payment" in the social security system, Shanghai's future social security payment pressure will increase.
Yu Zhengsheng said: "Before I came to Shanghai, I asked the leaders of the central government, including the old leaders who used to work in Shanghai, what should be paid attention to in the development of Shanghai. Some comrades told me that Shanghai now has more money than can be used up. After I came to Shanghai, I felt that there was a lot of money, but then I found that Shanghai’s finances encountered a series of problems, which were not as good as I thought at the beginning, and Shanghai’s various financial expenditures were under great pressure.”
Among a series of financial problems, the most distressing one is the "sufficiency of income" of the Shanghai social security fund: "This situation has reached a serious bottom, and in the next 20 years, the situation of filling the hole in the social security fund with fiscal revenue It's going to get worse," said an official, speaking on condition of anonymity.
When Shanghai's local fiscal revenue and expenditure were seriously unbalanced, and the hole in the social security fund was getting bigger and bigger, even Yu Zhengsheng had to emphasize this point, what did Shanghai do?Let the migrant population participate together and pay the basic endowment insurance together with the population registered in Shanghai.However, there are only entrances and no exits.
From July 1, 2009, the basic endowment insurance for urban employees in Shanghai (commonly known as "urban insurance") opened a door to non-Shanghai household registration foreigners—allowing non-Shanghai household registration foreign employees to pay urban insurance in Shanghai.
According to the latest regulations of the Shanghai Human Resources and Social Security Bureau, starting from July 1, 2009, employees with urban household registration in other provinces and cities who have established labor relations with employers that participate in the basic urban endowment insurance of Shanghai, and their age Those under the age of 45 shall participate in the basic urban endowment insurance of this city.
Employees with non-urban household registration in other provinces and cities who have established labor relations with employers participating in the urban basic endowment insurance of this city, and are under the age of 45, and have professional and technical titles, or certificates of technicians and senior technicians, Or other specialized technical personnel needed by the unit, etc., can also participate in the city's urban basic endowment insurance upon agreement with the employer.
The new household registration policy announced in February 2009 is also intended to attract qualified people to apply for Shanghai residence permits. There are nearly 2 million such people in Shanghai. The number of people with provincial and municipal household registrations in Shanghai is as high as 6 million, according to data.
Based on an average monthly salary of 5,000 yuan for a person holding a residence permit, the amount of "three golds" paid by his company will reach 1,080 yuan a month, and 12,960 yuan for the whole year. At present, the population of Shanghai with a residence permit is about 210,000. , The social security fund increases income by about 270 million each year (the proportion of social security funds paid by enterprises into the pooling account is divided into medical insurance and social security, which are slightly different and difficult to calculate precisely, but most of the corporate contributions go into the pooling account).
In the long run, about 2 million migrants in Shanghai are applying for residence permits for talents. If these 2 million people all apply for residence permits, the social security pooling account can increase the income by 2.7 billion a year, which can relieve the social security problem to a considerable extent. bottoming out" pressure.
However, while Shanghai is opening this door to foreigners, the other door to exit is still tightly closed-foreign workers without Shanghai household registration, even if they pay urban insurance in Shanghai, they cannot receive it in Shanghai. pension.
"This is a road where you can only see the entrance but not the exit," said Wang Lei, who works for a Taiwanese-funded enterprise in Shanghai.In Shanghai, there are nearly 6 million people in the same situation as Wang Lei.The problem at hand is that they can only pay premiums but cannot receive insurance benefits, which has seriously affected the enthusiasm of these 6 million people to pay premiums.
"According to the current policy, after participating in the 'city insurance', you may get less money." This is Wang Lei's conclusion after studying the new policy.
According to the new policies, people without Shanghai household registration will not be able to receive pension insurance benefits in Shanghai after they reach the age of 60 for men and 55 for women, even if they pay "urban insurance" in Shanghai. "According to the current policy, the payer can go to the social security institution where the household registration is located to apply to transfer the amount and the number of years of the pension insurance payment that has already been paid. However, only the part of the personal account can be transferred, and the pooled account cannot be transferred." A person from the Social Security Administration said.
This means that people with household registration in other provinces and cities working in Shanghai can only withdraw 8% of the personal payment when they leave Shanghai, and the 22% of the corporate payment goes into the pooling account and cannot be withdrawn and transferred to other places.The situation of the medical insurance account is similar. When leaving Shanghai, only 2% of the personal payment can be transferred, and the 12% of the corporate payment cannot be withdrawn.
According to the information provided by the Shanghai Municipal Bureau of Human Resources, Labor and Social Security, foreigners who participate in comprehensive insurance can obtain an old-age subsidy certificate every 12 months after paying the full payment. After men reach the age of 60 and women reach the age of 50, they can Receive a lump-sum pension, currently about 1,000 yuan.
"I did the math, and it basically means getting back the principal after decades, but at least I can still get the part paid by the unit for the individual, and once I participate in the payment of 'urban insurance', it will be transferred back to the place of origin in the future, which is equal to the part paid by the unit I can't get a penny." Wang Lei said.
Although citizens with a residence permit can enjoy various social insurance policies such as children's education, pension insurance, medical insurance, and unemployment insurance in Shanghai, the treatment is quite different when you look closely.
First of all, those with Shanghai household registration must participate in Shanghai urban insurance, and enterprises must pay four funds for workers, namely endowment insurance, medical insurance, unemployment insurance and housing provident fund.Laborers who apply for a residence permit are only required to pay the "three golds", and companies are not required to pay housing provident funds for their laborers.
Secondly, the biggest difference between a residence permit and a household registration is that although a residence permit holder pays pension insurance in Shanghai, it is not included in Shanghai's pension system and cannot receive pensions in Shanghai.In other words: for the pensions paid by enterprises for workers holding residence permits, workers can only withdraw 8% of their personal contributions when they leave Shanghai, and the 22% paid by companies enters the pooling account and cannot be withdrawn and transferred to other places.
The same is true for medical insurance. Those who hold a residence permit can enjoy Shanghai local medical insurance in Shanghai before retirement.After retirement, Shanghai does not undertake the medical insurance of the residence permit. After retirement, it needs to be transferred back to the place of origin. Only 2% of the individual contribution can be transferred, and the 12% of the enterprise contribution cannot be withdrawn.
It is precisely these restrictions on withdrawal conditions, and from 2002 to January 2009, the door to the transfer of residence permits to household registration has been closed, making the proportion of residence permits in Shanghai not ideal.
Statistics show that as of the end of 2007, the number of migrants in Shanghai was nearly 6 million, and more than 4.33 million foreigners had applied for residence permits, but the majority of them were temporary residence permits, reaching 3.92 million. It is comprehensive insurance for migrant workers rather than urban insurance, and there are only 200,000 people who can apply for residence permits for urban insurance.
Of the 6 million migrants in Shanghai, 2 million are eligible to apply for residence permits for talented people. Peng Xizhe, dean of the School of Social Development and Public Policy at Fudan University, said that among these groups, the proportion of residence permits is not high.
A set of data provided by the Public Administration Research Office of the Shanghai Institute of Public Administration and Human Resources can better reflect the problem: in the year when the residence permit system was launched in 2002, 7,500 people in Shanghai applied for residence permits for talents, and 46,700 household registrations were introduced that year; It was the first time that the number of people with residence permits surpassed the number of persons applying for household registration. By 2007, 54,300 people had applied for residence permits in Shanghai, and 24,200 people had applied for household registration that year.The background behind this is: Since 2004, Shanghai has greatly increased the threshold for entering household registration. More than 60% of undergraduates cannot apply for household registration and can only apply for a residence permit.
Under such circumstances, it is the most realistic choice for Shanghai to open a gap for the transfer of residence permits to household registration so that more foreign talents can actively apply for Shanghai residence permits in order to increase the number of payers. In the specific provisions of the "Trial Measures for Persons Holding a Shanghai Residence Permit to Apply for Permanent Residence in Shanghai", insured persons are also encouraged to pay more for social security.It is stated in Article 6 (Incentive Conditions): If the urban social insurance base paid in this city for the last three consecutive years is more than twice the average salary of employees in this city in the previous year, the personnel in technical management and key positions are not exempted from Article 5 ( 4) Those who are limited by the professional and technical positions or occupational qualification levels stipulated in Item 4 can give priority to applying for permanent residence in this city.
If you take a closer look, the series of measures implemented by Shanghai to deal with migrant population, talent introduction, and household registration reform can all be put into one word: money.From the perspective of this city, whether all reforms in Shanghai can be successful depends on whether you are willing to pay for her charm. The key lies in whether you are willing to pay for "becoming a Shanghainese".