The urban-rural dual structure system is a serious obstacle to China's economic and social development, which is mainly manifested in the household registration barrier between urban and rural areas, two different resource allocation systems and other problems based on the household registration barrier between urban and rural areas. What is the "urban-rural dual structure"? 1. Household registration barriers between urban and rural areas. 1958 1 The third meeting in the National People's Congress Standing Committee (NPCSC) discussed and adopted the Regulations on Household Registration in People's Republic of China (PRC). This marks the formation of the hukou migration system in China, which strictly restricts the migration of rural population to cities. The reformed temporary residence permit system is not only a sign of the existence of this urban-rural barrier, but also a measure to weaken this barrier. 2. Two different resource allocation systems. Before the reform, social resources in China were distributed through administrative redistribution, not through the market. Such as investment in education and public facilities. Education and infrastructure in cities are almost entirely invested by the state finance, while education and facilities in rural areas are quite limited, and a considerable part of them should be borne by the rural areas themselves. 3. Urban-rural barriers based on household registration system actually divide urban and rural residents into two different social identities. The status difference between these two social identities can be seen from the absence of marriage in urban and rural areas. At present, the state provides hundreds of billions of yuan of social security (pension, medical care, unemployment, relief, subsidies, etc.). ) to urban residents every year, but there is almost no guarantee for farmers' illness, death and disability, and farmers have to give them to the countryside to give subsidies and relief to the five-guarantee households and the martyrs. Since the reform and opening up, China has implemented a series of reform measures and policy measures aimed at promoting the coordinated development of urban and rural economy, such as comprehensively implementing the household contract responsibility system and implementing the long-term stability of farmers' land contract rights; Adjust the industrialization strategy of giving priority to the development of heavy industry and support the development of agriculture and light industry; Support the development of township enterprises and promote the local transfer of surplus agricultural labor; Gradually liberalize the circulation and prices of agricultural products and cultivate rural commodity markets; Implement the strategy of urbanization and actively develop small towns. However, it is undeniable that the gap between urban and rural areas in China is widening and the contradiction between urban and rural dual economic structure tends to strengthen. The widening gap between urban and rural areas is manifested in the income gap between urban and rural residents. In recent years, the growth of farmers' per capita net income lags far behind the growth of urban per capita disposable income, and the urban-rural income ratio has increased from 65438+2.57 to 0978? 1983 once dropped to 1.82? Since then, it has been continuously expanded to 3.231in 2003; It has exceeded the initial stage of reform and opening up. If all kinds of benefits and subsidies enjoyed by urban residents are counted, and farmers' income includes production and operation expenses, the actual income gap may reach 6? 1。 With the great changes in China's economic and social outlook and the remarkable improvement of social productivity and comprehensive national strength, the dual economic structure between urban and rural areas is still very prominent. In addition to being restricted by the industrialization stage and the development level of productive forces, the key point is that many institutional problems that restrict the dual economic structure between urban and rural areas have not been fundamentally solved, mainly as follows: during the planned economy period, in order to speed up industrialization, on the one hand, the state used administrative means, such as compulsory purchase and sale of grain and scissors difference between workers and peasants, to transform agricultural surplus into industrial accumulation. On the other hand, it restricts the migration of rural population to cities to maintain the development of large-scale industries in capital-intensive cities. Since the reform and opening up, the household registration system, employment and social welfare system formed during the planned economy period have been inherited to a certain extent. Although some places have carried out the reform of household registration system, these reforms have not made much progress because they hide many social welfare factors and need to pay high social costs. Therefore, the actual inequality between urban and rural residents in employment opportunities and social welfare level has not fundamentally changed. Market system of urban-rural segmentation From the perspective of commodity market, farmers can only enter the urban market for sporadic and small-scale spot transactions, and basically do not enter the wholesale market, and it is even more difficult to participate in large-scale forward contracts and futures transactions. The wholesale trade of bulk agricultural products such as grain, cotton, oil and sugar is still monopolized by state-owned circulation enterprises. From the perspective of factor market, money market and capital market are mainly oriented to urban economy because of the low average profit rate of agriculture and driven by interests. The relatively abundant funds in cities have not entered the countryside, and the conditions and channels for farmers to participate in the market and capital market are very limited; The transformation of rural land into industrial and urban construction land cannot be directly marketized, and it can only enter the market after being transformed into state-owned land through state expropriation. The primary market is controlled by the state, so it is difficult for farmers to enter the secondary market. Farmers are in a weak position in land transactions, and it is difficult to share the huge value-added benefits formed in the process of farmland conversion. During the planned economy period, the industrialization mode of urban-rural division concentrated rural resources to promote urban industrialization, which hindered the process of urban-rural economic integration in China to a great extent. After the reform and opening up, the industrialization mode of urban-rural division was implemented, and the production, circulation and processing of agricultural products did not form an organic connection, making it difficult for farmers to share the value-added benefits of agricultural products processing; Township enterprises are independent of industry governance in governance system, which is all-inclusive and self-contained; The parallel development and excessive competition between rural industrialization and urban industrialization make the development space of rural industry obviously limited after the change of market supply and demand pattern and the docking of domestic market and international market, and the ability to absorb rural surplus labor force is weakened, which directly and indirectly affects farmers to share the fruits of industrialization. In the planned economy period with other input mechanisms, in order to maintain the development of large-scale industries in capital-intensive cities, the state concentrates production factors such as capital, technology and talents on cities, and at the same time relies on agricultural accumulation to support the development of urban industries. After the reform and opening up, on the one hand, rural factors of production such as capital, labor and land are transferred and gathered to cities driven by economic interests; On the other hand, the country continues to lean towards cities in infrastructure and public service facilities such as science, education, culture and health, while rural areas rely on self-accumulation to some extent, such as "three overall plans and five guarantees", and carry out corresponding infrastructure and public service facilities construction, resulting in an increasing gap between urban and rural areas in infrastructure and public service facilities. To sum up, institutional factors actually form the mutual isolation between agricultural and rural development and industrialization and urban development, which is the key to the dual economic structure of urban and rural areas. 4 Difficulties in Reform It is a profound social change to fully understand the long-term, arduous and complex nature of reform and establish a new system that is conducive to changing the urban-rural dual economic structure and promoting the transformation of the urban-rural dual economic structure into a modern dual economic and social structure. It includes not only the transformation of rural production and lifestyle with urban production and lifestyle, the reorganization of production factors and the migration of rural population to cities, the organic integration of urban and rural industries and the transformation of organizational methods, but also the transformation of the whole social structure, organization and culture. This process is a long historical process accompanying the primary stage of socialism in China, and it cannot be accomplished overnight. However, under the situation that the contradiction between urban and rural dual economic structure is increasingly prominent, we must fully understand the necessity and urgency of speeding up the reform and seize the opportunity to promote the reform of important and key links. Realizing the integration of urban and rural economy is a long-term historical process accompanying the modernization process of China, and it is also a complicated socio-economic process that constantly adapts to the requirements of economic and social development. We must fully understand the long-term, arduous and complex nature of this process, as well as the contradictions and difficulties we are facing. What is certain is that the traditional dual economic structure of urban and rural areas in China has undergone obvious changes, and the situation of urban and rural market segmentation has been greatly improved. However, we should also see that the key institutional factors of urban-rural dual economic structure, such as the unification of urban-rural factor market, the reform of rural land expropriation and occupation system, and the construction of social security system, are still lagging behind, and some deep-seated problems have not yet made breakthrough progress and have a long way to go. In this regard, we must have a full estimate. It is necessary to combine gradual progress with key breakthroughs and seize the opportunity to make breakthroughs in important links according to the mature conditions; According to the level of economic development in various regions, breakthroughs have been made in some regions to promote overall progress. Make overall plans for development, deepen reform, make overall plans for urban and rural development, and establish and improve institutional mechanisms conducive to urban-rural integration, that is, take institutional and policy innovation as a breakthrough, reform various systems that are not suitable for the requirements of the socialist market economic system and are not conducive to urban-rural economic integration, fundamentally eliminate institutional and policy obstacles that hinder urban-rural integration, promote urban-rural economic system to constantly adapt to and improve the inherent requirements of the socialist market economic system, and create good institutional conditions for promoting the transformation of urban-rural dual economic structure into modern dual economic and social structure. Deepen the reform of household registration, deepen the reform of household registration system, and gradually unify the urban and rural labor market. Conditional areas to cancel the difference between urban and rural household registration, cancel the agricultural registered permanent residence, and implement a new household registration management system based on legal fixed residence or stable occupation. After obtaining urban hukou, farmers will perform the same obligations and enjoy the same rights as the original urban residents. Gradually abolish all kinds of urban consumption subsidies and social welfare unique to cities, and gradually increase investment in rural public facilities and services, greatly improving the welfare level of rural residents. "Land for social security" promotes the reform of rural land expropriation and occupation system and implements the policy of "land for social security". Reform the system of land requisition and compensation, strictly distinguish between public welfare land and business land, improve the compensation standard of public welfare land, and rationally adjust the distribution relationship of land value-added income between the state and farmers; Market mechanism should be introduced into commercial land, and collective land transactions should be piloted. The land occupation price is determined by the market mechanism. Explore the establishment of a land transfer fee sharing system between the central government, provincial governments and governments below the provincial level, and incorporate land transfer fees into the national and local fiscal budgets to reflect the state's right to own land and curb the expansion impulse of local governments and the extensive use of land resources. Explore the possibility of collecting land transfer fees on an annual basis, avoid local governments' quick success and instant benefit, and promote the sustainable development and utilization of local land resources. The policy of "land for social security" will be realized when agricultural land is converted to non-agriculture, and a certain proportion of rental income will be set up to establish a special social security account for landless farmers. The reform of tax and fee system has accelerated the reform of rural tax and fee system and gradually unified the urban and rural tax system. The main countermeasures to unify the urban and rural tax system are: first, gradually reduce the agricultural tax until it is finally abolished, and farmers pay personal income tax and value-added tax as urban residents do, thus the local fiscal gap is solved by the central and provincial fiscal transfer payments. Second, gradually establish and improve the rural public finance system. During the transition period, while increasing rural financial transfer payments at the central, provincial and local levels, we will gradually reduce and cancel rural overall planning fees, include rural public welfare expenditures and township administrative expenditures in the government budget, and gradually increase investment in rural infrastructure and public service facilities. The third is to consolidate and improve rural compulsory education. Where conditions permit, provinces and counties will gradually implement overall planning, and different overall planning ratios will be implemented according to different situations. The central government will gradually increase investment in rural compulsory education. Fourth, promote the extension of minimum living security to rural areas and gradually expand the coverage of rural social security. In areas where conditions permit, we will promote the extension of the minimum living security system to rural areas and cover farmers in cities, and gradually realize the integration of urban and rural areas with minimum living security. Conditional areas will gradually expand the coverage of social security system, first covering farmers who lost their land in the process of non-agricultural land conversion, then covering rural migrants who have entered urban employment and are willing to withdraw from contracted land, and then gradually covering rural areas. Improve farmers' welfare, increase investment in rural infrastructure and public facilities, and improve farmers' welfare level. Strengthen the overall planning of urban and rural infrastructure such as transportation, communication and electric power. Standardization and institutionalization of rural public product investment. If the state increases fiscal revenue and equity income for investment and social welfare expenditure, the distribution ratio in rural areas will be greatly improved. Sixth, improve the degree of organization of farmers' production and operation and enhance their ability to participate in market competition. Encourage farmers to establish new economic cooperation organizations and enhance their ability to obtain market information and participate in market competition. Develop rural finance, actively develop rural finance and activate rural financial market. According to the principle of marketization, the floating range of loan interest rates for rural small and medium-sized enterprises and farmers will be appropriately relaxed. We will promote equity diversification, equity formation and openness of rural credit cooperatives, and strive to eliminate the urban-rural blockade and division of capital flows. On the premise of strengthening supervision and preventing risks, we will prudently and actively promote the development, reform and innovation of private finance, relax the restrictions and constraints on the development of private finance, and promote the development of rural financial markets. Eighth, deepen the reform of township administrative management system and effectively streamline township institutions and personnel. We will steadily promote the withdrawal of townships and merge towns, appropriately expand the service radius of township governments, and constantly improve work efficiency. Conditional places can carry out the reform of township government to county-level government institutions on the basis of pilot projects, reduce the level of administrative governance, greatly reduce the number of administrative personnel and reduce the cost of administrative governance. Looking forward to solving the urban-rural dual structure is actually a very important issue. The dual structure of urban and rural areas exists all over the world, because urban and rural areas, industry and agriculture are different in form and operation mechanism. So there is a dual performance. The United States has a dual structure problem, and so does Japan. What deserves attention is the institutional mechanism under the dual structure. For example, before the reform and opening up, the unequal exchange of workers and peasants' products, scissors difference is the problem of institutional mechanism. After the reform and opening up, the unequal exchange of workers and peasants' products eliminated the problem of scissors difference. However, institutional problems still exist in the flow of factors. For example, a few years ago, migrant workers went to cities to work, and they could not get equal pay for equal work in some positions. This is an institutional problem. For another example, in the process of rural land expropriation and occupation, farmers' interests are damaged, and the phenomenon that local governments and land-using enterprises seek profits is also a problem of institutional mechanisms, which should be paid enough attention to. The fundamental way to solve this system and mechanism problem is to coordinate urban and rural solutions in accordance with the spirit of the 17th National Congress of the Communist Party of China. At present, efforts should be made to achieve the equal development of workers and peasants in urban and rural areas in urban and rural planning, industrial layout, infrastructure construction, public services and employment. Of course, the deep-seated contradictions caused by the dual structure of urban and rural areas cannot be solved in a day or two. It takes a lot of efforts and long-term efforts to solve it. We should start with the weak links of urban-rural dual structure, such as solving the problem of equal employment of labor force, then solving the problem of equal supply of urban and rural public goods, and then solving the problem of fair allocation of land capital and other factors between urban and rural areas. Fundamentally speaking, solving the deep-seated contradiction between urban and rural structure requires not only deepening reform according to market orientation, but also unremitting efforts of the government. There are a large number of institutional arrangements and a large number of policy orientations, which need to be gradually established and improved. 7 Improving Ideas The urban-rural fringe is a regional concept with China characteristics. It exists because of the political attribute of China-the dual management system of urban and rural areas, and the problems involved are far more complicated than ordinary pure urban areas or pure agricultural areas. Therefore, to break the "dual structure" of urban and rural areas as a breakthrough, to deeply study the "pathogenic" roots of this area, and to explore effective ways to solve social problems in this area with the reform idea of coordinated urban and rural development will not only help improve the modern management level of Beijing, but also have important reference significance for areas that will realize urbanization in the future. ? Is the urban-rural fringe a "pain zone" with long-standing problems? (1) What is the concept of the location of Beijing's urban-rural fringe? Beijing's urban-rural junction can be divided into broad sense and narrow sense: compared with Dongcheng, Xicheng, Chongwen and Xuanwu, Chaoyang, Haidian, Fengtai and Shijingshan are urban-rural junction areas in a broad sense. But in fact, the area with the typical characteristics of urban-rural mixed population is the ring area near the Fourth Ring Road, where the boundaries between street offices and township (town) administrative areas are unclear, that is, the narrow urban-rural fringe area that we focus on. It is a suburb where urban industry and residential areas are constantly spreading, which makes the suburb which was mainly rural rapidly evolve into a special space with both urban and rural characteristics. ? (2) Regional social problems have not been cured for a long time, and become the meeting place of various contradictions and conflicts in the social transformation period. If people drive around some urban-rural fringe areas along the Fourth Ring Road, it is not difficult to find a scene completely different from urban high-rise buildings and rural pastoral scenery: simple facilities, narrow space and privately built houses have destroyed the original pattern of village planning; Garbage residue can be seen everywhere; Streets and lanes are narrow and uneven; It is dusty in windy days, muddy in rainy days, and the dry toilet smells bad. The deterioration of the living environment has made the regional social security environment "worse": almost all the 33 high-risk areas listed and supervised in the city are concentrated in the urban-rural fringe, and drug abuse, drug trafficking and vicious cases have been repeatedly banned (beaten); Rental housing in this area, especially illegal rental housing, has become a place to shelter evil people and shelter evil practices ... No wonder some reporters use the word "urban bad edge" to describe the circular zone in the urban-rural fringe. ? As a companion of urban expansion, the problem of urban-rural fringe has a long history, which can generally be traced back to the mid-1970s. However, at that time, the number of agricultural land requisitioned by the state was limited, and the geographical scope and social impact of the problem were small. After the reform and opening up, the speed of urban construction in Beijing has changed with each passing day, and the amount of land acquisition in suburbs has doubled. According to statistics, by the end of 2002, there were only 6.5438+0.28 million hectares of cultivated land in Chaozhou, Haihe, Fengshi and Shijiazhuang, which was 3/4 less than the 52.3 million hectares in the early days of reform and opening up. However, the political system reform lags behind the speed of economic development, which makes the "dual" social management system unable to cope with many social problems brought about by the rapid population flow in this area. The accumulation of economic and social contradictions has made many problems difficult to return. The urban-rural fringe has become a headache for the government and a "pain zone" for the people. eight