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Chinese Labour Law Development and Hukou Discrimination

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Part of the book series: Ius Gentium: Comparative Perspectives on Law and Justice ((IUSGENT,volume 49))

Abstract

It has commonly been suggested that the Hukou system has created a particular form of social origin amongst Chinese citizens, namely Hukou status, which is the key ground for over 200 million rural migrant workers to be treated discriminatorily. It also creates a challenge for China to deliver her signatory promise under ILO Discrimination (Employment and Occupation) Convention No. 111, which explicitly prohibits discrimination on the ground of “social origin”. This chapter discusses the nature of so-called Hukou discrimination against rural migrant workers and the role of labour legal instruments, including Convention No. 111, in combating such inequality. The chapter concludes that mainstream scholarship to date has overstated the role of rural/urban Hukou registration, while, at the same time, it has, relatively speaking, under-emphasized the growing significance of registered residency in contributing to labour inequality. Therefore, Convention No. 111 remains valid and significant in guiding China to eradicate Hukou inequality for rural migrant workers.

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Notes

  1. 1.

    The core Conventions ratified by China are: the Equal Remuneration Convention No. 100 (ratified on 2 November 1990); the Discrimination (Employment and Occupation) Convention No. 111 (ratified on 12 January 2006); the Minimum Age Convention No. 138 (ratified on 28 April 1999); and the Worst Forms of Child Labour Convention No. 182 (ratified on 8 August 2002).

  2. 2.

    [Labour Law of the People’s Republic of China] 中华人民共和国劳动法 (zhōng huá rén mín gòng hé guó láo dòng fǎ), 1994.

  3. 3.

    [Regulations on Household Registration] 中华人民共和国户口登记条例 (zhōng huá rén mín gòng hé guó hù kǒu dēng jì tiáo lì), 1958.

  4. 4.

    Ibid.

  5. 5.

    Windrow and Guha 2005, at p. 3.

  6. 6.

    [Regulation on Household Registration] 中华人民共和国户口登记条例 (zhōng huá rén mín gòng hé guó hù kǒu dēng jì tiáo lì), 1958, Article 7.

  7. 7.

    Ibid., Article 20.

  8. 8.

    The cover of the Hukoubu is plastic or laminated, of reddish brown colour, together with the national emblem printed in gold. The inside pages are not numbered, and contain full information on all household members, such as date of birth, birthplace and gender.

  9. 9.

    The details of those conditions and terms are as follows: first, the Hukoubu is an identification document which indicates the citizen’s identity and the relationship between family members. It is used and managed by PSBs for household inquiries. The householder or members of the household have to present this certificate to police for investigation and verification whenever needed. Second, the householder has to keep the Hukoubu in proper condition and not to alter, transfer or lend the register privately and must report immediately to the PSB when the household register is lost or damaged. Third, the Hukoubu is the property of the issuing authority. Fourth, the householder has to report to the police station on any change in registered items. Fifth, if the whole household moves out of the registered region, it should apply for cancellation of household registration.

  10. 10.

    See [Regulation on Household Registration] 中华人民共和国户口登记条例 (zhōng huá rén mín gòng hé guó hù kǒu dēng jì tiáo lì), 1958, Articles 3 and 10.

  11. 11.

    [Agricultural to Non-agricultural] 农转非 (nóng zhuǎn fēi) refers to the process for those who hold agricultural Hukou status to transfer to non-agricultural Hukou registration.

  12. 12.

    Chan and Zhang 1999, at p. 821.

  13. 13.

    The People’s Commune was a formal administrative body which organised farmers collectively during the period 1958–1985.

  14. 14.

    [Regulation on Household Registration] 中华人民共和国户口登记条例 (zhōng huá rén mín gong hé guó hù kǒu dēng jì tiáo lì), 1958, Article 4.

  15. 15.

    [Luo] 罗平汉 2000, at p. 39.

  16. 16.

    The state used administrative controls to intervene directly in the economy by owning the means of production, planning all production and distribution arrangements by setting prices as well as employment quotas and wages.

  17. 17.

    Wang 2005, at p. 78.

  18. 18.

    [Gao] 高涛 2013, at p. 22.

  19. 19.

    ILO website, Q&As on business, discrimination and equality, 2012.

  20. 20.

    Lin et al. 1996.

  21. 21.

    White 1993, at p. 100.

  22. 22.

    See Solinger 1999.

  23. 23.

    [Circular on Accelerating the Reform of the Grain Circulation System] 国务院关于加快粮食流通体制改革的通知 (guó wù yuàn guān yú jiā kuài liáng shí liú tōng tǐ zhì gǎi gé de tōng zhī), 1993.

  24. 24.

    Tan 2005, at p. 7.

  25. 25.

    Ibid.

  26. 26.

    [Gao] 高涛 2013, at pp. 20–22.

  27. 27.

    [Circular on Prevention of Applying Unfair Methods to Recruit or Transfer Workers] 国务院关于严禁在招收、调配职工工作中搞不正之风的通知 (guó wù yuàn guān yú yán jìn zài zhāo shōu, diào pèi zhí gōng gōng zuò zhōng gǎo bù zhèng zhī fēng de tōng zhī), 1993.

  28. 28.

    [Interim Provisions on Recruitment for State-Run Enterprises] 国营企业招用工人暂行规定 (guó yíng qǐ yè zhāo yòng gōng rén zàn xíng guī dìng), 1986.

  29. 29.

    See Chan 1995.

  30. 30.

    Potter 2001, at p. 104.

  31. 31.

    [Interim Provisions on Implementing the Employment Contract System in State-run Enterprises] 国营企业实行劳动合同制暂行规定 (guó yíng qǐ yè shí xíng láo dòng hé tóng zhì zàn xíng guī dìng), 1986.

  32. 32.

    For example, both the [Changchun Measure of FIEs Labour] 长春外商投资企业劳动管理办法 (cháng chūn wài shāng tóu zī qǐ yè láo dòng guǎn lǐ bàn fǎ), 1993 and the [Tianjin Measure of FIEs Labour Management] 天津外商投资企业劳动管理办法 (tiān jīn wài shāng tóu zī qǐ yè láo dòng guǎn lǐ bàn fǎ), 1994 allowed their local FIEs to recruit workers cross-regionally without approval in advance.

  33. 33.

    See Goodall and Warner 1997.

  34. 34.

    Cook and Maurer-Fazio 1999, at p. 87.

  35. 35.

    See Meng and Zhang 2001. Sampling area: Shanghai; Sample size: Shanghai floating Population survey: 6,609 observations; Shanghai Residents and Floating Population Survey: 3,000 observations; Ibid., at p. 488.

  36. 36.

    [Opinion on Considering the Protection on Labour Insurance and Welfare of Workers in the Process of Economic Reform] 关于在经济改革中要注意保障企业职工的劳动保险、福利待遇的意见 (guān yú zài jīng jì gǎi gé zhōng yào zhù yì bǎo zhàng qǐ yè zhí gōng de láo dòng bǎo xiǎn, fú lì dài yù de yì jiàn), 1983. [Labour Insurance Regulations of the People’s Republic of China] 中华人民共和国劳动保险条例 (zhōng huá rén mín gòng hé guó láo dòng bǎo xiǎn tiáo lì), 1951.

  37. 37.

    Ibid.

  38. 38.

    [Opinion on Considering the Protection on Labour Insurance and Welfare of Workers in the Process of Economic Reform] 关于在经济改革中要注意保障企业职工的劳动保险、福利待遇的意见 (guān yú zài jīng jì gǎi gé zhōng yào zhù yì bǎo zhàng qǐ yè zhí gōng de láo dòng bǎo xiǎn, fú lì dài yù de yì jiàn), 1983, Article 6.

  39. 39.

    [Circular on Enforcing the Adjustment of Job Vacancies] 劳动部关于加强职工余缺调剂工作的通知 (láo dòng bù guān yú jiā qiáng zhí gōng yú quē tiáo jì gōng zuò de tōng zhī), 1990.

  40. 40.

    The Ministry of Labour stressed the principle of equality and transparency at any stage of recruitment for all kinds of “employer unit”. See [Circular on Illegal Charges for Recruiting Workers] 关于严禁用人单位录用职工非法收费的通知 (guān yú yán jìn yòng rén dān wèi lù yòng zhí gōng fēi fǎ shōu fèi de tōng zhī), 1995.

  41. 41.

    [Labour Contract Law of the People’s Republic of China] 中华人民共和国劳动合同法 (zhōng huá rén mín gòng hé guó láo dòng hé tóng fǎ), 2007.

  42. 42.

    Ibid., Article 7.

  43. 43.

    Ibid., Articles 30–32.

  44. 44.

    [Labour Dispute Mediation and Arbitration Law of the People’s Republic of China] 中华人民共和国劳动争议调解仲裁法 (zhōng huá rén mín gòng hé guó láo dòng zhēng yì tiáo jiě zhòng cái fǎ), 2007.

  45. 45.

    Ibid., Article 1.

  46. 46.

    Ibid., Articles 47 and 53.

  47. 47.

    [Employment Promotion Law of the People’s Republic of China] 中华人民共和国就业促进法 (zhōng huá rén mín gòng hé guó jiù yè cù jìn fǎ), 2007.

  48. 48.

    [Social Insurance Law of the People’s Republic of China] 中华人民共和国社会保险法 (zhōng huá rén mín gòng hé guó shè huì bǎo xiǎn fǎ), 2010.

  49. 49.

    See Article 2 of the [Social Insurance Law of the People’s Republic of China] 中华人民共和国社会保险法 (zhōng huá rén mín gòng hé guó shè huì bǎo xiǎn fǎ), 2010. The five types of social insurance scheme addressed by the Social Insurance Law are basic pension, basic medical insurance, work-related injury insurance, unemployment insurance and maternity insurance.

  50. 50.

    [Interim Provisions for Managing Trans-Provincial Employment of Rural Workers] 农村劳动力跨省流动就业管理暂行规定 (nóng cūn láo dòng lì kuà shěng liú dòng jiù yè guǎn lǐ zàn xíng guī dìng), 1994.

  51. 51.

    [Administrative License Law of the People’s Republic of China] 中华人民共和国行政许可法 (zhōng huá rén mín gòng hé guó xíng zhèng xǔ kě fǎ), 2003.

  52. 52.

    The purpose of “profession reservation provisions” issued by local authorities does not fit into any category of eligible situation for administrative permission listed in Article 12 of the [Administrative License Law of the People’s Republic of China] 中华人民共和国行政许可法 (zhōng huá rén mín gòng hé guó xíng zhèng xǔ kě fǎ), 2003. Moreover, Article 13 stipulates that administrative permission shall not be set when matters can be solved through the market. In the case of labour mobility, the rule of the labour market is to override restrictions.

  53. 53.

    For further details, see Chinese Central Government website, 2006.

  54. 54.

    See Chan 2004.

  55. 55.

    [Circular on Conducting the Spring-Breeze Movement to Perfect Employment Service for Rural Migrant Workers] 关于开展春风行动完善农民工就业服务的通知 (guān yú kāi zhǎn chūn fēng xíng dòng wán shàn nóng mín gōng jiù yè fú wù de tōng zhī), 2004.

  56. 56.

    [Circular on Further Regulating Employment Skills Training for Rural Migrant Workers] 进一步规范农民工培训工作的通知 (jìn yī bù guī fàn nóng mín gōng péi xùn gōng zuò de tōng zhī), 2009.

  57. 57.

    ILO website, Q&As on business, discrimination and equality, 2012.

  58. 58.

    [Luo] 罗干 1995.

  59. 59.

    [Regulations on Unemployment Insurance] 失业保险条例 (shī yè bǎo xiǎn tiáo lì), 1999.

  60. 60.

    According to the [Social Insurance Law of the People’s Republic of China] 中华人民共和国社会保险法 (zhōng huá rén mín gòng hé guó shè huì bǎo xiǎn fǎ), 2010, the central agency responsible for social insurance is the Ministry of Human Resource and Social Security, and local agencies are the local labour bureaus.

  61. 61.

    See [Explanation on Various Provisions of Labour Law of the People’s Republic of China] 关于《劳动法》若干条文的说明 (guān yú láo dòng fǎ ruò gān tiáo wén de shuō míng), 1994.

  62. 62.

    Rota-based agricultural workers were recruited into the mining and construction industries during the 1980s. The idea was to boost the labour force for those industrial sectors which involve heavy physical activity. Due to the nature of this work, the workforce has to be physically strong, and renewed regularly for health protection purposes. Over the 1980s, the urban workforce was still fixed by the planned economy for life, which did not match the demand from these sectors. The State Council issued three directives to allow the mining, construction and transportation industry to recruit fixed-term farmers to fill their vacancies from 1984. The workers recruited under this scheme were called rota-based workers, which had to be replaced on a regular basis to “protect their health”. The maximum term is 8 years.

  63. 63.

    Actually the inquiry raised from local People’s Courts to the No. 1 Civil Tribunal of the Supreme Court was whether the [Trial Measure on Work-related Injury Insurance] 工伤保险暂行办法 (gōng shāng bǎo xiǎn zàn xíng bàn fǎ) applies to rota-based agricultural workers. The core issue, therefore, is whether rota-based agricultural workers are qualified as “workers”, insofar as they are defined by the Labour Law, regardless of their Hukou registration status.

  64. 64.

    The direction of inquiry seems to be the wrong way around. According to the [Law on Legislation of the People’s Republic of China] 中华人民共和国立法法 (zhōng huá rén mín gòng hé guó lì fǎ fǎ), 2000, the Supreme Court holds the power of judicial interpretation. It is perfectly enabled to resolve confusion under its own jurisdiction. The rota-based agricultural worker scheme was created by a State Council directive. Hence, the State Council or NPC Standing Committee which enacted the Labour Law should be the ideal candidate to seek authoritative advice or clarification. The MoLSS can provide a ministerial opinion but carries much less weight than the Supreme Court, the State Council and the NPC.

  65. 65.

    The MoLSS articulated that, when an employment relationship is formed with agricultural workers (including rota-based agricultural workers), the Labour Law applies. The employment relationship-based approach is confirmed by the Labour Law, and wards off speculation arising from the worker’s social status.

  66. 66.

    See Zhao and Li 2006.

  67. 67.

    According to one report, 13 provinces and municipalities have already cancelled the category of agricultural (rural)/ non-agricultural (urban) Hukou status since 2008. Cited from Sina news 2008.

  68. 68.

    68 [Opinion on Further Reform of the Hukou System] 国务院关于进一步推进户籍制度改革的意见 (guó wù yuàn guān yú jìn yī bù tuī jìn hù jí zhì dù gǎi gé de yì jiàn), 2014. Sohu news 2014.

  69. 69.

    Ibid., Chapter 2, Article 4.

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Yan, D. (2016). Chinese Labour Law Development and Hukou Discrimination. In: Liukkunen, U., Chen, Y. (eds) Fundamental Labour Rights in China - Legal Implementation and Cultural Logic. Ius Gentium: Comparative Perspectives on Law and Justice, vol 49. Springer, Cham. https://doi.org/10.1007/978-3-319-23156-3_9

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