Urban-Biased Policies and Rising Income Inequality in China

Since the start of economic reforms in 1978, China has experienced the largest increase in income inequality of all countries for which comparable data are available. According to the World Bank (1997), China’s Gini coefficient increased from 28.2 in 1981 to 38.8 in 1995 based on official survey data. Another study that used internationally standard definitions for incomes estimated China’s Gini ratio at 38.2 in 1988 and 45.2 in 1995, a level that already surpassed many developing economies in Asia (Azizur Khan and Carl Riskin, 1998). Are these income inequality changes the consequence of institutional reforms that replaced egalitarian rewards with work incentives, employment contracts, and labor mobility? This paper uses household survey data collected by China’s State Statistical Bureau (SSB) to investigate the sources and causes of this rising inequality. By analyzing Gini ratios and generalized entropy measures, I decompose the overall inequality into three sectoral components: ( i ) inequality within rural areas, ( ii ) inequality within urban areas, and (iii ) sectoral disparity. The data indicate that increases in rural – urban income differentials have been the driving factor behind the rising overall inequality in China. I argue that urbanbiased policies and institutions, including labor mobility restrictions, welfare systems, and financial policies of inflation subsidies and investment credits to the urban sector, are responsible for the long-term rural–urban divide and the recent increases in disparity.