中(zhong)央(yang)經(jing)濟工作(zuo)會議提出，“統籌新(xin)(xin)型城(cheng)鎮化(hua)和鄉村全(quan)面(mian)振(zhen)興(xing)”“要(yao)把(ba)推(tui)(tui)進新(xin)(xin)型城(cheng)鎮化(hua)和鄉村全(quan)面(mian)振(zhen)興(xing)有機結合(he)起來，促進各類要(yao)素(su)雙向(xiang)流動，推(tui)(tui)動以縣城(cheng)為重(zhong)要(yao)載體(ti)(ti)的新(xin)(xin)型城(cheng)鎮化(hua)建設(she)，形成城(cheng)鄉融合(he)發(fa)(fa)展(zhan)新(xin)(xin)格(ge)局(ju)”。這一系列重(zhong)要(yao)部署體(ti)(ti)現(xian)了黨中(zhong)央(yang)推(tui)(tui)動經(jing)濟高(gao)質量發(fa)(fa)展(zhan)的辯(bian)證思維。落實到推(tui)(tui)進新(xin)(xin)型城(cheng)鎮化(hua)和鄉村全(quan)面(mian)振(zhen)興(xing)上，就是(shi)要(yao)把(ba)城(cheng)鄉關系處(chu)理好，一體(ti)(ti)設(she)計、一并(bing)推(tui)(tui)進，綜合(he)施策，實現(xian)城(cheng)鄉經(jing)濟深度融合(he)、功能互補。
當前(qian)，新(xin)型城(cheng)鎮化戰略與鄉村(cun)全面振興(xing)戰略正在深入推進，取得(de)了一(yi)(yi)系列顯著(zhu)成(cheng)果(guo)，同時(shi)，一(yi)(yi)些地方還存在模糊認識和(he)需改進的做法，值(zhi)得(de)重視。要正確(que)理解(jie)二者關系，把推進新(xin)型城(cheng)鎮化和(he)鄉村(cun)全面振興(xing)有機結合(he)起來，在認識上進一(yi)(yi)步提高，在實踐(jian)中持續優(you)化，推動形成(cheng)城(cheng)鄉融合(he)發展新(xin)格局。
有(you)觀(guan)點認(ren)為城(cheng)(cheng)(cheng)(cheng)鎮(zhen)化與(yu)鄉(xiang)(xiang)(xiang)(xiang)村(cun)(cun)振(zhen)興(xing)(xing)是“沖突的(de)”，城(cheng)(cheng)(cheng)(cheng)鎮(zhen)化就是“去農(nong)(nong)化”，鄉(xiang)(xiang)(xiang)(xiang)村(cun)(cun)振(zhen)興(xing)(xing)就是突出農(nong)(nong)業、農(nong)(nong)村(cun)(cun)、農(nong)(nong)民，城(cheng)(cheng)(cheng)(cheng)與(yu)鄉(xiang)(xiang)(xiang)(xiang)要(yao)(yao)爭奪資(zi)源，二者(zhe)內在不一(yi)致。可以(yi)說(shuo)，這是用(yong)靜止(zhi)的(de)而(er)非動態的(de)視(shi)角來(lai)看城(cheng)(cheng)(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)關系，并且(qie)只看到城(cheng)(cheng)(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)關系中的(de)矛(mao)盾性而(er)沒有(you)看到統(tong)一(yi)性。其實，城(cheng)(cheng)(cheng)(cheng)鎮(zhen)化與(yu)鄉(xiang)(xiang)(xiang)(xiang)村(cun)(cun)振(zhen)興(xing)(xing)二者(zhe)是相互促進(jin)、相互融合(he)(he)的(de)。在現(xian)代(dai)化進(jin)程中，城(cheng)(cheng)(cheng)(cheng)市的(de)比(bi)重上升、鄉(xiang)(xiang)(xiang)(xiang)村(cun)(cun)的(de)比(bi)重下降是客觀(guan)規(gui)律，城(cheng)(cheng)(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)將長(chang)期共(gong)生并存也是客觀(guan)規(gui)律。鄉(xiang)(xiang)(xiang)(xiang)村(cun)(cun)作為一(yi)個具有(you)自然、社會、經(jing)濟(ji)特征的(de)地(di)域綜合(he)(he)體，與(yu)城(cheng)(cheng)(cheng)(cheng)鎮(zhen)共(gong)同構成人類(lei)活動的(de)主(zhu)要(yao)(yao)空間(jian)，二者(zhe)在滿足(zu)城(cheng)(cheng)(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)居(ju)民多元化需(xu)求、促進(jin)經(jing)濟(ji)增(zeng)長(chang)方面(mian)都發揮(hui)著不可替代(dai)的(de)重要(yao)(yao)作用(yong)。新(xin)型(xing)城(cheng)(cheng)(cheng)(cheng)鎮(zhen)化內在要(yao)(yao)求城(cheng)(cheng)(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)協調發展，鄉(xiang)(xiang)(xiang)(xiang)村(cun)(cun)全面(mian)振(zhen)興(xing)(xing)需(xu)要(yao)(yao)發揮(hui)城(cheng)(cheng)(cheng)(cheng)市的(de)輻射(she)帶動作用(yong)，只有(you)統(tong)籌(chou)好(hao)(hao)新(xin)型(xing)城(cheng)(cheng)(cheng)(cheng)鎮(zhen)化與(yu)鄉(xiang)(xiang)(xiang)(xiang)村(cun)(cun)全面(mian)振(zhen)興(xing)(xing)，才(cai)能(neng)順應中國式(shi)現(xian)代(dai)化建設要(yao)(yao)求，更好(hao)(hao)滿足(zu)廣大農(nong)(nong)村(cun)(cun)居(ju)民對美好(hao)(hao)生活的(de)向往。
在(zai)實(shi)踐上，一些(xie)地方對統籌推(tui)進(jin)(jin)新(xin)型(xing)(xing)城(cheng)(cheng)鎮化(hua)和(he)鄉(xiang)村(cun)全(quan)面振興(xing)的(de)實(shi)現路徑缺乏政(zheng)(zheng)策性、科學(xue)性指(zhi)引。例如，有(you)的(de)地方在(zai)不(bu)具備條件的(de)鄉(xiang)村(cun)無序(xu)造(zao)城(cheng)(cheng)、造(zao)鎮，使鄉(xiang)村(cun)風(feng)貌遭(zao)受破(po)壞，一些(xie)具備條件實(shi)施就地城(cheng)(cheng)鎮化(hua)的(de)縣城(cheng)(cheng)、小城(cheng)(cheng)鎮沒有(you)得(de)到充分發展，基礎(chu)設施建(jian)設和(he)公共(gong)服務水平等(deng)有(you)待(dai)提升，城(cheng)(cheng)鄉(xiang)二元結構仍(reng)然存在(zai)，城(cheng)(cheng)鄉(xiang)融合發展政(zheng)(zheng)策體(ti)系(xi)有(you)待(dai)完(wan)善。我(wo)們必(bi)須從全(quan)局和(he)戰略高(gao)度來把(ba)握和(he)處理工農關(guan)系(xi)、城(cheng)(cheng)鄉(xiang)關(guan)系(xi)，加快建(jian)立健全(quan)城(cheng)(cheng)鄉(xiang)融合發展體(ti)制機制和(he)政(zheng)(zheng)策體(ti)系(xi)，強化(hua)以工補農、以城(cheng)(cheng)帶鄉(xiang)，加快形成工農互促、城(cheng)(cheng)鄉(xiang)互補、協(xie)調發展、共(gong)同繁榮的(de)新(xin)型(xing)(xing)工農城(cheng)(cheng)鄉(xiang)關(guan)系(xi)，使新(xin)型(xing)(xing)城(cheng)(cheng)鎮化(hua)和(he)鄉(xiang)村(cun)全(quan)面振興(xing)密切(qie)結合、相互促進(jin)(jin)。
新時代(dai)，深(shen)入實施新型城(cheng)(cheng)鎮化(hua)戰略和(he)(he)全(quan)面(mian)推(tui)進(jin)鄉村振興(xing)戰略都是長期的(de)(de)歷史性任(ren)務(wu)，需要(yao)(yao)深(shen)刻把握兩(liang)大戰略統籌(chou)發(fa)展的(de)(de)現(xian)實依據和(he)(he)內(nei)在機制。從(cong)空間(jian)發(fa)展來看(kan)，沒(mei)有(you)脫離(li)鄉的(de)(de)城(cheng)(cheng)，也沒(mei)有(you)脫離(li)城(cheng)(cheng)的(de)(de)鄉。我國(guo)城(cheng)(cheng)鄉發(fa)展的(de)(de)未來空間(jian)形態必然是現(xian)代(dai)化(hua)的(de)(de)城(cheng)(cheng)市與現(xian)代(dai)化(hua)的(de)(de)農(nong)村共(gong)生(sheng)(sheng)共(gong)榮。從(cong)目(mu)標要(yao)(yao)求看(kan)，推(tui)進(jin)新型城(cheng)(cheng)鎮化(hua)與鄉村全(quan)面(mian)振興(xing)的(de)(de)出發(fa)點和(he)(he)落腳點都是讓人民生(sheng)(sheng)活越(yue)(yue)過越(yue)(yue)好，二(er)者都是中(zhong)國(guo)式現(xian)代(dai)化(hua)建(jian)設的(de)(de)題(ti)中(zhong)應有(you)之(zhi)義(yi)。從(cong)要(yao)(yao)素(su)角度看(kan)，勞動(dong)力(li)、土地、資本(ben)、技(ji)術、數據等要(yao)(yao)素(su)在城(cheng)(cheng)鄉之(zhi)間(jian)實現(xian)充(chong)分流動(dong)，要(yao)(yao)素(su)價(jia)值就能進(jin)一步發(fa)揮，這樣既有(you)利(li)于城(cheng)(cheng)市，也有(you)利(li)于農(nong)村。
統籌(chou)推(tui)進城鎮化(hua)(hua)和鄉(xiang)村(cun)振興，既要(yao)根據新型城鎮化(hua)(hua)和鄉(xiang)村(cun)全面(mian)振興的(de)(de)目(mu)標任務各(ge)自突(tu)破，又要(yao)找到二(er)者的(de)(de)“結合點(dian)”，集中(zhong)發力(li)，一體推(tui)進以人為本的(de)(de)新型城鎮化(hua)(hua)和以農業農村(cun)現代化(hua)(hua)為總目(mu)標的(de)(de)鄉(xiang)村(cun)振興。具體來看，可以將以下幾方面(mian)作為主要(yao)著力(li)點(dian)。
一是強化(hua)人口、人才(cai)相關政(zheng)策保障。一方面(mian)，要加快農(nong)(nong)業轉(zhuan)移(yi)人口市(shi)(shi)(shi)民(min)(min)化(hua)，健全(quan)(quan)常住地(di)(di)提供基(ji)本公共服務制度，讓能(neng)進城(cheng)(cheng)愿進城(cheng)(cheng)的，更(geng)(geng)快更(geng)(geng)好融入城(cheng)(cheng)市(shi)(shi)(shi)。進一步深化(hua)戶籍制度改革，放開(kai)放寬(kuan)除個別超大城(cheng)(cheng)市(shi)(shi)(shi)外的落戶限制，維護進城(cheng)(cheng)落戶農(nong)(nong)民(min)(min)在農(nong)(nong)村(cun)(cun)的土(tu)地(di)(di)承包權(quan)(quan)(quan)、宅基(ji)地(di)(di)使用(yong)權(quan)(quan)(quan)、集體收(shou)益(yi)分配權(quan)(quan)(quan)，保障進城(cheng)(cheng)落戶農(nong)(nong)民(min)(min)土(tu)地(di)(di)等(deng)(deng)合法權(quan)(quan)(quan)益(yi)，促進農(nong)(nong)業轉(zhuan)移(yi)人口更(geng)(geng)好融入城(cheng)(cheng)市(shi)(shi)(shi)。另一方面(mian)，要著力(li)培養一批鄉村(cun)(cun)人才(cai)，全(quan)(quan)面(mian)提升農(nong)(nong)民(min)(min)素(su)質素(su)養。要制定(ding)財政(zheng)、金融、社會保障等(deng)(deng)激勵(li)政(zheng)策，有(you)序(xu)引導大學畢(bi)業生到鄉、能(neng)人回鄉、農(nong)(nong)民(min)(min)工返鄉、企業家入鄉，創(chuang)造機(ji)會、暢通(tong)渠道、營造環(huan)境，幫(bang)助(zhu)解決職業發展(zhan)、社會保障等(deng)(deng)后顧之憂，讓其(qi)留(liu)(liu)得下、能(neng)創(chuang)業。要樹立階段性用(yong)才(cai)理念，不(bu)求所(suo)有(you)、但求所(suo)用(yong)。通(tong)過多方面(mian)努力(li)，著力(li)打(da)造一支沉得下、留(liu)(liu)得住、能(neng)管用(yong)的鄉村(cun)(cun)人才(cai)隊伍，強化(hua)全(quan)(quan)面(mian)推進鄉村(cun)(cun)振興、加快建設(she)農(nong)(nong)業強國的智力(li)支持和人才(cai)支撐。
二是(shi)發(fa)(fa)揮縣(xian)(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)(cheng)綜合(he)平臺作(zuo)用。當前，城(cheng)(cheng)(cheng)(cheng)鄉空間(jian)(jian)分(fen)布和產(chan)(chan)業格局出現了“亦(yi)城(cheng)(cheng)(cheng)(cheng)亦(yi)鄉”的(de)中間(jian)(jian)形態。縣(xian)(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)(cheng)和小城(cheng)(cheng)(cheng)(cheng)鎮是(shi)連(lian)(lian)接大(da)城(cheng)(cheng)(cheng)(cheng)市(shi)與(yu)鄉村的(de)關鍵(jian)紐帶(dai)，發(fa)(fa)展(zhan)(zhan)(zhan)縣(xian)(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)(cheng)和小城(cheng)(cheng)(cheng)(cheng)鎮對(dui)推動鄉村振興(xing)具有(you)更為直接的(de)影響(xiang)。要把縣(xian)(xian)(xian)(xian)(xian)域(yu)作(zuo)為城(cheng)(cheng)(cheng)(cheng)鄉融合(he)發(fa)(fa)展(zhan)(zhan)(zhan)的(de)切入點(dian)，推進空間(jian)(jian)布局、產(chan)(chan)業發(fa)(fa)展(zhan)(zhan)(zhan)、基礎設施等縣(xian)(xian)(xian)(xian)(xian)域(yu)統籌(chou)，推動公共資(zi)(zi)源在縣(xian)(xian)(xian)(xian)(xian)域(yu)內(nei)優化配置。要科(ke)學把握(wo)功能(neng)定位(wei)，分(fen)類引(yin)導縣(xian)(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)(cheng)發(fa)(fa)展(zhan)(zhan)(zhan)方向，加快發(fa)(fa)展(zhan)(zhan)(zhan)大(da)城(cheng)(cheng)(cheng)(cheng)市(shi)周邊縣(xian)(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)(cheng)，積極(ji)培育(yu)專(zhuan)業功能(neng)縣(xian)(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)(cheng)，合(he)理發(fa)(fa)展(zhan)(zhan)(zhan)農產(chan)(chan)品主產(chan)(chan)區縣(xian)(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)(cheng)，有(you)序發(fa)(fa)展(zhan)(zhan)(zhan)重點(dian)生(sheng)態功能(neng)區縣(xian)(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)(cheng)，引(yin)導人口流(liu)失縣(xian)(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)(cheng)轉型發(fa)(fa)展(zhan)(zhan)(zhan)。暢(chang)通對(dui)外連(lian)(lian)接通道，提高縣(xian)(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)(cheng)與(yu)周邊大(da)中城(cheng)(cheng)(cheng)(cheng)市(shi)以(yi)及縣(xian)(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)(cheng)與(yu)鄉村互聯互通水平。擴大(da)教育(yu)資(zi)(zi)源供給，發(fa)(fa)展(zhan)(zhan)(zhan)養老托育(yu)服務(wu)，完善文化體育(yu)、社會(hui)福利等方面(mian)的(de)設施，增強(qiang)縣(xian)(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)(cheng)帶(dai)動鄉村發(fa)(fa)展(zhan)(zhan)(zhan)的(de)能(neng)力。
三是發(fa)展(zhan)(zhan)城(cheng)(cheng)(cheng)(cheng)(cheng)鄉(xiang)(xiang)特(te)色優(you)勢產(chan)(chan)業(ye)(ye)(ye)(ye)。一些產(chan)(chan)業(ye)(ye)(ye)(ye)鏈(lian)的(de)(de)上中下游可(ke)能(neng)貫穿于鄉(xiang)(xiang)村、城(cheng)(cheng)(cheng)(cheng)(cheng)鎮和城(cheng)(cheng)(cheng)(cheng)(cheng)市，通(tong)過發(fa)展(zhan)(zhan)一條(tiao)條(tiao)這樣的(de)(de)產(chan)(chan)業(ye)(ye)(ye)(ye)鏈(lian)，能(neng)夠有效促(cu)進各(ge)類生產(chan)(chan)要素(su)在城(cheng)(cheng)(cheng)(cheng)(cheng)鄉(xiang)(xiang)間流動(dong)，推動(dong)城(cheng)(cheng)(cheng)(cheng)(cheng)鄉(xiang)(xiang)要素(su)優(you)化配置和產(chan)(chan)業(ye)(ye)(ye)(ye)有機融(rong)(rong)合(he)(he)。要以城(cheng)(cheng)(cheng)(cheng)(cheng)帶鄉(xiang)(xiang)、以工(gong)促(cu)農(nong)，發(fa)展(zhan)(zhan)鄉(xiang)(xiang)村特(te)色優(you)勢產(chan)(chan)業(ye)(ye)(ye)(ye)，培育新產(chan)(chan)業(ye)(ye)(ye)(ye)新業(ye)(ye)(ye)(ye)態。要壯大縣域富民產(chan)(chan)業(ye)(ye)(ye)(ye)，推動(dong)城(cheng)(cheng)(cheng)(cheng)(cheng)鄉(xiang)(xiang)產(chan)(chan)業(ye)(ye)(ye)(ye)融(rong)(rong)合(he)(he)發(fa)展(zhan)(zhan)，建設(she)縣域商(shang)業(ye)(ye)(ye)(ye)體(ti)系。結合(he)(he)具體(ti)情況，可(ke)考慮建設(she)聯結城(cheng)(cheng)(cheng)(cheng)(cheng)鄉(xiang)(xiang)的(de)(de)冷鏈(lian)物(wu)流、電(dian)商(shang)平臺、農(nong)貿市場網絡，發(fa)展(zhan)(zhan)物(wu)流中心和專業(ye)(ye)(ye)(ye)市場，帶動(dong)農(nong)產(chan)(chan)品(pin)進城(cheng)(cheng)(cheng)(cheng)(cheng)和工(gong)業(ye)(ye)(ye)(ye)品(pin)入鄉(xiang)(xiang)。以“糧頭食(shi)尾”“農(nong)頭工(gong)尾”為抓手，培育農(nong)產(chan)(chan)品(pin)加工(gong)業(ye)(ye)(ye)(ye)集群(qun)。深入挖(wa)掘文化旅游資源稟賦，探索發(fa)展(zhan)(zhan)文化體(ti)驗、休閑度(du)假(jia)、特(te)色民宿、養生養老等產(chan)(chan)業(ye)(ye)(ye)(ye)。
四是加(jia)強體(ti)(ti)制(zhi)機制(zhi)創新。要建(jian)立(li)健全(quan)(quan)(quan)城(cheng)鄉(xiang)(xiang)融合(he)(he)發(fa)展(zhan)體(ti)(ti)制(zhi)機制(zhi)和(he)政策體(ti)(ti)系，破除妨(fang)礙城(cheng)鄉(xiang)(xiang)要素(su)自(zi)由(you)流動(dong)和(he)平等交換的(de)體(ti)(ti)制(zhi)機制(zhi)壁壘，促進各(ge)類要素(su)更多向鄉(xiang)(xiang)村(cun)(cun)流動(dong)，為鄉(xiang)(xiang)村(cun)(cun)全(quan)(quan)(quan)面振興注(zhu)入(ru)新動(dong)能。要健全(quan)(quan)(quan)城(cheng)鄉(xiang)(xiang)統一(yi)的(de)土地和(he)勞動(dong)力(li)市場(chang)、統一(yi)規范(fan)的(de)人(ren)(ren)力(li)資(zi)源市場(chang)體(ti)(ti)系，建(jian)立(li)健全(quan)(quan)(quan)城(cheng)鄉(xiang)(xiang)基礎設施(shi)一(yi)體(ti)(ti)化規劃(hua)機制(zhi)、一(yi)體(ti)(ti)化建(jian)設機制(zhi)、一(yi)體(ti)(ti)化管護(hu)機制(zhi)。適應鄉(xiang)(xiang)村(cun)(cun)人(ren)(ren)口(kou)變化趨勢，優(you)化村(cun)(cun)莊布局、產(chan)業結構、公(gong)共(gong)服務配置，扎實有序推進鄉(xiang)(xiang)村(cun)(cun)建(jian)設，深入(ru)實施(shi)農村(cun)(cun)人(ren)(ren)居環境(jing)整(zheng)治提升行動(dong)，提高(gao)縣(xian)城(cheng)綜合(he)(he)承載能力(li)和(he)治理能力(li)，促進城(cheng)鄉(xiang)(xiang)融合(he)(he)發(fa)展(zhan)，進一(yi)步完善鄉(xiang)(xiang)村(cun)(cun)治理體(ti)(ti)系。
（作者馮奎 系(xi)中國區域科(ke)學協會副理事長(chang)、研(yan)究(jiu)員）
原標題：統籌新型城鎮化和鄉村全面振興
責任編輯：萬鵬、代曉靈
頁面編輯：蘇偉