城(cheng)(cheng)(cheng)鄉(xiang)(xiang)融(rong)合發(fa)(fa)(fa)(fa)展(zhan)是破除城(cheng)(cheng)(cheng)鄉(xiang)(xiang)二元結構、拓展(zhan)高(gao)質量發(fa)(fa)(fa)(fa)展(zhan)空間、實現全體(ti)人民(min)共(gong)同富裕的(de)關(guan)鍵抓手，是推(tui)進(jin)中國(guo)(guo)式現代化(hua)的(de)題(ti)中應有之義。中央經(jing)濟(ji)工作會議將(jiang)推(tui)動城(cheng)(cheng)(cheng)鄉(xiang)(xiang)融(rong)合、區域協調(diao)發(fa)(fa)(fa)(fa)展(zhan)作為(wei)推(tui)動高(gao)質量發(fa)(fa)(fa)(fa)展(zhan)的(de)重點工作，提(ti)出“要把推(tui)進(jin)新(xin)(xin)型(xing)城(cheng)(cheng)(cheng)鎮化(hua)和鄉(xiang)(xiang)村全面振興有機結合起(qi)來(lai)，促(cu)進(jin)各類要素雙向(xiang)流(liu)動，推(tui)動以縣城(cheng)(cheng)(cheng)為(wei)重要載體(ti)的(de)新(xin)(xin)型(xing)城(cheng)(cheng)(cheng)鎮化(hua)建設，形成城(cheng)(cheng)(cheng)鄉(xiang)(xiang)融(rong)合發(fa)(fa)(fa)(fa)展(zhan)新(xin)(xin)格局(ju)”。新(xin)(xin)時代新(xin)(xin)征(zheng)程(cheng)，需科學研判我國(guo)(guo)城(cheng)(cheng)(cheng)鄉(xiang)(xiang)發(fa)(fa)(fa)(fa)展(zhan)的(de)趨勢特征(zheng)，探索符(fu)合中國(guo)(guo)國(guo)(guo)情(qing)、體(ti)現中國(guo)(guo)特色的(de)城(cheng)(cheng)(cheng)鄉(xiang)(xiang)融(rong)合發(fa)(fa)(fa)(fa)展(zhan)道路，為(wei)推(tui)進(jin)中國(guo)(guo)式現代化(hua)建設提(ti)供有力支撐。

　　把握城鄉關系動態演變

　　改革開放40多年來，工業(ye)化(hua)、城鎮(zhen)化(hua)的快速推進帶(dai)動(dong)了(le)農(nong)業(ye)現代化(hua)發(fa)(fa)展。在這一動(dong)態演變過程(cheng)中，小農(nong)戶和現代農(nong)業(ye)發(fa)(fa)展逐步實(shi)現有機(ji)銜接(jie)，鄉(xiang)村(cun)的產業(ye)結(jie)構(gou)與就業(ye)結(jie)構(gou)不(bu)斷優(you)化(hua)，城鄉(xiang)關系呈現出新面貌(mao)。

　　城鄉關系演(yan)變主要(yao)有(you)以(yi)(yi)(yi)下(xia)(xia)三個趨(qu)勢。一(yi)(yi)(yi)是農(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)增(zeng)加值占(zhan)國內生(sheng)(sheng)產總(zong)值（GDP）的(de)(de)比(bi)重(zhong)(zhong)(zhong)不(bu)斷(duan)下(xia)(xia)降(jiang)(jiang)，農(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)從(cong)業(ye)(ye)(ye)(ye)(ye)人(ren)(ren)員持(chi)續(xu)減少。1978年(nian)(nian)(nian)第(di)一(yi)(yi)(yi)產業(ye)(ye)(ye)(ye)(ye)增(zeng)加值占(zhan)GDP比(bi)重(zhong)(zhong)(zhong)為27.7%，2022年(nian)(nian)(nian)這一(yi)(yi)(yi)比(bi)重(zhong)(zhong)(zhong)下(xia)(xia)降(jiang)(jiang)到(dao)7.3%。在此過程(cheng)中，農(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)從(cong)業(ye)(ye)(ye)(ye)(ye)人(ren)(ren)員數(shu)量也在不(bu)斷(duan)下(xia)(xia)降(jiang)(jiang)，1978年(nian)(nian)(nian)第(di)一(yi)(yi)(yi)產業(ye)(ye)(ye)(ye)(ye)就(jiu)業(ye)(ye)(ye)(ye)(ye)人(ren)(ren)員占(zhan)比(bi)為70.5%，2022年(nian)(nian)(nian)這一(yi)(yi)(yi)比(bi)重(zhong)(zhong)(zhong)下(xia)(xia)降(jiang)(jiang)到(dao)24.1%。大(da)量農(nong)(nong)(nong)村富(fu)余勞(lao)動(dong)(dong)力(li)和農(nong)(nong)(nong)村人(ren)(ren)口(kou)(kou)轉(zhuan)移進(jin)城，工業(ye)(ye)(ye)(ye)(ye)化(hua)、城鎮(zhen)(zhen)(zhen)化(hua)快速推進(jin)。二(er)(er)是勞(lao)動(dong)(dong)力(li)就(jiu)業(ye)(ye)(ye)(ye)(ye)結(jie)構(gou)(gou)變化(hua)催(cui)生(sheng)(sheng)農(nong)(nong)(nong)民(min)工群(qun)體(ti)。工業(ye)(ye)(ye)(ye)(ye)化(hua)、城鎮(zhen)(zhen)(zhen)化(hua)對農(nong)(nong)(nong)村富(fu)余勞(lao)動(dong)(dong)力(li)產生(sheng)(sheng)的(de)(de)虹吸(xi)效(xiao)應，以(yi)(yi)(yi)及(ji)農(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)現代化(hua)發(fa)展(zhan)產生(sheng)(sheng)的(de)(de)擠出(chu)效(xiao)應，催(cui)生(sheng)(sheng)了(le)農(nong)(nong)(nong)民(min)工群(qun)體(ti)。這一(yi)(yi)(yi)群(qun)體(ti)仍是農(nong)(nong)(nong)村居民(min)，但從(cong)事的(de)(de)職業(ye)(ye)(ye)(ye)(ye)幾乎都(dou)是第(di)二(er)(er)、三產業(ye)(ye)(ye)(ye)(ye)，表現出(chu)身份特征(zheng)和職業(ye)(ye)(ye)(ye)(ye)特征(zheng)的(de)(de)二(er)(er)元性(xing)。三是城鎮(zhen)(zhen)(zhen)化(hua)水平(ping)和質量穩步(bu)提升。經過多(duo)年(nian)(nian)(nian)的(de)(de)經濟快速增(zeng)長(chang)(chang)，我(wo)國步(bu)入工業(ye)(ye)(ye)(ye)(ye)化(hua)的(de)(de)中后期階段，工業(ye)(ye)(ye)(ye)(ye)增(zeng)速趨(qu)緩(huan)、結(jie)構(gou)(gou)趨(qu)優(you)，城鎮(zhen)(zhen)(zhen)化(hua)發(fa)展(zhan)產生(sheng)(sheng)的(de)(de)巨大(da)需(xu)求(qiu)成為推動(dong)(dong)發(fa)展(zhan)的(de)(de)重(zhong)(zhong)(zhong)要(yao)動(dong)(dong)力(li)。1978年(nian)(nian)(nian)至2023年(nian)(nian)(nian)，我(wo)國城鎮(zhen)(zhen)(zhen)人(ren)(ren)口(kou)(kou)從(cong)17245萬(wan)人(ren)(ren)增(zeng)長(chang)(chang)到(dao)93267萬(wan)人(ren)(ren)，常(chang)住人(ren)(ren)口(kou)(kou)城鎮(zhen)(zhen)(zhen)化(hua)率從(cong)17.92%增(zeng)長(chang)(chang)到(dao)66.16%。戶籍制(zhi)度(du)改(gai)革持(chi)續(xu)深(shen)化(hua)，城區常(chang)住人(ren)(ren)口(kou)(kou)300萬(wan)以(yi)(yi)(yi)下(xia)(xia)城市(shi)的(de)(de)落(luo)戶限制(zhi)基本(ben)取(qu)消，城區常(chang)住人(ren)(ren)口(kou)(kou)300萬(wan)以(yi)(yi)(yi)上城市(shi)的(de)(de)落(luo)戶條件有(you)序(xu)放寬，城鄉發(fa)展(zhan)格局不(bu)斷(duan)優(you)化(hua)。

　　城(cheng)(cheng)鄉(xiang)(xiang)(xiang)關(guan)系(xi)歷經(jing)多(duo)個發(fa)展(zhan)(zhan)(zhan)階段。新中國成立后，農(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)稅征收(shou)、戶籍制(zhi)(zhi)度(du)(du)(du)、工(gong)(gong)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)產品“剪刀差”等(deng)催生并強化(hua)了(le)城(cheng)(cheng)鄉(xiang)(xiang)(xiang)二(er)元結(jie)構(gou)，成為(wei)(wei)(wei)工(gong)(gong)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)城(cheng)(cheng)鄉(xiang)(xiang)(xiang)發(fa)展(zhan)(zhan)(zhan)不平衡的(de)(de)重(zhong)要(yao)因素。進(jin)入新世(shi)紀，黨(dang)中央(yang)把解決好農(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)、農(nong)(nong)(nong)(nong)(nong)(nong)(nong)村和(he)(he)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)民(min)問(wen)題作(zuo)為(wei)(wei)(wei)全(quan)(quan)黨(dang)工(gong)(gong)作(zuo)的(de)(de)重(zhong)中之重(zhong)，提(ti)(ti)出堅(jian)(jian)持“多(duo)予、少取(qu)、放(fang)活(huo)”的(de)(de)方針(zhen)，工(gong)(gong)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)城(cheng)(cheng)鄉(xiang)(xiang)(xiang)關(guan)系(xi)大為(wei)(wei)(wei)改善，全(quan)(quan)面放(fang)開糧(liang)食收(shou)購和(he)(he)銷售(shou)市場、推進(jin)戶籍制(zhi)(zhi)度(du)(du)(du)改革、完善社會(hui)保(bao)障制(zhi)(zhi)度(du)(du)(du)等(deng)措施有(you)(you)力改善了(le)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)村居民(min)的(de)(de)生活(huo)質量。特別是(shi)2006年(nian)，國家取(qu)消了(le)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)稅，在中國延續兩千多(duo)年(nian)的(de)(de)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)稅正式(shi)成為(wei)(wei)(wei)歷史。黨(dang)中央(yang)出臺的(de)(de)“三農(nong)(nong)(nong)(nong)(nong)(nong)(nong)”政(zheng)策(ce)行之有(you)(you)效(xiao)，有(you)(you)效(xiao)調動(dong)(dong)了(le)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)民(min)積極性，有(you)(you)力推動(dong)(dong)了(le)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)村發(fa)展(zhan)(zhan)(zhan)，工(gong)(gong)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)城(cheng)(cheng)鄉(xiang)(xiang)(xiang)關(guan)系(xi)逐漸向以工(gong)(gong)補(bu)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)、以城(cheng)(cheng)帶鄉(xiang)(xiang)(xiang)轉變。黨(dang)的(de)(de)十九大報告提(ti)(ti)出，要(yao)堅(jian)(jian)持農(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)村優(you)先發(fa)展(zhan)(zhan)(zhan)，按照(zhao)產業(ye)興(xing)旺、生態(tai)宜(yi)居、鄉(xiang)(xiang)(xiang)風文明、治理有(you)(you)效(xiao)、生活(huo)富裕的(de)(de)總要(yao)求，建立健全(quan)(quan)城(cheng)(cheng)鄉(xiang)(xiang)(xiang)融(rong)合(he)發(fa)展(zhan)(zhan)(zhan)體制(zhi)(zhi)機制(zhi)(zhi)和(he)(he)政(zheng)策(ce)體系(xi)，加快推進(jin)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)業(ye)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)村現(xian)代化(hua)。2017年(nian)的(de)(de)中央(yang)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)村工(gong)(gong)作(zuo)會(hui)議提(ti)(ti)出“必須(xu)重(zhong)塑城(cheng)(cheng)鄉(xiang)(xiang)(xiang)關(guan)系(xi)，走城(cheng)(cheng)鄉(xiang)(xiang)(xiang)融(rong)合(he)發(fa)展(zhan)(zhan)(zhan)之路”，要(yao)求“加快形成工(gong)(gong)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)互(hu)促(cu)、城(cheng)(cheng)鄉(xiang)(xiang)(xiang)互(hu)補(bu)、全(quan)(quan)面融(rong)合(he)、共同繁榮的(de)(de)新型工(gong)(gong)農(nong)(nong)(nong)(nong)(nong)(nong)(nong)城(cheng)(cheng)鄉(xiang)(xiang)(xiang)關(guan)系(xi)”。這些都(dou)為(wei)(wei)(wei)推動(dong)(dong)城(cheng)(cheng)鄉(xiang)(xiang)(xiang)融(rong)合(he)發(fa)展(zhan)(zhan)(zhan)明晰了(le)方向。

　　從全球經(jing)(jing)驗看，國民經(jing)(jing)濟的持(chi)續發(fa)展、制定實(shi)施區(qu)域城(cheng)鄉(xiang)均衡發(fa)展戰略、扶持(chi)政策(ce)向(xiang)農(nong)業農(nong)村傾斜等，是縮小城(cheng)鄉(xiang)差距、實(shi)現城(cheng)鄉(xiang)關(guan)系協(xie)調發(fa)展的關(guan)鍵。城(cheng)鄉(xiang)關(guan)系的演變(bian)深刻反映了我國工(gong)業化(hua)(hua)、信息化(hua)(hua)、城(cheng)鎮化(hua)(hua)、農(nong)業現代化(hua)(hua)同步發(fa)展、并聯發(fa)展、疊加發(fa)展的態勢。已經(jing)(jing)取(qu)得的成(cheng)就充(chong)分證明，我國已經(jing)(jing)具備推(tui)動形成(cheng)工(gong)農(nong)互促、城(cheng)鄉(xiang)互補、協(xie)調發(fa)展、共同繁榮的新型工(gong)農(nong)城(cheng)鄉(xiang)關(guan)系的基礎與能力。

　　夯實城鄉融合發展基礎

　　進入新世紀特別(bie)是黨的(de)(de)十八大以來(lai)，我國(guo)圍繞農業、農村、農民(min)實(shi)際需(xu)求出臺一系列強農惠農政策，為城鄉(xiang)融合發展創(chuang)造了良好(hao)局面。下一階段，需(xu)不斷鞏固和拓展已經取得的(de)(de)成果，推動城鄉(xiang)融合發展。

　　要(yao)(yao)進(jin)一(yi)步(bu)推動(dong)(dong)農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)、農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)、農(nong)(nong)(nong)(nong)民(min)的全(quan)面發展(zhan)。繼續(xu)堅(jian)持不懈(xie)抓好“三(san)農(nong)(nong)(nong)(nong)”工作，牢牢守住確保國家(jia)糧(liang)(liang)食(shi)安全(quan)、確保不發生規(gui)模(mo)性返貧底線。一(yi)是(shi)要(yao)(yao)提(ti)(ti)(ti)升(sheng)(sheng)(sheng)農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)發展(zhan)水(shui)平(ping)(ping)，保障糧(liang)(liang)食(shi)等重(zhong)要(yao)(yao)農(nong)(nong)(nong)(nong)產(chan)品穩(wen)定安全(quan)供給，探(tan)索建立(li)(li)糧(liang)(liang)食(shi)產(chan)銷區省際橫向利益(yi)補償機制，改革完善(shan)耕地占補平(ping)(ping)衡制度，提(ti)(ti)(ti)高高標準農(nong)(nong)(nong)(nong)田建設(she)投(tou)入(ru)標準，樹(shu)立(li)(li)大(da)(da)農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)觀、大(da)(da)食(shi)物(wu)觀，把農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)建成現代(dai)化大(da)(da)產(chan)業(ye)(ye)(ye)(ye)(ye)。二(er)是(shi)提(ti)(ti)(ti)升(sheng)(sheng)(sheng)農(nong)(nong)(nong)(nong)民(min)收入(ru)水(shui)平(ping)(ping)，鞏固拓展(zhan)脫貧攻堅(jian)成果，實(shi)施農(nong)(nong)(nong)(nong)民(min)增收促進(jin)行(xing)動(dong)(dong)，發展(zhan)農(nong)(nong)(nong)(nong)產(chan)品加工業(ye)(ye)(ye)(ye)(ye)、觀光(guang)旅游休閑等新(xin)產(chan)業(ye)(ye)(ye)(ye)(ye)新(xin)業(ye)(ye)(ye)(ye)(ye)態，拓展(zhan)農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)(ye)(ye)多重(zhong)功能，挖掘鄉(xiang)(xiang)村(cun)(cun)(cun)多元(yuan)價值，以縣域為中心大(da)(da)力(li)(li)發展(zhan)非農(nong)(nong)(nong)(nong)產(chan)業(ye)(ye)(ye)(ye)(ye)，促進(jin)農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)富余勞動(dong)(dong)力(li)(li)就(jiu)地就(jiu)近就(jiu)業(ye)(ye)(ye)(ye)(ye)。三(san)是(shi)提(ti)(ti)(ti)升(sheng)(sheng)(sheng)鄉(xiang)(xiang)村(cun)(cun)(cun)建設(she)、鄉(xiang)(xiang)村(cun)(cun)(cun)治理水(shui)平(ping)(ping)，統(tong)籌推進(jin)城鄉(xiang)(xiang)一(yi)體規(gui)劃布(bu)局，優(you)化村(cun)(cun)(cun)莊布(bu)局、產(chan)業(ye)(ye)(ye)(ye)(ye)結構、公共服(fu)務(wu)配(pei)置，深入(ru)實(shi)施農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)人(ren)居環境整(zheng)治提(ti)(ti)(ti)升(sheng)(sheng)(sheng)行(xing)動(dong)(dong)，推進(jin)農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)基(ji)礎設(she)施補短板，大(da)(da)力(li)(li)推進(jin)數字(zi)鄉(xiang)(xiang)村(cun)(cun)(cun)建設(she)，建設(she)宜居宜業(ye)(ye)(ye)(ye)(ye)和美(mei)鄉(xiang)(xiang)村(cun)(cun)(cun)。

　　要(yao)持續推動(dong)(dong)城(cheng)市(shi)賦能(neng)鄉(xiang)(xiang)(xiang)村(cun)(cun)振興。關鍵是(shi)(shi)(shi)要(yao)打通(tong)(tong)城(cheng)鄉(xiang)(xiang)(xiang)要(yao)素(su)雙向(xiang)流動(dong)(dong)的(de)(de)(de)制(zhi)度(du)性(xing)通(tong)(tong)道(dao)，暢通(tong)(tong)城(cheng)鄉(xiang)(xiang)(xiang)經濟循環。在推動(dong)(dong)城(cheng)市(shi)要(yao)素(su)下鄉(xiang)(xiang)(xiang)的(de)(de)(de)同時，把農(nong)(nong)業(ye)轉移人口市(shi)民(min)化擺在突(tu)出位(wei)置，讓農(nong)(nong)民(min)真正能(neng)夠(gou)進城(cheng)安(an)居樂(le)業(ye)，推進以人為(wei)核心的(de)(de)(de)新型(xing)城(cheng)鎮化。一是(shi)(shi)(shi)深(shen)化認識(shi)(shi)。充(chong)分(fen)認識(shi)(shi)新型(xing)城(cheng)鎮化發展(zhan)的(de)(de)(de)巨大(da)(da)潛力和重(zhong)(zhong)大(da)(da)意義(yi)，充(chong)分(fen)認識(shi)(shi)城(cheng)市(shi)和鄉(xiang)(xiang)(xiang)村(cun)(cun)是(shi)(shi)(shi)相互依存、相互融(rong)合、互促共榮的(de)(de)(de)整體，充(chong)分(fen)認識(shi)(shi)城(cheng)市(shi)繁榮需要(yao)鄉(xiang)(xiang)(xiang)村(cun)(cun)在資(zi)(zi)(zi)源、產(chan)品、勞動(dong)(dong)力方(fang)(fang)面的(de)(de)(de)支撐(cheng)，鄉(xiang)(xiang)(xiang)村(cun)(cun)振興也離不開城(cheng)市(shi)的(de)(de)(de)帶動(dong)(dong)和支持。二是(shi)(shi)(shi)推動(dong)(dong)科技(ji)進步。推廣現代(dai)農(nong)(nong)業(ye)技(ji)術(shu)(shu)，重(zhong)(zhong)點加(jia)(jia)(jia)強生物技(ji)術(shu)(shu)、裝(zhuang)備技(ji)術(shu)(shu)、數字技(ji)術(shu)(shu)、綠色技(ji)術(shu)(shu)在農(nong)(nong)業(ye)生產(chan)中的(de)(de)(de)應用(yong)，提高農(nong)(nong)業(ye)生產(chan)效率，引入現代(dai)農(nong)(nong)業(ye)技(ji)術(shu)(shu)和管理方(fang)(fang)法(fa)，提高農(nong)(nong)產(chan)品質(zhi)量(liang)和產(chan)量(liang)，降(jiang)低生產(chan)成(cheng)本(ben)(ben)，助力農(nong)(nong)民(min)增收。三是(shi)(shi)(shi)提升人力資(zi)(zi)(zi)本(ben)(ben)。根(gen)據城(cheng)鄉(xiang)(xiang)(xiang)融(rong)合發展(zhan)需求，營造良好的(de)(de)(de)政(zheng)策(ce)環境，有(you)針對性(xing)地培(pei)養引領(ling)型(xing)、實用(yong)型(xing)、管理型(xing)等(deng)各類人才(cai)(cai)(cai)，引導城(cheng)鄉(xiang)(xiang)(xiang)人才(cai)(cai)(cai)雙向(xiang)流動(dong)(dong)，鼓(gu)勵人才(cai)(cai)(cai)返鄉(xiang)(xiang)(xiang)入鄉(xiang)(xiang)(xiang)創業(ye)就業(ye)。注重(zhong)(zhong)突(tu)出農(nong)(nong)民(min)的(de)(de)(de)主體地位(wei)，加(jia)(jia)(jia)強農(nong)(nong)村(cun)(cun)人才(cai)(cai)(cai)培(pei)養，提高農(nong)(nong)村(cun)(cun)勞動(dong)(dong)力的(de)(de)(de)綜(zong)合素(su)質(zhi)和就業(ye)能(neng)力。四(si)是(shi)(shi)(shi)加(jia)(jia)(jia)大(da)(da)投(tou)入力度(du)。加(jia)(jia)(jia)大(da)(da)財政(zheng)投(tou)入，支持農(nong)(nong)村(cun)(cun)基(ji)(ji)礎設(she)施建(jian)設(she)，使農(nong)(nong)村(cun)(cun)基(ji)(ji)本(ben)(ben)具(ju)備現代(dai)生活條件。引導社會(hui)資(zi)(zi)(zi)本(ben)(ben)參與農(nong)(nong)村(cun)(cun)發展(zhan)，拓寬融(rong)資(zi)(zi)(zi)渠(qu)道(dao)，形(xing)成(cheng)良性(xing)的(de)(de)(de)利益分(fen)配(pei)機制(zhi)。通(tong)(tong)過(guo)政(zheng)策(ce)扶(fu)持、貸款貼(tie)息等(deng)方(fang)(fang)式，鼓(gu)勵企(qi)業(ye)、社會(hui)組(zu)織投(tou)資(zi)(zi)(zi)農(nong)(nong)村(cun)(cun)產(chan)業(ye)、基(ji)(ji)礎設(she)施建(jian)設(she)等(deng)領(ling)域。

　　著力解決深層矛盾問題

　　在制定目(mu)標、規劃路徑、設計政(zheng)策的過(guo)程中，要(yao)把(ba)握(wo)當前城鄉融合發展(zhan)面臨(lin)的新形勢(shi)，著力解決存在的結構性(xing)(xing)、體制性(xing)(xing)、機制性(xing)(xing)矛盾和問題。

　　一是(shi)健全城(cheng)(cheng)鄉(xiang)(xiang)(xiang)融合發(fa)展(zhan)(zhan)體制(zhi)機(ji)制(zhi)。要(yao)(yao)(yao)致力于(yu)突破長期以來(lai)的城(cheng)(cheng)鄉(xiang)(xiang)(xiang)二元結構，避免城(cheng)(cheng)鄉(xiang)(xiang)(xiang)割裂、要(yao)(yao)(yao)素(su)單向(xiang)流動，進一步深(shen)化戶(hu)籍制(zhi)度(du)改(gai)革，加(jia)強教育(yu)、醫療、養老、住房(fang)等領(ling)域(yu)投入，進一步消除城(cheng)(cheng)鄉(xiang)(xiang)(xiang)要(yao)(yao)(yao)素(su)雙(shuang)向(xiang)流動的制(zhi)度(du)障礙。使市(shi)(shi)場(chang)在資源配置中(zhong)起(qi)決定性作(zuo)用、更好發(fa)揮政(zheng)府(fu)作(zuo)用。建(jian)立健全有利于(yu)城(cheng)(cheng)鄉(xiang)(xiang)(xiang)間要(yao)(yao)(yao)素(su)雙(shuang)向(xiang)流動、要(yao)(yao)(yao)素(su)市(shi)(shi)場(chang)化配置的體制(zhi)機(ji)制(zhi)，實現(xian)城(cheng)(cheng)鄉(xiang)(xiang)(xiang)資源交互、產業(ye)融合發(fa)展(zhan)(zhan)，以城(cheng)(cheng)市(shi)(shi)發(fa)展(zhan)(zhan)帶動和(he)促(cu)(cu)進鄉(xiang)(xiang)(xiang)村發(fa)展(zhan)(zhan)，以工業(ye)發(fa)展(zhan)(zhan)帶動和(he)促(cu)(cu)進農業(ye)發(fa)展(zhan)(zhan)。

　　二是強化(hua)縣(xian)(xian)域(yu)內城(cheng)(cheng)(cheng)(cheng)鄉(xiang)融(rong)合(he)(he)(he)發(fa)(fa)(fa)展(zhan)。縣(xian)(xian)域(yu)經(jing)(jing)濟(ji)(ji)是國民(min)經(jing)(jing)濟(ji)(ji)的(de)(de)重要(yao)組成部分，縣(xian)(xian)城(cheng)(cheng)(cheng)(cheng)不僅是推(tui)進以人為核心(xin)的(de)(de)新(xin)型城(cheng)(cheng)(cheng)(cheng)鎮(zhen)化(hua)的(de)(de)重要(yao)載體，而(er)且(qie)是推(tui)動城(cheng)(cheng)(cheng)(cheng)鄉(xiang)融(rong)合(he)(he)(he)發(fa)(fa)(fa)展(zhan)的(de)(de)重要(yao)樞(shu)紐和依托。要(yao)把(ba)縣(xian)(xian)域(yu)作為一個整(zheng)體，統籌(chou)規劃布局基礎設施(shi)建設、公共服務供給(gei)和人居(ju)環(huan)境治理。以縣(xian)(xian)城(cheng)(cheng)(cheng)(cheng)為載體大力發(fa)(fa)(fa)展(zhan)第三(san)產(chan)業(ye)，吸(xi)引農村居(ju)民(min)向縣(xian)(xian)城(cheng)(cheng)(cheng)(cheng)遷(qian)移流動。通過(guo)創設產(chan)業(ye)園，促進民(min)營經(jing)(jing)濟(ji)(ji)發(fa)(fa)(fa)展(zhan)，探索(suo)靈活就業(ye)機制，增加縣(xian)(xian)城(cheng)(cheng)(cheng)(cheng)對所在縣(xian)(xian)域(yu)農村居(ju)民(min)的(de)(de)吸(xi)引力，實(shi)現非農勞動力就地就近就業(ye)創業(ye)。通過(guo)縣(xian)(xian)域(yu)經(jing)(jing)濟(ji)(ji)發(fa)(fa)(fa)展(zhan)推(tui)動市域(yu)經(jing)(jing)濟(ji)(ji)發(fa)(fa)(fa)展(zhan)，進而(er)推(tui)動省域(yu)范圍(wei)實(shi)現城(cheng)(cheng)(cheng)(cheng)鄉(xiang)融(rong)合(he)(he)(he)。

　　三(san)是(shi)率先實現農(nong)(nong)民(min)工(gong)群體(ti)城(cheng)鎮(zhen)化(hua)(hua)(hua)。推進(jin)(jin)新型城(cheng)鎮(zhen)化(hua)(hua)(hua)建設，需以人(ren)(ren)的城(cheng)鎮(zhen)化(hua)(hua)(hua)為(wei)核心。更(geng)好(hao)推動(dong)農(nong)(nong)民(min)工(gong)群體(ti)城(cheng)鎮(zhen)化(hua)(hua)(hua)，需以系統觀念(nian)繼(ji)續推進(jin)(jin)分(fen)工(gong)分(fen)業(ye)(ye)(ye)。多(duo)措并舉為(wei)農(nong)(nong)村(cun)富(fu)余勞動(dong)力(li)外(wai)出就(jiu)業(ye)(ye)(ye)提供保(bao)障，深(shen)化(hua)(hua)(hua)戶(hu)籍制度改革，解(jie)決(jue)好(hao)進(jin)(jin)城(cheng)農(nong)(nong)民(min)工(gong)隨遷子女教育(yu)等一系列問題(ti)，讓更(geng)多(duo)農(nong)(nong)村(cun)居民(min)進(jin)(jin)城(cheng)安(an)家落戶(hu)、穩(wen)定就(jiu)業(ye)(ye)(ye)，成為(wei)中等收入(ru)群體(ti)的重要來源。要積極擴大鄉(xiang)村(cun)就(jiu)業(ye)(ye)(ye)空間，大力(li)發展(zhan)特色產業(ye)(ye)(ye)、鄉(xiang)村(cun)旅游和(he)農(nong)(nong)村(cun)服務(wu)業(ye)(ye)(ye)，引導新生代農(nong)(nong)民(min)工(gong)從(cong)事新產業(ye)(ye)(ye)、新業(ye)(ye)(ye)態(tai)，深(shen)入(ru)實施返鄉(xiang)創業(ye)(ye)(ye)能力(li)提升(sheng)行動(dong)、鄉(xiang)村(cun)就(jiu)業(ye)(ye)(ye)創業(ye)(ye)(ye)促(cu)進(jin)(jin)行動(dong)。促(cu)進(jin)(jin)新業(ye)(ye)(ye)態(tai)發展(zhan)，通過鄉(xiang)村(cun)經濟社會的數字化(hua)(hua)(hua)轉(zhuan)型、多(duo)元化(hua)(hua)(hua)發展(zhan)，提供更(geng)多(duo)就(jiu)業(ye)(ye)(ye)崗位(wei)，創新農(nong)(nong)村(cun)勞動(dong)力(li)就(jiu)業(ye)(ye)(ye)領(ling)域和(he)方式。降低就(jiu)業(ye)(ye)(ye)成本，提高就(jiu)業(ye)(ye)(ye)效率，推動(dong)農(nong)(nong)業(ye)(ye)(ye)轉(zhuan)移(yi)人(ren)(ren)口就(jiu)地(di)就(jiu)近城(cheng)鎮(zhen)化(hua)(hua)(hua)。

　　四是(shi)深化(hua)改革激活城(cheng)(cheng)鄉要素(su)市場。實現城(cheng)(cheng)鄉融合，需著力(li)(li)(li)提高(gao)農(nong)(nong)(nong)(nong)業(ye)現代化(hua)水平(ping)，使(shi)農(nong)(nong)(nong)(nong)業(ye)和(he)工(gong)業(ye)有大(da)體均衡的勞(lao)動生(sheng)產(chan)效率(lv)。就(jiu)激活土(tu)地(di)要素(su)而(er)言，要把(ba)握農(nong)(nong)(nong)(nong)村土(tu)地(di)所有權(quan)、承包(bao)(bao)權(quan)、經(jing)營權(quan)“三權(quan)分置(zhi)”政策，穩(wen)定承包(bao)(bao)權(quan)，放活經(jing)營權(quan)，在嚴防耕(geng)地(di)“非農(nong)(nong)(nong)(nong)化(hua)”特別是(shi)“非糧(liang)化(hua)”的前提下，優(you)化(hua)土(tu)地(di)經(jing)營制(zhi)度，提高(gao)土(tu)地(di)產(chan)出效率(lv)。就(jiu)經(jing)營方(fang)式(shi)而(er)言，隨著大(da)量農(nong)(nong)(nong)(nong)村居民向(xiang)城(cheng)(cheng)市遷移和(he)大(da)量農(nong)(nong)(nong)(nong)村富余勞(lao)動力(li)(li)(li)向(xiang)非農(nong)(nong)(nong)(nong)產(chan)業(ye)轉移，大(da)力(li)(li)(li)發展(zhan)家庭農(nong)(nong)(nong)(nong)場、農(nong)(nong)(nong)(nong)民合作(zuo)社、農(nong)(nong)(nong)(nong)業(ye)企業(ye)和(he)各(ge)種社會化(hua)服務組織，進一(yi)步(bu)深化(hua)小農(nong)(nong)(nong)(nong)戶與現代農(nong)(nong)(nong)(nong)業(ye)發展(zhan)有機銜接(jie)，將是(shi)未來農(nong)(nong)(nong)(nong)業(ye)特別是(shi)糧(liang)食生(sheng)產(chan)規模化(hua)、專業(ye)化(hua)的必然選擇。

　　五是營造良好發(fa)展(zhan)環境。各(ge)地(di)需明(ming)確目(mu)(mu)標(biao)(biao)(biao)(biao)、創(chuang)新方(fang)式方(fang)法，著力(li)形成資源配置引導(dao)、產業(ye)(ye)引擎驅動(dong)、基(ji)層(ceng)治理支(zhi)撐和服務供(gong)給有效的(de)城(cheng)鄉融合(he)發(fa)展(zhan)環境。需推動(dong)城(cheng)鄉發(fa)展(zhan)一體規劃，以縣域為(wei)整體，統籌(chou)規劃全(quan)域覆蓋、城(cheng)鄉一體的(de)基(ji)礎設(she)施和公共服務設(she)施，實現(xian)統一建(jian)設(she)、統一管(guan)護、統一服務，為(wei)城(cheng)鄉居(ju)(ju)民(min)(min)共享發(fa)展(zhan)成果提供(gong)保障。需制定明(ming)確的(de)時(shi)間表、路線圖，明(ming)確農(nong)(nong)村(cun)居(ju)(ju)民(min)(min)收(shou)(shou)入(ru)增長目(mu)(mu)標(biao)(biao)(biao)(biao)和城(cheng)鄉居(ju)(ju)民(min)(min)收(shou)(shou)入(ru)差距縮小(xiao)(xiao)目(mu)(mu)標(biao)(biao)(biao)(biao)，在實現(xian)高質量發(fa)展(zhan)過程中，建(jian)議將縮小(xiao)(xiao)城(cheng)鄉居(ju)(ju)民(min)(min)收(shou)(shou)入(ru)差距作為(wei)戰(zhan)略性(xing)(xing)目(mu)(mu)標(biao)(biao)(biao)(biao)和約束性(xing)(xing)要(yao)求(qiu)(qiu)，以10年(nian)或(huo)15年(nian)為(wei)期量化、細(xi)化，設(she)目(mu)(mu)標(biao)(biao)(biao)(biao)、明(ming)要(yao)求(qiu)(qiu)、探路徑(jing)，確保長期目(mu)(mu)標(biao)(biao)(biao)(biao)有約束性(xing)(xing)，年(nian)度目(mu)(mu)標(biao)(biao)(biao)(biao)有彈性(xing)(xing)。需優(you)化政(zheng)(zheng)策(ce)組(zu)合(he)，統籌(chou)使用補貼(tie)政(zheng)(zheng)策(ce)和價格支(zhi)持政(zheng)(zheng)策(ce)，有針對性(xing)(xing)地(di)出臺具有地(di)區差異性(xing)(xing)的(de)農(nong)(nong)業(ye)(ye)補貼(tie)政(zheng)(zheng)策(ce)，新增補貼(tie)向(xiang)糧(liang)食主產區、脫貧地(di)區和邊遠(yuan)地(di)區傾(qing)斜，充分發(fa)揮財政(zheng)(zheng)轉移(yi)支(zhi)付對縮小(xiao)(xiao)農(nong)(nong)民(min)(min)內部收(shou)(shou)入(ru)差距的(de)引導(dao)作用。加大(da)對農(nong)(nong)業(ye)(ye)基(ji)礎設(she)施建(jian)設(she)的(de)重資產投入(ru)，鼓勵社會資本投入(ru)農(nong)(nong)業(ye)(ye)，按(an)照國家(jia)促進民(min)(min)營經濟發(fa)展(zhan)的(de)要(yao)求(qiu)(qiu)，增強(qiang)工商資本投入(ru)農(nong)(nong)業(ye)(ye)農(nong)(nong)村(cun)的(de)信心，大(da)力(li)扶持智慧農(nong)(nong)業(ye)(ye)、數字經濟等新產業(ye)(ye)、新業(ye)(ye)態發(fa)展(zhan)。

（作者張紅宇 系(xi)中國(guo)農(nong)業風險管(guan)理研究會會長）

原標題：探索符合國情的城鄉融合發展道路
記者：張紅宇
責任編輯：方經綸、陳鍵
頁面編輯：蘇偉