中央經濟(ji)工作(zuo)會議提出，“統籌新(xin)型城(cheng)(cheng)鎮(zhen)(zhen)化(hua)(hua)和(he)鄉(xiang)村(cun)全面振興(xing)”“要(yao)把推(tui)進新(xin)型城(cheng)(cheng)鎮(zhen)(zhen)化(hua)(hua)和(he)鄉(xiang)村(cun)全面振興(xing)有機結合起來，促進各類要(yao)素雙(shuang)向流動(dong)，推(tui)動(dong)以(yi)縣城(cheng)(cheng)為重要(yao)載體的(de)(de)新(xin)型城(cheng)(cheng)鎮(zhen)(zhen)化(hua)(hua)建設，形(xing)成(cheng)城(cheng)(cheng)鄉(xiang)融(rong)合發展(zhan)新(xin)格局”。這一(yi)系(xi)列重要(yao)部(bu)署體現了(le)黨中央推(tui)動(dong)經濟(ji)高質量發展(zhan)的(de)(de)辯證思維。落實(shi)到(dao)推(tui)進新(xin)型城(cheng)(cheng)鎮(zhen)(zhen)化(hua)(hua)和(he)鄉(xiang)村(cun)全面振興(xing)上，就是要(yao)把城(cheng)(cheng)鄉(xiang)關系(xi)處理好，一(yi)體設計、一(yi)并推(tui)進，綜合施策，實(shi)現城(cheng)(cheng)鄉(xiang)經濟(ji)深度融(rong)合、功(gong)能互補。

　　當前，新型(xing)城(cheng)鎮化戰略(lve)與鄉村全面振(zhen)興(xing)戰略(lve)正在(zai)(zai)深入推進(jin)(jin)，取(qu)得了一(yi)系列顯(xian)著成果(guo)，同(tong)時，一(yi)些(xie)地方還存在(zai)(zai)模(mo)糊認識(shi)和需改進(jin)(jin)的做法(fa)，值得重視(shi)。要正確理(li)解二者(zhe)關系，把推進(jin)(jin)新型(xing)城(cheng)鎮化和鄉村全面振(zhen)興(xing)有(you)機結合起(qi)來(lai)，在(zai)(zai)認識(shi)上進(jin)(jin)一(yi)步提高，在(zai)(zai)實踐中持續優化，推動形成城(cheng)鄉融合發展新格(ge)局(ju)。

　　有觀(guan)點認為城(cheng)(cheng)(cheng)鎮化(hua)(hua)與(yu)鄉(xiang)(xiang)(xiang)(xiang)村(cun)振(zhen)(zhen)興(xing)(xing)是“沖突(tu)的(de)(de)”，城(cheng)(cheng)(cheng)鎮化(hua)(hua)就是“去農化(hua)(hua)”，鄉(xiang)(xiang)(xiang)(xiang)村(cun)振(zhen)(zhen)興(xing)(xing)就是突(tu)出(chu)農業(ye)、農村(cun)、農民(min)，城(cheng)(cheng)(cheng)與(yu)鄉(xiang)(xiang)(xiang)(xiang)要(yao)爭(zheng)奪資源，二(er)(er)(er)者內(nei)在不(bu)一(yi)致。可(ke)以說，這是用靜止的(de)(de)而非動態的(de)(de)視角來看城(cheng)(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)關系，并且(qie)只看到(dao)城(cheng)(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)關系中的(de)(de)矛盾性(xing)而沒(mei)有看到(dao)統(tong)一(yi)性(xing)。其實，城(cheng)(cheng)(cheng)鎮化(hua)(hua)與(yu)鄉(xiang)(xiang)(xiang)(xiang)村(cun)振(zhen)(zhen)興(xing)(xing)二(er)(er)(er)者是相互促(cu)進(jin)、相互融合的(de)(de)。在現(xian)代(dai)(dai)化(hua)(hua)進(jin)程中，城(cheng)(cheng)(cheng)市的(de)(de)比重(zhong)(zhong)上升、鄉(xiang)(xiang)(xiang)(xiang)村(cun)的(de)(de)比重(zhong)(zhong)下降是客觀(guan)規律，城(cheng)(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)將長期共(gong)生并存也是客觀(guan)規律。鄉(xiang)(xiang)(xiang)(xiang)村(cun)作(zuo)(zuo)(zuo)為一(yi)個(ge)具(ju)有自然(ran)、社會、經濟特征的(de)(de)地域綜(zong)合體，與(yu)城(cheng)(cheng)(cheng)鎮共(gong)同構成人類活(huo)動的(de)(de)主要(yao)空間，二(er)(er)(er)者在滿(man)足城(cheng)(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)居(ju)民(min)多(duo)元化(hua)(hua)需求、促(cu)進(jin)經濟增長方(fang)面都(dou)發揮著不(bu)可(ke)替代(dai)(dai)的(de)(de)重(zhong)(zhong)要(yao)作(zuo)(zuo)(zuo)用。新型城(cheng)(cheng)(cheng)鎮化(hua)(hua)內(nei)在要(yao)求城(cheng)(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)協(xie)調發展(zhan)，鄉(xiang)(xiang)(xiang)(xiang)村(cun)全面振(zhen)(zhen)興(xing)(xing)需要(yao)發揮城(cheng)(cheng)(cheng)市的(de)(de)輻射帶動作(zuo)(zuo)(zuo)用，只有統(tong)籌好新型城(cheng)(cheng)(cheng)鎮化(hua)(hua)與(yu)鄉(xiang)(xiang)(xiang)(xiang)村(cun)全面振(zhen)(zhen)興(xing)(xing)，才能順應中國式現(xian)代(dai)(dai)化(hua)(hua)建設要(yao)求，更好滿(man)足廣大農村(cun)居(ju)民(min)對美(mei)好生活(huo)的(de)(de)向往。

　　在實踐(jian)上，一些(xie)地(di)方對統籌推進新型城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)鎮化和(he)鄉(xiang)村(cun)全面(mian)振(zhen)興的(de)(de)(de)實現路徑缺乏政(zheng)(zheng)策性、科學(xue)性指(zhi)引。例如，有的(de)(de)(de)地(di)方在不(bu)具備條件的(de)(de)(de)鄉(xiang)村(cun)無序造(zao)城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)、造(zao)鎮，使鄉(xiang)村(cun)風貌遭受破(po)壞，一些(xie)具備條件實施就地(di)城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)鎮化的(de)(de)(de)縣城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)、小(xiao)城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)鎮沒(mei)有得到充分發(fa)展，基礎設(she)施建設(she)和(he)公共(gong)服(fu)務(wu)水平等有待提升，城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)鄉(xiang)二元(yuan)結構仍然(ran)存在，城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)鄉(xiang)融合(he)發(fa)展政(zheng)(zheng)策體(ti)系(xi)(xi)有待完(wan)善。我們(men)必須(xu)從全局和(he)戰略高度來把握和(he)處理工(gong)農(nong)(nong)關系(xi)(xi)、城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)鄉(xiang)關系(xi)(xi)，加快建立(li)健全城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)鄉(xiang)融合(he)發(fa)展體(ti)制(zhi)(zhi)機制(zhi)(zhi)和(he)政(zheng)(zheng)策體(ti)系(xi)(xi)，強化以(yi)工(gong)補農(nong)(nong)、以(yi)城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)帶鄉(xiang)，加快形(xing)成工(gong)農(nong)(nong)互促、城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)鄉(xiang)互補、協調發(fa)展、共(gong)同繁榮的(de)(de)(de)新型工(gong)農(nong)(nong)城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)鄉(xiang)關系(xi)(xi)，使新型城(cheng)(cheng)(cheng)(cheng)(cheng)(cheng)鎮化和(he)鄉(xiang)村(cun)全面(mian)振(zhen)興密切結合(he)、相互促進。

　　新時(shi)代(dai)，深入(ru)實施(shi)新型城(cheng)鎮化(hua)戰(zhan)(zhan)略和(he)全(quan)面推進(jin)(jin)鄉(xiang)(xiang)(xiang)村振(zhen)興戰(zhan)(zhan)略都(dou)是長期的(de)(de)歷史性任務，需(xu)要深刻把握兩大(da)戰(zhan)(zhan)略統籌發(fa)展的(de)(de)現實依據(ju)和(he)內在(zai)(zai)機制。從空間發(fa)展來看(kan)(kan)，沒有(you)(you)脫離(li)鄉(xiang)(xiang)(xiang)的(de)(de)城(cheng)，也沒有(you)(you)脫離(li)城(cheng)的(de)(de)鄉(xiang)(xiang)(xiang)。我國城(cheng)鄉(xiang)(xiang)(xiang)發(fa)展的(de)(de)未來空間形態(tai)必(bi)然是現代(dai)化(hua)的(de)(de)城(cheng)市(shi)與現代(dai)化(hua)的(de)(de)農(nong)村共生(sheng)共榮。從目標要求看(kan)(kan)，推進(jin)(jin)新型城(cheng)鎮化(hua)與鄉(xiang)(xiang)(xiang)村全(quan)面振(zhen)興的(de)(de)出(chu)發(fa)點和(he)落腳點都(dou)是讓人民生(sheng)活越過越好(hao)，二者都(dou)是中國式現代(dai)化(hua)建設的(de)(de)題中應有(you)(you)之(zhi)義。從要素(su)角度看(kan)(kan)，勞動力、土地、資本、技術、數據(ju)等要素(su)在(zai)(zai)城(cheng)鄉(xiang)(xiang)(xiang)之(zhi)間實現充(chong)分(fen)流動，要素(su)價值就能進(jin)(jin)一(yi)步(bu)發(fa)揮，這(zhe)樣既有(you)(you)利于(yu)城(cheng)市(shi)，也有(you)(you)利于(yu)農(nong)村。

　　統籌(chou)推(tui)進城(cheng)鎮化(hua)和(he)鄉村(cun)(cun)振興(xing)(xing)(xing)，既(ji)要根(gen)據新(xin)型城(cheng)鎮化(hua)和(he)鄉村(cun)(cun)全面(mian)振興(xing)(xing)(xing)的(de)目標(biao)(biao)任務各自突破，又(you)要找(zhao)到二者的(de)“結合點(dian)”，集中發力(li)，一體(ti)推(tui)進以(yi)人為(wei)(wei)本的(de)新(xin)型城(cheng)鎮化(hua)和(he)以(yi)農(nong)業農(nong)村(cun)(cun)現代化(hua)為(wei)(wei)總目標(biao)(biao)的(de)鄉村(cun)(cun)振興(xing)(xing)(xing)。具體(ti)來(lai)看，可(ke)以(yi)將以(yi)下幾方面(mian)作為(wei)(wei)主要著力(li)點(dian)。

　　一(yi)是強(qiang)化(hua)人(ren)(ren)(ren)(ren)口(kou)、人(ren)(ren)(ren)(ren)才相關政(zheng)策保障。一(yi)方面(mian)，要(yao)加快(kuai)農(nong)(nong)(nong)業(ye)轉(zhuan)移(yi)人(ren)(ren)(ren)(ren)口(kou)市民(min)(min)化(hua)，健全(quan)常住地(di)提供基(ji)本(ben)公共服務(wu)制(zhi)度(du)，讓能進(jin)城(cheng)愿(yuan)進(jin)城(cheng)的(de)，更快(kuai)更好融入城(cheng)市。進(jin)一(yi)步深(shen)化(hua)戶(hu)籍制(zhi)度(du)改革，放(fang)開放(fang)寬除個別超(chao)大城(cheng)市外的(de)落(luo)戶(hu)限(xian)制(zhi)，維護進(jin)城(cheng)落(luo)戶(hu)農(nong)(nong)(nong)民(min)(min)在(zai)農(nong)(nong)(nong)村(cun)的(de)土地(di)承包權(quan)(quan)、宅基(ji)地(di)使用(yong)(yong)權(quan)(quan)、集體(ti)收(shou)益分配權(quan)(quan)，保障進(jin)城(cheng)落(luo)戶(hu)農(nong)(nong)(nong)民(min)(min)土地(di)等(deng)(deng)合法權(quan)(quan)益，促(cu)進(jin)農(nong)(nong)(nong)業(ye)轉(zhuan)移(yi)人(ren)(ren)(ren)(ren)口(kou)更好融入城(cheng)市。另(ling)一(yi)方面(mian)，要(yao)著(zhu)力培(pei)養一(yi)批鄉(xiang)(xiang)村(cun)人(ren)(ren)(ren)(ren)才，全(quan)面(mian)提升農(nong)(nong)(nong)民(min)(min)素(su)質素(su)養。要(yao)制(zhi)定財(cai)政(zheng)、金融、社會保障等(deng)(deng)激勵(li)政(zheng)策，有序引導大學畢(bi)業(ye)生到鄉(xiang)(xiang)、能人(ren)(ren)(ren)(ren)回鄉(xiang)(xiang)、農(nong)(nong)(nong)民(min)(min)工返鄉(xiang)(xiang)、企(qi)業(ye)家入鄉(xiang)(xiang)，創(chuang)造機會、暢通(tong)渠道、營造環境，幫助(zhu)解(jie)決職業(ye)發(fa)展、社會保障等(deng)(deng)后顧(gu)之(zhi)憂，讓其(qi)留得(de)下、能創(chuang)業(ye)。要(yao)樹立階段(duan)性用(yong)(yong)才理念，不求所(suo)有、但求所(suo)用(yong)(yong)。通(tong)過多方面(mian)努(nu)力，著(zhu)力打(da)造一(yi)支沉得(de)下、留得(de)住、能管用(yong)(yong)的(de)鄉(xiang)(xiang)村(cun)人(ren)(ren)(ren)(ren)才隊伍，強(qiang)化(hua)全(quan)面(mian)推進(jin)鄉(xiang)(xiang)村(cun)振興(xing)、加快(kuai)建設農(nong)(nong)(nong)業(ye)強(qiang)國的(de)智力支持和(he)人(ren)(ren)(ren)(ren)才支撐(cheng)。

　　二是發(fa)揮(hui)縣(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)綜合(he)平臺(tai)作用。當前，城(cheng)(cheng)(cheng)鄉(xiang)空間分布和(he)產(chan)業(ye)格(ge)局(ju)出(chu)現了“亦(yi)城(cheng)(cheng)(cheng)亦(yi)鄉(xiang)”的中間形態。縣(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)和(he)小(xiao)城(cheng)(cheng)(cheng)鎮是連接大(da)城(cheng)(cheng)(cheng)市(shi)(shi)與鄉(xiang)村的關鍵紐帶，發(fa)展(zhan)(zhan)(zhan)縣(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)和(he)小(xiao)城(cheng)(cheng)(cheng)鎮對推(tui)動(dong)鄉(xiang)村振興(xing)具有(you)更為(wei)直接的影響。要把縣(xian)(xian)(xian)(xian)域(yu)作為(wei)城(cheng)(cheng)(cheng)鄉(xiang)融合(he)發(fa)展(zhan)(zhan)(zhan)的切入點(dian)，推(tui)進空間布局(ju)、產(chan)業(ye)發(fa)展(zhan)(zhan)(zhan)、基礎(chu)設(she)施等(deng)縣(xian)(xian)(xian)(xian)域(yu)統(tong)籌，推(tui)動(dong)公共資(zi)源在縣(xian)(xian)(xian)(xian)域(yu)內優(you)化(hua)配置。要科(ke)學把握功能(neng)定位，分類引導縣(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)發(fa)展(zhan)(zhan)(zhan)方向，加快發(fa)展(zhan)(zhan)(zhan)大(da)城(cheng)(cheng)(cheng)市(shi)(shi)周(zhou)邊縣(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)，積極培(pei)育(yu)專業(ye)功能(neng)縣(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)，合(he)理發(fa)展(zhan)(zhan)(zhan)農產(chan)品(pin)主產(chan)區(qu)(qu)縣(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)，有(you)序發(fa)展(zhan)(zhan)(zhan)重點(dian)生態功能(neng)區(qu)(qu)縣(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)，引導人口流失縣(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)轉型發(fa)展(zhan)(zhan)(zhan)。暢通(tong)對外連接通(tong)道，提高縣(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)與周(zhou)邊大(da)中城(cheng)(cheng)(cheng)市(shi)(shi)以(yi)及縣(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)與鄉(xiang)村互聯互通(tong)水(shui)平。擴大(da)教(jiao)育(yu)資(zi)源供給，發(fa)展(zhan)(zhan)(zhan)養老托(tuo)育(yu)服務，完善文化(hua)體育(yu)、社會福利等(deng)方面的設(she)施，增強(qiang)縣(xian)(xian)(xian)(xian)城(cheng)(cheng)(cheng)帶動(dong)鄉(xiang)村發(fa)展(zhan)(zhan)(zhan)的能(neng)力。

　　三是發(fa)(fa)(fa)展(zhan)城(cheng)(cheng)鄉(xiang)特色(se)優(you)勢產(chan)業(ye)(ye)。一些產(chan)業(ye)(ye)鏈的上中下游可(ke)能(neng)貫(guan)穿于鄉(xiang)村(cun)、城(cheng)(cheng)鎮和(he)城(cheng)(cheng)市，通過發(fa)(fa)(fa)展(zhan)一條條這樣的產(chan)業(ye)(ye)鏈，能(neng)夠有效(xiao)促進各類(lei)生(sheng)產(chan)要素(su)在城(cheng)(cheng)鄉(xiang)間(jian)流(liu)動(dong)，推動(dong)城(cheng)(cheng)鄉(xiang)要素(su)優(you)化配(pei)置和(he)產(chan)業(ye)(ye)有機融合。要以城(cheng)(cheng)帶(dai)鄉(xiang)、以工促農(nong)，發(fa)(fa)(fa)展(zhan)鄉(xiang)村(cun)特色(se)優(you)勢產(chan)業(ye)(ye)，培(pei)育(yu)新產(chan)業(ye)(ye)新業(ye)(ye)態。要壯(zhuang)大縣域富民產(chan)業(ye)(ye)，推動(dong)城(cheng)(cheng)鄉(xiang)產(chan)業(ye)(ye)融合發(fa)(fa)(fa)展(zhan)，建設(she)縣域商業(ye)(ye)體(ti)系(xi)。結合具體(ti)情(qing)況，可(ke)考慮建設(she)聯結城(cheng)(cheng)鄉(xiang)的冷(leng)鏈物流(liu)、電商平臺(tai)、農(nong)貿市場(chang)網絡，發(fa)(fa)(fa)展(zhan)物流(liu)中心和(he)專業(ye)(ye)市場(chang)，帶(dai)動(dong)農(nong)產(chan)品進城(cheng)(cheng)和(he)工業(ye)(ye)品入鄉(xiang)。以“糧頭食尾”“農(nong)頭工尾”為(wei)抓手(shou)，培(pei)育(yu)農(nong)產(chan)品加工業(ye)(ye)集群。深入挖掘文(wen)化旅游資(zi)源稟賦，探索發(fa)(fa)(fa)展(zhan)文(wen)化體(ti)驗、休閑度假(jia)、特色(se)民宿、養生(sheng)養老等產(chan)業(ye)(ye)。

　　四是加(jia)強(qiang)體(ti)制(zhi)(zhi)(zhi)機(ji)(ji)制(zhi)(zhi)(zhi)創新。要建立健(jian)(jian)全(quan)城(cheng)(cheng)(cheng)(cheng)鄉(xiang)融(rong)合(he)發(fa)展體(ti)制(zhi)(zhi)(zhi)機(ji)(ji)制(zhi)(zhi)(zhi)和政策體(ti)系，破除妨礙城(cheng)(cheng)(cheng)(cheng)鄉(xiang)要素自(zi)由流動(dong)和平等交換的(de)體(ti)制(zhi)(zhi)(zhi)機(ji)(ji)制(zhi)(zhi)(zhi)壁壘，促(cu)進(jin)各類要素更多向鄉(xiang)村(cun)流動(dong)，為鄉(xiang)村(cun)全(quan)面(mian)振興(xing)注(zhu)入(ru)新動(dong)能(neng)。要健(jian)(jian)全(quan)城(cheng)(cheng)(cheng)(cheng)鄉(xiang)統一(yi)的(de)土地和勞動(dong)力(li)(li)市場(chang)、統一(yi)規范的(de)人力(li)(li)資源市場(chang)體(ti)系，建立健(jian)(jian)全(quan)城(cheng)(cheng)(cheng)(cheng)鄉(xiang)基礎設施一(yi)體(ti)化(hua)規劃(hua)機(ji)(ji)制(zhi)(zhi)(zhi)、一(yi)體(ti)化(hua)建設機(ji)(ji)制(zhi)(zhi)(zhi)、一(yi)體(ti)化(hua)管護機(ji)(ji)制(zhi)(zhi)(zhi)。適應鄉(xiang)村(cun)人口變(bian)化(hua)趨(qu)勢，優(you)化(hua)村(cun)莊(zhuang)布局、產業(ye)結構、公(gong)共服務配置，扎實有序推(tui)進(jin)鄉(xiang)村(cun)建設，深入(ru)實施農村(cun)人居環境整治(zhi)提升行(xing)動(dong)，提高縣城(cheng)(cheng)(cheng)(cheng)綜(zong)合(he)承載能(neng)力(li)(li)和治(zhi)理(li)能(neng)力(li)(li)，促(cu)進(jin)城(cheng)(cheng)(cheng)(cheng)鄉(xiang)融(rong)合(he)發(fa)展，進(jin)一(yi)步(bu)完(wan)善鄉(xiang)村(cun)治(zhi)理(li)體(ti)系。 

（作者馮奎 系中(zhong)國區域科學(xue)協會副(fu)理事長(chang)、研究員）

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