城鄉(xiang)融(rong)合發(fa)展(zhan)(zhan)(zhan)是破除城鄉(xiang)二(er)元(yuan)結(jie)構、拓展(zhan)(zhan)(zhan)高質(zhi)量(liang)發(fa)展(zhan)(zhan)(zhan)空(kong)間、實現全體(ti)人民共同富裕的(de)(de)關鍵抓手，是推進中(zhong)(zhong)國式現代化(hua)的(de)(de)題中(zhong)(zhong)應有(you)(you)之義(yi)。中(zhong)(zhong)央經濟工作(zuo)(zuo)會議將推動城鄉(xiang)融(rong)合、區(qu)域協調發(fa)展(zhan)(zhan)(zhan)作(zuo)(zuo)為推動高質(zhi)量(liang)發(fa)展(zhan)(zhan)(zhan)的(de)(de)重點工作(zuo)(zuo)，提出(chu)“要把(ba)推進新(xin)型城鎮(zhen)化(hua)和鄉(xiang)村全面振興有(you)(you)機(ji)結(jie)合起來，促(cu)進各類要素(su)雙向流動，推動以縣城為重要載(zai)體(ti)的(de)(de)新(xin)型城鎮(zhen)化(hua)建設，形(xing)成城鄉(xiang)融(rong)合發(fa)展(zhan)(zhan)(zhan)新(xin)格局”。新(xin)時代新(xin)征程，需科學研判(pan)我國城鄉(xiang)發(fa)展(zhan)(zhan)(zhan)的(de)(de)趨勢特征，探索符合中(zhong)(zhong)國國情(qing)、體(ti)現中(zhong)(zhong)國特色的(de)(de)城鄉(xiang)融(rong)合發(fa)展(zhan)(zhan)(zhan)道路，為推進中(zhong)(zhong)國式現代化(hua)建設提供有(you)(you)力(li)支撐。

　　把握城鄉關系動態演變

　　改革開放40多年(nian)來，工業化、城鎮(zhen)化的快速推進帶動了農業現(xian)(xian)代化發展。在這(zhe)一動態(tai)演(yan)變過程中，小農戶和現(xian)(xian)代農業發展逐步(bu)實現(xian)(xian)有機(ji)銜(xian)接，鄉村的產業結(jie)構與就業結(jie)構不斷優化，城鄉關系呈現(xian)(xian)出新面(mian)貌。

　　城(cheng)(cheng)鄉關系演變主要有(you)以(yi)(yi)下(xia)(xia)(xia)三(san)個趨勢(shi)。一(yi)是農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)增(zeng)(zeng)(zeng)加(jia)值(zhi)占國(guo)內生(sheng)產總(zong)值(zhi)（GDP）的(de)(de)(de)比(bi)重不斷下(xia)(xia)(xia)降，農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)從業(ye)(ye)(ye)人(ren)(ren)員(yuan)持續減少。1978年(nian)(nian)第一(yi)產業(ye)(ye)(ye)增(zeng)(zeng)(zeng)加(jia)值(zhi)占GDP比(bi)重為(wei)(wei)27.7%，2022年(nian)(nian)這(zhe)一(yi)比(bi)重下(xia)(xia)(xia)降到(dao)7.3%。在(zai)此過(guo)程中，農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)從業(ye)(ye)(ye)人(ren)(ren)員(yuan)數量(liang)也在(zai)不斷下(xia)(xia)(xia)降，1978年(nian)(nian)第一(yi)產業(ye)(ye)(ye)就業(ye)(ye)(ye)人(ren)(ren)員(yuan)占比(bi)為(wei)(wei)70.5%，2022年(nian)(nian)這(zhe)一(yi)比(bi)重下(xia)(xia)(xia)降到(dao)24.1%。大量(liang)農(nong)(nong)(nong)(nong)村富余勞(lao)動(dong)(dong)力(li)和(he)農(nong)(nong)(nong)(nong)村人(ren)(ren)口(kou)轉移進城(cheng)(cheng)，工(gong)(gong)業(ye)(ye)(ye)化、城(cheng)(cheng)鎮(zhen)(zhen)(zhen)(zhen)化快(kuai)速(su)推(tui)進。二是勞(lao)動(dong)(dong)力(li)就業(ye)(ye)(ye)結(jie)構變化催生(sheng)農(nong)(nong)(nong)(nong)民工(gong)(gong)群(qun)體。工(gong)(gong)業(ye)(ye)(ye)化、城(cheng)(cheng)鎮(zhen)(zhen)(zhen)(zhen)化對農(nong)(nong)(nong)(nong)村富余勞(lao)動(dong)(dong)力(li)產生(sheng)的(de)(de)(de)虹(hong)吸效應(ying)，以(yi)(yi)及(ji)農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)現代化發展產生(sheng)的(de)(de)(de)擠出(chu)效應(ying)，催生(sheng)了農(nong)(nong)(nong)(nong)民工(gong)(gong)群(qun)體。這(zhe)一(yi)群(qun)體仍(reng)是農(nong)(nong)(nong)(nong)村居民，但從事的(de)(de)(de)職業(ye)(ye)(ye)幾乎都(dou)是第二、三(san)產業(ye)(ye)(ye)，表現出(chu)身份特(te)征和(he)職業(ye)(ye)(ye)特(te)征的(de)(de)(de)二元(yuan)性。三(san)是城(cheng)(cheng)鎮(zhen)(zhen)(zhen)(zhen)化水平和(he)質量(liang)穩步提(ti)升。經(jing)過(guo)多(duo)年(nian)(nian)的(de)(de)(de)經(jing)濟快(kuai)速(su)增(zeng)(zeng)(zeng)長(chang)，我國(guo)步入工(gong)(gong)業(ye)(ye)(ye)化的(de)(de)(de)中后期階段，工(gong)(gong)業(ye)(ye)(ye)增(zeng)(zeng)(zeng)速(su)趨緩、結(jie)構趨優，城(cheng)(cheng)鎮(zhen)(zhen)(zhen)(zhen)化發展產生(sheng)的(de)(de)(de)巨大需求(qiu)成為(wei)(wei)推(tui)動(dong)(dong)發展的(de)(de)(de)重要動(dong)(dong)力(li)。1978年(nian)(nian)至(zhi)2023年(nian)(nian)，我國(guo)城(cheng)(cheng)鎮(zhen)(zhen)(zhen)(zhen)人(ren)(ren)口(kou)從17245萬(wan)(wan)人(ren)(ren)增(zeng)(zeng)(zeng)長(chang)到(dao)93267萬(wan)(wan)人(ren)(ren)，常住(zhu)人(ren)(ren)口(kou)城(cheng)(cheng)鎮(zhen)(zhen)(zhen)(zhen)化率從17.92%增(zeng)(zeng)(zeng)長(chang)到(dao)66.16%。戶籍制度(du)改革(ge)持續深化，城(cheng)(cheng)區常住(zhu)人(ren)(ren)口(kou)300萬(wan)(wan)以(yi)(yi)下(xia)(xia)(xia)城(cheng)(cheng)市的(de)(de)(de)落戶限制基本取消，城(cheng)(cheng)區常住(zhu)人(ren)(ren)口(kou)300萬(wan)(wan)以(yi)(yi)上(shang)城(cheng)(cheng)市的(de)(de)(de)落戶條件(jian)有(you)序放(fang)寬(kuan)，城(cheng)(cheng)鄉發展格局不斷優化。

　　城(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)關(guan)(guan)系歷經多(duo)個發(fa)展(zhan)(zhan)(zhan)階段。新中國(guo)成(cheng)立后，農(nong)(nong)(nong)(nong)(nong)業(ye)(ye)(ye)稅征(zheng)收(shou)、戶(hu)籍(ji)制度、工(gong)(gong)農(nong)(nong)(nong)(nong)(nong)業(ye)(ye)(ye)產品“剪刀差”等(deng)催生(sheng)(sheng)并強(qiang)化(hua)了(le)城(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)二(er)元結(jie)構，成(cheng)為(wei)(wei)工(gong)(gong)農(nong)(nong)(nong)(nong)(nong)城(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)發(fa)展(zhan)(zhan)(zhan)不平衡的(de)(de)重(zhong)要(yao)因素。進入新世(shi)紀，黨中央把解(jie)決好農(nong)(nong)(nong)(nong)(nong)業(ye)(ye)(ye)、農(nong)(nong)(nong)(nong)(nong)村(cun)和(he)(he)農(nong)(nong)(nong)(nong)(nong)民(min)問題作(zuo)為(wei)(wei)全黨工(gong)(gong)作(zuo)的(de)(de)重(zhong)中之(zhi)(zhi)重(zhong)，提出(chu)(chu)堅持“多(duo)予、少取、放(fang)活(huo)”的(de)(de)方針，工(gong)(gong)農(nong)(nong)(nong)(nong)(nong)城(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)關(guan)(guan)系大(da)(da)為(wei)(wei)改(gai)善，全面放(fang)開糧食收(shou)購(gou)和(he)(he)銷售市場、推(tui)進戶(hu)籍(ji)制度改(gai)革、完善社會保障制度等(deng)措施(shi)有力(li)改(gai)善了(le)農(nong)(nong)(nong)(nong)(nong)村(cun)居民(min)的(de)(de)生(sheng)(sheng)活(huo)質量。特(te)別是2006年，國(guo)家取消了(le)農(nong)(nong)(nong)(nong)(nong)業(ye)(ye)(ye)稅，在中國(guo)延續(xu)兩(liang)千多(duo)年的(de)(de)農(nong)(nong)(nong)(nong)(nong)業(ye)(ye)(ye)稅正式成(cheng)為(wei)(wei)歷史。黨中央出(chu)(chu)臺的(de)(de)“三農(nong)(nong)(nong)(nong)(nong)”政(zheng)策行之(zhi)(zhi)有效(xiao)，有效(xiao)調(diao)動(dong)了(le)農(nong)(nong)(nong)(nong)(nong)民(min)積極性，有力(li)推(tui)動(dong)了(le)農(nong)(nong)(nong)(nong)(nong)業(ye)(ye)(ye)農(nong)(nong)(nong)(nong)(nong)村(cun)發(fa)展(zhan)(zhan)(zhan)，工(gong)(gong)農(nong)(nong)(nong)(nong)(nong)城(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)關(guan)(guan)系逐漸(jian)向以(yi)工(gong)(gong)補農(nong)(nong)(nong)(nong)(nong)、以(yi)城(cheng)(cheng)帶(dai)鄉(xiang)(xiang)(xiang)(xiang)轉變。黨的(de)(de)十九(jiu)大(da)(da)報告提出(chu)(chu)，要(yao)堅持農(nong)(nong)(nong)(nong)(nong)業(ye)(ye)(ye)農(nong)(nong)(nong)(nong)(nong)村(cun)優(you)先發(fa)展(zhan)(zhan)(zhan)，按照產業(ye)(ye)(ye)興旺、生(sheng)(sheng)態宜居、鄉(xiang)(xiang)(xiang)(xiang)風文明、治理有效(xiao)、生(sheng)(sheng)活(huo)富裕(yu)的(de)(de)總(zong)要(yao)求，建(jian)立健全城(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)融合發(fa)展(zhan)(zhan)(zhan)體制機制和(he)(he)政(zheng)策體系，加(jia)快推(tui)進農(nong)(nong)(nong)(nong)(nong)業(ye)(ye)(ye)農(nong)(nong)(nong)(nong)(nong)村(cun)現代化(hua)。2017年的(de)(de)中央農(nong)(nong)(nong)(nong)(nong)村(cun)工(gong)(gong)作(zuo)會議提出(chu)(chu)“必須(xu)重(zhong)塑城(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)關(guan)(guan)系，走城(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)融合發(fa)展(zhan)(zhan)(zhan)之(zhi)(zhi)路”，要(yao)求“加(jia)快形成(cheng)工(gong)(gong)農(nong)(nong)(nong)(nong)(nong)互促(cu)、城(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)互補、全面融合、共(gong)同繁榮的(de)(de)新型工(gong)(gong)農(nong)(nong)(nong)(nong)(nong)城(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)關(guan)(guan)系”。這些都為(wei)(wei)推(tui)動(dong)城(cheng)(cheng)鄉(xiang)(xiang)(xiang)(xiang)融合發(fa)展(zhan)(zhan)(zhan)明晰(xi)了(le)方向。

　　從全球經驗(yan)看，國民(min)經濟的(de)(de)持續發(fa)展(zhan)(zhan)、制定實施區(qu)域(yu)城鄉(xiang)均衡發(fa)展(zhan)(zhan)戰(zhan)略(lve)、扶持政策向農(nong)業(ye)農(nong)村傾斜等，是縮小城鄉(xiang)差距、實現(xian)城鄉(xiang)關(guan)系協(xie)調發(fa)展(zhan)(zhan)的(de)(de)關(guan)鍵。城鄉(xiang)關(guan)系的(de)(de)演(yan)變深刻反(fan)映了我(wo)國工業(ye)化、信息(xi)化、城鎮化、農(nong)業(ye)現(xian)代化同步發(fa)展(zhan)(zhan)、并聯(lian)發(fa)展(zhan)(zhan)、疊加(jia)發(fa)展(zhan)(zhan)的(de)(de)態勢。已(yi)經取得的(de)(de)成就充分證明，我(wo)國已(yi)經具備推動形成工農(nong)互(hu)促、城鄉(xiang)互(hu)補、協(xie)調發(fa)展(zhan)(zhan)、共同繁榮的(de)(de)新型(xing)工農(nong)城鄉(xiang)關(guan)系的(de)(de)基礎與能力(li)。

　　夯實城鄉融合發展基礎

　　進入(ru)新世(shi)紀特(te)別是黨(dang)的十八大以來(lai)，我國圍繞(rao)農(nong)業、農(nong)村(cun)、農(nong)民實(shi)際(ji)需(xu)求出(chu)臺一系(xi)列強農(nong)惠農(nong)政策，為城鄉融(rong)合(he)發(fa)展創造(zao)了良好局面。下一階段，需(xu)不斷鞏固和拓展已經取得的成(cheng)果，推動(dong)城鄉融(rong)合(he)發(fa)展。

　　要(yao)進一步推(tui)(tui)動(dong)農(nong)業(ye)(ye)(ye)(ye)(ye)(ye)、農(nong)村(cun)(cun)、農(nong)民的全(quan)面發(fa)展(zhan)。繼續(xu)堅持不懈抓好“三(san)農(nong)”工(gong)作，牢牢守住(zhu)確(que)保國家糧食安全(quan)、確(que)保不發(fa)生規模性返貧底線(xian)。一是(shi)要(yao)提(ti)升農(nong)業(ye)(ye)(ye)(ye)(ye)(ye)發(fa)展(zhan)水(shui)(shui)平(ping)，保障(zhang)糧食等重(zhong)要(yao)農(nong)產(chan)品(pin)穩定安全(quan)供(gong)給(gei)，探索建(jian)(jian)立糧食產(chan)銷區省際橫向利益補(bu)償機(ji)制，改革完善耕地(di)占補(bu)平(ping)衡(heng)制度，提(ti)高高標準農(nong)田建(jian)(jian)設(she)投入(ru)(ru)標準，樹立大農(nong)業(ye)(ye)(ye)(ye)(ye)(ye)觀、大食物觀，把農(nong)業(ye)(ye)(ye)(ye)(ye)(ye)建(jian)(jian)成現(xian)代(dai)化大產(chan)業(ye)(ye)(ye)(ye)(ye)(ye)。二是(shi)提(ti)升農(nong)民收(shou)入(ru)(ru)水(shui)(shui)平(ping)，鞏(gong)固拓(tuo)(tuo)展(zhan)脫(tuo)貧攻堅成果，實施農(nong)民增(zeng)收(shou)促進行動(dong)，發(fa)展(zhan)農(nong)產(chan)品(pin)加工(gong)業(ye)(ye)(ye)(ye)(ye)(ye)、觀光旅游休閑等新產(chan)業(ye)(ye)(ye)(ye)(ye)(ye)新業(ye)(ye)(ye)(ye)(ye)(ye)態，拓(tuo)(tuo)展(zhan)農(nong)業(ye)(ye)(ye)(ye)(ye)(ye)多(duo)(duo)重(zhong)功能(neng)，挖掘(jue)鄉村(cun)(cun)多(duo)(duo)元價值，以縣域為(wei)中心大力發(fa)展(zhan)非農(nong)產(chan)業(ye)(ye)(ye)(ye)(ye)(ye)，促進農(nong)村(cun)(cun)富余勞動(dong)力就(jiu)地(di)就(jiu)近就(jiu)業(ye)(ye)(ye)(ye)(ye)(ye)。三(san)是(shi)提(ti)升鄉村(cun)(cun)建(jian)(jian)設(she)、鄉村(cun)(cun)治理(li)水(shui)(shui)平(ping)，統籌推(tui)(tui)進城鄉一體規劃布(bu)局(ju)，優化村(cun)(cun)莊布(bu)局(ju)、產(chan)業(ye)(ye)(ye)(ye)(ye)(ye)結構、公共服(fu)務(wu)配置(zhi)，深入(ru)(ru)實施農(nong)村(cun)(cun)人居環(huan)境整(zheng)治提(ti)升行動(dong)，推(tui)(tui)進農(nong)村(cun)(cun)基礎(chu)設(she)施補(bu)短(duan)板，大力推(tui)(tui)進數字鄉村(cun)(cun)建(jian)(jian)設(she)，建(jian)(jian)設(she)宜居宜業(ye)(ye)(ye)(ye)(ye)(ye)和(he)美鄉村(cun)(cun)。

　　要持(chi)續推(tui)(tui)動城(cheng)市(shi)賦能(neng)鄉(xiang)村(cun)(cun)振興。關鍵是(shi)(shi)要打通(tong)城(cheng)鄉(xiang)要素雙(shuang)(shuang)向(xiang)流(liu)動的(de)制度(du)(du)性通(tong)道，暢通(tong)城(cheng)鄉(xiang)經濟循環(huan)。在(zai)推(tui)(tui)動城(cheng)市(shi)要素下(xia)鄉(xiang)的(de)同時，把農(nong)(nong)業(ye)(ye)(ye)轉移人(ren)(ren)口市(shi)民化擺在(zai)突出位置，讓農(nong)(nong)民真正能(neng)夠進(jin)(jin)城(cheng)安(an)居樂(le)業(ye)(ye)(ye)，推(tui)(tui)進(jin)(jin)以人(ren)(ren)為核心的(de)新型(xing)城(cheng)鎮(zhen)化。一是(shi)(shi)深化認(ren)識。充分認(ren)識新型(xing)城(cheng)鎮(zhen)化發展(zhan)的(de)巨大(da)潛力和重(zhong)大(da)意義，充分認(ren)識城(cheng)市(shi)和鄉(xiang)村(cun)(cun)是(shi)(shi)相(xiang)互(hu)(hu)依存、相(xiang)互(hu)(hu)融合、互(hu)(hu)促共榮(rong)的(de)整體，充分認(ren)識城(cheng)市(shi)繁榮(rong)需(xu)要鄉(xiang)村(cun)(cun)在(zai)資(zi)(zi)源、產(chan)品、勞動力方面的(de)支(zhi)撐，鄉(xiang)村(cun)(cun)振興也離不開城(cheng)市(shi)的(de)帶(dai)動和支(zhi)持(chi)。二是(shi)(shi)推(tui)(tui)動科技(ji)(ji)進(jin)(jin)步(bu)。推(tui)(tui)廣(guang)現(xian)代農(nong)(nong)業(ye)(ye)(ye)技(ji)(ji)術(shu)(shu)，重(zhong)點加強(qiang)(qiang)生物(wu)技(ji)(ji)術(shu)(shu)、裝備技(ji)(ji)術(shu)(shu)、數字(zi)技(ji)(ji)術(shu)(shu)、綠色技(ji)(ji)術(shu)(shu)在(zai)農(nong)(nong)業(ye)(ye)(ye)生產(chan)中的(de)應用，提高(gao)(gao)農(nong)(nong)業(ye)(ye)(ye)生產(chan)效率，引(yin)(yin)入(ru)(ru)現(xian)代農(nong)(nong)業(ye)(ye)(ye)技(ji)(ji)術(shu)(shu)和管理方法，提高(gao)(gao)農(nong)(nong)產(chan)品質(zhi)量(liang)和產(chan)量(liang)，降低(di)生產(chan)成(cheng)本(ben)，助力農(nong)(nong)民增(zeng)收。三是(shi)(shi)提升(sheng)人(ren)(ren)力資(zi)(zi)本(ben)。根據城(cheng)鄉(xiang)融合發展(zhan)需(xu)求，營造良好的(de)政(zheng)策環(huan)境，有針對(dui)性地培養引(yin)(yin)領型(xing)、實用型(xing)、管理型(xing)等各類(lei)人(ren)(ren)才(cai)(cai)(cai)，引(yin)(yin)導(dao)城(cheng)鄉(xiang)人(ren)(ren)才(cai)(cai)(cai)雙(shuang)(shuang)向(xiang)流(liu)動，鼓(gu)勵人(ren)(ren)才(cai)(cai)(cai)返鄉(xiang)入(ru)(ru)鄉(xiang)創業(ye)(ye)(ye)就(jiu)業(ye)(ye)(ye)。注重(zhong)突出農(nong)(nong)民的(de)主(zhu)體地位，加強(qiang)(qiang)農(nong)(nong)村(cun)(cun)人(ren)(ren)才(cai)(cai)(cai)培養，提高(gao)(gao)農(nong)(nong)村(cun)(cun)勞動力的(de)綜合素質(zhi)和就(jiu)業(ye)(ye)(ye)能(neng)力。四是(shi)(shi)加大(da)投(tou)(tou)(tou)入(ru)(ru)力度(du)(du)。加大(da)財政(zheng)投(tou)(tou)(tou)入(ru)(ru)，支(zhi)持(chi)農(nong)(nong)村(cun)(cun)基礎設施(shi)建(jian)設，使(shi)農(nong)(nong)村(cun)(cun)基本(ben)具備現(xian)代生活(huo)條(tiao)件。引(yin)(yin)導(dao)社會資(zi)(zi)本(ben)參與農(nong)(nong)村(cun)(cun)發展(zhan)，拓寬融資(zi)(zi)渠道，形成(cheng)良性的(de)利益分配機制。通(tong)過政(zheng)策扶持(chi)、貸款貼(tie)息等方式(shi)，鼓(gu)勵企業(ye)(ye)(ye)、社會組織投(tou)(tou)(tou)資(zi)(zi)農(nong)(nong)村(cun)(cun)產(chan)業(ye)(ye)(ye)、基礎設施(shi)建(jian)設等領域。

　　著力解決深層矛盾問題

　　在(zai)制(zhi)定目標(biao)、規(gui)劃路徑、設(she)計政策的過程中(zhong)，要(yao)把握當(dang)前城鄉融合發展面(mian)臨的新形(xing)勢，著力解決存在(zai)的結構性(xing)、體制(zhi)性(xing)、機制(zhi)性(xing)矛盾(dun)和問題(ti)。

　　一是健(jian)全(quan)城鄉(xiang)(xiang)融合發(fa)展(zhan)(zhan)體制(zhi)機制(zhi)。要(yao)致力于突破(po)長(chang)期以(yi)來的(de)城鄉(xiang)(xiang)二元結(jie)構，避免城鄉(xiang)(xiang)割(ge)裂、要(yao)素單向流(liu)(liu)動(dong)(dong)，進(jin)(jin)一步深化(hua)戶籍制(zhi)度改革，加強(qiang)教育、醫(yi)療、養老(lao)、住房等領域投(tou)入，進(jin)(jin)一步消除(chu)城鄉(xiang)(xiang)要(yao)素雙向流(liu)(liu)動(dong)(dong)的(de)制(zhi)度障礙。使市場在(zai)資源(yuan)配(pei)置中起決定(ding)性作用、更(geng)好發(fa)揮政(zheng)府作用。建立(li)健(jian)全(quan)有利于城鄉(xiang)(xiang)間要(yao)素雙向流(liu)(liu)動(dong)(dong)、要(yao)素市場化(hua)配(pei)置的(de)體制(zhi)機制(zhi)，實現城鄉(xiang)(xiang)資源(yuan)交互、產業融合發(fa)展(zhan)(zhan)，以(yi)城市發(fa)展(zhan)(zhan)帶動(dong)(dong)和促進(jin)(jin)鄉(xiang)(xiang)村發(fa)展(zhan)(zhan)，以(yi)工業發(fa)展(zhan)(zhan)帶動(dong)(dong)和促進(jin)(jin)農業發(fa)展(zhan)(zhan)。

　　二是(shi)(shi)強化縣域內(nei)城鄉融(rong)合發(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)(zhan)。縣域經(jing)濟(ji)是(shi)(shi)國(guo)民(min)經(jing)濟(ji)的(de)(de)重要(yao)(yao)組成(cheng)部分，縣城不僅(jin)是(shi)(shi)推進(jin)以(yi)人為核心的(de)(de)新(xin)型城鎮化的(de)(de)重要(yao)(yao)載(zai)體，而且是(shi)(shi)推動城鄉融(rong)合發(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)(zhan)的(de)(de)重要(yao)(yao)樞紐和(he)依(yi)托。要(yao)(yao)把縣域作為一個整(zheng)體，統籌規劃布局基礎設施建設、公共服務供(gong)給和(he)人居環(huan)境治理(li)。以(yi)縣城為載(zai)體大力(li)發(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)(zhan)第三(san)產業(ye)(ye)，吸引農村居民(min)向縣城遷移流動。通(tong)過(guo)創(chuang)設產業(ye)(ye)園，促進(jin)民(min)營經(jing)濟(ji)發(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)(zhan)，探(tan)索(suo)靈活就(jiu)業(ye)(ye)機制，增加縣城對所在縣域農村居民(min)的(de)(de)吸引力(li)，實現(xian)非農勞(lao)動力(li)就(jiu)地就(jiu)近(jin)就(jiu)業(ye)(ye)創(chuang)業(ye)(ye)。通(tong)過(guo)縣域經(jing)濟(ji)發(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)(zhan)推動市(shi)域經(jing)濟(ji)發(fa)(fa)(fa)展(zhan)(zhan)(zhan)(zhan)(zhan)，進(jin)而推動省域范圍實現(xian)城鄉融(rong)合。

　　三(san)是(shi)率先實(shi)現(xian)農民(min)工(gong)群(qun)體(ti)城(cheng)(cheng)鎮(zhen)化(hua)。推(tui)進(jin)新(xin)型城(cheng)(cheng)鎮(zhen)化(hua)建設(she)，需(xu)以人(ren)的城(cheng)(cheng)鎮(zhen)化(hua)為(wei)核心。更好推(tui)動(dong)農民(min)工(gong)群(qun)體(ti)城(cheng)(cheng)鎮(zhen)化(hua)，需(xu)以系統觀念繼續推(tui)進(jin)分工(gong)分業(ye)(ye)(ye)。多(duo)措并舉(ju)為(wei)農村(cun)富余勞動(dong)力(li)(li)外出就(jiu)(jiu)業(ye)(ye)(ye)提供保障，深(shen)(shen)化(hua)戶(hu)籍制度(du)改(gai)革，解決好進(jin)城(cheng)(cheng)農民(min)工(gong)隨遷(qian)子女教育等(deng)一系列問題(ti)，讓更多(duo)農村(cun)居(ju)民(min)進(jin)城(cheng)(cheng)安(an)家落戶(hu)、穩定就(jiu)(jiu)業(ye)(ye)(ye)，成為(wei)中等(deng)收(shou)入群(qun)體(ti)的重要(yao)(yao)來(lai)源。要(yao)(yao)積(ji)極(ji)擴大鄉(xiang)村(cun)就(jiu)(jiu)業(ye)(ye)(ye)空間，大力(li)(li)發展特色(se)產業(ye)(ye)(ye)、鄉(xiang)村(cun)旅(lv)游和(he)農村(cun)服務(wu)業(ye)(ye)(ye)，引導(dao)新(xin)生(sheng)代(dai)農民(min)工(gong)從事新(xin)產業(ye)(ye)(ye)、新(xin)業(ye)(ye)(ye)態，深(shen)(shen)入實(shi)施返(fan)鄉(xiang)創業(ye)(ye)(ye)能力(li)(li)提升(sheng)行(xing)動(dong)、鄉(xiang)村(cun)就(jiu)(jiu)業(ye)(ye)(ye)創業(ye)(ye)(ye)促(cu)進(jin)行(xing)動(dong)。促(cu)進(jin)新(xin)業(ye)(ye)(ye)態發展，通過鄉(xiang)村(cun)經濟(ji)社(she)會的數字化(hua)轉(zhuan)型、多(duo)元化(hua)發展，提供更多(duo)就(jiu)(jiu)業(ye)(ye)(ye)崗位，創新(xin)農村(cun)勞動(dong)力(li)(li)就(jiu)(jiu)業(ye)(ye)(ye)領域(yu)和(he)方式。降(jiang)低就(jiu)(jiu)業(ye)(ye)(ye)成本，提高就(jiu)(jiu)業(ye)(ye)(ye)效率，推(tui)動(dong)農業(ye)(ye)(ye)轉(zhuan)移人(ren)口就(jiu)(jiu)地(di)就(jiu)(jiu)近城(cheng)(cheng)鎮(zhen)化(hua)。

　　四是(shi)(shi)深化(hua)(hua)改革(ge)激(ji)活(huo)城(cheng)(cheng)鄉(xiang)(xiang)要素(su)市場(chang)。實現城(cheng)(cheng)鄉(xiang)(xiang)融合，需著(zhu)力(li)(li)提(ti)高農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)現代(dai)(dai)化(hua)(hua)水平，使農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)和(he)(he)工業(ye)(ye)(ye)有大體(ti)均(jun)衡的勞(lao)(lao)動(dong)生(sheng)產(chan)效率。就(jiu)激(ji)活(huo)土地(di)(di)要素(su)而(er)言，要把握農(nong)(nong)(nong)(nong)村土地(di)(di)所有權(quan)、承(cheng)包權(quan)、經(jing)營(ying)權(quan)“三權(quan)分置”政策，穩(wen)定承(cheng)包權(quan)，放活(huo)經(jing)營(ying)權(quan)，在(zai)嚴防耕(geng)地(di)(di)“非(fei)農(nong)(nong)(nong)(nong)化(hua)(hua)”特別是(shi)(shi)“非(fei)糧(liang)化(hua)(hua)”的前提(ti)下，優化(hua)(hua)土地(di)(di)經(jing)營(ying)制(zhi)度，提(ti)高土地(di)(di)產(chan)出效率。就(jiu)經(jing)營(ying)方式而(er)言，隨著(zhu)大量農(nong)(nong)(nong)(nong)村居民向(xiang)城(cheng)(cheng)市遷(qian)移(yi)和(he)(he)大量農(nong)(nong)(nong)(nong)村富余勞(lao)(lao)動(dong)力(li)(li)向(xiang)非(fei)農(nong)(nong)(nong)(nong)產(chan)業(ye)(ye)(ye)轉移(yi)，大力(li)(li)發(fa)展(zhan)(zhan)家(jia)庭農(nong)(nong)(nong)(nong)場(chang)、農(nong)(nong)(nong)(nong)民合作社、農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)企業(ye)(ye)(ye)和(he)(he)各種社會化(hua)(hua)服務(wu)組織，進一步深化(hua)(hua)小農(nong)(nong)(nong)(nong)戶(hu)與現代(dai)(dai)農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)發(fa)展(zhan)(zhan)有機(ji)銜(xian)接，將(jiang)是(shi)(shi)未來農(nong)(nong)(nong)(nong)業(ye)(ye)(ye)特別是(shi)(shi)糧(liang)食生(sheng)產(chan)規模(mo)化(hua)(hua)、專業(ye)(ye)(ye)化(hua)(hua)的必然選(xuan)擇。

　　五是營造良好發(fa)(fa)展(zhan)環(huan)境。各(ge)地(di)需明(ming)(ming)確目(mu)(mu)標(biao)(biao)(biao)(biao)(biao)、創新方式(shi)方法，著力形成(cheng)資(zi)源配置(zhi)引導、產(chan)業(ye)(ye)引擎驅動(dong)、基層治(zhi)理支(zhi)撐(cheng)和服(fu)務供給有(you)(you)(you)(you)效(xiao)的(de)(de)(de)(de)城(cheng)鄉融合發(fa)(fa)展(zhan)環(huan)境。需推動(dong)城(cheng)鄉發(fa)(fa)展(zhan)一體(ti)規(gui)劃，以縣(xian)域為(wei)整(zheng)體(ti)，統(tong)籌(chou)規(gui)劃全域覆蓋、城(cheng)鄉一體(ti)的(de)(de)(de)(de)基礎(chu)(chu)設(she)施(shi)和公(gong)共服(fu)務設(she)施(shi)，實現(xian)統(tong)一建(jian)設(she)、統(tong)一管護、統(tong)一服(fu)務，為(wei)城(cheng)鄉居(ju)民(min)共享(xiang)發(fa)(fa)展(zhan)成(cheng)果提供保障。需制定(ding)明(ming)(ming)確的(de)(de)(de)(de)時間表、路線(xian)圖(tu)，明(ming)(ming)確農(nong)(nong)村(cun)居(ju)民(min)收入(ru)(ru)(ru)增長目(mu)(mu)標(biao)(biao)(biao)(biao)(biao)和城(cheng)鄉居(ju)民(min)收入(ru)(ru)(ru)差(cha)距(ju)縮小目(mu)(mu)標(biao)(biao)(biao)(biao)(biao)，在實現(xian)高(gao)質量(liang)發(fa)(fa)展(zhan)過程中，建(jian)議(yi)將(jiang)縮小城(cheng)鄉居(ju)民(min)收入(ru)(ru)(ru)差(cha)距(ju)作為(wei)戰略性(xing)目(mu)(mu)標(biao)(biao)(biao)(biao)(biao)和約束(shu)性(xing)要求(qiu)，以10年或(huo)15年為(wei)期(qi)量(liang)化(hua)(hua)、細化(hua)(hua)，設(she)目(mu)(mu)標(biao)(biao)(biao)(biao)(biao)、明(ming)(ming)要求(qiu)、探(tan)路徑(jing)，確保長期(qi)目(mu)(mu)標(biao)(biao)(biao)(biao)(biao)有(you)(you)(you)(you)約束(shu)性(xing)，年度(du)目(mu)(mu)標(biao)(biao)(biao)(biao)(biao)有(you)(you)(you)(you)彈性(xing)。需優化(hua)(hua)政(zheng)(zheng)策(ce)(ce)組合，統(tong)籌(chou)使用補貼(tie)政(zheng)(zheng)策(ce)(ce)和價格支(zhi)持政(zheng)(zheng)策(ce)(ce)，有(you)(you)(you)(you)針對(dui)性(xing)地(di)出臺具有(you)(you)(you)(you)地(di)區(qu)(qu)差(cha)異性(xing)的(de)(de)(de)(de)農(nong)(nong)業(ye)(ye)補貼(tie)政(zheng)(zheng)策(ce)(ce)，新增補貼(tie)向(xiang)糧食主產(chan)區(qu)(qu)、脫貧地(di)區(qu)(qu)和邊遠地(di)區(qu)(qu)傾斜，充(chong)分發(fa)(fa)揮財政(zheng)(zheng)轉移支(zhi)付對(dui)縮小農(nong)(nong)民(min)內部收入(ru)(ru)(ru)差(cha)距(ju)的(de)(de)(de)(de)引導作用。加大對(dui)農(nong)(nong)業(ye)(ye)基礎(chu)(chu)設(she)施(shi)建(jian)設(she)的(de)(de)(de)(de)重資(zi)產(chan)投(tou)入(ru)(ru)(ru)，鼓勵社會(hui)資(zi)本投(tou)入(ru)(ru)(ru)農(nong)(nong)業(ye)(ye)，按照國(guo)家促進民(min)營經(jing)濟發(fa)(fa)展(zhan)的(de)(de)(de)(de)要求(qiu)，增強工商(shang)資(zi)本投(tou)入(ru)(ru)(ru)農(nong)(nong)業(ye)(ye)農(nong)(nong)村(cun)的(de)(de)(de)(de)信心(xin)，大力扶持智慧農(nong)(nong)業(ye)(ye)、數字經(jing)濟等新產(chan)業(ye)(ye)、新業(ye)(ye)態(tai)發(fa)(fa)展(zhan)。

（作者(zhe)張紅宇 系中(zhong)國農業風(feng)險管理研究會會長(chang)）

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