温家宝中国农业和农村的发展道路之五
时间:2013/1/1 来源:新东方 浏览次数:703
（三）关于城镇化
3. Urbanization
城镇化是经济社会发展的必然趋势，也是现代化的重要标志。30多年来，城镇常住人口增加了5亿人，其中有相当数量是进城的农民工。大规模的人口迁徙，史无前例，世所罕见，既改变了亿万农民的命运，更为经济发展注入了强大动力。需要注意的是，推进城镇化涉及面广、政策性强，对存在的问题要有清醒认识，对今后可能遇到的矛盾、困难甚至风险要有充分估计。这里，我强调三点：
Urbanization is an inevitable trend of economic and social development and an important indicator of modernization. Over the past 30 years, China’s permanent urban population has increased by 500 million, which is largely accountable to rural migrant workers. This mass movement of the population, totally unprecedented in scale, has not only changed the lives of millions of rural residents, but has also injected powerful vigor into China’s economic development. However, urbanization involves various social sectors and has a strong policy orientation, so we must be aware of the problems that we are currently facing, and fully evaluate the potential conflicts, difficulties and risks that we may encounter in the future. We should place emphasis on the following three areas:
第一，把促进人口城镇化作为重要任务。近些年来，城镇建设日新月异，规模迅速扩大，人口明显增加。但进入城镇的农民工，绝大多数还只是有就业而难以安家。这显然不符合大多数农民工尤其是新生代农民工的愿望，但要使进城农民工真正成为城镇居民，绝不是改变一下户籍那么简单。如何促进人口城镇化，至少有这样两个关系长远的重大问题必须考虑：一要合理引导人口的流向。大量农民工向少数大城市、特大城市和沿海发达地区集中，极大地推动了这些地方的经济增长，但同时也提高了这些地方人口城镇化的成本，甚至超越了这些地方资源环境的承载能力。我国是世界上人口最多的国家，不可能只靠几个城市圈和少数经济发达地区来完成规模巨大的人口城镇化。因此，必须一方面采取措施让具备条件的农民工在就业所在地逐步安家落户，另一方面，加快调整地区生产力布局，引导产业向内地、向中小城市和小城镇转移，让更多农民就地就近转移就业。这既是促进人口城镇化的重大举措，也是转变经济发展方式、调整经济结构、实现区域经济协调发展的重大任务。二要充分考虑农村转移人口的当前利益和长远生计。土地承包经营权、宅基地使用权、集体收益分配权等，是法律赋予农民的财产权利，无论他们是否还需要以此来作基本保障，也无论他们是留在农村还是进入城镇，任何人都无权剥夺。在任何情况下都要尊重和保护农民以土地为核心的财产权利，应当让他们带着这些权利进城，也可以按照依法自愿有偿的原则，由他们自主流转或处置这些权利。对暂未落户城镇的农民工，要注重从制度上促进基本公共服务全覆盖和均等化，努力解决他们在劳动报酬、子女就学、公共卫生、住房租购、社会保障等方面的实际问题。
First, we should regard the urbanization of the population as a major task. In recent years, China’s cities and towns have changed with each passing day, expanding at an extremely rapid pace. Moreover, the urban population has also grown by a significant margin. However, though most rural migrant workers are able to find jobs in cities, there are still many difficulties that prevent them from settling down in cities and towns. This reality goes against the will of most rural migrant workers, and especially the new generation of migrant workers. However, the assimilation of eligible rural migrant workers as permanent urban residents cannot be achieved by simply transferring their household registers. In our effort to promote population urbanization, there are two far-reaching problems that we must take into consideration. First, we should properly direct the transfer of the population. Large numbers of rural migrant workers have flooded into large cities, super-large cities and developed coastal areas. While this has promoted economic development, it has also increased the cost of population urbanization in these areas, even exceeding the capacity of local resources and environments. As the most populous country in the world, China cannot achieve population urbanization for such a huge population by relying on several city clusters and economically developed regions alone. Therefore, on one hand, we must take measures to accommodate eligible rural migrant workers as permanent residents in cities and towns. On the other hand, we should rearrange the layout of our productive forces at a faster pace to channel industries into inland areas as well as small and medium-sized cities and small towns, so that rural residents are able to seek employment in local cities. These are both major measures to promote population urbanization, and major aspects of our efforts to transform the pattern of economic development, adjust the structure of the economy, and balance the economic development of different regions. Second, we must consider the immediate interests and long-term livelihood of rural migrant workers that move into cities and towns. Contracted land use rights, residential land use rights, and the right to enjoy collective interests are property rights granted to rural residents by law. No one has the right to deprive rural residents of these rights, regardless of whether they stay in rural areas or move to urban areas, or whether they actually rely on these rights as a basic assurance or not. We should respect and safeguard the land-based property rights of rural residents under all circumstances. Rural residents should be allowed to retain these rights even after they have moved into cities. Alternatively, they may transfer these rights legally at their own free will and in exchange for compensation. With regard to rural migrant workers who are unable to become urban residents in the short term, we must attach importance to promoting universal coverage and standards in the provision of basic public services through institutional means in our effort to address the actual problems that these people face in regard to the payment of wages, the schooling of their children, public health, the rental and purchase of property, and social safety nets.
第二，推进征地制度改革。现行征地制度是历史的产物，在我国工业化城镇化发展过程中发挥了重要作用。但也带来人口城镇化明显滞后于土地城镇化的矛盾，以及对农民土地财产权利保护不够和建设用地粗放等问题，特别是一些地方以农村土地属集体所有为名，不与农民沟通、协商就强占和乱占农户的承包地，损害农民的合法权益。对此，农民很有意见，社会反响强烈。加快修改土地管理法、推进集体土地征收制度改革，这是一件大事，一头连着农民利益，一头连着工业和城镇建设。应该看到，我国经济发展水平有了很大提高，不能再靠牺牲农民土地财产权利降低工业化城镇化成本，有必要、也有条件大幅度提高农民在土地增值收益中的分配比例。《国有土地上房屋征收与补偿条例》体现的立法理念、对一些重大问题的处理，原则上也适用于征地制度改革。当然，后者更加复杂。要使被征地农民生活水平有提高、长远生计有保障，必须按照有利于保护农民利益和节约集约用地的原则，精心设计征地制度改革方案，广泛听取社会意见，加快开展相关工作。本届政府要出台这项改革的相应法规。
Second, we must promote the reform of the land requisition system. The current land requisition system is a product of history, having played an important role in China’s industrialization and urbanization. However, this system has also caused the rate of population urbanization lagging behind the rate of land urbanization in China. In addition, it has also been the cause of insufficient protection over the land property rights of rural residents as well as the excessive provision of construction land. In particular, some local governments have used the collective ownership of rural land as a pretext to occupy the contracted land of rural residents without engaging in prior communication or negotiation with the residents involved. This has damaged the legal rights of rural residents, leading to public dissatisfaction and a strong social backlash. We must accelerate our efforts to revise the Land Administration Law and reform the system for the requisition of collectively-owned land. This is vital to both the interests of rural residents and our industrial and urban development. We should recognize that our country’s level of economic development has already risen by a considerable margin and we can no longer sacrifice farmers’ land property rights for the sake of lowering the costs of industrialization and urbanization. We are now in the position to significantly increase the proportion of land value gains that is distributed to farmers, and this is something that we must do. In principle, the ideas embodied in the Regulations on the Expropriation of Buildings on State-Owned Land and Compensation, as well as the means by which these regulations are used to handle certain major issues, can be applied to the reform of the land requisition system. That said, however, the reform of the latter is a much more complicated issue. We must carefully formulate plans for reform, listen to the opinions and suggestions of the public on a wide scale, and accelerate relevant initiatives in line with the principles of safeguarding the interests of rural residents and conserving and intensifying the use of land. By doing so, we can increase the living standards of rural residents whose land has been expropriated, and ensure their long-term livelihood. The current government will issue laws and regulations pertaining to these reforms.
第三，妥善解决农村“三留守”问题。农村留守儿童、妇女、老人问题，是很多国家在城镇化过程中都出现过的普遍现象，但在我国显得更为突出。由于农民工就业不稳定、城镇生活成本高以及户籍制度等多种原因，很多农民短期内难以举家进城。近年来，涉及“三留守”的伤亡事故、权益侵害等时有发生，令人痛心疾首。当前，要抓紧研究制定相关政策措施。对留守儿童，要切实保障他们的人身安全和接受义务教育的权利，给予更多的关心关爱，使他们健康快乐成长。对留守妇女，要通过多种途径帮助她们解决实际困难，丰富精神文化生活，让她们生活安定、心情舒畅。对留守老人，要在提供新型农村社会养老保险的基础上，发展适合农村特点的老龄服务体系，建立健全农村老年社会福利和社会救助制度，让他们能够安度晚年。彻底解决“三留守”问题，特别是留守儿童、妇女问题，根本出路在于实现农业的现代化和在城镇化中逐步解决进城农民户籍问题。这是一个长期的过程，但要积极创造条件加以推进。
Third, we must properly resolve problems concerning the children, women and aged people who stay behind in rural areas while their relatives enter cities in search of work. This is a problem that has been experienced by many countries during the course of their urbanization, but it is particularly prominent in China. There are various reasons why many migrant workers are unable to move their entire families into cities in the short term, such as the unpredictability of their jobs, the high cost of living in cities, and the system of household registers. In recent years, there have been frequent accidents and infringements of rights involving people that have been left behind in rural areas. This made us deeply distressed. Therefore, we must step up our efforts to formulate relevant policies and measures. We must ensure the safety of children left behind in rural areas, safeguard their right to receive compulsory education, and ensure that they receive more love and care, so that they may live healthy and happy lives. In regard to women that stay behind in rural areas, we should help them to resolve their practical difficulties by various means, and work to enrich their non-material and cultural lives, so that they can live stable and happy lives. As for aged people left unattended in rural areas, in addition to incorporating them into the new rural pension insurance system, we should also develop a service system that accords with rural characteristics, and improve social welfare systems and social assistance systems for them. By doing so, we will ensure that elderly residents are able to spend their later years in ease and comfort. The fundamental solution to problems concerning people staying behind in rural areas, especially women and children, is to realize the modernization of agriculture and gradually address the issue of household registers for rural migrant workers during the course of urbanization. Though this will be a long-term process, we should actively create the conditions for progress to be made.
（编辑:鸿雁）
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