“十四五”期间健全城乡融合发展机制研究

Research on Improving the Mechanism for an Integrated Urban-Rural Development During the 14th Five-Year Plan Period

健全城乡融合发展机制是十九届五中全会做出的重大战略部署。文章基于权利视角,聚焦土地和劳动力要素市场,构建了基于二元经济理论的"权能—权利—权益"中国城乡融合发展机制分析框架。在此基础上,文章将近年来党和国家健全城乡融合发展机制的主要举措归纳为还权于土地、赋权于农民和以权利均等化促要素市场化3个方面,并总结了城乡土地和劳动力要素配置改革的主要成就。研究表明,当前健全城乡融合发展机制面临的挑战主要包括土地权能的身份依附特征明显,城乡劳动力要素难以自由流动;土地权利价值差异巨大,城乡土地要素难以平等交换;城乡土地和劳动力要素权益不对等,城乡融合存在制度性障碍等。文章认为,"十四五"期间要从实现城乡土地权能统一化、推动城乡劳动力权利均等化和保障城乡要素权益平等化的角度健全城乡融合发展机制。

Improving the mechanism for an integrated urban-rural development is a major strategic deployment made by the Fifth Plenum of the 19 th Central Committee of the Communist Party of China.This paper constructs an analysis framework for the mechanism of integrated urban-rural development by focusing on the land and labor markets,using the dual economic theory in the Chinese context.It concludes that the government’s efforts to improve the integrated urban-rural development mechanism in recent years can be grouped into three types:returning rights to land,delivering rights to farmers,and promoting factor marketization through equal rights protection.It summarizes the main achievements of the market-oriented reform in urban and rural factor allocations of land and labor.It shows that the main challenges include the difficulty in promoting free flows of labor and equal exchange of land between rural and urban China,due to the identity-dependency of land rights and huge differences in land-right value.The paper proposes three suggestions on improving the urban-rural integrated development during the 14 th Five-Year Plan period,including unifying urban and rural land function,promoting equal labor rights,and ensuring equal element interests between urban and rural areas.