中国少数民族地区建制镇研究

Research on the System of Town Buildingin China's Ethnic Minority Areas

建制镇在中国少数民族地区的经济发展和城镇化推进过程中具有特殊而重要的地位。目前,民族地区建制镇镇区人口规模普遍偏小,建制镇密度低,镇间联系程度弱;近十年来,民族地区人口产业和职业结构具有逆向调整趋势;建制镇基础设施虽有改进,但总体上建制镇的乡村基础设施落后,有线电视、垃圾集中处理、人均用电及公路密度与全国比较相差较大,与东部地区和中部地区比较差距就更大;人员从业依然以农业为主,非农产业就业比重低;建制镇的产业集聚带动功能弱,难以带动镇域的经济发展;虽然农业依然是民族地区建制镇经济的基础和主体,但农业投资不足。为让民族地区建制镇发挥产业集聚带动功能,各级政府应充分重视建制镇的建设,首先要提升建制镇规划水平,发挥规划的引领作用和法治作用,确保建制镇建设健康有序发展;其次,根据民族地区的具体实际调整行政区划,对于巨型镇和大型镇,可以考虑设市和自治市;第三,多渠道筹集资金,加快基础设施建设;第四,把建制镇建设同产业园区建设结合起来,发挥建制镇产业的集聚带动功能,提升其自我发展能力,使一些建制镇形成新的经济增长极,从而振兴地方经济;第五,以加快土地、户籍等体制改革为突破口,加快体制机制创新,激发建制镇发展的活力。

Town building is one of the most important methods for China to promote new- patterns of urbanization in ethnic minority areas. This article analyzes the characteristics of the scale,distribution,population and economic development of towns in ethnic areas. The study finds that at present,the population scale of the towns in ethnic areas is relatively small; town construction in ethnic areas takes place with a low population density; and the contacts between towns are weak; In the recent decade,the industrial and occupational structure of the population in ethnic regions shows a reversed adjustment trend. Although there are some improvement in infrastructure construction in these towns,the overall infrastructure in the rural area of the towns is backward—cable TV,waste treatment,per capita electricity and highway density lag largely behind other parts of the country,and, if compared with the eastern and central parts,the gap is even greater. Most employees of towns in the ethnic areas still take the primary industry sector as their priority（ agriculture,forestry,etc）; the proportion of non- farm employment is less than 40%. Employment in secondary industry is low. The driving function of industrial agglomeration in the towns is weak,and it is difficult to drive the economic development of the towns.Although agriculture is still the base and main body of the town economy in the ethnic areas,investment in agriculture is insufficient. The increasing returns and positive externalities from economic activity on spatial agglomeration is an important motivation for the economic development of less developed bodies.Because the purpose that towns in ethnic regions can play is that it drives industrial agglomeration,governments on various levels should be con-cerned with building towns. Firstly,we should improve the planning level of town building,and let it play the leading role in planning so as to ensure the healthy development of town building. The plan of town building should be scientific,the content should be objective,and the procedure should be democratic and justified. The plans should be approved by legal institutions so that it has legal impact,and no one can change the plans at will.Only by implementing this kind of planning,can town building proceed in a healthy and orderly development.Secondly,we should adjust administrative divisions according to the specific situation of the ethnic regions. As mentioned above,the difference in scale among the towns in ethnic regions is great—the population of some towns is more than100,000,therefore,we could consider establishing cities in these big towns,and other towns whose populations are already more than 50,000.Concerning those towns which are on the same level of an autonomous prefecture,we could consider whether or not to establish an＂autonomous municipality＂.Thirdly,we need to raise money through various channels to accelerate the construction of infrastructure. Government on various levels should arrange special funds to support the establishment of towns; the benefit from the collective stock of land used for the building of towns should be left all for town government for the specific purpose of the construction of infrastructure for the town; involve social funds in the development of residential houses and infrastructure construction of the towns;actively strive for special national funds for urban public welfare projects; make related policies,and encourage financial institutions to provide mediumand long- term loans for the town construction.Fourthly,we should combine town construction with industrial park construction,let industrial agglomeration drive the function of towns,enhance the ability for their self- development,and make some towns form a new economic growth pole,thereby,promoting the local economy. In this situation where there is a vast territory with a sparse population,building towns relatively concentrates a certain scale of population and industry,and these towns will have a good economic foundation. Moreover,due to their coordination with the central cities and all kinds of industrial parks in the region,it will be easier for them to form a regional economic growth pole.Fifthly,we should speed up those reforms related to the land,household registration system,etc.; speed up the innovation of the system,and activate the vitality of town building. We should deepen land use reform,open and enliven the secondary land market, allow collective land use rights to emerge directly into the urban land market through transfer,lease,and investment based on the condition of insisting on compensation for use of land and strict management of land use. We should speed up the reform of the household registration system; allow those people who have a legal domicile,stable occupation or stable source of income as well as their immediate family members who live together with them to have a permanent urban residence registration according to their own wish,and enjoy equal treatment as local urban residents. We should standardize and improve the basic living standard system for the landless farmers,actively explore the new- type of rural endowment insurance system for agricultural labor force,fully popularize the new- type rural cooperative medical care system,deepen and improve the new- type rural social assistance system,and gradually realize a complete coverage of the basic rural social insurance. In this way we can promote a healthy growth in building towns from the aspect of policies.