中国工农城乡关系:历史演进、基本经验与调整策略

The Industry-Agriculture and Urban-Rural Relations in China:Historical Evolution,Basic Experience and Adjustment Strategies

本文构建“信念-目标-情境-工具”的制度分析框架,探究中国共产党成立以来中国工农城乡关系的演进逻辑。研究表明:第一,中国工农城乡关系经历了四个历史阶段。1921-1948年,以救国为目标,塑造农村包围城市的城乡关系;1949-1977年,以兴国为目标,构建农业支持工业的工农关系;1978-2011年,以富国为目标,形成农村支持城市的城乡关系;2012年以来,以强国为目标,进一步形成以工补农、以城带乡以及相互融合的工农城乡关系。第二,总体而言,21世纪之前的工农城乡关系主要表现为以经济为重心的发展格局,而21世纪之后的工农城乡关系则呈现以人民为中心的发展导向。第三,中国工农城乡关系演进的基本经验是:始终坚守信念,在制度目标的设定中坚持长期目标的一致性和目标实现的阶段性,在制度工具的选择上则注重实施策略的互补性与土地制度的中心性。第四,新发展阶段的制度目标是加快形成工农互促、城乡互补的工农城乡关系,通过城乡融合发展推进共同富裕,制度工具选择的起点是破除二元分割,前提是开放村庄,重心是发展县域经济,路径则是深化社会分工。

This paper establishes an institutional analysis framework of belief-objective-scenario-instrument'to investigate the evolution logic of industry-agriculture and urban-rural relations since the founding of the Chinese Communist Party.The findings are as follows.1)The industry-agriculture and urban-rural relations have experienced four historical stages.Between 1921 and 1948,the urban-rural relation of"rural surrounding urban"was shaped to save the country.Between 1949 and 1977,the industry-agriculture relation of"industry supporting agricultural"was established to rejuvenate the country.Between 1978 and 2011,the urban-rural relation of"villages supporting cities"was formed to enrich the country.Since 2012,the industry-agriculture and urban-rural relations of"agriculture promoted by industry and rural areas nourished by urban areas"has been proposed to strengthen the country.2)In general,the industry-agriculture and urban-rural relations were manifested as economy-oriented development before the 21st century,but people-oriented development after the 21st century.3)The experience from the evolution of China's industry-agriculture and urban-rural relations lies in the consistency of long-term goals and the staged realization of goals when setting institutional objectives,while coordinating multiple strategies and centralizing the role of land policies when choosing institutional tools.4)In the new era,the institutional goal is to accelerate promoting the industry-agriculture and urban-rural relations of industry and agriculture promoting each other while urban and rural areas complement each other'to achieve common prosperity through the integrated urban-rural development.Accordingly,the selection of institutional tools should start with the break of binary division between urban and rural areas with the prerequisite of opening the villages,focusing on developing country economy and deepening social division oflabor.