双重经营:县域城镇化中的政府行为与农民抉择——基于陕西省合县的案例分析

Dual Management:Government Behavior and Farmers’Choices in County Urbanization Based on A Case Analysis of Hexian,Shaanxi Province

以县城作为重要载体推进新型城镇化建设是中国实现城乡融合发展的关键支撑,具有重要的现实价值。本文基于西部地区陕西省合县县域城镇化的实践机制分析,研究发现地方政府“打造城区”与农民“经营家庭”的双重经营行为共同推动了县域城镇化的发展。地方政府与农民的经营行为具有内在利益契合性,地方政府“打造城区”的内容正是农民“经营家庭”所需,这在无形中形成一股推动县域城镇化的集合力量。然而,由于缺乏产业支撑,县域城镇化经由地方政府和农民的双重经营已经达到接近饱和的临界状态,县域人口外流的趋势难以逆转。因此,在县域城镇化的发展实践中,地方政府应该立足现实,把“人的城镇化”作为新时期社会治理的价值导向,有序推进县域城镇化高质量发展:一是以县域产业振兴为抓手,走以农民为主体的产业化和县域城镇化良性互动的发展道路;二是打造村镇两级城乡融合发展节点,建立县域城镇化的梯度空间体系;三是推动县乡村三级公共服务体系一体化和均等化改革,为县域人民提供便利高效的公共服务。

Promoting the construction of new urbanization with the county as an important carrier is the key support for China’s realization of the integration of urban and rural development,and has im⁃portant practical value.Based on the analysis of the practical mechanism of urbanization in He County in the western region,this paper finds that the dual operation behavior of local governments“building urban areas”and farmers“running families”jointly promotes the development of county urbaniza⁃tion.The operation behavior of local governments and farmers has inherent interest compatibility,and the content of local governments’“building urban areas”is exactly what farmers need to“run their families”,which invisibly forms a collective force to promote the urbanization of counties.However,due to the lack of industrial support,the urbanization of counties and towns through the dual operation of lo⁃cal governments and farmers has reached a critical state of near saturation,and the trend of population outflow at the county level is difficult to reverse.Therefore,in the development practice of county urban⁃ization,local governments should face the reality,take“human urbanization”as the value orientation of social governance in the new era,and orderly promote the high-quality development of county urbaniza⁃tion.First,it is suggested to take the county industry vitalization as the starting point,take the farmer as the main entity of industrialization and county urbanization benign interaction development road;Second,it suggests to create the node of urban-rural integration development at the village and town levels,and establish the gradient space system of county and town urbanization;Third,it suggests to pro⁃mote the integration and equalization reform of the public service system at the county and village levels to provide convenient and efficient public services to the people in counties.