1、通向可持续发展： 中国的新型城镇化之路,Policy Study on Strategic Option for New Urbanization Development in P.R.China,城镇化发展中存在的问题和原因 Problems existing in urbanization process and reasons for the problems中国进入新型城镇化发展阶段 Urbanization in transition推进新型城镇化发展的政策措施 Policy measures on new urbanization process,内容提要 Contents,概念界
2、定 Concepts,O城镇化发展核心： 促进农村人口向城镇转移 The core of urbanization: accelerate the process of rural population being registered as urban permanent residents,1、城镇化质量不高 1、 Urbanization of Low Quality,2013年部分国家和地区总人口、城镇人口对比（世界银行）2000年到2014年，中国城镇化率从36.22%，增长到 54.77% 每年约有2072万农村人口进入城镇 世界上最大规模的城镇化,2,文化水平较高 Better
3、educated,农村没有土地和 住房 No land and house in their rural hometowns,有网络话语权 Having their voices on the Internet,长期处于不稳定状态，不利于社会和谐稳定。 Their long-term instability not beneficial to social harmony,1,3,4,2014年我国 城镇间流动 人口总量接 约 8000万。 The number of people migrating from one city to another was approaching 80 mi
4、llion in 2010.,1、城镇化质量不高 1. Urbanization of Low Quality, 城镇间流动人口 The number people migrating from one city to another is increasing.,1、城镇化质量不高 1. Urbanization of Low Quality,无法享受与本地城镇户 籍居民同等的公共服务 Cannot have equal access to public services as urban permanent residents,长期处于不稳定状态 不利于社会和谐稳定 Their long-
5、term instability not beneficial to social harmony,农民 工 Migrant workers,城镇间流 动人口 Population migrating from one city to another,截止2014年底，中国统计上的城镇人口已达到7.49亿；但户籍人口只有4.8亿。 2.5亿人没有当地城市户籍，不能完全享受当地市民的公共服务,2、城乡建设用地利用粗放 2. Extensive use of Construction land in both urban and rural areas, 城镇建成区用地扩张速度快于其吸纳人口速度。
6、 The pace of urban expansion is faster than their ability of absorbing population,The pace of urban expansion Growth Rate of urban population图 20002010年全国城镇建成区面积扩张速度与城镇人口增长速度比较 Figure 2000-2010 Comparison of the pace of national urban built-up land expansion and growth rate of urban population,2、城乡建
7、设用地利用粗放 2. Extensive use of Construction land in both urban and rural areas,城镇人均建设用地超 过国家规定标准。 The per capita construction land area in cities is well above the standard specified by the state.,农村人口大量减少， 农村建设用地总量不 减反增。 Chinas rural population decreased greatly, but village construction land area did
8、nt reduce but increased.,80120平方米 80-120 sq. m,133平方米 133 sq. m,国家规定标准 National specified standard,城市人均建设用地 The per capita construction land area in cities,8.08亿 808 million,6.71亿 671 million 2.17亿亩 217 million mu,2000 2010 农村人口减少1.37亿 Chinas rural population shrunk by 137 million,2000 2010 村庄用地增加0.
9、04亿亩 Village construction land area increased of 4 million mu,2.21亿亩 221 million mu,3、中小城市和小城镇发展机会不均等 3. Unequal opportunities for the development of Small-and medium-sized cities, 行政等级高的城市建设用地扩张更快。 Construction land in cities with higher administrative rankings is expanding at a faster pace,Municip
10、al districts above the prefecture level and above 图 20002010年地级以上城市市辖区和县级以下城镇建成区面积增长情况比较 Figure. Comparison of growth of areas in municipal districts above the prefecture level and above and towns at the county level and below in 2000-2010,4、当前城市发展模式存在弊端 4. Problems in the current pattern of urban d
11、evelopment,盲目追求“国际化大都市” Blinded pursuit of “international metropolises”,对生态城市、花园城市理解片面 unilateral understanding towards “ecological cities” and “garden cities”,忽视老城区和外来人口集聚区的改造 Ignored reconstruction of old city areas and centralized area of migrant population,城市发展“嫌贫爱富” The priority of urban develo
12、pment on the rich,原因分析,Reasons for the Problems,长期累积的城乡二元结构 形成固化的利益格局 The fixed structure of benefits for urban and rural residents resulted from the urban-rural binary structure that has been shaped for a long time,城镇公共服务等级化和区域化的格局 Urban public services are hierarchical and confined to local areas,
13、关键原因 Major Reasons,1、户籍管理制度改革进展缓慢 1. Slow progress made in the reform in the household registration system,进城落户,Unwilling to provide urban,Household registration to local farmers,在城乡间、城镇间、区域间：形成固化的利益格局 A fixed structure of benefits between urban and rural area as well as among cities and regions公共服务
14、以行政区 划为单位提供 Public services are provided based on administrative divisions,不愿意接纳外来人口,在本地落户 Unwilling to provide urban Household registration to migrant population,不愿接纳本地农民,教育 Education,医疗 Medical,社保 Social insurance,保障性 住房 Indemnificatory housing,担心：摊薄当地城镇 居民所享受的社会福利 The concern: dilution of social
15、welfare for local urban residents,2、土地利用制度改革滞后 2. lagging behind of the reform in the land use system,严重侵犯农民的土地权益 seriously infringe upon the land and property rights of farmers,助长城镇建设用地粗放性扩张 push extensive expansion of urban construction land,工业用地强度偏低 Low intensity of industrial land农村一户多宅 宅基地闲置、建新
16、不拆旧 Several homesteads for one household, idle homesteads and construction of new homesteads but no dismantling of old ones,政府“低补偿征收、高价格出让” Governments “acquire land with low compensation but transfer land at high prices”,政府拿地成本过低 Governments low land acquisition cost,GDP导向的政绩考核压力 Pressure of GDP-or
17、iented assessment on political achievements,农村宅基地配置缺乏有效退出机制 福利化倾向严重，财产权不明晰,Highly welfare oriented, rural homesteads with unclearly defined property rights, are not provided with an effective exit mechanism,3、等级化城镇行政管理体制下公共资源过度向行政等级高,的城市集中 3. Excessive concentration of public resources in cities of
18、higher administrative levels under the hierarchical urban management system中国的城市有行政等级 Chinese cities are based on administrative rankings行政等级越高的城市，掌控资源分配的能力越强 Cities at higher administrative levels have stronger abilities in obtaining resources,地级以上城市市辖区人均财 政支出是县的2.5倍,The per capita fiscal expenditu
19、re in municipal districts at the prefecture level and above is 2.5 times that of counties,96%,4%,河南省土地利用总体规划中到2020年用地指标占比 Designed land use quota by 2010 in the overall planning for land use of Henan Province,县级以上及省级产业集聚区 小城镇,Industrial conglomeration area of above county and provincial level,Small
20、town,4、现行财政体制与城镇化发展不相适应,地方财政留成比例过低 Local governments retain the small portion of fiscal revenue,财政转移支付制度以户籍人口为依据 The fiscal transfer payment is based on locally registered population,4. The incompatibility between the current fiscal system and urbanization,5. The inappropriate orientation of urban d
21、evelopment and poor mechanism对城市发展规律认识不足 The understanding towards the rules for urban development is insufficient在政绩观影响下，忽视城市发展是长期建设和制度完善 过程 affected by the view on political achievements, some urban governments ignored that urban development is a long-term construction process and a process of ins
22、titutional improvements一次性土地出让收益的机制支撑了短期行为 The mechanism of one-time payment of land transfer fees objectively supports the short-term behavior of governments政府权力过于集中，基础设施的市场化发育不足，公众参 与和监督机制不健全 The government power is excessively concentrated; The marketization of infrastructures is inadequate, and
23、the mechanism for public participation and supervision is not complete,5、城市发展导向存在偏差，机制不完善,1、城镇化发展速度将逐渐放缓,1. Slowing urbanization process,新 常 态,Dampen the sustained and fast growth in Chinas macro economy,城镇 化将 逐步 放缓 Lead to a slowdown in Chinas urbanizatio n,国际金融危机 负面影响 Negative impact of global fin
24、ancial crisis,碳排放 气候变化 Carbon emission Climate change,劳动力和 土地成本 Labor and land costs,环境成本上升 Increase in environmental cost,国际竞 争压力 Pressure from international competition,国内资源 环境约束 Domestic resource and environmental constraints, 提高城镇化质量的人口空 间约2.5亿人 Room to improve the quality of urbanization involv
25、es 250 million people, 8000万城镇间流动人口 80 million people flow across,cities and towns, 城市基础设施建设 Construction of urban infrastructures, 解决人口公共服务的 基础设施建设释放出 投资潜力 Implementation of,urbanization policies both provides infrastructures for public services and creates huge potential in investment,2、城镇化仍将是带动经济
26、增长的重要引擎，重点是提高 城镇化质量2. Urbanization is still the main engine for economic growth, with,the focus on achieving higher quality of urbanization,释放巨大的消费 和投资潜力Create huge otential in consumption and investment,国家新型城镇化规划（2014-2020） National Urbanization Plan(2014-2020),Macro-level city layout should be opt
27、imized,Macro-level city layout should be optimized,Modern urbanization, new- type industrialization, IT application and agricultural modernization should be integrated,Peoples rights are in the key position,04,01,National Urbanization Plan,Cultural continuity,Conduct package of reforms,（一）加快农民工市民化进程
28、,(I) Accelerating the process in providing migrant workers with equal access to public services,基本方向 Basic direction,推进基本公共服务对农民工实现全覆盖和均等化， 有计划地扩大农民工与城镇居民享受同等公共服务 的项目和范围。 Advance the full coverage and equalization of basic public services on migrant workers, and designedly expand the public service
29、projects and scope that the migrant workers can enjoy as citizens,1,以基本公共服务为重点，不断完善对农民工 公共服务体系（教育、社保、住房） Give priority on basic service, constantly perfect public service system of migrant workers (education, social insurance, housing),2,切实保护农民工的合法权益 Effectively protect the legitimate rights and int
30、erests of migrant workers,（二）建立多元可持续的城镇化投融资机制 （II） Promoting the reform in the urban administrative system,基本方向 Basic direction,通过多种方式，扩大 城镇化融资渠道；鼓励社 会资本参与城市公用设施投资运营与公共服务 提供。,1,发挥金融机构的作用,2,健全地方债券发行管理制度,3,设立城镇化基金等,4,扩大应用PPP的应用,（三）加快土地制度改革,1 完善征地制度,2 加强农村 土地管理,土地制度 改革,4 探索人地挂钩 土地利用机制,3 提高城市 用地集约度,探索建立
31、农村闲置宅基 地自愿有偿退出机制 mechanisms for voluntary and paid exit from rural idle homesteads shall be explored.,建设用地指标的 分配等 distribution of newly- increased land supply,逐步建立城乡统一 的建设用地市场。 A unified construction land in both urban and rural areas shall be established.,提高建成区人 口密度等 The population density in built-up areas shall be increased,（四）完善城镇行政管理体制,(IV) Improving reforms in urban planning,城市内部行政管理 创新,城市群建设,特大镇设市试点 改革,社区管理新体制,（五）提高城镇建设水平,3,12,4,5,健康城市,6,谢,谢！,Thanks!,
