◎趙秀池

城(cheng)鎮(zhen)化(hua)是(shi)拉動內需、改善民生、實(shi)現經濟增(zeng)長的重要推動力量(liang)。李克(ke)強總理在今(jin)年的《政府工作報(bao)告》中(zhong)指出：要“推進以人(ren)(ren)為核(he)心的新(xin)型城(cheng)鎮(zhen)化(hua)。今(jin)后一個(ge)時(shi)期，要著重解決(jue)好現有(you)‘三個(ge)1億(yi)人(ren)(ren)’問(wen)題，促進約(yue)(yue)1億(yi)農業轉移(yi)人(ren)(ren)口(kou)落戶(hu)城(cheng)鎮(zhen)，改造約(yue)(yue)1億(yi)人(ren)(ren)居住的城(cheng)鎮(zhen)棚戶(hu)區和城(cheng)中(zhong)村，引(yin)導(dao)約(yue)(yue)1億(yi)人(ren)(ren)在中(zhong)西部地(di)區就近城(cheng)鎮(zhen)化(hua)”。城(cheng)鎮(zhen)化(hua)不等于房(fang)地(di)產，但(dan)房(fang)地(di)產作為城(cheng)鎮(zhen)化(hua)的基本(ben)要素(su)，是(shi)新(xin)型城(cheng)鎮(zhen)化(hua)的重要推動力量(liang)。

首(shou)先，房(fang)地產(chan)業(ye)要為(wei)(wei)1億農(nong)(nong)(nong)業(ye)轉移(yi)人口落(luo)戶(hu)(hu)城(cheng)(cheng)(cheng)(cheng)鎮(zhen)(zhen)服(fu)務。根據近(jin)幾年(nian)(nian)(nian)的(de)(de)(de)數據，城(cheng)(cheng)(cheng)(cheng)鎮(zhen)(zhen)居(ju)民(min)(min)(min)(min)收(shou)入(ru)和(he)支出都(dou)是(shi)(shi)農(nong)(nong)(nong)村居(ju)民(min)(min)(min)(min)的(de)(de)(de)3倍(bei)，城(cheng)(cheng)(cheng)(cheng)鎮(zhen)(zhen)居(ju)民(min)(min)(min)(min)享(xiang)有比農(nong)(nong)(nong)村居(ju)民(min)(min)(min)(min)較(jiao)高的(de)(de)(de)收(shou)入(ru)、較(jiao)好(hao)的(de)(de)(de)環境和(he)較(jiao)好(hao)的(de)(de)(de)公共(gong)服(fu)務，因此(ci)，城(cheng)(cheng)(cheng)(cheng)鎮(zhen)(zhen)化不(bu)(bu)僅僅是(shi)(shi)政府主導(dao)，也(ye)是(shi)(shi)廣大(da)農(nong)(nong)(nong)村居(ju)民(min)(min)(min)(min)的(de)(de)(de)迫切愿望。目前，我國的(de)(de)(de)城(cheng)(cheng)(cheng)(cheng)鎮(zhen)(zhen)化率已(yi)經由1978年(nian)(nian)(nian)的(de)(de)(de)17.92%提高到了(le)2013年(nian)(nian)(nian)的(de)(de)(de)53.7%，但是(shi)(shi)戶(hu)(hu)籍人口的(de)(de)(de)城(cheng)(cheng)(cheng)(cheng)鎮(zhen)(zhen)化率僅為(wei)(wei)35.7%左右。很多進(jin)城(cheng)(cheng)(cheng)(cheng)農(nong)(nong)(nong)民(min)(min)(min)(min)工(gong)及隨遷(qian)子(zi)女不(bu)(bu)能與(yu)城(cheng)(cheng)(cheng)(cheng)市居(ju)民(min)(min)(min)(min)一起(qi)享(xiang)受住房(fang)、教育、醫療(liao)等各種(zhong)公共(gong)服(fu)務，農(nong)(nong)(nong)民(min)(min)(min)(min)工(gong)只(zhi)能作為(wei)(wei)一只(zhi)“候鳥”，開春進(jin)城(cheng)(cheng)(cheng)(cheng)打工(gong)，春節(jie)回家團圓(yuan)，農(nong)(nong)(nong)村才(cai)是(shi)(shi)他們真(zhen)正的(de)(de)(de)家。因此(ci)，縮小城(cheng)(cheng)(cheng)(cheng)鄉差別的(de)(de)(de)一個(ge)重要路徑就是(shi)(shi)有序推進(jin)農(nong)(nong)(nong)業(ye)人口市民(min)(min)(min)(min)化。城(cheng)(cheng)(cheng)(cheng)鎮(zhen)(zhen)化過程中(zhong)，一定要讓進(jin)城(cheng)(cheng)(cheng)(cheng)農(nong)(nong)(nong)民(min)(min)(min)(min)享(xiang)受教育、醫療(liao)、社會保障等均等化的(de)(de)(de)公共(gong)服(fu)務，讓農(nong)(nong)(nong)民(min)(min)(min)(min)進(jin)城(cheng)(cheng)(cheng)(cheng)有房(fang)住，孩子(zi)有學上。房(fang)地產(chan)業(ye)既要為(wei)(wei)農(nong)(nong)(nong)業(ye)轉移(yi)人口落(luo)戶(hu)(hu)城(cheng)(cheng)(cheng)(cheng)鎮(zhen)(zhen)提供相應的(de)(de)(de)住房(fang)，尤(you)其是(shi)(shi)中(zhong)小戶(hu)(hu)型商品房(fang)及公租(zu)房(fang)，也(ye)要為(wei)(wei)其提供教育、醫療(liao)等配套(tao)公共(gong)設(she)施的(de)(de)(de)建設(she)與(yu)服(fu)務。

其(qi)次，房(fang)地(di)產(chan)業要(yao)為改造約1億人居住的(de)城(cheng)(cheng)鎮棚(peng)戶區(qu)(qu)(qu)和城(cheng)(cheng)中(zhong)村(cun)服務(wu)。城(cheng)(cheng)鄉之間存在二元結構，城(cheng)(cheng)市(shi)中(zhong)也同樣存在二元結構。棚(peng)戶區(qu)(qu)(qu)與城(cheng)(cheng)中(zhong)村(cun)就是城(cheng)(cheng)市(shi)的(de)“洼地(di)”。一片片低矮的(de)建筑物，危房(fang)率較高(gao)，缺乏各種(zhong)生活配套(tao)(tao)設(she)(she)施，成套(tao)(tao)率較低，生活很不方便，臟亂差(cha)現象(xiang)突出，這與外觀漂亮、配套(tao)(tao)齊全的(de)高(gao)樓大(da)廈形成強(qiang)烈(lie)的(de)反差(cha)，因此(ci)，縮小城(cheng)(cheng)市(shi)內部差(cha)距，實現城(cheng)(cheng)市(shi)內部的(de)一體化(hua)發展非常(chang)重(zhong)要(yao)。棚(peng)戶區(qu)(qu)(qu)與城(cheng)(cheng)中(zhong)村(cun)的(de)住房(fang)改造，或修(xiu)舊如舊，維護(hu)城(cheng)(cheng)市(shi)傳統風(feng)貌特色(se)，保護(hu)歷史文化(hua)街區(qu)(qu)(qu)；或推倒(dao)重(zhong)建舊貌換新顏；或完善市(shi)政基礎設(she)(she)施和商(shang)業、教育、醫療(liao)衛生等配套(tao)(tao)公共服務(wu)設(she)(she)施的(de)建設(she)(she)，有效改善困難群眾的(de)住房(fang)條件，都需要(yao)房(fang)地(di)產(chan)業的(de)大(da)力支持(chi)。

再次，房地(di)產(chan)要為(wei)1億人在(zai)中(zhong)西(xi)(xi)部地(di)區就近城(cheng)(cheng)(cheng)(cheng)鎮化(hua)服務。我國(guo)幅員遼闊(kuo)，區域(yu)發展不均衡。2011年全(quan)國(guo)城(cheng)(cheng)(cheng)(cheng)鎮化(hua)率為(wei)51.3%，東中(zhong)西(xi)(xi)城(cheng)(cheng)(cheng)(cheng)鎮化(hua)率分(fen)別(bie)為(wei)61%、47%、43%，東部城(cheng)(cheng)(cheng)(cheng)鎮化(hua)率高(gao)于全(quan)國(guo)平(ping)均水平(ping)約10個(ge)百分(fen)點(dian)(dian)，中(zhong)西(xi)(xi)部城(cheng)(cheng)(cheng)(cheng)鎮化(hua)率分(fen)別(bie)低于全(quan)國(guo)平(ping)均水平(ping)約4個(ge)和8個(ge)百分(fen)點(dian)(dian)。為(wei)了實現全(quan)國(guo)均衡發展，未來新型城(cheng)(cheng)(cheng)(cheng)鎮化(hua)的重(zhong)點(dian)(dian)在(zai)中(zhong)西(xi)(xi)部，要著力培育發展中(zhong)西(xi)(xi)部地(di)區城(cheng)(cheng)(cheng)(cheng)市群以帶動(dong)中(zhong)西(xi)(xi)部地(di)區發展。為(wei)此，房地(di)產(chan)業要重(zhong)點(dian)(dian)圍(wei)繞東西(xi)(xi)部的城(cheng)(cheng)(cheng)(cheng)鎮化(hua)提供(gong)相應的產(chan)業支撐、住宅(zhai)保障、基礎設施(shi)等(deng)配套服務。

伴(ban)隨著新(xin)型城鎮化步(bu)伐的(de)(de)加快，失(shi)地農(nong)(nong)(nong)民(min)越來越多，為了(le)更好地推進新(xin)型城鎮化建設，筆者建議：一方面(mian)(mian)要(yao)提(ti)(ti)高(gao)農(nong)(nong)(nong)民(min)的(de)(de)征(zheng)(zheng)地補償(chang)標準。從保(bao)(bao)證被征(zheng)(zheng)地農(nong)(nong)(nong)民(min)原有(you)生(sheng)活有(you)改善、長遠生(sheng)計有(you)保(bao)(bao)障出發(fa)，綜合(he)考慮(lv)過去、未來的(de)(de)土(tu)地收益、農(nong)(nong)(nong)民(min)的(de)(de)未來保(bao)(bao)障，合(he)理確(que)定對失(shi)地農(nong)(nong)(nong)民(min)的(de)(de)補償(chang)標準；另一方面(mian)(mian)，要(yao)通過培訓，提(ti)(ti)高(gao)失(shi)地農(nong)(nong)(nong)民(min)的(de)(de)就業能力(li)，以使其得到收入與生(sheng)活的(de)(de)永(yong)續保(bao)(bao)障。

房(fang)地(di)(di)產(chan)(chan)業(ye)(ye)要(yao)從城市(shi)運營角(jiao)度，從以人為本的(de)新(xin)型城鎮化(hua)角(jiao)度去規劃設(she)計住(zhu)宅(zhai)地(di)(di)產(chan)(chan)、園(yuan)區地(di)(di)產(chan)(chan)、商業(ye)(ye)地(di)(di)產(chan)(chan)、教育地(di)(di)產(chan)(chan)、醫療地(di)(di)產(chan)(chan)等(deng)多(duo)元化(hua)地(di)(di)產(chan)(chan)，幫助進城農民解決住(zhu)房(fang)問題，提(ti)供產(chan)(chan)業(ye)(ye)支撐，提(ti)高城鎮的(de)基礎設(she)施(shi)、社會設(she)施(shi)服(fu)務水平。

（作者(zhe)為(wei)首都經(jing)貿大學教授(shou)）