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仇保兴:坚守健康城镇化五类底线

2017-08-28 16:11:12   央广网

城镇化的过程,从硬件来讲就是钢筋水泥在祖国大地上进行铺设的过程。如果在城镇化过程中犯了大的决策错误,后人也难以纠正,就像美国的城镇化造成了城市的蔓延,后果至今难以弥补。所谓规划,就是要前瞻性地看到这样一些问题,然后提一些对策。没有前瞻性的规划就不是规划,在这一点上要有科学性。我认为,健康的城镇化必须要坚守五类底线。

第一类底线是,大中小城市和小城镇协调发展。实践证明,大中小城市和小城镇在数量上应呈现金字塔式分布,凡是形成这样金字塔分布地区,协调发展可得到基本保障。今天的长三角就是大中小城市协调发展的典范,一些要素在上海及其周边城市间互通,这种双向流动造就了地区均衡发展。

小城镇建设的方向非常清楚,必须要在人居环境上下功夫。而打造良好的人居环境,有四大要求:要有规划管理体系;必要的基础设施;非常好的绿色建筑;公共服务水平应该类同于大城市或者大中城市。

第二类底线是,城市和农村互补协调发展。“三农”问题与城镇化是密不可分的,当城镇化率超过50%的时候,传统的农村乡土文化、田园风光、农业景观就成为稀缺资源,农村也将成为一部分人口的热土。“三农”问题解决越顺当,城乡关系越能健康发展。

但在这方面,我们存在着过高的城镇化预期。西方“新大陆国家”的人口主要构成都是外来移民,都出现超90%的城镇化率。但具有传统农耕历史的原住民国家,城镇化率到了一定程度以后会出现一部分人返乡,城乡人口会双向流动。这些国家城镇化率的峰值最后会稳定在65%~70%,不是90%。

从养老角度来讲,我国50岁以上农民工数量急剧减少。50岁以上考虑回乡,55岁基本回乡。国务院曾发文解决农民工回乡创业的实际问题,这也是为过高的城镇化预期打的“止痛针”。

第三类底线是,紧凑式城镇空间密度。我们要学习世界上两种模式,紧凑模式和蔓延模式。如果在土地管理、政策管理、规划管理上出现重大事故,城市蔓延就会出现,后果难以想象。所以,我们应该要建设功能完善、人居环境非常好的紧凑城市。

这种紧凑的模式包含着人居环境品质要素,就是100%的居民步行500米可达公交站点,100%居民步行500米可到达学校医院。还要防止工矿建设用地粗放,纠正小产权房问题。更重要的是防止私家车引导式基础设施过度建设,城市内部不能过度修建高架桥,修建高架桥就使得公共交通不能通达,要建设步行友好、街道充满活力的城市。

第四类底线,防止空城。内蒙古某城市只有40多万人,但是人居环境可容纳140多万人。其中一个原因就是要有土地财政的支持。到了城镇化中期之后,实际上已经没有更多城镇化人口要转移,所以出现了“空城”“鬼城”。

第五类底线,保护历史文化和自然遗产资源。所有自然、文化遗产具有不可再生性。保护好传承好这些不可再生的资源,不仅是保留和展示城市特色、改善人居环境和修复生态环境的必由之路,也是增强城市经济竞争力、优化可持续发展能力、提升城市空间整体价值和文化自信心的必然选择。今后,一定要贯彻中央城市工作会议精神,以城市修补、生态修复的微更新来取代过去的大拆大建、大挖大填。

健康和谐的城镇化是由政府和市场这两只手合理配置、合理协作的结果。如果大的决策失误触动了以上所讲几条底线,后果不堪设想。以人为本的城镇化决策是长久的,所以必须要考虑到下一代的生活空间,实际上这就是可持续发展的精要。(作者系国务院参事、中国城市科学研究会理事长、中国住房与城乡建设部原副部长)

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