【作者】 李建超；

【导师】 周作翰；

【作者基本信息】 湖南师范大学 ， 科学社会主义与国际共产主义运动， 2008， 博士

【摘要】 城镇化是我国社会主义现代化建设事业的重要组成部分,建设成熟的城市社会是我国社会主义初级阶段的重要任务。随着我国社会主义市场经济体制改革的深入,随着城镇化的加速发展,难以避免的市场失灵与政府错位,也使我国的城市发展出现了严重的问题,给政府执政与和谐社会构建带来了巨大风险。1996——2030年左右是我国的城镇化加速阶段,在此期间,社会突出问题已经并将继续从农村迅速向城市转移,具体组织推进中国特色社会主义建设事业的我国地方政府,面临的重大任务之一就是能否科学应对风险、顺利跨越这样一个历史拐点:城乡差距、社会贫富差距从急剧拉大转为逐渐缩小;社会不稳定因素达到极大值后逐渐趋缓。与此变化轨迹相应,在这个阶段与城镇化相关的社会与政府风险,将日益成为政府治理的难点、重点。城镇化加速阶段政府风险的归结点是我国能否在20年左右的时间内持续平稳进入成熟的城市社会。我国各级地方政府作为国家城镇化战略的具体组织实施者,也就必然是各种城镇化风险的直接承担者并负有直接的治理责任。政府风险决定于社会结构、政府战略与政策运行三个层面的交互作用,与此相应,伴随城镇化加速而来的政府风险也可从社会结构、战略实施、政策运行三个层面进行分析。现代城镇化需要相应的政治、经济、文化、社会资源结构条件。当前我国地方政府在组织领导地方城镇化的进程中,既有可资凭借的显著的政治资源优势,经济体制优势,同时也面临着政治、经济、文化、社会与行政体制结构中的不利因素的制约。我国要在预期的时间内持续平稳进入成熟的城市社会,在社会政治结构方面必须渐进式改革不同层级政府间关系,渗进式变革城市内的城乡二元结构,同时坚持农村土地的集体所有与家庭经营这两大支柱,坚持政府对城镇化进程的主导作用。科学发展观是当前指导我国城镇化战略制定与实施的基本战略理念。科学发展观在城镇发展战略中的具体体现就是着力实现“城市体系结构、农村发展与城市发展、城市发展与经济发展、城市质量提升与规模扩张、城市社会发展与经济发展”这五大均衡。为此,应当加强城市规划的纵向与横向衔接,平衡市场机制与地方政府这两只手的资源配置功能,强化地方政府问的合作机制,确保城市体系内在结构的均衡;保证农业生产稳定与粮食供应,加快农村整合,改革土地流转制度,确立农民参与城镇发展的平等地位,合理分享城镇发展成果,实施拖腿扩门并举战略,确保农村发展与城镇发展的均衡;加强上级政府监管,抑制各级地方政府的“个人理性”(局部与短期利益选择),促使其更多地发挥出“集体理性”,坚持积极提升城市质量、稳妥扩张城市规模的科学发展模式,确保城市发展与经济发展、城市质量提升与规模扩张的均衡;城市社会发展事关我国城镇化的社会主义方向,要把社会发展作为地方政府无可旁贷的政治责任,才能确保城市社会发展与经济发展的均衡。这五个关系如果严重失衡,不但城镇化不可持续,还可能导致社会动荡,酿出严重政治问题。城镇化加速阶段政策运行层面上的地方政府风险主要有四个方面:空间生产、社会博弈、政策输出、城市政府间的竞争。空间生产是城镇化最基本的物质条件,地方政府在组织城镇空间生产中拥有巨大的法律优势、利益优势、行政优势,同时也承担着巨大的政治风险、财经风险、法律风险。要破解地方政府在空间生产中风险重重的局面,必须改变政府在土地征用征收上的独裁专断格局,完善土地流转中各个相关利益群体间的权利均衡以及国家机构间的权力均衡机制;地方政府在新型社会博弈中的风险,也需要相关制度与政策的调整,不能停留在治标不治本的层次;在社会资源再分配与社会管制等政策输出方面的风险,许多地方政府已经具备了有效化解的物质条件,主观上提高政策制定与执行的行政技能是解决此类问题的关键;我国城市政府在发展地方经济推进地方城镇化中的恶性竞争风险,本质上是市场机制失灵的一种表现,必须通过充分运用集权机制、强化社会制约机制从而有效规制市场机制,实现科层、民主、市场三种机制的良性对接,政府、社会、企业三种力量的有机互动,才能解决。概而言之,政府只有以科学发展观为指导对城镇化风险从结构变革、战略实施、政策运行三个层面进行整体、系统治理,才能使我国顺利跨越历史拐点,渡过城镇化加速阶段,平稳进入成熟和谐的城市社会。更多还原

【Abstract】 Urbanization is an important part in Socialist Modernization Construction, with building mature urban society as a significant mission in the Primary Stage of Chinese Socialist Construction.With the deepening reform of Chinese market economic system and the acceleration of urbanization,inevitable market malfunction and government mismanagement are posing serious problems for urban development,which will bring huge risks to government reigning and the construction of harmonious society.The period from 1996 to 2030 is the acceleration period of urbanization in China.In such a period,prominent social issues will be directed from rural area to cities,and local governments,as the organizers and operators of Chinese characteristic socialist development,are facing various risks.One of the biggest risks is whether governments can deal with scientifically those risks and cross the turning point:the change of the gap between urban and rural area,between the rich and the poor,from a dramatic broadening to gradual narrowing;the change of unstable social factors from a maximum degree to gradual mitigation. In accordance with these changes,the risks in urbanization for society and governments will increasingly become the crucial and difficult issues in the management of governments.The biggest risk boils down to whether China can enter mature urban society sustainablely and steadily within about 20 years.Since the local governments are the operators of the national urbanization strategy,they are directly bearing the risks,and have the responsibility to deal with them.Risks for governments are decided by social structure,government strategies,and policy implementation;accordingly,they can be dealt with from these three aspects.Modern urbanization needs suitable political,economic,cultural and social resources.Currently,in the organization and guidance of urbanization,local governments have noticeable advantages in political and economic resources, but also confront with the restriction of some unfavorable factors in the structure of political,economic,cultural,social and administerial systems.To steadily enter mature urban society within expectant period,China must gradually reform the relationship between governments at different levels,infiltratively transform the urban-rural dual structure in cities,persist in the collective ownership and household management of rural land,and insist on the leadership of governments in urbanization.Scientific development concept is currently a basic strategy in guiding the establishment and implementation of strategies for urbanization of our country. The basic embodiment of scientific development concept in strategies for urbanization is aiming to strike a balance between structures of urban systems, between rural and urban development,between urban and economic development,between improvement of urban quality and enlargement of urban size,between urban social and economic development.To achieve these goals, the following actions must be taken.First,the vertical and horizontal connection of city planning must be strengthened;balance be made between market system and local governments in allocating materials;cooperating systems between city governments be intensified;in order to guarantee the balance between internal structures of urban systems.Second,the stability of agricultural production and provisionment must be guaranteed;rural integration be accelerated;system of land transfer be reformed;rural citizens be given equal status in participating urban development and sharing the fruit of urban development;in order to guarantee the balance between rural and urban development.Third,supervision of upper governments must be strengthened;the "personal rationality" of local governments(the choice of short-term benefits for local area) be restrained and local governments be stimulated to bring into play "collective rationality"; scientific development patterns in active improvement of urban quality and steady enlargement of urban size be insisted;in order to guarantee the balance between urban and economic development,and the balance between improvement of urban quality and enlargement of urban size.Last but not the least,considering the crucial status of urban social development in deciding the socialist direction of urbanization of our country,it’s essential that social development be made a political responsibility of local governments in order to guarantee the balance between the social and economic development of cities.If there is a serious unbalance between these five aspects,not only urbanization will not be sustained but social turbulence might be induced as well,which will develop into serious political problem.At the level of policy implementation,local governments face risks in four aspects:production of space,games among colonies in new society,policy output,and competitions between city governments.Production of space is the fundamental material resource of urbanization,in which local governments have tremendous advantages in policies,interest,and administration,and at the same time are faced with huge risks in politics,finance,and law.To deal with various risks in the production of space,local governments have to cease the monopolization in land requisition and expropriation,and establish the balance of interests between correlative groups and national institutions in the circulation of lands.To deal with risks in the games of new society,local governments must adjust the systems and policies concerned,and avoid just scratching the surface of a problem.To deal with risks in reallocation of social resources and social administration concerned with policy output,many local governments already have material condition to effectively break them,and the key is to improve their administerial skills in policy making and implementation.To deal with risks in vicious competition between city governments in urbanization,which are actually the manifest of malfunction of market mechanism,local governments must put the centralization mechanism into full play,and strengthen the social check and balance mechanism,in order to effectively regulate market mechanism and realize the organic interactions between social units,democracy,and market.In general,local governments must be guided by the scientific development concept to manage the risks in urbanization from the levels of structure transformation,strategy implementation,and policy circulation,to smoothly cross the historic turning points and get through the acceleration of urbanization, and enter mature city society.更多还原