鄉村振興中農民主體地位的規劃保障機制研究

張美亮 崔慧芬 張琪瑞

摘要：法定化與有效性一直是鄉村規劃管理的兩難困境，鄉村振興戰略實施與村莊規劃落地要求，為鄉村規劃創新提供了全新的認知視角和行為導向。農民主體對農房市場價值變現、公共服務設施配置、農地經營權流轉等訴求，既是集體組織成員分化和市場機制有效發育的集中體現，也是城鄉融合發展和農業農村現代化的規劃特征，浙江省臺州市仙居縣鄉村規劃改革實踐表明：實現規劃從約束農民向服務鄉村的態度轉化、從農村建設向鄉村振興的目標轉化、從建設管理向多元治理的實施轉化，能保障鄉村振興的農民主體地位。

關鍵詞：鄉村振興；鄉村規劃；管理機制；保障機制；農民主體；仙居縣

doi：10.3969/j.issn.1009-1483.2019.04.010 中圖分類號：TU982.29

文章編號：1009-1483（2019）04-0067-05 文獻標識碼：A

Planning Guarantee Mechanism Study of the Farmer Subject in Rural Revitalization： A Case of Rural Planning Innovation of Xianju County

ZHANG Meiliang， CUI Huifen， ZHANG Qirui

[Abstract] The statutory and effectiveness of planning have been the dilemma of rural planning management. The implementation of rural revitalization strategy and planning requirements provide a new cognitive perspective and behavioral orientation for rural planning innovation. The appeals from the main body of farmers to the realization of the farmhouse market value， the allocation of public facilities， and the transfer of farmland management rights are not only a concentrated manifestation of the differentiation of collective organizations and the effective development of market mechanisms， but also an planning characteristic of urban-rural integration development and agricultural and rural modernization. The practice of rural planning reform in Xianju County indicates that the attitude shifts from restricting farmers to serving the countryside， the objective transformation from rural construction to rural revitalization， and the implementation transformation from construction control to multigovernance could effectively protect the farmers’ dominant role in rural revitalization.

[Keywords] rural revitalization； rural planning； management mechanism； guarantee mechanism； farmer subject； Xianju County

引言

鄉村振興的首要任務是保障農民及其自治組織的主體性[1]。鄉村振興中農民的主體性，主要表現為農民在鄉村經濟、社會、政治、文化等方面都有主導權、參與權、表達權、受益權和消費權[2]，但長期以來，受土地用途管制和城市規劃思維雙重約束，各地城鄉建設實際上都是以政府為主體的[3]，農民的主體意識和行為能力發育不足[4]，規劃的法定化與有效性時有沖突，需要深入研究符合鄉村發展多元需求的規劃方法[5]，保障鄉村振興的農民主體地位。為推進規劃落地實施，各地按照《住房和城鄉建設部關于改革創新、全面有效推進鄉村規劃工作的指導意見》（建村〔2015〕187號）要求，積極開展鄉村規劃管理體制機制改革，仙居縣“一份說明、二份計劃、三張清單、四張圖紙”編審模式，不僅得到山區干部群眾普遍認可，也成為浙江省“最多跑一次”改革的規劃樣本。……