文/吳平

旅游小鎮(zhèn)、科技小鎮(zhèn)、金融小鎮(zhèn)、文化小鎮(zhèn)……近年來，隨著中央一系列小（城）鎮(zhèn)發(fā)展政策的出臺，一大批功能各異的特色小鎮(zhèn)紛紛涌現(xiàn)。特色小鎮(zhèn)依托當(dāng)?shù)刈匀环A賦、生態(tài)環(huán)境和歷史文化積累等優(yōu)勢，聚焦特色產(chǎn)業(yè)，集聚發(fā)展要素，包含旅游休閑、健康養(yǎng)老、智能制造、商貿(mào)物流、美麗宜居等豐富主題。

特色小鎮(zhèn)因何而興

發(fā)展特色小鎮(zhèn)是推進(jìn)新型城鎮(zhèn)化的新舉措。城鎮(zhèn)化的快速推進(jìn)使得大大小小的城市迅速興起，也帶來了人口膨脹、交通擁堵、房價居高、重度霧霾等“城市病”。一邊是不堪重負(fù)、亟待疏散的大城市，一邊是序幕拉開、求賢若渴的特色小鎮(zhèn)，供需反差之間隱含著巨大的人口流動勢能。

發(fā)展特色小鎮(zhèn)是統(tǒng)籌城鄉(xiāng)發(fā)展、破解“三農(nóng)”問題、建設(shè)美麗鄉(xiāng)村的助推器。我國是一個經(jīng)濟(jì)社會發(fā)展不平衡的大國，存在著“城富鄉(xiāng)貧，城新村舊”的現(xiàn)象。小鎮(zhèn)是連接城市和農(nóng)村的橋梁，既能與都市經(jīng)濟(jì)融為一體，又能帶動農(nóng)業(yè)農(nóng)村的發(fā)展；小城鎮(zhèn)的發(fā)展可以有效緩解農(nóng)民就近就業(yè)問題，促進(jìn)城鄉(xiāng)公共服務(wù)均等化。在貧困地區(qū)推進(jìn)特色小鎮(zhèn)建設(shè)，更有利于搭建脫貧平臺，為精準(zhǔn)扶貧提供載體。

A large number of towns with distinctive features and functions such as tourism towns, technological towns, financial towns, cultural towns, etc have sprung up and boomed, with the promulgation of policies on developing small towns by the central government. Relying on local natural endowments, ecological environment and cultural and historical inheritance and other advantages, these towns focus on special industries and concentrate development elements with rich themes including tourism and leisure,healthcare and elderly care, smart manufacturing, trade and logistics, livability, etc.

How These Special Towns boom?

Developing special towns is a new initiative to promote new type of urbanization. Rapid development of urbanization has led to fast rise of large and small cities. However, at the same time, it has led resulted in many urban diseases such as population expansion, traffic congestion, high housing prices, severe smog, etc. On the one hand, some big cities are under too much pressure and the population has to shift to other areas. On the other hand, small cities and towns are eagerly looking for talents because they are at the initial stage of development. The contrast between demand and supply means there is a great potential for population movement.

Developing special towns is the booster to balance urban and rural development, solving the issues of agriculture, farmers and rural areas and build a beautiful rural China. China is a big country with uneven social and economic development. The cities are rich and new while rural areas are poor and worn-out. Small towns are bridges connecting cities and the countryside, providing basis for modern agriculture and channels for the fl ow of productive factors. They can both be integrated with urban economy and drive the development of agriculture in rural areas. Small towns can create job opportunities for farmers and promote equalization of public services in urban and rural areas. Promoting the development of small towns in poor regions can build platforms to alleviate poverty.

浙江余杭“夢想小鎮(zhèn)”以互聯(lián)網(wǎng)創(chuàng)業(yè)為特色，并使得近20處各級各類歷史文化遺產(chǎn)進(jìn)行了有效保護(hù)和合理利用

特色小鎮(zhèn)建設(shè)融入了生態(tài)文明、綠色發(fā)展理念，成為治療“城市病”、改善農(nóng)村環(huán)境質(zhì)量、推進(jìn)產(chǎn)業(yè)轉(zhuǎn)型升級的有效嘗試。

生態(tài)綠色制度供給不足

特色小鎮(zhèn)建設(shè)是一項(xiàng)長期、復(fù)雜的系統(tǒng)工程，需要科學(xué)完善的頂層設(shè)計與制度保障。但我國目前僅有住建部、國家發(fā)改委、財政部“開展特色小鎮(zhèn)培育”（2016），國家發(fā)改委“美麗特色?。ǔ牵╂?zhèn)建設(shè)”和“千企千鎮(zhèn)工程”（2016），國家發(fā)改委、國家開發(fā)銀行“開發(fā)性金融支持特色?。ǔ牵╂?zhèn)建設(shè)促進(jìn)脫貧攻堅(jiān)”（2017），體育總局“運(yùn)動休閑特色小鎮(zhèn)”（2017）等指導(dǎo)性文件。總體上看，我國特色小鎮(zhèn)在生態(tài)文明建設(shè)、綠色發(fā)展等制度層面尚未系統(tǒng)設(shè)計規(guī)劃；在國土、環(huán)保、文化、旅游、金融、衛(wèi)生、水利、林業(yè)等領(lǐng)域政策支持力度不足；在規(guī)劃建設(shè)標(biāo)準(zhǔn)、土地利用等方面缺乏法律制度保障和技術(shù)支撐。例如，特色小鎮(zhèn)建設(shè)涉及農(nóng)村土地使用權(quán)、農(nóng)村宅基地、農(nóng)村集體資產(chǎn)等使用、處分，而這些都沒有充足的法律依據(jù)。

Adopting the concepts of ecological civilization and green development,special towns become the effective initiative to treat urban diseases, improve rural environmental quality and promoting industrial transformation and upgrading.

Shortage of Institutional Arrangement

Construction of special towns is a long-term, complex and systematic project, which requires scienti fi c and sophisticated top-level design and institutional guarantee. However, there are only several guiding documents in this area. For example, Fostering Development of Specail Towns (2016) issued by Ministry of Housing and Urban-Rural Development, Construction of Beautiful Special Towns and Project of Building 1,000 Enterprises in 1,000 Towns (2016) by National Development and Reform Commission (NDRC)and Ministry of Finance, Supporting the Construction of Special Towns to Alleviate Poverty with Financial Means (2017) by NDRC and National Development Bank and Building Special Towns for Sports and Leisure (2017)by General Administration of Sports. In general, there is no systematic planning of special towns at the institutional level regarding ecological civilization construction and green development. Policy support is inadequate in the fi elds of environmental protection, culture, tourism, fi nance, health,water conservancy, forestry and land and resources. There is lack of legal and institutional guarantee and technical support regarding planning and construction standards, land usage, etc. For example, building special towns involves rural land use right and use and disposal of rural residence land and rural collective-owned assets, etc. However, there is no adequate legal basis at present.

打造特色小鎮(zhèn)要將生態(tài)綠色作為“必選項(xiàng)”

特色小鎮(zhèn)建設(shè)運(yùn)營要強(qiáng)化生態(tài)綠色思維，產(chǎn)業(yè)選擇須兼顧“特色”與“綠色”。

特色小鎮(zhèn)是集產(chǎn)業(yè)發(fā)展、文化、健康養(yǎng)老、旅游休閑、體育運(yùn)動等多種功能于一體的空間區(qū)域。小鎮(zhèn)的開發(fā)建設(shè)要集約節(jié)約利用土地，空間布局與周邊自然環(huán)境相協(xié)調(diào)，環(huán)境優(yōu)美、干凈整潔，公園綠地貼近生活、貼近工作。

設(shè)計、建設(shè)、運(yùn)營特色小鎮(zhèn)要強(qiáng)化生態(tài)綠色思維。小鎮(zhèn)的開發(fā)應(yīng)當(dāng)實(shí)施低沖擊式的開發(fā)建設(shè)模式，在建設(shè)標(biāo)準(zhǔn)和功能定位上，著重突出生態(tài)、綠色、節(jié)能主題，用新材料、新技術(shù)打造低碳、舒適、宜居的環(huán)境；集約節(jié)約使用建設(shè)用地，推動規(guī)劃區(qū)范圍內(nèi)的建設(shè)土地混合功能利用；倡導(dǎo)綠色交通模式，提高綠色出行比例；更加有效地節(jié)約使用水資源，倡導(dǎo)分散與集中相結(jié)合的水再生利用工程與水生態(tài)修復(fù)技術(shù)；以非工程措施應(yīng)對雨洪威脅，保證小鎮(zhèn)發(fā)展建設(shè)安全；大力推進(jìn)生活垃圾分類、收集、資源化利用技術(shù)，減少噪聲、污水、空氣等污染。

特色小鎮(zhèn)產(chǎn)業(yè)選擇須兼顧“特色”與“綠色”。特色小鎮(zhèn)須結(jié)合自身?xiàng)l件，審時度勢，認(rèn)真謀劃產(chǎn)業(yè)選擇。“特色”產(chǎn)業(yè)是特色小鎮(zhèn)持續(xù)發(fā)展的“輸血站”。特色產(chǎn)業(yè)，最關(guān)鍵的是產(chǎn)業(yè)業(yè)態(tài)的創(chuàng)新。要注重傳統(tǒng)優(yōu)勢產(chǎn)業(yè)業(yè)態(tài)的提升和完善：制造業(yè)需要在“產(chǎn)品換代”“機(jī)器換人”“制造換法”“商務(wù)換型”“管理換腦”等“五換”業(yè)態(tài)上下功夫，積極探索業(yè)態(tài)創(chuàng)新的具體路徑和方法。

要把綠色產(chǎn)業(yè)作為提升特色小鎮(zhèn)競爭力的基本出發(fā)點(diǎn)。選擇具有良好生態(tài)環(huán)境、經(jīng)典文化傳承和獨(dú)特地形地貌的小鎮(zhèn)，結(jié)合市場需求，發(fā)展文化旅游、健康養(yǎng)老、休閑度假、智能制造、“互聯(lián)網(wǎng)＋”、體育運(yùn)動等業(yè)態(tài)。深度挖掘歷史傳統(tǒng)、民俗文化，結(jié)合現(xiàn)代生活方式，運(yùn)用創(chuàng)意手段，融入生態(tài)綠色的元素，物質(zhì)產(chǎn)品與精神產(chǎn)品并抓。發(fā)展生態(tài)循環(huán)農(nóng)業(yè)，開發(fā)特色食品、健康食品，結(jié)合生態(tài)觀光、農(nóng)事體驗(yàn)、食品加工體驗(yàn)、餐飲制作體驗(yàn)等活動，推動體驗(yàn)式休閑度假。

Ecological and Green Development is a must for Building Special Towns

Green thinking should be emphasized in the whole process of construction and operation of special towns. While selecting industries for the special towns, we must give equal consideration to green and local features.

Special towns can provide spaces integrating many different functions such as industrial development, culture, health, elderly care, tourism and leisure and sport activities. The development of small towns should fully utilizes the land by harmonizing spatial layout with surrounding natural environment with proper building height and intensity so that the towns are beautiful,clean and orderly and parks and green spaces are close to life and work.

Green and ecological thinking must be emphasized in designing, building and operating special small towns. The development of small towns should adopt the construction mode of low impact. Regarding construction standards and functional positioning, themes like ecology, green and energy conservation should be highlighted and new materials and new technologies should be adopted to build a low-carbon, comfortable and livable environment. Construction land should be economized to promote mixed functional use of land in the planning zones. Green transportation mode should be advocated. Water resources should be used in a more ef fi cient and economical way and water recycling technology and water ecological restoration technology should be advocated. Non-engineering methods should be used in response to flood threats to ensure the safety of small towns.Garbage classi fi cation, collection and recycling should be promoted to reduce noise, waste water and air pollution.

Green development and local characteristic should be taken into account when industries are selected in special towns. Special towns should carefully plan what industries should be developed according to their local conditions. Industries with local characteristics should be the blood transfusion stations for the sustainable development of special towns. The key lies in innovation in industrial patterns. Traditional industries with competitiveness should be upgraded and improved. Manufacturing industries should focus on product upgrading, management improvement, technological innovation, business model change and staff training to actively explore innovative approaches and roadmaps.

Green industries should be the basic starting point to improve the competitiveness of these special towns. Small towns with excellent ecological environment, classic culture and unique landforms should be selected to develop industries such as cultural tourism, health and elderly care, leisure and vacation, smart manufacturing, internet plus and sports to meet market needs. We should further explore historical traditions and folk culture to highlight sentiments of nostalgia by integrating modern lifestyles, creative means and green ecological elements and paying equal attention to both material and spiritual products. Circular and ecological agriculture should be focused to develop special and health food products and promote experience-based leisure and vocation activities by involving visitors in such activities as ecological sightseeing, farming experience, food processing and preparing local dishes.