特色小鎮需兼顧“特色”和“綠色”

文/吳平

旅游小鎮、科技小鎮、金融小鎮、文化小鎮……近年來，隨著中央一系列小（城）鎮發展政策的出臺，一大批功能各異的特色小鎮紛紛涌現。特色小鎮依托當地自然稟賦、生態環境和歷史文化積累等優勢，聚焦特色產業，集聚發展要素，包含旅游休閑、健康養老、智能制造、商貿物流、美麗宜居等豐富主題。

特色小鎮因何而興

發展特色小鎮是推進新型城鎮化的新舉措。城鎮化的快速推進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、亟待疏散的大城市，一邊是序幕拉開、求賢若渴的特色小鎮，供需反差之間隱含著巨大的人口流動勢能。

發展特色小鎮是統籌城鄉發展、破解“三農”問題、建設美麗鄉村的助推器。我國是一個經濟社會發展不平衡的大國，存在著“城富鄉貧，城新村舊”的現象。小鎮是連接城市和農村的橋梁，既能與都市經濟融為一體，又能帶動農業農村的發展；小城鎮的發展可以有效緩解農民就近就業問題，促進城鄉公共服務均等化。在貧困地區推進特色小鎮建設，更有利于搭建脫貧平臺，為精準扶貧提供載體。

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”以互聯網創業為特色，并使得近20處各級各類歷史文化遺產進行了有效保護和合理利用

特色小鎮建設融入了生態文明、綠色發展理念，成為治療“城市病”、改善農村環境質量、推進產業轉型升級的有效嘗試。

生態綠色制度供給不足

特色小鎮建設是一項長期、復雜的系統工程，需要科學完善的頂層設計與制度保障。但我國目前僅有住建部、國家發改委、財政部“開展特色小鎮培育”（2016），國家發改委“美麗特色小（城）鎮建設”和“千企千鎮工程”（2016），國家發改委、國家開發銀行“開發性金融支持特色小（城）鎮建設促進脫貧攻堅”（2017），體育總局“運動休閑特色小鎮”（2017）等指導性文件。總體上看，我國特色小鎮在生態文明建設、綠色發展等制度層面尚未系統設計規劃；在國土、環保、文化、旅游、金融、衛生、水利、林業等領域政策支持力度不足；在規劃建設標準、土地利用等方面缺乏法律制度保障和技術支撐。例如，特色小鎮建設涉及農村土地使用權、農村宅基地、農村集體資產等使用、處分，而這些都沒有充足的法律依據。

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.

打造特色小鎮要將生態綠色作為“必選項”

特色小鎮建設運營要強化生態綠色思維，產業選擇須兼顧“特色”與“綠色”。

特色小鎮是集產業發展、文化、健康養老、旅游休閑、體育運動等多種功能于一體的空間區域。小鎮的開發建設要集約節約利用土地，空間布局與周邊自然環境相協調，環境優美、干凈整潔，公園綠地貼近生活、貼近工作。

設計、建設、運營特色小鎮要強化生態綠色思維。小鎮的開發應當實施低沖擊式的開發建設模式，在建設標準和功能定位上，著重突出生態、綠色、節能主題，用新材料、新技術打造低碳、舒適、宜居的環境；集約節約使用建設用地，推動規劃區范圍內的建設土地混合功能利用；倡導綠色交通模式，提高綠色出行比例；更加有效地節約使用水資源，倡導分散與集中相結合的水再生利用工程與水生態修復技術；以非工程措施應對雨洪威脅，保證小鎮發展建設安全；大力推進生活垃圾分類、收集、資源化利用技術，減少噪聲、污水、空氣等污染。

特色小鎮產業選擇須兼顧“特色”與“綠色”。特色小鎮須結合自身條件，審時度勢，認真謀劃產業選擇。“特色”產業是特色小鎮持續發展的“輸血站”。特色產業，最關鍵的是產業業態的創新。要注重傳統優勢產業業態的提升和完善：制造業需要在“產品換代”“機器換人”“制造換法”“商務換型”“管理換腦”等“五換”業態上下功夫，積極探索業態創新的具體路徑和方法。

要把綠色產業作為提升特色小鎮競爭力的基本出發點。選擇具有良好生態環境、經典文化傳承和獨特地形地貌的小鎮，結合市場需求，發展文化旅游、健康養老、休閑度假、智能制造、“互聯網＋”、體育運動等業態。深度挖掘歷史傳統、民俗文化，結合現代生活方式，運用創意手段，融入生態綠色的元素，物質產品與精神產品并抓。發展生態循環農業，開發特色食品、健康食品，結合生態觀光、農事體驗、食品加工體驗、餐飲制作體驗等活動，推動體驗式休閑度假。

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.