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“三区同建”为路径 倾力打造新农村
发布者:admin     发布时间:2019/4/15     点击数:25

“三区同建”为路径 倾力打造新农村

“三区同建”为路径   倾力打造新农村
 
——关于衡水市枣强县实施“三区同建”推进乡村振兴的调查与启示
 
张保强 蔡峰峰 朱书运 于海云 王信

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        枣强县地处华北平原腹地,县域面积892平方公里,耕地92万亩,人口40万,是一个传统农业大县。党的十九大以来,枣强县委、县政府认真贯彻落实省委、省政府和市委、市政府的决策部署,针对农业大而不强、地域广而环境欠优、村庄体量小而密度高,以及农民群众增收缓慢的实际,瞄准优化农村生活、生产、生态空间布局,推进新型农村社区、现代农业产业园区和乡村生态功能区“三区同建”,走出了一条改善农村人居环境、推进规模经营、拓展城乡空间、助力脱贫攻坚、维护基层稳定的新路子。目前,全县共建成20个农村新型社区、46个现代农业园区(其中3个省级现代农业园区)、31个生态园区,“三区同建”工作走在了全省前列。枣强县连续三年获评全省美丽乡村建设先进县,被授予全省首批中心村建设示范县和“四新”应用示范县称号。2018年全省空心村治理暨“三区同建”现场会、乡村振兴暨人居环境整治现场观摩、城市建设观摩等会议相继在枣强召开,在各地推广了枣强实施“三区同建”的经验与做法。
 
实施“三区同建”取得的五大成效

        成效一:完善基础设施,优化了人居环境。县委、县政府对10个城镇规划社区和59个农村社区,从规划布局、设施配套、功能提升和服务覆盖四个层面入手,严格按照完善基础设施的标准,一并规划、一同施工、统一验收,实行水、电、路讯、暖、燃气、监控、WIFI、亮化、绿化等基础设施统筹共建。实现了广大群众期盼多年的幼儿园、卫生室、村民活动中心、游园、休闲广场、物业、超市、农村电商等公共服务设施全民共享的心愿,使农村新社区既具有了城市特质、设施配套、服务完善、生活便利,又保持了田园风光、自然风情、产业特色和文化底蕴。同时,还解决了重复投资、利用率低、服务质量不高的问题。枣强镇八里庄新型农村社区,作为全省“四新”应用示范点,按照“小规模、组团式、生态化、微田园”的理念设计,将周边4个村规划为一个中心村,公共服务设施集中摆放,各村相对独立建设,村落绿色廊道相连、基础设施共享,不仅具有城市功能,而且保留了农村传统韵味,打造了“让城市人羡慕、农村人向往”的舒适宜居人居环境。
 
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        成效二:推进三产融合,加快了转型步伐。按照全县现代农业发展规划、现代农业园区扶贫规划,东北部乡村振兴示范区和欣苑、贵和、吉祥三个省级现代农业园区,实现了做大做强的目标,建成了游玩观赏、婚纱摄影、休闲度假、生态养生为主的玫瑰风情园,谋划推进了中粮农产品深加工、冀康·枣强田园综合体等项目,成功举办了多届“玫瑰旅游文化节”,吸引周边大中城市游客30万人次,生态观光、乡村体验、休闲度假新业态方兴未艾。目前,全县千亩以上规模农业产业园区有28个、万亩以上3个,农民合作社达到1292家,辐射带动农户4.6万户,流转土地面积近15万亩;市级农业产业化重点龙头企业41家,全县农业产业化率达到77.4%,位居全市前列,被认定为河北省农产品质量安全县。
 
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        成效三:统筹城乡发展,拉大了城市框架。“三区同建”加快了城市化进程,中部行政经济中心、南部商贸文化旅游中心、北部科技创新中心“一线三中心”城市发展总体框架逐步拉开。位于县城拓展区的江官新型社区,原村庄占地1365.36亩,新村规划占地80亩,通过建设新型社区和旧村拆迁,腾出土地1285.36亩,用于建设产业园区、一河两湖景观带、全民健身中心、城市综合体和教育园区,部分土地置换指标支持了经济开发区建设,为县城建设拓展了空间,提升了承载能力和吸纳能力。在此基础上,规划建设了7平方公里的京津冀智能制造产业(枣强)转化基地、3.5平方公里的西部生态新城、1.5平方公里的教育园区,县城规划面积扩展到了31.46平方公里。具有全市一流水平的全民健身中心、全省首家集寻亲旅游和文化馆藏于一体的移民文化园、集中体现“绿水文”互动的河湖景观带等城建重点工程项目相继建成,进一步提升了县城的吸引力、承载力。
 
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        成效四:实施产业脱贫,增加了农民收入。通过实施“三区同建”,传统农民变成了流转土地有“租金”、入股得“股金”、打工享“薪金”、返租倒包有“酬金”的现代职业农民,建立起了农民稳定增收的长效机制。据统计,规模产业园区亩均纯收益达到3656元,比传统大田种植增收近三倍,农民人均增收3000元以上。八里庄村人均纯收入由2000多元增长到7000多元,增长3倍多,带动其它4个迁建村农民增收均值达76%。2018年以来,枣强县通过探索创新“5+3+N”“百企联千户”等产业就业扶贫模式,整合各类涉农资金4623万元,用于扶贫产业及基础设施建设,全县扶贫产业惠及贫困户2694户,就业带动2175人,发放扶贫小额贷款2919.4万元。2018年,顺利通过了省扶贫成效考核和三方评估验收,实现脱贫932户、2379人,24个贫困村脱贫出列,圆满完成了年度减贫任务,如期实现了脱贫摘帽目标。全市扶贫产业现场会在枣强召开,全市村“两委”培训班两次到枣强观摩学习。
 
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        成效五:加强基层治理,维护了和谐稳定。县委、县政府在“三区同建”过程中,积极创新社区组织管理模式,在联村并建的社区,普遍成立了党总支、理事会、协会等组织,制订了村民公约、自治办法,放大农村基层组织管理的功能,并在社区建设、文化活动、服务设施中,注重发挥裘祖文化、董子文化、移民文化三大文化滋养作用,融入和展示乡土记忆,大力开展诚信教育、守法教育、感恩教育,推进民主管理、有序管理,提高了农村自治水平,真正实现了环境美、精神美。借助社区组织管理模式创新的经验,全县在基层信访维稳工作中,探索建立了信访矛盾预防化解长效常态机制,用心、用情、用力解决实际问题,普遍建立了四级矛盾纠纷排查调处网络,扎实推进了县、乡、村综治中心建设,创建了唐林、大营、肖张3个市级示范乡镇和33个县级示范村综治中心,先后建成启用了3个省五星级护路工作站,“雪亮工程”有序推进。2018年,枣强县成功跻身创建省基层平安建设先进县行列,八里庄村被评为“全国民主法治示范村”。
 
破解“三区同建”难题的五个实招
 
        实招一:顺应发展趋势,解决了“人往哪里去”的难题。随着城镇化战略的推进和大量农民工进城,农村“空心化”现象日趋突出;农民转移、土地流转,使规模经营、集约经营成为农业农村的发展趋势。县委、县政府着眼于有效使用农村建设用地、高效利用农村土地资源、改善农村环境,依据产业发展、历史沿革、人文环境等条件,本着向县城周围、乡镇驻地、产业园区周围聚集的原则,按照人口规模3000人左右、农事作业半径2公里以内的要求,研究编制了《县域镇村体系规划》,将全县553个行政村规划为16个居委会和69个新型社区、59个保留村,构建了“一线两城五镇百村”的城乡发展新体系。同时,引导产业向园区集中,规划建设了衡水创新港——北京中关村(枣强)产业协同创新基地、河北枣强省级经济开发区、京津冀智能制造产业(枣强)转化基地等产业园区,创建了河北欣苑、贵和农业、唐林吉祥3个省级现代农业园区,以产业集聚集群发展带动农村人口向城镇集中,有效破解了“人往哪里去”的难题。按照规划,所有新型社区全部建成后,全县城镇化率将提高10个百分点。
 
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        实招二:采取先拆后建,解决了“地从哪里来”的难题。旧村拆迁是“三区同建”的前提。为确保中心村建得起、农户搬得进、旧村拆迁复耕得了,县委、县政府确立了“面上广泛发动、点上寻求突破,成熟一个开工建设一个”的工作原则,把旧村拆迁作为“三区同建”的关键环节,突出政策的导向作用,探索出了“先拆后建、不占耕地、双向缴纳保证金”的新办法。凡是纳入搬迁拆迁的农户都要与村民委员会签订《房屋拆迁协议》,全村农户达到90%以上,才能申请列入改造计划。搬迁拆迁农户按房屋置换面积、承建商按投资总额缴纳一定数量的保证金,方可开工建设。并实行以奖代补政策,对启动区房屋搬迁拆迁完成的村,由县财政拨付30万元的启动资金给予支持;整村搬迁拆迁或拆迁净地达到村庄拆迁面积三分之一以上的村,政府按每亩净地10万元的标准落实拆迁补偿费;完成旧村复垦,达到规定标准的村,每亩再奖补5万元。通过拆旧建新、联村并建、复耕置换,土地节约率达到70%以上。全县16个省级示范点村庄占地6945亩,全部建成后可节约土地置换指标5900亩,为城镇建设、项目建设拓展出空间。
 
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        实招三:整合多方资金,解决了“钱从哪里出”的难题。“三区同建”离不开企业的参与、金融的支撑和先进产业技术的引领。一方面,县委、县政府整合政策项目资金集中使用。彻底改变过去“撒芝麻盐”式的投放方式,加大各类涉农项目资金整合力度,主动与政策对接,整合组织、教体、卫生、民政等部门资源,把上级涉农项目资金打捆使用、集中投向新型社区、产业园区和生态涵养区。特别是用足用好土地增减挂钩和占补平衡政策,明确土地指标收益切块用于新型社区、公共服务设施、产业园区建设。目前,已成功交易占补平衡耕地指标700亩,交易额2.45亿元。另一方面,构筑开放式、多元化、多层次投融资新格局。创建了“三区同建”融资平台,县注资成立了政府独资的农村建设投资有限公司,以土地预期收益作为担保,为有实力的承建商、投资商提供组合质押,加大融资力度,先后引进泰华、贵和房地产公司等8家工商企业投资新型社区建设。欣苑、贵和农业等19家工商企业投资现代农业园区建设,共吸引社会资本11亿元。
 
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        实招四:通过自拆自建,解决了“房子怎么建”的难题。中心村建设盖的是农民的房,置换的是农民的宅基地,利用的是国家土地增减挂钩政策,就必须尊重农民的意愿,让“群众说了算”。县委、县政府坚持把“三区同建”的政策交给群众,钱怎么花、账怎么算、建什么样的房等,都广泛征求群众的意见和建议,让群众当家作主。为构建“群众说了算”的平台,探索实行了村村建立“自拆自建委员会”的新模式,由党员代表、群众代表和威信较高、办事公道的长辈、在村任过职的老干部、在家居住的国家公职人员及自愿者组成。建设规划、户型设计、房屋拆迁置换办法及标准、房屋建设质量监管、农村土地流转方式、矛盾纠纷调解等事关群众切身利益的所有事项,全部交由自拆自建委员会议定,对议定结果、进展情况及时张榜公布、公开公示,让群众真正成为推动“三区同建”的参与者、支持者、实施者,提高了群众的满意度、认可度,极大调动了全体村民的参与热情。王均焦庄社区,仅用了6个月,就完成了整村拆迁入住和土地复垦工作,没有出现一个上访户,创造了令人称道的“焦庄速度”。
 
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        实招五:打造现代园区,解决了“产业怎么搞”的难题。县委、县政府在“三区同建”中,始终把“产业如何发展”摆在重要位置,在学习借鉴外地经验的基础上,全面加强了与高端龙头企业的资本合作、人才合作和市场对接,借势借力加快发展。先后引进了宁夏银阳光伏、山东寿光设施农业等龙头企业,建设了立体农业种植区、设施农业生态区;加强了与高等院校的技术合作,引进中国农大和河北农大先进理念、适用技术,建设观光农业、采摘农业和休闲农业,建成了全省单体存栏规模最大的肉羊养殖深加工基地、华北最大的密植梨种植基地,加快了产业转型升级步伐。目前,贵和园区千亩光伏农业区,辐射带动风情旅游、智慧农业发展,被评为“中国美丽休闲乡村”。吉祥园区向杜仲中药材种植、加工拓展,被评为“河北省花卉示范基地”。全县初步形成了玫瑰加工、杜仲种植、肉羊养殖、薯类培育“四大基地”,实现了“一区一特色”;农产品注册品牌达到20个,农业林果无公害认证基地10个、有机认证产品5个。以农业园区为载体,采取“公司+合作社+农户”等方式,重点发展扶贫奶牛等5大特色养殖产业,形成了“5+3+N”的产业就业扶贫新体系,贫困群众通过流转土地得租金、土地入股得股金、入园务工得薪金,极大提升广大农民群众的获得感和幸福感。
 
枣强“三区同建”得出的五点启示
 
        启示一:实施“三区同建”,必须坚持群众主体地位。尊重群众的权益和主体地位,是顺利实施“三区同建”的重要前提,只有充分尊重群众的意愿,维护好他们的切身利益,才能得到群众的支持,最大限度地调动起他们参与“三区同建”的积极性和创造性。因此,县委、县政府在“三区同建”启动前,就在全县深入开展了干群“夜谈”活动,通过与群众面对面、心贴心拉家常、讲政策,在交流方式、思想感情上紧密对接,向群众既交心,又交底。在产业园区建设上,是以土地入股组建合作社,还是把土地流转到农业公司,由农民说了算,劳动力是向龙头企业转移,还是向非农产业转移,完全尊重群众的意愿;在旧村拆迁补偿置换方案的制定过程中,把置换标准、评定标准、建设标准等确定权赋予广大群众,做到了政府主导而不引导、积极倡导而不硬推,真正做到了坚持群众的主体地位,从而才有了全县“三区同建”取得的喜人成效。
 
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        启示二:实施“三区同建”,必须坚持因地制宜原则。枣强县有553个行政村,应该说各村情况千差万别、各不相同。县委、县政府组织有关部门多次深入农村搞调研,在“三区同建”中不搞“一个标准”和模式,准确把握了因地制宜的精髓和灵魂,坚持立足县域村庄的区位交通、产业基础、文化底蕴、资源禀赋,充分吸收借鉴河北威县、江苏宿迁、北京房山等地“三区同建”经验做法,既量力而为,又量力而行;既不盲目模仿,又不拘泥典型。全县“三区同建”中,“四新”材料应用、彰显“小组生微”理念的流常社区,与发展设施瓜菜种植相结合的李进伯社区,实现绿色廊道和生态新城有机融合的江官社区,传承弘扬董子文化底蕴的衡店社区等,无不是全县差异化、多样化推进“三区同建”的集中体现。
 
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        启示三:实施“三区同建”,必须坚持改革创新精神。“三区同建”是一项创新性的改革过程,必然会遇到一些从未遇到过的难题,只有坚持改革创新的精神,才能冲破重重难关,取得“三区同建”扎扎实实的成果。县委、县政府正是基于这样一个清醒的认识。因此,在推进“三区同建”中真正做到了解放思想,敢于打破思维定式,坚持向改革要动力、向创新要效益、向市场要出路,无论是“拆旧建新、不占耕地、双向缴纳保证金”等政策的出台,还是土地指标收益切块分配等机制的健全完善;无论是抱团脱贫模式、还是资金打捆使用等做法,亦或是吸引社会资本参与“三区同建”等,都是在实践过程中坚持改革创新精神的结果,因此才牢牢把握了“三区统建”的正确方向,开辟了美丽乡村建设的新模式和新路径。2018年,枣强县承接中央和省市21项改革试点工作,成功争列全省新型城镇化与城乡统筹示范区试点,被衡水市委选定为传统产业转型升级、乡村振兴、城市精细化管理3个特色改革示范区创建试点县。
 
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        启示四:实施“三区同建”,必须坚持创新理念引领。“三区同建”不是简单地拆旧房、住新屋,而必须在技术装备、材料应用、建筑样式、居住环境、基础设施、公共服务、生活质量等得到全面提升,使农村成为安居乐业的美丽家园。县委、县政府坚持把新理念贯穿于“三区同建”的全过程,按照绿色、低碳、环保的要求,加大“四新”应用的推广力度,全县已建成的新型中心社区,公建部分全部采用坡屋顶设计等新样式,排水、采暖、隔热等全部采用新装备,并推广了地热井回灌供热、智能数据采集系统等多项新技术,普及了监控、燃气、农村电商,应用了SMC玻璃钢屋面瓦等新材料,建筑节能率达到65%以上。随着“四新”应用的深入推广,也催生出一批新兴产业,研制开发出了小型污水处理设施、SMC玻璃钢屋面瓦、玻璃钢排污管道、空气源热泵、“三板一柱”装配房屋等一批新型环保节能新产品,实现了很好的经济效益和社会效益。
 
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        启示五:实施“三区同建”,必须坚持正确用人导向。基层干部既是广大群众与政府交流沟通的纽带和桥梁,又是实施“三区同建”的骨干。因此,县委、县政府坚持把基层干部队伍建设与“三区同建”工作融合推进,树立起“重一线、重基层、重实干”的选人用人导向。组织基层干部积极开展干部素质提升、企业家村官选育计划、基层党组织“三定三比”、后进村百日攻坚等活动,大力唱响“担当担责抓落实、务实重干勇作为”主旋律。创造性地推行了基层干部“条块结合、包联负责、定期调度、督导考评”等制度,在全县基层干部中很快形成“不怕吃苦、任劳任怨、扎根基层、甘于奉献”的生动局面。王均乡党委副书记户贵阳,在大王均中心社区建设中,每天与党员干部吃水煮方便面,患上了严重的胃病,以顽强的毅力战胜了病魔,提前完成了所担负的搬迁拆迁任务。像这样的基层干部比比皆是,全县实施“三区同建”以来,先后有两名村支部书记凭借过硬的素质和能力考录了县公务员,并担任乡镇副职;有8名乡镇干部因工作实绩突出走上乡镇和部门正职等关键领导岗位,激发了广大基层干部积极投身“三区同建”的热情,为开创新时代农业农村发展新局面,贡献了应有力量。

                                                                                                 2019-04-12  来源:河北农民报网

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