Qiushi 《求是》 2026/02

https://www.qstheory.cn/20260115/d3e63b3075754be4a98c172afdf6d9b7/c.html

After a lapse of 10 years, the CPC Central Committee has once again convened the Central Urban Work Conference, primarily to summarize the achievements of China's urban development since the new era, analyze the situation facing urban work, and make deployments for urban work at present and for a period to come.

时隔10年，党中央再次召开城市工作会议，主要是总结新时代以来我国城市发展成就，分析城市工作面临的形势，对当前和今后一个时期城市工作作出部署。

Since the 18th National Congress of the CPC, the CPC Central Committee has profoundly grasped the laws of China's urban development under the new situation, persisted in the Party's comprehensive leadership over urban work, adhered to the principle that cities should be built by the people and for the people, and insisted on planning cities systematically as organic life forms, promoting historic achievements in urban development. First, the level of new-type urbanization and the energy level of urban development have significantly increased. The urbanization rate has steadily increased, and urban agglomerations and metropolitan circles have grown and strengthened, powerfully driving economic and social development and the improvement of people's lives. The Xiong'an New Area has risen from the ground. The comprehensive strength of China's cities continues to increase. Second, the level of urban planning, construction, and governance has significantly improved. The reform of "integrating multiple plans into one" has advanced in depth, urban governance efficiency has continuously enhanced, the problem of blind "pancake-spreading" expansion has been effectively curbed, and "big city malaise" has been notably alleviated. Third, the level of livability and employment suitability in cities has significantly improved. Urban infrastructure has been iteratively upgraded, public service functions have been gradually perfected, the overall level of safety and resilience has increased, and the world's largest urban housing guarantee system has been built. Fourth, the level of urban historical and cultural protection and inheritance has significantly improved. The situation where historical and cultural heritage was repeatedly destroyed has been effectively reversed, urban cultural taste and heritage characteristics have been further highlighted, and the level of urban civilization has continuously improved. Fifth, the quality of the urban ecological environment has significantly improved. Air quality has improved remarkably, the number of heavily polluted days has clearly decreased, and the area of green spaces and parks has continuously increased, making the sky bluer, the water clearer, and the environment more beautiful in our cities. These achievements deserve full affirmation.

党的十八大以来，党中央深刻把握新形势下我国城市发展规律，坚持党对城市工作的全面领导，坚持人民城市人民建、人民城市为人民，坚持把城市作为有机生命体系统谋划，推动城市发展取得历史性成就。一是新型城镇化水平和城市发展能级大幅提升。城镇化率稳步提高，城市群和都市圈发展壮大，有力带动了经济社会发展和人民生活改善。雄安新区拔地而起。我国城市综合实力持续增强。二是城市规划建设治理水平大幅提升。“多规合一”改革纵深推进，城市治理效能不断增强，盲目扩张“摊大饼”问题有效遏制，“大城市病”明显缓解。三是城市宜业宜居水平大幅提升。城市基础设施迭代升级，公共服务功能逐步完善，安全韧性水平整体提高，建成世界规模最大的城市住房保障体系。四是城市历史文化保护传承水平大幅提升。有力扭转历史文化遗产屡遭破坏的状况，城市文化品位和底蕴特色进一步彰显，城市文明程度持续提高。五是城市生态环境质量大幅提升。空气质量显著改善，重污染天数明显减少，绿地、公园面积持续增加，城市天更蓝、水更清、环境更优美。这些成就值得充分肯定。

At the same time, China's urban development also faces some new situations and new problems: urban aging and low birth rates, obvious differentiation in regional population growth and decline, and rapid changes in demographic structure; "land finance" is difficult to sustain; some urban housing and infrastructure are aging, safety and stability risks are increasing, and governance difficulty is intensifying. Overall, China's urbanization is shifting from a period of rapid growth to a period of stable development, and urban development is shifting from a stage of large-scale incremental expansion to a stage primarily focused on improving the quality and efficiency of existing stock. We must profoundly grasp and proactively adapt to these major changes.

同时，我国城市发展也面临一些新情况新问题：城市老龄化少子化、区域人口增减分化特征明显，人口结构快速变化； “土地财政”难以为继；城市部分房屋和基础设施老化，安全稳定风险增多，治理难度加大。总的看，我国城镇化正从快速增长期转向稳定发展期，城市发展正从大规模增量扩张阶段转向存量提质增效为主的阶段。对这些重大变化，要深刻把握、主动适应。

The overall requirements for urban work at present and for a period to come are: guided by the Thought on Socialism with Chinese Characteristics for a New Era, deeply implement the guiding principles of the 20th National Congress of the CPC and the Second and Third Plenary Sessions of the 20th Central Committee, uphold and strengthen the Party's overall leadership, earnestly practice the concept of people's cities, adhere to the general principle of pursuing progress while ensuring stability, persist in adapting measures to local conditions and providing classified guidance, take the construction of innovative, livable, beautiful, resilient, civilized, and smart modern people's cities as the goal, take promoting high-quality urban development as the theme, take persisting in connotative urban development as the main line, and take advancing urban renewal as an important grip, vigorously promote urban structural optimization, kinetic energy conversion, quality improvement, green transformation, continuation of cultural context, and governance efficiency enhancement, firmly hold the bottom line of urban safety, and blaze a new path of urban modernization with Chinese characteristics.

当前和今后一个时期城市工作的总体要求是：以新时代中国特色社会主义思想为指导，深入贯彻党的二十大和二十届二中、三中全会精神，坚持和加强党的全面领导，认真践行人民城市理念，坚持稳中求进工作总基调，坚持因地制宜、分类指导，以建设创新、宜居、美丽、韧性、文明、智慧的现代化人民城市为目标，以推动城市高质量发展为主题，以坚持城市内涵式发展为主线，以推进城市更新为重要抓手，大力推动城市结构优化、动能转换、品质提升、绿色转型、文脉赓续、治理增效，牢牢守住城市安全底线，走出一条中国特色城市现代化新路子。

The key to implementing these overall requirements lies in persisting in connotative urban development and effectively grasping several important principles. First, transform the concept of urban development, paying more attention to putting people first. Take realizing the people's yearning for a better life as the starting point and foothold of urban work, strive to build modern people's cities, solidly advance common prosperity for all people, and promote the comprehensive development of individuals. Second, transform the mode of urban development, paying more attention to intensive and efficient growth. Optimize urban functional structure and spatial layout, improve the level of intensive and economical utilization of resources and space, and realize green, low-carbon, and smart development. Third, transform the driving force of urban development, paying more attention to characteristic development. Based on respective resource endowments, strengthen scientific, technological, and cultural empowerment, build core competitiveness, achieve dislocation development, and avoid homogeneous competition. Fourth, transform the focus of urban work, paying more attention to governance investment. Break the traditional thinking and habitual practices of "emphasizing construction over governance," and promote high-quality renewal, high-level operation, and high-efficiency governance of cities. Fifth, transform urban work methods, paying more attention to overall planning and coordination. Systematically plan production, living, ecology, culture, safety, and other aspects of work, strengthen coordination and linkage across departments, levels, and regions, so that the government, market, society, and citizens can better form a synergy.

落实这一总体要求，关键在于坚持城市内涵式发展，切实把握好几个重要原则。一是转变城市发展理念，更加注重以人为本。把实现人民群众对美好生活向往作为城市工作的出发点和落脚点，努力建设现代化人民城市，扎实推进全体人民共同富裕，促进人的全面发展。二是转变城市发展方式，更加注重集约高效。优化城市功能结构和空间布局，提升资源和空间集约节约利用水平，实现绿色低碳智慧发展。三是转变城市发展动力，更加注重特色发展。根据各自资源禀赋，加强科技和文化赋能，打造核心竞争力，实现错位发展，不搞同质化竞争。四是转变城市工作重心，更加注重治理投入。打破“重建设、轻治理”的传统思维和习惯做法，推动城市高质量更新、高水平运营、高效能治理。五是转变城市工作方法，更加注重统筹协调。系统谋划生产、生活、生态、文化、安全等各方面工作，加强跨部门跨层级跨区域协调联动，使政府、市场、社会、市民更好形成合力。

Regarding the key tasks of urban work, I spoke of "one respect and five coordinations" at the Central Urban Work Conference in 2015; these must continue to be implemented well. Below, I will emphasize a few more issues.

关于城市工作的重点任务，我在2015年的中央城市工作会议上讲了“一个尊重、五个统筹”，这些都要继续抓好落实。下面，我再强调几个问题。

First, make efforts to optimize the modern urban system. To optimize the modern urban system, we must first focus on improving the comprehensive carrying capacity of cities for population and economic and social development, and develop clustered and networked modern urban agglomerations and metropolitan circles. Build the Beijing-Tianjin-Hebei, Yangtze River Delta, and Guangdong-Hong Kong-Macao Greater Bay Area urban agglomerations into world-class urban agglomerations, promote the Chengdu-Chongqing and middle reaches of the Yangtze River urban agglomerations to become growth poles for high-quality development, and enhance the supporting role of urban agglomerations and metropolitan circles in the central, western, and northeastern regions for coordinated regional development. Within urban agglomerations, industrial chain collaboration should be strengthened to build new mechanisms for cross-administrative cooperation and development; between urban agglomerations, industrial division of labor and spatial connections should be optimized. For metropolitan circles, areas with favorable conditions can advance integrated development, promoting convenient and efficient commuting, tiered industrial support, and convenient sharing of public services.

第一，着力优化现代化城市体系。优化现代化城市体系，首先要着眼于提高城市对人口和经济社会发展的综合承载能力，发展组团式、网络化的现代化城市群和都市圈。把京津冀、长三角、粤港澳大湾区城市群打造成世界级城市群，推动成渝、长江中游城市群等成为高质量发展增长极，增强中西部和东北的城市群、都市圈对区域协调发展的支撑作用。城市群内，要加强产业链协作，构建跨行政区合作发展新机制；城市群之间，要优化产业分工和空间联系。对于都市圈，有条件的地方可以推进同城化发展，促进通勤便捷高效、产业梯次配套、公共服务便利共享。

Optimizing the modern urban system requires promoting the coordinated development of large, medium, and small cities and small towns. We must promote the "strengthening and fitness" of super-large and mega-cities, strengthen and refine core functions, control the size of super-large cities, rationally and orderly relieve non-core functions, and build main engines for high-quality development. We should advance urbanization with counties as important carriers based on classification, coordinate the planning and construction of urban and rural infrastructure and public service systems, and promote integrated urban-rural development. For county-level cities and super-large towns with large economic scales and fast population growth, economic and social management authority should be adjusted and expanded in due course. For cities with continuous population outflows and resource-based cities, we must continuously promote transformation and development. We must continue to advance the citizenization of the agricultural transfer population and strive to promote the coverage of basic urban public services to the entire permanent population. Advancing urbanization is a gradual process that happens naturally when conditions are ripe; it must conform to the laws of economic and social development, maintain historical patience, and must not be divorced from reality or rush for quick success.

优化现代化城市体系，必须促进大中小城市和小城镇协调发展。要推动超大特大城市“强身健体”，做强做精核心功能，控制超大城市规模，合理有序疏解非核心功能，打造高质量发展主引擎。要分类推进以县城为重要载体的城镇化建设，统筹规划建设城乡基础设施和公共服务体系，促进城乡融合发展。对经济规模大、人口增长快的县级市和特大镇，适时调整扩大经济社会管理权限。对人口持续流出的城市和资源型城市，持续推动转型发展。要继续推进农业转移人口市民化，努力推动城镇基本公共服务覆盖全部常住人口。推进城镇化是一个循序渐进、水到渠成的过程，必须符合经济社会发展规律，保持历史耐心，不能脱离实际、急于求成。

Second, make efforts to build innovative cities full of vitality. To promote high-quality urban development, innovation must be taken as the primary driving force. We must persist in applying policies tailored to each city, base actions on urban resource endowments and basic conditions, meticulously cultivate innovation ecosystems, and stimulate the vitality of innovation and entrepreneurship. Strengthen original innovation and breakthroughs in key core technologies, reinforce the synergy between scientific and technological innovation and industrial innovation, coordinate and advance the transformation and upgrading of traditional industries, the cultivation and expansion of emerging industries, and the layout and construction of future industries, and constantly make breakthroughs in developing new quality productive forces.