The empirical analysis of the panel data of 18 cities in Henan Province during 20042008 shows that after urban-rural income gap, the level of industrialization and health care situation are controlled, population urbanization can still be observed because of urban-biased expenditure on education. This result indicates that from the partial equilibrium point of view, the Government can by itself regulate the speed and rhythm of urbanization within a certain range and extent， from the general equilibrium point of view, the equalization of public services will be a long-term goal that may be difficult to be achieved and need to be in depth researched and long-term strived.