退耕还林与征地制度:比较与启示

Reforestation and Land Requisition System: Comparison and Implication

退耕还林、征地制度的实施对象均为农民,目标均为改变农地用途,绩效却大相径庭。制度设计差异是制度绩效差异的根源所在。这两种制度设计在补偿的公平性、合约的可逆性、土地产权的转移、农民自愿性程度、政府收益、自我雇佣等六个方面存在着差异。我国征地制度改革应遵循以下思路进行:征地补偿应按区片综合价以求公平;应考虑农地对农民的多种效用进行足额补偿;向农民提供连续收入流以切实保障农民生活;建立城乡统一的土地市场使农民意愿能够真正表达;通过征地收益的转移支付内化生态生产或破坏的外部性;缩小征地范围,非公益用地可以通过农地租赁、入股、合营来解决。

The object of reforestation and land requisition system to be implemented is peasant; the aim is to transform rural land use. But the performances of implementation are widely divergent. The paper analyses the differences of system design, involving equity of compensation, reversibility of agreement, transfer of rural land property rights, free will of peasant, local government income, and self-employment. Based on these analyses, countermeasures of reformation of land requisition system are brought forward: the block land price should be used in compensation for equity; sufficient compensation should be given to peasant allowing for many kinds of land function; sequence income should be supplied to peasant for ensuring their existence; uniform land market should be built for expressing peasant will; zoology internalization will come true by transfer payment, non-commonwealth land can be supplied in terms of rural land lease, shares or co-operation.