海外耕地保护的社会化扶持对策及其启示

Social Support for Farmland Protection:International Experience and Its Implications for China

由于耕地为公众提供了大量的、具有强烈外部性的非生产性功能,很多国家都把耕地保护作为一个公共目标,并通过社会化扶持手段来得到实施。中国作为一个人多地少,人均耕地占有量低的国家,耕地保护任务更加突出,虽然"切实保护耕地"成为我国的一个基本国策,提出要执行"世界上最严格的耕地保护",并制定了耕地总量动态平衡、土地用途管制等一系列耕地保护政策,但耕地保护整体效果却不容乐观,其中一个原因就是没有形成全社会共同保护耕地的氛围。本文对当今世界耕地保护社会化扶持的政策依据及实践手段进行综合与分析,并结合我国耕地保护的形势,提出了我国耕地保护社会化扶持的一系列对策措施,包括加快耕地产权制度建设,明确耕地保护的责任主体;重视耕地的非生产功能,提高全社会的耕地保护意识;采用综合优惠措施,激励农户的耕地保护行为;完善城镇发展规划,严格控制城镇对耕地的侵占;延长农产品产业链,增加农业产业的经济收入。

Farmland protection is a fundamental national strategy in China because of large population and concern over future food supply. In 1996, the fundennental policy that ＂the most stringent farmland protection policy in the world should he carried out in China＂ was announced by Chinese State Council. Since then, some important policies such as general dynamic balance of farmland and land use control have been implemented. However, there is still a serious concern over farmland protection. In this paper, we used the documentation method to summarize international experience in social support on farmland protection in order to develop farmland protection mechanisms in China. Our assessment clearly shows that it is widely accepted that farmland protection is mainly social responsibility and some important social actions must be taken due to the many public amenities or ＂non-market＂ outputs provided by farmland such as food security, open space, scenic landscapes, wildlife habitats, agrarian cultural heritage, and recreational opportunities. Three social actions are generally taken by various countries, including property tax policies, agricultural protection zoning and urban growth boundary, and purchase of development rights （PDR）. These findings have potential implications for farnlland protection in China. Here we suggested the following strategies on farmland protection in China： reforming the land property lights system to confirm the main responsibility for the farmland protection; paid more attention on public anlenities of farmland to improve the social awareness of farmland protection; provide more incentives to farmers; improve the urban development planning to avoid farmland reduction as a result of urbanization; extend the agricultural industry chains to increase the income of agricultural industry.