规划管制下农田生态补偿的研究进展分析

Researching Progress and Trends of Agricultural Land's Ecological Compensation under Land Use Planning Control

基于特殊的土地基本国情,我国实施严厉的管制制度及措施强化对优质农田的保护及管理。然而,采取禁止性或限制性强的规划管制制度,严格限制或剥夺管制区域内相关群体使用资源和空间的权利,如未提供相应的补偿或经济援助,将侵害建设区和保护区内群体的发展机会及利益,导致不同分区利益群体福利非均衡,违背环境公平。论文从农田保护的政策绩效评价、发展受限制地区实施农田生态补偿制度的机理、农田外部效益及补偿标准的测度、农田管制损失补偿及外部效益产权界定、农田生态补偿制度实施绩效及福利效应研究等方面梳理总结了国内外关于规划管制下农田生态补偿的相关研究进展及发展动态,并提出在国家实施生态补偿机制及推进主体功能区划形成与落实等政策契机下,制定基于主体功能区划框架下的农田生态补偿机制及政策,有重要的理论及实践意义。

Agricultural land plays a multi-dimensional function and role. It provides not only food and fiber, which is the important safeguard to food security of our country, but also various non- market commodities with characteristics of externalities or public goods, as an ecological barrier in protecting environment, which plays more and more important ecological and landscape functions in land use planning. Since the 1990s, large quantity of the agricultural land has been converted to construction land, the authorities have adopted series of strict policies and mechanisms to pro- tect agricultural land. The implementation of ＂basic farmland protection policy＂ prohibits land development and other non-agricultural use, and the individual landlord-farmer is losing the option value of land development and gets neither subsidies nor compensations. It is necessary to establish agricultural land＇ s ecological compensation mechanism to reach welfare equilibrium and make out related polices including functional-oriented zoning, option value assessment and so on. This paper reviews the researches of agricultural land＇ s ecological compensation and addresses future development on several aspects, including evaluating the performance of agricultural land protection policies, discussing the mechanism of agricultural land＇ s ecological compensation, calculating the compensation standards of agricultural land＇ s external benefits, defining ＂property rights＂ of agricultural land＇ s external benefits and ＂land development right＂, and predicting welfare effects of agricultural land＇ s ecological compensation. Firstly, analysis from the change of research perspective, it turns the topic of analyzing policy flaws and economic inducements under land use planning control to design the rational agricultural land＇ s ecological compensation mechanism and policies to fulfill the needs of related participants, to balance the benefits of the relevant participants. Secondly, analysis from the research topic and focus, it turns the focus from the necessary of implementing agricultural land＇ s ecological compensation mechanism to calculate agricultural land＇s external benefits and the ecological compensation standard, or to ascertain the property rights of agricultural land＇ s external benefits and the compensation of restricted areas＇ welfare loss under land use planning control, take related stakeholders＇ reciprocity into account. Thirdly, analysis from the difficulties and experiences of the related research, lessons learned from international experience, the compensation policy had some positive impact on alleviating poverty and reaching related groups＇ welfare equilibrium, and to construct a fair social environment that can make the poverty groups share each right. But imperfect monitoring system and asymmetric information act as exponential factors that influence implementation of ecological compensation, and contract design is troubled by moral hazard and adverse selection. The establish- ment of a sound regulatory system can encourage farmers, communities, equity-related subjects and local governments to participate in it as it is the key of agricultural land＇ s ecological compemsation mechanism to success. Finally, analysis from China＇ s actual land use conditions and practical need, the practical experience of developed countries＇ ecological compensation provides valuable reference for China to build agricultural land＇ s ecological compensation mechanism. At present, it is necessary and difficult to construct a fairness and efficiency agricultural land＇ s ecological compensation mechanism, to combine the policy context and China＇ s basic land resources conditions and reach the balance welfare equilibrium of related stakeholders.