“三牧”问题的制度逻辑——中国草场管理与产权制度变迁研究

The Systematic Logic Concerning the Problems of Pastoral Area, Animal Husbandry and Herdsman——Research on Pasture Management and Property Rights System Transition in China

在中国农区推行家庭联产承包责任制的背景下,牧区也仿效农区,逐步推行了以家庭为基础,以"双权一制"为基本内涵的"草畜双承包"制度。就时间次序看,这一外部输入式的产权制度改革,一方面对农牧区生产能力有一个短期的释放,另一方面却导致了市场脱嵌于社会与自然,突出表现为牧区生态退化、牧业成本攀升、牧民生计困难等"三牧"问题。文章对国内草场管理与产权制度变迁的相关文献进行了系统梳理,结合对内蒙古牧区的调研,认为牧区生态的脆弱性、牧业生产组织的互助性、牧区草场内生的弱可分性,使得草原产权具有家庭层次的不可分性。因此,需要讨论以家庭为基础的明晰产权制度在牧区的适用性。基于资源属性和不可分性的基本判定,需要在认识牧区"共有资源","公益性"和"公用性"特征的基础上,寻求一种"私地共管"基础上的"合作共管"机制,通过"赋权"、"赋能"等市场重新嵌入社会和自然的努力,促进牧区的再组织化;采纳"多中心、自主治理"的制度安排,或许会成为缓解"三牧"问题有效途径。

Having been implemented by the agricultural areas in China, the household contract responsibility system was introduced in pasturing areas, where it was called ＇ Grassland and Livestock Double - Contracted - responsibility＇ with the basic feature of ＇ ownership, rights of use and one system＇ on the basis of each household. Judged from the time series, this exogenous property right reform released the production capacity of the agricultural and pastoral areas in a short - term manner. However, it disembedded the market from the society and nature, resulting in ecological degradation, cost rising in animal husbandry and the suffering livelihood of herdsmen. This article reviews the literatures on domestic grassland management and the transitions of property rights systematically. Based on the fieldwork in Inner Mongolia, this article demonstrates the vulnerability of ecosystem, the mutual assistance of the productive organization and the weak separability of the pasture make the pasture property right inseparable at the level of the household. Therefore, it is necessary to discuss the feasibility of ＇ household - based property right system＇ in pastoral areas. According to the resource attribute and insep- arability, it is necessary to establish a ＇ cooperative management＇ mechanism. This mechanism combines the private and public administration, especially when the pastoral area is characterized with ＇ shared resource＇ , ＇ public welfare＇ and ＇ common use＇. It means an effective solution of relieving issues of ＇ pastoral area, animal husbandry and herdsman＇ is to contribute the re - organization of pastoral areas, makes use of the nature and social efforts through ＇ empowerment＇ and ＇enabling＇ the herdsman, and then adopts the ＇ multiple -centered＇ arrangement.