耕地保护经济补偿的基本问题分析及其政策路径

Basic Problems Analysis and Policy Path of the Cultivated Land Protection Economic Compensation

文章从耕地保护外部性出发,对耕地保护经济补偿的基本问题进行了界定分析。分析认为:耕地保护的外部性是耕地非农化的根本原因;耕地保护外部性类型划分、供体与受体界定,是耕地保护经济补偿体系和补偿机制构建的基础;耕地保护外部效益的内部化是解决目前耕地保护外部性问题的根本途径;耕地保护外部性的测度能够为耕地保护经济补偿标准确定提供依据;耕地保护经济补偿标准弹性区间及其动态性反映了耕地保护经济补偿实施的渐进性。在分析问题的基础上,文章提出了相关政策建议:①应尽快构建区内和区际补偿一体化的动态耕地保护经济补偿机制和补偿体系;②进一步巩固和落实农户耕地承包经营权的主体地位和耕地承包经营权的物权属性;③应将耕地外部效益统一纳入到耕地非农化成本核算体系;④建立和完善耕地保护经济补偿资金融资体系和法律保障体系;⑤提高公众的耕地保护经济补偿参与意识,加强耕地外部效益和补偿机制的科学研究。

Cultivated land is used for production and provides livelihoods for humanity. This land also has ecological and social benefits including water conservation, soil-erosion reduction, climatic regulation, environment beautification, biodiversity maintenance, food security and social stabilization. However, the ecological and social benefits are placed in the public domain, which have outstanding externalities and public good properties, and this results in a failure to incorporate ecological and social benefits in income from cultivated land use. Under this cultivated land use mechanism neglecting ecological and social benefits, the income of cultivated land is decreased and cultivated land protection willingness is reduced. The potential driving forces of cultivated land non-agricultural transfer will generate under a benefit gap and cultivated land occupancy costs spillover and induce the conversion of cultivated land into construction land. Here, basic problems regarding cultivated land protection economic compensation are defined and analyzed with cultivated land protection externalities. Cultivated land protection externalities are the root cause of non-agriculture cultivated land. The definition, types and connotation of cultivated land protection externalities are the foundation of cultivated land protection economic compensation and mechanism construction. The internalization of cultivated land protection externalities is the basic approach to solve these problems and the measurement of cultivated land protection externalities can provide evidence for economic compensation standards. Elastic interval and dynamic cultivated land protection economic compensation standards indicate gradualness of implementation. On the basis of our analysis we suggest a need to： （1） construct an integrative dynamic cultivated land protection economic compensation mechanism and system; （2） consolidate contract for the managerial rights and real rights; （3）bring external benefits into cultivated land non-agriculture cost system; （4）construct and complete fund and juristic guarantee system; and （5） improve the public＇ s sense of participation and enhance cultivated land protection externalities and economic compensation mechanism study.