耕地保护优先序省际差异及跨区域财政转移机制--基于耕地生态足迹与生态服务价值的实证分析

Provincial Differences in Priority of Cultivated Land Protection and Mechanism of Transregional Fiscal Transfer Payment:An Empirical Analysis Based on Ecological Footprint and Service Value

耕地资源具有强烈的外部性,其所产生的生态效益在我国整个生态系统的维护中发挥着巨大的作用。然而,随着城镇化进程的不断加快,具有公共物品属性的耕地资源的保护形势越来越严峻,构建耕地保护经济补偿机制,调动耕地保护主体的积极性必须引起足够的重视。其中,补偿款的确定是构建耕地保护经济补偿机制的关键环节。本文以耕地生态承载力供需关系为切入点,采用生态足迹模型,并结合耕地保护经济补偿优先序,将我国31个省级行政单位划分为耕地赤字区、耕地平衡区、耕地盈余区,确定了耕地保护补偿面积;并在此基础上,以单位面积耕地的非市场价值为补偿标准,测算了各区域的耕地保护经济补偿转移支付额。结果表明:1全国共有6个耕地赤字区、7个耕地平衡区、18个耕地盈余区。26个支付区的支付款总计405.290亿元,其中,赤字量最大的上海市需要支付高达130.703亿元的补偿款;18个受偿区的受偿款总计207.286亿元,其中,盈余面积最大的黑龙江省可以获取高达28.737亿元的补偿款。3转移支付行为具有一定的现实可操作性,各支付区的支付额占当年地方财政收入的比例较低,约为1.5%-6.8%,均在政府可承受的范围之内。研究成果能为均衡我国各地区的发展提供依据,对于我国耕地保护的实施也具有重要的现实意义。

Cultivated land resources have strong externalities, and the ecological benefits produced by them play an important role in the maintenance of the whole ecological system in China. However, with the accelerating process of urbanization, the protection situation of cultivated land resources which have public goods attribute, is increasingly worse. So it should be paid sufficient attention to establish a compensation mechanism for protecting arable land and to keep cultivated land participants motivated. Among them, the calculation of compensation is the key to establish a compensation mechanism for protecting arable land. Based on the relation of supply and demand of cultivated land ecological carrying capacity, applying the model of ＇ Cultivated Land Ecological Footprints Model＇ and combining with the priority of economic compensation for cultivated land protection, this paper divided 31 province-level administrative districts of China into the deficit area, balance area, and surplus area of cultivated land; and on this basis, it calculated the amount of transfer payment of economic compensation for cultivated land protection in each region by using the non-market value of unit cultivated land as compensation standard. The results showed that：（1） Zoning results in 6 provinces of deficit area, 7 provinces of balance area, and 18 provinces of surplus area. （2） 6 payment areas totally paid 40.53 billion RMB for compensation, among them, Shanghai which had a largest deficit needs pay up to 13.07 billion RMB ; on the other hand, 18 repayment areas totally received 20.73 billion RMB for compensation, among them, Heilongjiang which had a largest surplus could obtain up to 2.87 billion RMB. （3） The fiscal transfer payment behavior had a certain practical operability. The transfer payment of each payment area accounted for a lower proportion of local government revenue in this year, about 1.5% to 6.8%, all were within the government＇ s affordable range. It is concluded that establishing a compensation mechanism for protecting arable land and carting out the inter-regional fiscal transfer payment will provide a basis of equalizing the development of each region in China, and have important practical significance for the cultivated land protection.