农地政策调整的民情基础

Social Mores as a Context in Agricultural Land Adjustment

农地政策的调整是体制与民情互动的结果,体制一方面需要顾及农民对农地利用的诉求,同时也必须超越农民、农村的"局面性诉求"来考虑公共安全等"整体性诉求"。民情作为农地政策变动中的重要支配性力量,它既不是一个"单数",也不是静止不变的,它既在不同地区之间存在差异,也在不同时期有不同的诉求;同时体制内部自身的张力也构成了民情得以实践的空间。本文以农户在农地占有、经营过程中的公平性与便利性为主要线索,发现在分田到户之初,农民对公平性占有农地的追求胜于对耕作便利性的偏好,导致了地权在分配之初呈现出细碎化的特征;随着外出务工增多,农民非农就业机会增加及农业社会化服务体系逐渐完善,农户对耕作便利性的诉求增长并逐渐胜过占有的公平性,这使得农地政策需要调整以回应民情诉求。

The adjustment of agricultural land policy is a game result between the system(Ti Zhi)and social mores. On the one hand, the system needs to take into account the farmers’ demands for agricultural land use;one the other hand, the system has to surpass the"partial social mores"from the farmers and rural area, and consider"holistic public social mores"demands such as public safety. As an important dominant force shaping the agricultural land policy reform, social mores are neither a "singular" nor a static one. Social mores show variations across different regions and have different demands during different periods. At the same time, the inner tensions of the system leave some room where social mores can negotiate and practice. This paper uses the fairness and convenience demands made by the farmers as the main clues in understanding the process of farmland occupation management. The analysis shows that at the beginning of land redistribution, farmers prefer fairness over convenience, leading to a fine-grained division of lands. With more farmers becoming migrant workers, the increase of non-agricultural employment opportunities for farmers and the improvement of the agricultural social service system, farmers’ demand for convenience has gradually increased and outweighed the demand for fairness. This makes the farmland policy need to be adjusted in response to the changed public demands.