农村土地征迁数字化改革的系统框架设计

System framework design of the digital reform of rural land acquisition and relocation

当前,数字化已经成为推进国家治理体系和治理能力现代化的核心着力点,也是农村土地治理未来改革的关键方向之一。针对传统农村土地征迁中存在交易成本过高问题,该研究基于交易成本理论视角,探索了农村土地征迁数字化改革的“需求挖掘-底线划定-功能支撑”三维系统框架,强调要在厘清政府、用地单位、土地原权益主体的基本需求、核心需求和冲突需求的基础上,坚持治理的法律底线、空间底线和监管底线,进而分类设计各个数字化现实与未来功能模块以充分降低交易成本、集成多元共享、提升运作效率。结果表明:该系统框架能够有效指导浙江省智慧“数字征迁”系统的开发设计,通过“需求挖掘”满足了政府、用地单位、村集体和农民三类主要参与者的基本与核心需求,分析化解了信息不对称、话语权博弈、冲突传导等问题;通过“底线划定”明确了征迁流程法律与空间的执行边界,实现了征迁全流程监管系统构建并稳定了征迁环境;通过“功能分析”统筹了数字征迁的现实功能与升级功能,最终能够降低协商与决策成本,执行与监管成本,以及管理与沉没成本。此外,该系统框架也能为未来农村土地治理数字化转型提供参考,助力提升国土空间数字化和治理能力现代化水平。

Digitization has been one of the significant directions in the rural land governance reform in the future. However, it is still lacking in the logical concepts and framework for the digital governance of rural land. In this study, a three-dimensional system framework of "demand-baseline-function" was established using the perspective of the transaction cost. An emphasis was also put on the construction of the digital system for land acquisition and relocation. Firstly, the basic, core and conflict needs of the participants were clarified ranging from the government, land users, and the original land stakeholder. Secondly,the bottom line was defined as the legal, spatial, and regulatory governance. Thirdly, the digital system was classified to design various digital realities. The future functional modules were selected to entirely reduce the transaction costs, thereby integrating the multiple sharing systems for the overall operational efficiency. In addition, Zhejiang Province of China was selected as the experimental area for the system design. The reason was that Zhejiang Province had been the representative region in the digital reform of land governance in recent years. Nevertheless, there was a high transaction cost in the process of land acquisition and relocation. It is also a high demand to effectively build a digital system during this time. As such, the actual system was designed to combine with the improved the digital framework. The result showed that the "demand-baseline-function" framework effectively guided the development and design of the "intelligent land acquisition and demolition" digital system in the actual application situation. The transaction costs were also reduced to fill the logical blank for the previous system of digital land governance. The demand analysis demonstrated that the improved system provided the port to fully meet the basic and core needs of the government, land users, collectives, and farmers. The information asymmetry,discourse game, and conflict transmission effectively reduced the transaction cost of the game between the subjects. The bottom line was clarified for the implementation boundary of the law and space of the land requisition and relocation process.The whole supervision system of land requisition and relocation was constructed to stabilize the land requisition and relocation environment. The functional analysis revealed that the improved system coordinated the actual and upgrade function of the "intelligent land acquisition and demolition" digital system. The logical framework effectively reduced the negotiation and decision cost, while the implementation and supervision cost, as well as the management and sunk costs in the land acquisition and demolition. Therefore, the "demand baseline function" framework can provide a strong reference for the transaction cost in the digital reform of land governance. Anyway, the underlying construction logic of the framework can also be applicable to the other areas without the digital construction guidance, providing for the most general transaction cost in the rural land governance. In addition, the logical framework of the system can also provide a strong reference for the digital transformation of rural land governance in the future, in order to improve the digital level of land space and the modernization of governance capacity.