日本破除小农生产格局的艰难探索:历程、成效及原因

Japan’s Difficult Exploration of Breaking the Pattern of Small-scale Peasant:Progress,Result and Reasons

以1961年出台《农业基本法》为起点,日本开启了破除小农生产格局的艰难探索。60多年来,以放松农地流转管制、开放所有权转移、开辟经营权流转、实施“认定农业者”制度、扶持“集落营农”以及赋权农地中间管理机构等重大改革为关键节点,日本相继颁布和实施了一系列旨在推进农地集中的政策法规。然而,日本的艰难探索未能有效破除小农生产格局,地块狭小、分布零散依然是日本农地的典型特征。其深层原因包括:受到农协庇护的兼业农户长期滞留农业生产,政权频繁更迭导致政策缺乏连续性和协调性,工业化和城市化进程中农地价格上涨推高流转成本,以及农耕文化等多因素影响下的农地流转市场失灵等。日本通过艰难探索得到的启示是:对推动农地集中的复杂性、长期性要有充分思想准备;瞄准目标群体,有序推动离村农民放弃兼业经营;充分调动集体经济组织积极性,防范和化解农地流转市场失灵。

Since the promulgation of the Agricultural Basic Law in 1961,Japan has started a hard exploration of breaking the pattern of small-scale peasant.During the past more than 60 years,Japan has successively promulgated a series of cropland concentration policies and regulations,with major reforms such as relaxing the control of cropland transfer,opening up the transfer of ownership and management rights,implementing the system of"Identifying Farmers",supporting"Community Farming"and empowering the intermediate management organization of cropland as the key nodes.However,the hard exploration has failed.Small and scattered plots are still the typical characteristics of agricultural lands in Japan.The deep-seated reasons include the long-term detention of part-time farmers sheltered by JA,the lack of continuity and coordination of policies under different regimes,the rise of agricultural land price in the process of industrialization and urbanization,and the failure of cropland transfer market.The enlightenments are as follows.The complexity and long-term nature of promoting cropland concentration should be fully prepared.The farmers who leave the village should be aimed at to promote them giving up part-time operation.The failure of cropland transfer market should be prevented and resolved.