“大小兼容”的农地连片经营如何实现——以江苏盐城亭湖区“小田并大田”为例

How to Achieve"Large-scale and Small-scale Farmers Compatible"Contiguous Farmland Management:An Example from the Land Reform of Tinghu District in Yancheng City,Jiangsu Province

解决农地细碎化问题、实现农地连片经营有利于现代农业发展。本文把以自主治理为核心的制度分析与发展框架拓展至协同治理情景,并结合江苏盐城亭湖区的改革实践,分析如何在农地细碎化治理的同时,让小农户和规模农业经营主体都能获得合意面积的连片农地。研究发现:农地连片经营能够降低农业生产成本、增加可用耕地面积、提高农业效益和农民收入。但是,由于涉及多个相关主体且异质性农户的农地经营需求不同,“小田并大田”的集体行动难以达成。亭湖区的经验表明:构建发挥各方积极性的协同治理机制,提供具有充分包容性的制度安排,以“承包权不动,经营权连片”方式推动改革,是改变农地细碎化利用状况、实现“大小兼容”农地连片经营的有效途径;“政府支持+村民自治”是推行“小田并大田”的重要思路,农村集体经济组织对土地经营权的“统”,赋予了统分结合双层经营体制中的“统”新内涵。本文研究认为,在解决农地细碎化问题的过程中,需要强化政府的引导支持,充分发挥相关各方的自主性与积极性;提高制度供给的灵活性,形成尊重农民意愿的包容性改革路径;实现相关主体的协同治理,注重发挥农村党员干部的带头作用。

Contiguous farmland management is conducive to modern agricultural development.This paper extends the IAD framework with self-govermance as the core to the context of collaborative govermance.Based on the reform practice of Tinghu District,Yancheng City,Jiangsu Province,we analyze how to enable both small-scale and large-scale farmers to obtain satisfactory areas of contiguous farmland while conducting fragmented farmland rectification.This paper finds that contiguous farmland management reduces agricultural production costs,increase the available farmland areas,and improve farmers'income and agricultural efficiency.However,it is difficult to achieve effective collective action due to the involvement of multiple parties and heterogeneous farmland demands of different farmers.The experience of Tinghu District shows that under the current policy support and constraints,constructing a collaborative govermance mechanism that incentivizes all parties,providing institutional arrangements with full inclusivity,and implementing reforms gradually in a"remaining contracting rights while promoting contiguous distribution of management rights"manner are effective ways to change the fragmented farmland utilization and achieve"large-scale and small-scale farmers compatible"contiguous farmland management.."Govermment support+farmer self-governance"is an important approach to promoting"consolidating fragmented cropland into large blocks"'The unity of rural collectives in the management rights of land has given a new connotation to the dual-layer management system of unified and decentralized management.This study shows,to achieve large-scale and small-scale farmers compatible"'contiguous farmland management.,govermment support and guidance should be strengthened to fully utilize the autonomy and enthusiasm of relevant parties;the flexibility of institutional supply should be improved to form an inclusive reform path that respects farmers'willingness;and the collaborative governance of relevant parties should be implemented,with attention paid to the leading role of party cadres.