陕北"一户一田"和"一组一田"耕地细碎化整治模式与绩效评价
Pattern and evaluation of land consolidation model for "One Household One Plot" and "One Village One Plot" to solve land fragmentation in Northern Shaanxi Province, China
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摘要: 耕地细碎化是当前制约中国农业现代化发展的重要因素，如何解决耕地细碎化问题已经成为推动小农户和现代农业有机衔接的必然路径。该研究基于实地农户调研数据和半结构访谈内容，对陕北榆林市榆阳区首创的“一户一田”和“一组一田”2种耕地细碎化整治模式进行系统剖析，并采用双重差分（Difference-in-difference, DID）模型定量分析2种模式的绩效差异。研究发现：1）“一户一田”模式是农民自发的产权重组和分散流转，并与政府支持的土地整治项目叠加与综合；“一组一田”模式是一种“以家庭承包经营为基础、统分收放自如的双层经营体制”创新模式，也是产权改革、统分流转、土地整治与统分经营管理的有机结合。2）“一户一田”和“一组一田”两种模式均能有效解决耕地细碎化问题，显著增加耕地面积，实施后耕地面积增加率分别为6.02%和57.58%；同时也使得农业机械化水平有所提高，显著提升农业生产效率与作物产量，作物产量增加率分别为12.54%和19.87%，“一组一田”提升更为明显。3）2种模式均有利于提高农户收入，“一户一田”主要是通过增加农业种植收入来提高总收入；“一组一田”对农户收入提升更加显著，除增加农业收入外，也通过产业转型增加了务工收入。与“一户一田”模式相比，“一组一田”模式更能够促进集中连片、规模扩大、设施完善、经营现代化的高标准农田建设。为解决耕地细碎化问题，应加强政策引导和支持，挖掘村内能人价值，明晰合作社、分社和农民的责、权、利关系等，促进小农户和现代农业发展有机衔接。Abstract: Cultivated land fragmentation has become a key constraint problem in the process of China’s agricultural modernization, while solving the problem provides a necessary prerequisite for effective connection between small-scale farmers and industrial agriculture. Taking the Yuyang district of Yulin City, Northern Shaanxi province as a case study, this study aims to conduct a comprehensive analysis on two local newly-innovated cultivated land consolidation models, namely “One Household One Plot” and “One Village One Plot” models, meanwhile to quantitatively investigate the performance differences of the two models by applying the descriptive statistics method and the difference-in-difference (DID) models, based on a dataset from household survey and sub-structural interview. Under “One Household One Plot” pattern, a subsidy of 3 000 yuan/hm2 is granted by local government to encourage farmers to merge the scattered plots into one large plot for each household, whereas under the “One Village One Plot” pattern, all scattered land plots in a village are integrated into only one plot and thereby can be unified managed by a farmer cooperative or an agricultural enterprise, whereby farmers can retain the land contracted rights but transfer the use rights to the operation agents. The results suggest that: 1) The “One Household One Plot” model is essentially a combination of the land property rights reorganization and decentralized circulation spontaneously conducted by individual farmers, with the land consolidation projects supported by the government; The “One Village One Plot” model is an innovation based on the “two-tiered management system” and “household contract responsibility system”, which provides an integration avenue for property rights reform, land consolidation, land circulation, and combination of both unified and decentralized management modes. 2) Both models significantly increased the area of cultivated land, thereby to solve the fragmentation problem. After land consolidation, the increase rates of cultivated land area were 6.02% and 57.58%, respectively. Both models can remarkably improve the production efficiency, 12.54% and 19.87%, respectively, due to the application of the mechanized operation in cultivated production. Both results indicate that the “One Village One Field” model is more effective than the “One Household One Plot” model. 3) Both models significantly increased farmers’ income. In comparison, the “One Household One Plot” increase farmer income only by increase the agricultural production efficiency, whereas the “One Village One Plot” by the increase in agricultural production efficiency and labor income from both farmland and non-farm employment. Three policy recommendations were made: 1) The government needs to refine policies for the guidance and support on cultivated land consolidation. 2) Fully exploit the positive roles played by village talents. 3) Clarify the responsibilities, rights and benefits of local governments, cooperatives, and farmers, hence to create innovative mechanisms for solving the cultivated land fragmentation problem and achieve the goal of appropriate scale and industrial operation of agriculture in China.
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