农地城市流转中农民福利变化研究
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摘要
农地城市流转是中国社会经济发展的必然要求,它保障了城市建设和产业发展的用地之需,但与此同时也产生了一些影响经济、社会平稳健康发展的问题,其中被征地农民的生存和发展就是最紧迫的问题之一。当前中国的被征地农民已经达几千万之多,这部分人的生活由于农地城市流转而发生了很大的变化,不仅当前的经济收益受到影响,而且多数农民未来的生活也因失地陷入了困顿。由于农地城市流转现象在全国各地普遍存在,而且土地问题往往涉及巨额经济利益,因此,如何保持农民福利在农地城市流转后至少不下降,继而得到进一步提高,在维护农村社会稳定和促进农村发展中的作用就显得极为重要。本文借鉴国外福利改进的判断标准和福利衡量方法,评估农民因农地城市流转的发生其福利的改变量;研究农民福利变化的影响因素以及农民间福利差距的变化;探讨在静态和动态角度下农地城市流转后福利的优化。为解决上述问题,笔者进行如下研究并得出相关结论。
(1)对福利的概念界定、改进标准、量化方法等进行讨论,以Sen的可行能力理论建立了农民福利研究的主要理论框架,将农民福利界定为由家庭经济收入、社会保障、居住条件、社区生活、环境和心理等6个方面的功能性活动构成。以在湖北省武汉市、宜昌市、荆门市和仙桃市实地调查所获的385份被征地农户问卷为研究样本,分析了被征地农民福利变化状况。研究表明农地城市流转后被征地农民福利总体变差且福利差距拉大;构成被征地农民福利的各项功能性活动在农地城市流转前后变化方向、变化程度各异。就湖北省总体而言,除农民居住功能指数上升外,其他功能指数全部下降。其中,土地带给农民的社会保障功能和环境功能变化最为显著,家庭经济收入、社区生活和心理状况指数也都有所下降,而家庭经济收入状况在农地城市流转前就已经处在较低的水平上,农地城市流转后状况更为恶化。
(2)根据Sen的可行能力理论,个人、社会环境等特征在资源向福利转换的过程中起到了不同的转换作用。本文选择了农户家庭特征和所在地区社会经济发展特征作为被征地农民福利的转换因素,通过检验发现,农户特征:农民家庭中被抚养人口的比重、受访者的教育水平因素以及地区社会经济特征:农民所在村距离地市级中心的远近、本村经济实力等因素对农民福利的转换作用显著。因此政府可针对具有不同特性的个体或群体采用相应的补偿方式,这将对改善被征地农民的福利状况、减小福利差异、促进社会和谐发展有重要意义。
(3)通过对被征地农民福利的衡量发现,要减少农地城市流转中农民福利的损失,就要从根本上降低农民对土地的依赖性,就要从根本上将农民从土地上转移出来,有能力从土地之外的渠道赚取收入,这样,增强农民的可行能力就成为必须。而提高农民可行能力最关键、最本质的是使农民具备能够吸纳更多财富、创造更多财富的能力,即提高他们的素质,增强他们参与城市社会经济活动、在新的环境下生存发展的能力。
(4)从静态和动态角度分别研究农地城市流转福利优化。在静态分析时,构建包括各权利主体的社会福利函数,通过总体福利优化分析,得到以下结论:应全面评估各主体的福利变化,特别是要全面评估农地之于农民和集体的经济效用、社会效用和生态效用;要使农民对土地的权利在流转过程中得到充分体现;严格规范政府征地行为,提倡经济、社会和生态三效益统筹发展。在动态分析中,通过建立动态最优化模型,分别研究农民福利最优和区域总体福利最优条件下农地城市流转最适路径,结论如下:若以农民福利最优为决策目标,假设农民继续保有农地的边际效用增加,则有强烈提高补偿价格的需求;而从总体决策来看,当农民持有农地的边际效用增加,且其边际效用大于开发商和地方政府流转农地的边际效用时,补偿价格会增加,但可能不如农民最优决策时增加的多;在农民最优流转决策中,并未考虑货币在不同主体之间的边际效用不同这一因素的影响,而在总体福利最优流转决策中,当货币对农民的边际效用大于对开发商和政府的边际效用时应该提高补偿基数或增加补偿增长速率,以使流转顺利进行,保证总体福利改进;从补偿方式来看,补偿价格基数变动和补偿指数增长倍数的变动具有不同的补偿效果。对于被征地农民福利补偿的实证研究,以武汉市为例,提出主要采取一定的货币补偿加安排养老保障的补偿思路,同时政府或集体经济组织应加强社区文化娱乐设施的配套以及生活服务设施、安全保障设施的建设和完善,着力营造良好的生活环境。
根据对被征地农民福利变化的分析以及在静态、动态视角下社会总体福利优化的探讨,结合中国农地城市流转实际,提出农民福利调整的制度和政策建议,包括各地应结合当地的实际情况制定适当的补偿政策;新旧补偿政策应做好衔接工作;加强对征地补偿费的监管和监督等。最后讨论了文章在福利指标体系建立、研究结论局限性等方面的不足之处,并对未来需进一步研究的方向进行了展望。
Rural-urban land conversion plays important roles in the process of social and economic evolution, which supplies land for city construction and industry development. However, some problems are also unfolded, such as expropriated fanners' subsistence. There are thousands upon thousands expropriated farmers' up to now in China whose life is affected a lot because of rural-urban land conversion. They are not only dissatisfied with the compensation in land requisition but also the lurch life. It's so serious that cases of farmers appeal to higher authorities have been on the increase in all parts of China. Because of the phenomenon of rural-urban land conversion is nationwide, and with large sums of money, keeping farmers' welfare unchanging and then improving it are so important to maintain the rural social stability and development. This paper evaluates the change of farmers' well-being in the process of rural-urban land conversion, and examines the factors which convert the welfare vary to different extents. And how to allocate resources to optimize the social welfare in static and dynamic states are explored. The research results are as follows:
Firstly, based on discussing the welfare concepts, improving criterion, and quantification methods, Sen's capability approach is chosen to analyze the farmer's well-being. And six functionings constitute farmers' well-being, which are economic condition, social security, housing conditions, social life, environment and psychological conditions. By means of a survey based on a representative sample of farmers whose rural land is expropriated in urban fringe area of Hubei province, this paper analyzes these fanners' welfare states and finds that the level of farmers' well-being declined slightly. The functionings have changed differently. All functionings indexes decrease except the housing condition index. And the social security and environment functionings changed mostly. Economic condition, social life and psychological conditions dropped too. With the rural-urban land conversion, farmers' economic conditions worsened.
Secondly, according to Sen's capability approach, the factors, such as personal and social characteristics, can help or hinder the translation of commodities into functionings. Farmers' families' characters and local economical conditions are inspected as the conversion factors. And we get the conclusions that farmers' well-being changed variously because of the different households, social and economic characters. Therefore, different groups should be compensated with different patterns.
Thirdly, social welfare function which constituted by subjects of rights is built up. If the utility change of local government and developer equals to the farmers' and the collectives', social welfare will be optimized. Hamiltonian model is used to uncover that how to adjust the compensation to farmers at a definite conversion rate, when time is considered. We found that compensation should be increased with rural-urban land conversion, for the land utilities to fanners are bigger, while money's is smaller. Meanwhile, to keep the long-term welfare optimized, the compensation should be exponentially raised. When social marginal utility is a positive number and discount rate is greater than the rate of compensation growing, keeping convert rural land will in favor of total welfare optimization. But, if discount rate is less than the rate of compensation growing, conversion should be forbidden. An empirical study of farmers' compensation is conducted taking Wuhan city for an example.
Fourthly, in order to reduce the loss of farmers' welfare in the process of rural-urban land conversion, we must weaken the role of land in farmers' welfare construction. Then farmers' capabilities must be strengthened and the inner quality should be raised to participate in urban social and economic activities.
At the end of dissertation, some suggestions for adjusting the land expropriated farmers' welfare are put forward, such as drawing up compensation policy according to the social and economic conditions; amending the compensation standard dynamically, etc. In the end, some issues and future work for this research are discussed.
(1)对福利的概念界定、改进标准、量化方法等进行讨论,以Sen的可行能力理论建立了农民福利研究的主要理论框架,将农民福利界定为由家庭经济收入、社会保障、居住条件、社区生活、环境和心理等6个方面的功能性活动构成。以在湖北省武汉市、宜昌市、荆门市和仙桃市实地调查所获的385份被征地农户问卷为研究样本,分析了被征地农民福利变化状况。研究表明农地城市流转后被征地农民福利总体变差且福利差距拉大;构成被征地农民福利的各项功能性活动在农地城市流转前后变化方向、变化程度各异。就湖北省总体而言,除农民居住功能指数上升外,其他功能指数全部下降。其中,土地带给农民的社会保障功能和环境功能变化最为显著,家庭经济收入、社区生活和心理状况指数也都有所下降,而家庭经济收入状况在农地城市流转前就已经处在较低的水平上,农地城市流转后状况更为恶化。
(2)根据Sen的可行能力理论,个人、社会环境等特征在资源向福利转换的过程中起到了不同的转换作用。本文选择了农户家庭特征和所在地区社会经济发展特征作为被征地农民福利的转换因素,通过检验发现,农户特征:农民家庭中被抚养人口的比重、受访者的教育水平因素以及地区社会经济特征:农民所在村距离地市级中心的远近、本村经济实力等因素对农民福利的转换作用显著。因此政府可针对具有不同特性的个体或群体采用相应的补偿方式,这将对改善被征地农民的福利状况、减小福利差异、促进社会和谐发展有重要意义。
(3)通过对被征地农民福利的衡量发现,要减少农地城市流转中农民福利的损失,就要从根本上降低农民对土地的依赖性,就要从根本上将农民从土地上转移出来,有能力从土地之外的渠道赚取收入,这样,增强农民的可行能力就成为必须。而提高农民可行能力最关键、最本质的是使农民具备能够吸纳更多财富、创造更多财富的能力,即提高他们的素质,增强他们参与城市社会经济活动、在新的环境下生存发展的能力。
(4)从静态和动态角度分别研究农地城市流转福利优化。在静态分析时,构建包括各权利主体的社会福利函数,通过总体福利优化分析,得到以下结论:应全面评估各主体的福利变化,特别是要全面评估农地之于农民和集体的经济效用、社会效用和生态效用;要使农民对土地的权利在流转过程中得到充分体现;严格规范政府征地行为,提倡经济、社会和生态三效益统筹发展。在动态分析中,通过建立动态最优化模型,分别研究农民福利最优和区域总体福利最优条件下农地城市流转最适路径,结论如下:若以农民福利最优为决策目标,假设农民继续保有农地的边际效用增加,则有强烈提高补偿价格的需求;而从总体决策来看,当农民持有农地的边际效用增加,且其边际效用大于开发商和地方政府流转农地的边际效用时,补偿价格会增加,但可能不如农民最优决策时增加的多;在农民最优流转决策中,并未考虑货币在不同主体之间的边际效用不同这一因素的影响,而在总体福利最优流转决策中,当货币对农民的边际效用大于对开发商和政府的边际效用时应该提高补偿基数或增加补偿增长速率,以使流转顺利进行,保证总体福利改进;从补偿方式来看,补偿价格基数变动和补偿指数增长倍数的变动具有不同的补偿效果。对于被征地农民福利补偿的实证研究,以武汉市为例,提出主要采取一定的货币补偿加安排养老保障的补偿思路,同时政府或集体经济组织应加强社区文化娱乐设施的配套以及生活服务设施、安全保障设施的建设和完善,着力营造良好的生活环境。
根据对被征地农民福利变化的分析以及在静态、动态视角下社会总体福利优化的探讨,结合中国农地城市流转实际,提出农民福利调整的制度和政策建议,包括各地应结合当地的实际情况制定适当的补偿政策;新旧补偿政策应做好衔接工作;加强对征地补偿费的监管和监督等。最后讨论了文章在福利指标体系建立、研究结论局限性等方面的不足之处,并对未来需进一步研究的方向进行了展望。
Rural-urban land conversion plays important roles in the process of social and economic evolution, which supplies land for city construction and industry development. However, some problems are also unfolded, such as expropriated fanners' subsistence. There are thousands upon thousands expropriated farmers' up to now in China whose life is affected a lot because of rural-urban land conversion. They are not only dissatisfied with the compensation in land requisition but also the lurch life. It's so serious that cases of farmers appeal to higher authorities have been on the increase in all parts of China. Because of the phenomenon of rural-urban land conversion is nationwide, and with large sums of money, keeping farmers' welfare unchanging and then improving it are so important to maintain the rural social stability and development. This paper evaluates the change of farmers' well-being in the process of rural-urban land conversion, and examines the factors which convert the welfare vary to different extents. And how to allocate resources to optimize the social welfare in static and dynamic states are explored. The research results are as follows:
Firstly, based on discussing the welfare concepts, improving criterion, and quantification methods, Sen's capability approach is chosen to analyze the farmer's well-being. And six functionings constitute farmers' well-being, which are economic condition, social security, housing conditions, social life, environment and psychological conditions. By means of a survey based on a representative sample of farmers whose rural land is expropriated in urban fringe area of Hubei province, this paper analyzes these fanners' welfare states and finds that the level of farmers' well-being declined slightly. The functionings have changed differently. All functionings indexes decrease except the housing condition index. And the social security and environment functionings changed mostly. Economic condition, social life and psychological conditions dropped too. With the rural-urban land conversion, farmers' economic conditions worsened.
Secondly, according to Sen's capability approach, the factors, such as personal and social characteristics, can help or hinder the translation of commodities into functionings. Farmers' families' characters and local economical conditions are inspected as the conversion factors. And we get the conclusions that farmers' well-being changed variously because of the different households, social and economic characters. Therefore, different groups should be compensated with different patterns.
Thirdly, social welfare function which constituted by subjects of rights is built up. If the utility change of local government and developer equals to the farmers' and the collectives', social welfare will be optimized. Hamiltonian model is used to uncover that how to adjust the compensation to farmers at a definite conversion rate, when time is considered. We found that compensation should be increased with rural-urban land conversion, for the land utilities to fanners are bigger, while money's is smaller. Meanwhile, to keep the long-term welfare optimized, the compensation should be exponentially raised. When social marginal utility is a positive number and discount rate is greater than the rate of compensation growing, keeping convert rural land will in favor of total welfare optimization. But, if discount rate is less than the rate of compensation growing, conversion should be forbidden. An empirical study of farmers' compensation is conducted taking Wuhan city for an example.
Fourthly, in order to reduce the loss of farmers' welfare in the process of rural-urban land conversion, we must weaken the role of land in farmers' welfare construction. Then farmers' capabilities must be strengthened and the inner quality should be raised to participate in urban social and economic activities.
At the end of dissertation, some suggestions for adjusting the land expropriated farmers' welfare are put forward, such as drawing up compensation policy according to the social and economic conditions; amending the compensation standard dynamically, etc. In the end, some issues and future work for this research are discussed.
引文
1 资料来源:中国资讯行
2 资料来源:http://www.jgny.net/news/200308/7297.htm
3 资料来源:http://news.sohu.com/s2006/06shidinongminlifa/
6 何平,贫困测量方法综述。文章来源:http://www.chmp.sdu.edu.cn/messhowl.php?id=116
7 资料来源:http://news.sohu.com/20060627/n243971143.shtml
8 资料来源:http://news.china.com/zh_cn/news100/11038989/20060617/13408615.html
9 资料来源:http://www.gznet.com/news/national/szyw/200709/t20070911_304160.html
22 资料来源:http://www.china.com.cn/market/news/442825.htm
23 资料来源:http://news.ungou.com/ungou-news-122849.html
25 资料来源:http://housc.inhe.net/zhuanti/07yhjx_12_21/,http://financc.sina.com.cn/roll/20080121/02401946614.shtml
26 武汉市2005年人均农用地面积为2.89亩,考虑这个数值是整个武汉市的平均水、包括了人均农地面积较多的远郊典型农村,而农地城市流转主要集中在近郊的城乡结合部,这一地域的人均农地面积本来就少于远郊农村,困此选用在城乡结合部调查所得样本的人均农地面积2.16亩为计算基数较为合适。
27 资料来源:http://www.hliisw.gov.cn/rkbk/cjzl/200706/t20070621_2261.htm
28 资料来源:http://www.hb.chinanews.com.cn/news/2007/2007-05-08/80859.html
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2 资料来源:http://www.jgny.net/news/200308/7297.htm
3 资料来源:http://news.sohu.com/s2006/06shidinongminlifa/
6 何平,贫困测量方法综述。文章来源:http://www.chmp.sdu.edu.cn/messhowl.php?id=116
7 资料来源:http://news.sohu.com/20060627/n243971143.shtml
8 资料来源:http://news.china.com/zh_cn/news100/11038989/20060617/13408615.html
9 资料来源:http://www.gznet.com/news/national/szyw/200709/t20070911_304160.html
22 资料来源:http://www.china.com.cn/market/news/442825.htm
23 资料来源:http://news.ungou.com/ungou-news-122849.html
25 资料来源:http://housc.inhe.net/zhuanti/07yhjx_12_21/,http://financc.sina.com.cn/roll/20080121/02401946614.shtml
26 武汉市2005年人均农用地面积为2.89亩,考虑这个数值是整个武汉市的平均水、包括了人均农地面积较多的远郊典型农村,而农地城市流转主要集中在近郊的城乡结合部,这一地域的人均农地面积本来就少于远郊农村,困此选用在城乡结合部调查所得样本的人均农地面积2.16亩为计算基数较为合适。
27 资料来源:http://www.hliisw.gov.cn/rkbk/cjzl/200706/t20070621_2261.htm
28 资料来源:http://www.hb.chinanews.com.cn/news/2007/2007-05-08/80859.html
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