农地城市流转对失地农户福利影响及征地补偿研究
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摘要
随着改革开放的不断深入,城镇化进程的不断推进,中国的城乡二元结构呈现新特点。一方面,大批农民工涌入城市,导致农村劳动力缺乏,很多田地荒废。另一方面,城市建设用地需求旺盛,农地城市流转频发。农地城市流转会对农民、农村、农业产生广泛而深刻的影响,尤其对农民影响更为深远。本文从被征地农民福利的角度,研究新形势下农地城市流转引发的福利效用。选取武汉城市圈被征地农民为研究对象,以阿马蒂亚·森的可行能力理论为基础,采用问卷调查法获取失地农户征地情况以及征地前后农民生活的变化。主要采用结构方程模型、二元Logistic模型等定量分析工具,结合定性分析法,得到了影响农民土地征收意愿的影响因素以及影响土地城乡流转过程中农民的福利的变化的主要因素,最后将武汉城市圈分为武汉市和其他四市进行对比分析,结合可持续生计框架来探讨如何使失地农民走向可持续生计的道路。
研究结论主要有以下几点：
1.失地农民征地补偿偏差。以2009年湖北省下发新征地补偿标准为界：(1)新标准下发前：仅从最低土地补偿费来看,实际补偿多数与补偿标准一致；若同时考虑安置补助费,则多数实际补偿低于补偿标准；(2)新标准下发后：据调查到的2010年后发生征地的35个样本,仅浠水县补偿率达到和高于100%,其余多数没达标。
2.失地农民征地意愿。(1)失地农民征地意愿普遍偏低。据统计,武汉市愿意被征地的农户仅占7.57%,其他四市占14.49%,愿意被征地的农民中,多数仅愿被征1/4的土地；(2)失地农民更期望将土地用于工业和基础设施；(3)征地前对耕地的依赖度、征地补偿合理性、征地对就业的影响对失地农民的征地意愿有显著影响,分别为负影响、正影响、正影响。
3.征地因素对农户福利的影响。(1)农户福利(能力)可由家庭社保、家庭经济、居住环境、闲暇与健康、住房质量和就业机遇来测量。武汉市和其他四市的结构方程模型均显示家庭能力与以上分福利有很强的相关关系,只是影响大小不同。武汉市家庭能力对各子福利维度的影响总体较明显且相互间差异较明显,而其他四市总体影响相对略低且各因素的影响差异较小；(2)征地面积和补偿高低(征地因素)均对总福利产生正面影响。对于武汉市,补偿高低对农户功能变化的影响比征地面积大；而其他四市则相反。可能原因：武汉市普遍征地较多,有的家庭先后被征数次,即便单看征地面积,对武汉市失地农民的影响也更大,另外,征地面积越多,征地补偿高低对农民家庭越重要,又增强了征地面积对农民家庭福利的影响；(3)征地因素对家庭分福利的影响。对武汉市而言：征地面积对闲暇及健康没有直接关系；对其他四市,为负相关关系。原因：武汉市失地农民就业机遇较好,即便没失地也可到城市打工,失地后没有因此而减少劳动时间；而其他四市就业机遇较差,没征地前,多半农民以经营农业为主,土地被征后,要到外打工,因而征地面积越多,闲暇及健康越差；武汉市和其他四市的补偿高低对失地农户经济和住房质量均产生正向影响。
4.使失地农民实现可持续生计的路径和合理补偿的政策建议。(1)使失地农民实现可持续生计的路径。无论是特别依恋土地型、无所谓型还是特别厌恶土地型失地农民,采用单一货币补偿方式均不利于农民的长久生计。且从失地农民的生计资本可看出,多数农民各计资本均很弱,征地补偿应足以使其生计资本造成的冲击得以缓解和恢复。从可持续生计的角度出发,对人力资本缺失的农民,增加其人力资本投资；对物质资本缺失的农民,应创造就业和创业机会；对金融资本缺失的农民,应创建多元的农村金融体系；对社会资本缺失的农民,应为其提供多样化补偿方式,为他们提供社会保障。(2)为做到失地农民补偿的全面、合理,还应丰富补偿内容、优化补偿方式、公开补偿程序等,逐步优化征地制度,使之不断适应社会发展。丰富补偿内容要让补偿至少使失地农民生活水平与社会发展同步,足够弥补其损失,包括对土地本身的补偿,失地农民身份改变的摩擦成本补偿及机会成本补偿；优化补偿方式是要改变以单一货币补偿为多手段并存,使失地农民足以应对失地后风险,使其长远生计有保障；公开补偿程序是要改变过去征地过程的暗箱操作,减少中间环节产生的利益截留；逐步优化征地制度是要转变社会资源主要向城市倾斜的原则,对农村适度照顾,营造城乡统一、市民和农民共享社会发展成果的良好社会局面。在适当时候,要探索出合理的方案使农民真正将土地的农用使用权变更为对土地的建设用地使用权,实现其土地财源的收入。
At present, Wuhan Metropolitan as a whole is in the medium stage of industrialization accompanied with the huge demand for construction land. Especially in rural and urban fringe, the scale of rural-urban land to meet the urban development is increasing. At the same time,land requisition produces a large number of landless peasants.Taking account to the land requisition compensation standards in most regions, the prevalence of low compensation standards and the single mode of compensation generate a lot of social contradictions and conflicts that affect the long-term livelihood of the landless peasants.Therefore, research on the actual compensation loss for landless farmers, land acquisition will and the impact of land acquisition on the welfare of peasant's families, as well as how to compensate so as to make the livelihood of landless peasants sustainable, is an imperative study of practical and theoretical significance.
Basing on this understanding, this paper takes the landless peasants in Wuhan Metropolitan as research subjects, under the guidance of the family feasible capacity theory extended from Amartya Sen's capability theory; use the questionnaire method to get the material of the landless farmers land acquisition, and do the next research with these data. Using the quantitative analysis tools of structural equation modeling and binary Logistic model combined with qualitative analysis, this study divides the Wuhan Metropolitan into Wuhan and other four cities which are contrastively analyzed, and finally combining with the sustainable livelihoods framework investigates how to compensate landless peasants to make them tend toward the path of sustainable livelihoods.
The main conclusions are as following:
1. The land requisition compensation status of landless peasants
The differences between actual compensation and compensation standards are analyzed in two periods of time, divided by the time of issuing the new land acquisition and compensation standards in Hubei Province in2009.(1) the new Land acquisition compensation standards are not issued:When we compare the actual compensation with compensation standards, from the view of the minimum land compensation fees, the actual compensation and the compensation standards are consistent in most cases. However, if the subsidy is to be placed into account, the actual compensation is below the standard of compensation;(2) the new land acquisition compensation standards are issued: When we compare the actual compensation with the new land compensation standards, according to the investigation of the35samples occurred after the2010land acquisition, only Xishui County's rate of compensation is up to and higher than100%, while the remainder are not up to the standards of compensation.
2.The land acquisition will of the landless peasants
(1)The land acquisition will of landless peasants is generally low. According to the questionnaires collected in Wuhan City, the quantity of the willing peasants'accounts for7.57%.In the other four cities, the willing peasants'accounts for14.49%willing. And most peasants are only willing to be expropriated1/4of their land, the peasants who is unwilling to be expropriated any land or willing to be expropriated all of his land are in the minority.(2)The peasants expect the expropriated land can be used for industrial and infrastructure, the willingness of other uses is weak.(3)Attachment to the state before the land acquisition, the expected or actual impact after land acquisition, land requisition compensation fairness and reasonableness have the combined effect on the land acquisition will of the landless peasants.
Although the factors effecting land acquisition willingness of landless peasants in Wuhan City and the other four cities are more or less vary, but the dependence of arable land before the land acquisition, rationality of land acquisition compensation, and the impact on employment have consistent significant effect on the land acquisition willingness of landless peasants
Among there, dependence of arable land before the land acquisition has a negative impact on land acquisition willingness; land compensation rationality and the impact on employment have a positive impact on land acquisition willingness. The three factors just correspond to the farmers'attachment to the state before the land acquisition, land acquisition and compensation fair and reasonable, and the expectation after the land acquisition which three types of core elements affecting the peasants land acquisition willingness
3. The impact of land acquisition on the welfare of peasant's families
(1)Peasant Family Welfare (capability) could be measured by family social security, family economics, living environment, leisure and health, quality of housing and employment opportunities. Both Wuhan's SEM and other four cities'SEM show that the family capability has a strong correlation with other; the difference is different weights of the correlation inter-dimension. Family function of Wuhan has an obvious effect on the various sub-dimensions and the difference of the family function'effect on sub-dimensions is also obvious, while in the other four cities the overall effect is relatively slightly lower and the difference of the family functions'effect on sub-dimensions is not so obvious.
(2)Land acquisition causes a certain impact on family function (total welfare). The area of expropriated land and the compensation level both have a positive impact on the overall welfare; however these two factors have Different impact on family functioning. In Wuhan City, the compensation level of peasants'functional changes is greater than the impact of the land area, while in the other four cities, the opposite is true. Possible causes: In Wuhan City, more land has been expropriated; some families have been expropriated several times, so the area of expropriated land in Wuhan has more influence in the family welfare. In addition, the more area of land is expropriated; land requisition compensation and the level have more influence on farmers'welfare. That is, more land acquisition area, the greater impact on the welfare of the peasant families; more land acquisition area, the level of land requisition compensation is more important, then enhance the impact of the land area on the welfare of farm families.
(3)Land acquisition'impact on the sub-welfare of the family. Wuhan City:the land area is not directly related to the leisure and health; other four cities, the negatively related. The reason is better employment opportunities for landless peasants in Wuhan City. They can also go to work in cities even before the land acquisition, so land acquisition has less effect on his labor time; therefore land acquisition has not a direct positive impact on the leisure and health. Employment opportunities in other four cities were not very good. Before land acquisition, most of the farmers engaged in agriculture-based land. so once their land is expropriated, they have to go for a work far from the, which causes less leisure time and worse health. Then look at the effect of the compensation level on family economy and housing quality.The level of compensation has a positive impact on the family economy and housing quality both in Wuhan City and the other four cities.
4. Policy recommendations to make landless farmers achieve sustainable livelihoods path and obtain reasonable compensation
(1)Making landless farmers achieve sustainable livelihoods path. No matter the peasants who have special attachment to land, peasants who don't matter or peasants who particularly disgust land, the single monetary compensation is not conducive to long-term livelihood of the peasants. And from the livelihoods capital of landless peasants we can be seen, most peasants livelihoods capital is weak, so land acquisition compensation has to be sufficient to mitigate and restore livelihoods capital harmed by land acquisition. From the perspective of sustainable livelihoods, the farmers of the lack of human capital could get more investment in human capital. Farmers, lack of physical capital, should get employment and entrepreneurial opportunities. Farmers, lack of financial capital, ought to enjoy a diversified rural financial system. Farmers, lack of social capital should be provided a variety of compensation, be provided the social security.
(2)To make the compensation for landless peasants comprehensive, reasonable, compensation content should be enriched, the method of compensation should be optimized, compensation procedures should be above board, and the government could gradually optimize the land requisition system, so as to continuously adapt to the social development
Enriching compensation content is to compensate the landless peasants to at least make their'living standards develop synchronously with social development. The compensation is sufficient to cover its losses, including compensation for the land itself, friction costs of the change in the status of landless peasants and the opportunity cost. Optimize the method of compensation is to change the single way of the monetary compensation to the various means to co-exist, so that the landless peasants could confidently deal with the risk after land acquisition to assure the long-term livelihood security.Opening compensation program is to eliminate the secret operations of the past in land acquisition process, to reduce the interception of interests occurring in the intermediate links. Gradually optimizing the system of land acquisition is to change the bias towards the urban occupying more social resources, moderately to take care of the rural areas, to create a good social situation of a unified urban and rural, citizens and farmers'share commonly of social development outcomes. At an appropriate time to explore reasonable options to enable farmers to get construction land-use rights altered from the agricultural land-use rights, achieving the revenue income of its land sources.
研究结论主要有以下几点：
1.失地农民征地补偿偏差。以2009年湖北省下发新征地补偿标准为界：(1)新标准下发前：仅从最低土地补偿费来看,实际补偿多数与补偿标准一致；若同时考虑安置补助费,则多数实际补偿低于补偿标准；(2)新标准下发后：据调查到的2010年后发生征地的35个样本,仅浠水县补偿率达到和高于100%,其余多数没达标。
2.失地农民征地意愿。(1)失地农民征地意愿普遍偏低。据统计,武汉市愿意被征地的农户仅占7.57%,其他四市占14.49%,愿意被征地的农民中,多数仅愿被征1/4的土地；(2)失地农民更期望将土地用于工业和基础设施；(3)征地前对耕地的依赖度、征地补偿合理性、征地对就业的影响对失地农民的征地意愿有显著影响,分别为负影响、正影响、正影响。
3.征地因素对农户福利的影响。(1)农户福利(能力)可由家庭社保、家庭经济、居住环境、闲暇与健康、住房质量和就业机遇来测量。武汉市和其他四市的结构方程模型均显示家庭能力与以上分福利有很强的相关关系,只是影响大小不同。武汉市家庭能力对各子福利维度的影响总体较明显且相互间差异较明显,而其他四市总体影响相对略低且各因素的影响差异较小；(2)征地面积和补偿高低(征地因素)均对总福利产生正面影响。对于武汉市,补偿高低对农户功能变化的影响比征地面积大；而其他四市则相反。可能原因：武汉市普遍征地较多,有的家庭先后被征数次,即便单看征地面积,对武汉市失地农民的影响也更大,另外,征地面积越多,征地补偿高低对农民家庭越重要,又增强了征地面积对农民家庭福利的影响；(3)征地因素对家庭分福利的影响。对武汉市而言：征地面积对闲暇及健康没有直接关系；对其他四市,为负相关关系。原因：武汉市失地农民就业机遇较好,即便没失地也可到城市打工,失地后没有因此而减少劳动时间；而其他四市就业机遇较差,没征地前,多半农民以经营农业为主,土地被征后,要到外打工,因而征地面积越多,闲暇及健康越差；武汉市和其他四市的补偿高低对失地农户经济和住房质量均产生正向影响。
4.使失地农民实现可持续生计的路径和合理补偿的政策建议。(1)使失地农民实现可持续生计的路径。无论是特别依恋土地型、无所谓型还是特别厌恶土地型失地农民,采用单一货币补偿方式均不利于农民的长久生计。且从失地农民的生计资本可看出,多数农民各计资本均很弱,征地补偿应足以使其生计资本造成的冲击得以缓解和恢复。从可持续生计的角度出发,对人力资本缺失的农民,增加其人力资本投资；对物质资本缺失的农民,应创造就业和创业机会；对金融资本缺失的农民,应创建多元的农村金融体系；对社会资本缺失的农民,应为其提供多样化补偿方式,为他们提供社会保障。(2)为做到失地农民补偿的全面、合理,还应丰富补偿内容、优化补偿方式、公开补偿程序等,逐步优化征地制度,使之不断适应社会发展。丰富补偿内容要让补偿至少使失地农民生活水平与社会发展同步,足够弥补其损失,包括对土地本身的补偿,失地农民身份改变的摩擦成本补偿及机会成本补偿；优化补偿方式是要改变以单一货币补偿为多手段并存,使失地农民足以应对失地后风险,使其长远生计有保障；公开补偿程序是要改变过去征地过程的暗箱操作,减少中间环节产生的利益截留；逐步优化征地制度是要转变社会资源主要向城市倾斜的原则,对农村适度照顾,营造城乡统一、市民和农民共享社会发展成果的良好社会局面。在适当时候,要探索出合理的方案使农民真正将土地的农用使用权变更为对土地的建设用地使用权,实现其土地财源的收入。
At present, Wuhan Metropolitan as a whole is in the medium stage of industrialization accompanied with the huge demand for construction land. Especially in rural and urban fringe, the scale of rural-urban land to meet the urban development is increasing. At the same time,land requisition produces a large number of landless peasants.Taking account to the land requisition compensation standards in most regions, the prevalence of low compensation standards and the single mode of compensation generate a lot of social contradictions and conflicts that affect the long-term livelihood of the landless peasants.Therefore, research on the actual compensation loss for landless farmers, land acquisition will and the impact of land acquisition on the welfare of peasant's families, as well as how to compensate so as to make the livelihood of landless peasants sustainable, is an imperative study of practical and theoretical significance.
Basing on this understanding, this paper takes the landless peasants in Wuhan Metropolitan as research subjects, under the guidance of the family feasible capacity theory extended from Amartya Sen's capability theory; use the questionnaire method to get the material of the landless farmers land acquisition, and do the next research with these data. Using the quantitative analysis tools of structural equation modeling and binary Logistic model combined with qualitative analysis, this study divides the Wuhan Metropolitan into Wuhan and other four cities which are contrastively analyzed, and finally combining with the sustainable livelihoods framework investigates how to compensate landless peasants to make them tend toward the path of sustainable livelihoods.
The main conclusions are as following:
1. The land requisition compensation status of landless peasants
The differences between actual compensation and compensation standards are analyzed in two periods of time, divided by the time of issuing the new land acquisition and compensation standards in Hubei Province in2009.(1) the new Land acquisition compensation standards are not issued:When we compare the actual compensation with compensation standards, from the view of the minimum land compensation fees, the actual compensation and the compensation standards are consistent in most cases. However, if the subsidy is to be placed into account, the actual compensation is below the standard of compensation;(2) the new land acquisition compensation standards are issued: When we compare the actual compensation with the new land compensation standards, according to the investigation of the35samples occurred after the2010land acquisition, only Xishui County's rate of compensation is up to and higher than100%, while the remainder are not up to the standards of compensation.
2.The land acquisition will of the landless peasants
(1)The land acquisition will of landless peasants is generally low. According to the questionnaires collected in Wuhan City, the quantity of the willing peasants'accounts for7.57%.In the other four cities, the willing peasants'accounts for14.49%willing. And most peasants are only willing to be expropriated1/4of their land, the peasants who is unwilling to be expropriated any land or willing to be expropriated all of his land are in the minority.(2)The peasants expect the expropriated land can be used for industrial and infrastructure, the willingness of other uses is weak.(3)Attachment to the state before the land acquisition, the expected or actual impact after land acquisition, land requisition compensation fairness and reasonableness have the combined effect on the land acquisition will of the landless peasants.
Although the factors effecting land acquisition willingness of landless peasants in Wuhan City and the other four cities are more or less vary, but the dependence of arable land before the land acquisition, rationality of land acquisition compensation, and the impact on employment have consistent significant effect on the land acquisition willingness of landless peasants
Among there, dependence of arable land before the land acquisition has a negative impact on land acquisition willingness; land compensation rationality and the impact on employment have a positive impact on land acquisition willingness. The three factors just correspond to the farmers'attachment to the state before the land acquisition, land acquisition and compensation fair and reasonable, and the expectation after the land acquisition which three types of core elements affecting the peasants land acquisition willingness
3. The impact of land acquisition on the welfare of peasant's families
(1)Peasant Family Welfare (capability) could be measured by family social security, family economics, living environment, leisure and health, quality of housing and employment opportunities. Both Wuhan's SEM and other four cities'SEM show that the family capability has a strong correlation with other; the difference is different weights of the correlation inter-dimension. Family function of Wuhan has an obvious effect on the various sub-dimensions and the difference of the family function'effect on sub-dimensions is also obvious, while in the other four cities the overall effect is relatively slightly lower and the difference of the family functions'effect on sub-dimensions is not so obvious.
(2)Land acquisition causes a certain impact on family function (total welfare). The area of expropriated land and the compensation level both have a positive impact on the overall welfare; however these two factors have Different impact on family functioning. In Wuhan City, the compensation level of peasants'functional changes is greater than the impact of the land area, while in the other four cities, the opposite is true. Possible causes: In Wuhan City, more land has been expropriated; some families have been expropriated several times, so the area of expropriated land in Wuhan has more influence in the family welfare. In addition, the more area of land is expropriated; land requisition compensation and the level have more influence on farmers'welfare. That is, more land acquisition area, the greater impact on the welfare of the peasant families; more land acquisition area, the level of land requisition compensation is more important, then enhance the impact of the land area on the welfare of farm families.
(3)Land acquisition'impact on the sub-welfare of the family. Wuhan City:the land area is not directly related to the leisure and health; other four cities, the negatively related. The reason is better employment opportunities for landless peasants in Wuhan City. They can also go to work in cities even before the land acquisition, so land acquisition has less effect on his labor time; therefore land acquisition has not a direct positive impact on the leisure and health. Employment opportunities in other four cities were not very good. Before land acquisition, most of the farmers engaged in agriculture-based land. so once their land is expropriated, they have to go for a work far from the, which causes less leisure time and worse health. Then look at the effect of the compensation level on family economy and housing quality.The level of compensation has a positive impact on the family economy and housing quality both in Wuhan City and the other four cities.
4. Policy recommendations to make landless farmers achieve sustainable livelihoods path and obtain reasonable compensation
(1)Making landless farmers achieve sustainable livelihoods path. No matter the peasants who have special attachment to land, peasants who don't matter or peasants who particularly disgust land, the single monetary compensation is not conducive to long-term livelihood of the peasants. And from the livelihoods capital of landless peasants we can be seen, most peasants livelihoods capital is weak, so land acquisition compensation has to be sufficient to mitigate and restore livelihoods capital harmed by land acquisition. From the perspective of sustainable livelihoods, the farmers of the lack of human capital could get more investment in human capital. Farmers, lack of physical capital, should get employment and entrepreneurial opportunities. Farmers, lack of financial capital, ought to enjoy a diversified rural financial system. Farmers, lack of social capital should be provided a variety of compensation, be provided the social security.
(2)To make the compensation for landless peasants comprehensive, reasonable, compensation content should be enriched, the method of compensation should be optimized, compensation procedures should be above board, and the government could gradually optimize the land requisition system, so as to continuously adapt to the social development
Enriching compensation content is to compensate the landless peasants to at least make their'living standards develop synchronously with social development. The compensation is sufficient to cover its losses, including compensation for the land itself, friction costs of the change in the status of landless peasants and the opportunity cost. Optimize the method of compensation is to change the single way of the monetary compensation to the various means to co-exist, so that the landless peasants could confidently deal with the risk after land acquisition to assure the long-term livelihood security.Opening compensation program is to eliminate the secret operations of the past in land acquisition process, to reduce the interception of interests occurring in the intermediate links. Gradually optimizing the system of land acquisition is to change the bias towards the urban occupying more social resources, moderately to take care of the rural areas, to create a good social situation of a unified urban and rural, citizens and farmers'share commonly of social development outcomes. At an appropriate time to explore reasonable options to enable farmers to get construction land-use rights altered from the agricultural land-use rights, achieving the revenue income of its land sources.
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