Ways of promoting agricultural land protection by land consolidation at present stage

(A) Problem-oriented: Building a "Sansheng" platform

What problems should be solved or what goals should be achieved in rural land consolidation? This is the first thing that must be clearly stated to promote rural land consolidation. Based on the analysis of comprehensive theory, national conditions and international experience, the main problem of rural land consolidation at this stage should be to build a high-quality and solid platform for modern rural life, production and ecology (abbreviated as "Sansheng"), so as to promote the construction of new countryside or solve the "three rural issues".

1. Build a living platform for the development of rural communities

The first problem to be solved in rural land consolidation is to build a living platform for rural community development. One of the basic contents of the new rural construction and the "three rural issues" is to improve the living conditions of farmers and change the rural landscape. Therefore, rural land consolidation should be based on the consolidation and reclamation of cultivated land, homestead and collective construction land, unify the renovation of old houses and the construction of new houses, provide rural infrastructure and public service facilities, create a good living environment for farmers, strengthen the connection between villages and central towns, promote the integration of farmers' lives and cities in the urban-rural fringe, and promote the development of rural communities.

2. Build a production platform for modern rural development

The second problem to be solved in rural land consolidation is to provide a good production platform for modern rural development. The second basic content of the new rural construction and the "three rural issues" is to increase farmers' income and promote the development of rural agriculture and non-agricultural industries. Therefore, rural land consolidation should be based on the consolidation of cultivated land and collective construction land, so as to expand agricultural development channels and improve business scale. At the same time, we should also develop township private enterprises and other non-agricultural industries in accordance with the law and regulations to promote the development of rural areas in the direction of urban and rural planning.

3. Create an ecological platform for sustainable development

Rural land consolidation also needs to pay attention to the ecological problems of rural development, protect the ecological environment quality of agricultural production from declining, and the rural living environment from steadily improving, thus forming an ecological platform for the sustainable development of rural communities. As modern agricultural production has higher and higher requirements for agricultural products safety and agricultural ecological environment, residents in urban-rural fringe have higher requirements for living environment quality. Therefore, rural land consolidation should also serve soil and water conservation and fertility conservation, reduce agricultural non-point source pollution, industrial point source pollution and rural life pollution, and promote the sustainable development of agricultural production and the improvement of rural life quality.

(2) International experience: Follow the "4P" principle.

From the international experience of rural land consolidation, successful cases include land reading justice in Germany and Japan, land service in the Netherlands and land reclamation in the western United States.

In Germany and Japan, land consolidation and replacement in urban and rural areas means that the government cooperates with the owners of agricultural land to re-divide the original irregular plots by uniformly arranging roads and public facilities within the planning scope, and balance the construction costs of roads and public facilities by using the income from the appreciation of land prices after the implementation of the project. The main process of land consolidation and replacement is: under certain planning control, the government will first consolidate all agricultural land in the project area as a whole, and the government will improve the land in the project area (such as roads, parks, water pipes and other public facilities) as urban construction land, which will inevitably lead to land appreciation. At this time, the government needs to negotiate with the owners of agricultural land to see at what price they are willing to obtain the appreciated land ownership (for sale). Generally speaking, agricultural land owners are willing to get the land improvement input provided by the government by contributing part of their own land, that is, the government obtains the land originally belonging to farmers for infrastructure construction and public facilities construction free of charge. The principle of land consolidation and replacement is that the market value of the improved land redistributed by agricultural land owners is at least not lower than the market value of the land they owned before the improvement. Land abandoned by farmland owners will be provided to the government for public facilities construction free of charge. In fact, this model is that the government seeks cooperation with the market (farmland owners) in order to solve the financial pressure.

Land improvement in the Netherlands means that the government or private developers need to invest in land improvement such as sand filling and drainage before land development and construction. This kind of land improvement costs a lot, so it is generally carried out by the government. Because of the natural conditions such as soil and hydrology in the Netherlands, it is impossible to build houses directly on agricultural land, and the soil is not enough to withstand oversized and overweight buildings. Before selling land, we must improve the texture of the land, and improve the texture of the soil through drainage and sand filling to meet the needs of the building. The cost of land improvement is often 10 times the price of cultivated land itself and 5 times the price of purchased land. Moreover, it is often difficult to predict the improvement cost of underground soil before digging deep, so it is very risky for investors. So this is also the reason why private people are reluctant to invest in land conversion. The characteristic of land improvement and renewal in the Netherlands is that, on the premise of conforming to the plan, in order to solve the problem that the loose land texture can not meet the building requirements in the process of agricultural land utilization in urban and rural areas, the government takes the initiative to bear the cost and risk of land improvement and develop and sort out the land. This model is actually led by the government.

The management of western wasteland in the United States means that the government pushes the development, improvement and maintenance of western wasteland to the market through the form of property right transfer, so as to solve the huge cost of wasteland development. The U.S. government comes to desert to control disasters mainly by auctioning or giving away desertified land to individuals for free, and its risk and responsibility are only that new landowners will invest, plant trees and grass. If the economic contract signed with the state is not fulfilled, the government will auction the land property right again within a certain period of time. As a result, the American government quickly solved the sandstorm problem in the central and western regions with property rights as a weapon, while those new private property owners willingly lived in the worst natural conditions and benefited continuously through long-term stable active labor and careful management. This model is actually market-oriented.

I will not elaborate on the specific practices of the above-mentioned countries here, but only summarize some similarities in the successful experiences of various countries. It can be seen that the experiences of these countries are strikingly similar in four aspects, namely, the "4P" principle proposed in this book.

1. Planning is the first principle.

Whether Germany, Holland and America in the west or Japan and South Korea in the east, in countries with successful experience, strict land use planning or spatial planning is the primary prerequisite for the success of rural land consolidation. Different levels of land use planning or spatial planning have made detailed arrangements for the layout of various types of land use, and at the same time comprehensively considered the economic, social and ecological aspects of land use. Under the strong planning implementation and guarantee system, all kinds of land replacement, improvement or development are only the specific implementation process of the planning, and any land consolidation that violates the planning is not allowed. Therefore, as long as the plan is formulated, the actual operation can be flexibly completed by the government, the market or a combination of the two.

2. Property is a necessary principle.

In the urban-rural land consolidation and replacement in Germany and Japan, farmland owners can get most of the value-added income, and farmland property rights have been well protected. In the process of land improvement and development in the Netherlands, the owner of agricultural land can get the market value of agricultural land plus some land appreciation income. The independent judicial system in the Netherlands protects the rights and interests of farmland owners from infringement. In the United States, the management of wasteland embodies the role of property rights. When the government promotes private participation in wasteland management based on the principle of equal rights and responsibilities of property rights, the sandstorm problem in the central and western regions is quickly solved, and those new private property owners are willing to live in the areas with the worst natural conditions and continue to benefit through long-term stable active labor and careful management. It can be seen that the protection of rights and interests not only improves the enthusiasm and willingness of farmers to cooperate, but also reduces the cost of the government in promoting the implementation of the plan and reduces the pressure on its own public finances.

3. This project is supported by realization principle.

Land consolidation in all the above countries is based on specific projects. The implementation of the project is the implementation process and implementation mode of the plan. No matter whether the project is implemented by the government or privately, it needs to be carefully judged before implementation, and the project should be screened from the aspects of economic feasibility, social impact and ecological impact to ensure that the project is the best use of land under land use planning. In project screening, public participation mechanism and market allocation mechanism are the main means. For example, land replacement in Germany and Japan is impossible to implement any project without the consent of most farmland owners. In the process of project approval in the Netherlands, public opinion is the main reference factor for superior approval. In addition, as long as the project conforms to the land planning, the final content of the project must be determined through full market competition, such as bidding or auction, which is the principle that the market determines the project.

4. Government promotion is the principle of promotion.

In addition, in all countries, the role of the government is also very obvious. Although land replacement in Germany and Japan is always for the overall interests of the community, this kind of "collective action" is difficult to achieve without the promotion of the government. In the Netherlands, land improvement is very risky financially, and it is likely to lose money because of the high cost of land improvement. The cost of land improvement cannot be predicted before the implementation of the project, and can only be known after the land where the project is located is dug deep. Therefore, the government took the initiative to undertake most of the land improvement work. Of course, the principle of the Dutch government's participation in land improvement is that it will not make profits or losses as a whole, so the government will make profits on some improvement projects to make up for the losses on other projects. In the United States, the government has become the guide of market allocation and the supervisor of planning implementation. If the project executor fails to perform the original economic contract signed with the state, the government will auction the land property right again within a certain period of time. The role of the government in promoting the process of wasteland remediation is very obvious.

(C) Realistic choice: promoting the "six one projects"

1. Establish a leadership system.

The establishment of the top leader system means that a strong departmental coordination mechanism must be formed in the process of rural land consolidation. Rural land consolidation involves many government administrative departments, especially in key links such as planning approval, capital investment and income distribution, which may lead to many problems, disputes and conflicts, which is not conducive to the comprehensive development of rural land consolidation.

It is necessary to take land consolidation as a platform, integrate all kinds of funds, deeply integrate land consolidation and reclamation development, and link the increase and decrease of urban and rural construction land, comprehensive agricultural development, farmland water conservancy construction, village and town construction, soil fertility improvement, disaster prevention, reservoir resettlement, mountain resettlement, rural highway construction, etc. , by the "number one" overall arrangement, orderly promote the construction of new countryside. This is like a country needs a "number one" and a unit needs a "number one". Rural land consolidation needs to establish a "number one" system in order to move forward in a down-to-earth manner.

Step 2 prepare a detailed plan

The so-called detailed planning refers to the deepening under the guidance of the overall planning of rural land use. Not only refers to the large scale of the material space, the scale can be selected from 1: 2000 to 1: 500. More importantly, it refers to the "detailed" analysis of the detailed planning of rural land consolidation. These detailed analyses mainly include the following contents: first, the growth law of regional urbanization and the succession law of new rural space; Second, whether it is economically feasible, whether farmers are willing to accept it, and whether it conforms to the principle of ecological sustainability; The third is whether the safeguard measures are powerful and effective, and whether the responsibilities and rights are clear and equal.

3. Improve the prying fulcrum

Practice has proved that linking the increase and decrease of urban and rural construction land is the "fulcrum" to promote rural land consolidation and an important means to promote coordinated development between urban and rural areas. However, at present, there are still two imperfections in this "pry fulcrum": First, the purpose of linking is mainly to serve urban development and construction, its dynamic mechanism comes from the shortage of urban construction land, and its focus is not on rural land consolidation or rural development. Second, the linked indicators cannot be arranged as a whole within or between provinces. The reality is often like this: in villages with great potential for rural construction land consolidation, the demand for construction land is not strong; Where the demand for construction land is strong, the potential of rural construction land consolidation is relatively small, or there is almost no potential. Therefore, as a system linked with increase and decrease, it needs to be improved and innovated from the following three aspects.

First, the so-called "turnover" index saved by rural construction land consolidation can be mainly used for urban construction land, with the aim of promoting rural development by promoting urbanization. However, if the rural conditions are mature, it can also be used to develop development projects that meet the requirements of national industrial policies and environmental protection, such as deep processing of agricultural products and new rural construction.

Second, under the overall arrangement and supervision of the Ministry of Land and Resources and the provincial department of land and resources, give full play to the basic role of the market mechanism, allow the linked indicators to be transferred in a wider range, and the transfer price is determined by the market, and even the government-guided price higher than the market price can be introduced to reflect the support of developed areas to underdeveloped areas. This is not only conducive to promoting the process of rural land consolidation, but also an effective way to realize financial transfer payment, which is in line with the national goal of coordinating regional development.

Third, strengthen the "iron fist" management of urban construction land, moderately tighten the annual urban construction land planning indicators, and form a "forced" mechanism for rural construction land consolidation.

4. Innovation exit mechanism

At present, there are a large number of "amphibious" residents in urban and rural areas in China, mainly composed of migrant workers who have worked and lived in cities and towns for a long time. In view of these "amphibious" residents, we should innovate the withdrawal mechanism of rural construction land, encourage farmers to give up rural homestead and contracted land and transfer them to cities and towns, return the abandoned homestead and contracted land to collective economic organizations, and re-cultivate homestead conditionally, which is also an important content of promoting rural land consolidation. At the same time, farmers who give up their homestead and contracted land enjoy the same treatment and social security as urban residents who actually live, and at the same time strengthen the ability training of these residents to truly realize the citizenization of farmers.

To encourage farmers to give up their original land, it is necessary to benefit these farmers, and sufficient financial support is needed to benefit. We believe that this kind of financial support is possible as long as the policy is in place. Take a simple estimate as an example. At present, every year,120,000 farmers in China move to cities and become urban residents. If the resettlement cost of each farmer reaches 654.38+0.5 million to 200,000 yuan, which can basically meet their life in the city, farmers will be willing to give up their original land. In 2008, the population of farmers in China was 727.5 million, and the total cultivated land in that year was 65.438+82.574 million mu, that is, the per capita cultivated land of farmers in China was 2.5 1 mu in 2008. According to the statistical bulletin of land and resources in 2008, in that year, * * * sold land 163 1 10,000 hm2, and the total transfer fee was about 1 trillion, that is, the transfer fee per mu was about 408,700 yuan. Then, the circulation income of 25 1 mu of cultivated land lost by each farmer is expected to be around10.023 million yuan. It is feasible in economic analysis to take out 6.5438+0.5 million ~ 0.2 million yuan from 6.5438+0.00 million yuan to resettle farmers.

5. Screening a batch of development projects

Building a high-quality "Sansheng" platform for new rural construction is not an empty concept, but should be closely tied with development projects. Only in this way can we give full play to the comprehensive benefits of land consolidation. Only when the benefits are remarkable can there be a better prospect, and a better prospect can make land consolidation enter a sustainable virtuous circle.

Development projects include infrastructure projects, public facilities projects, comprehensive land development projects, leisure and sightseeing projects, market town cultivation projects and agricultural products processing projects. Project screening is organized by the government and carried out with the participation of farmers. Specifically, the operation is carried out according to the following steps: First, the primary selection of the project is carried out within the scope of villages and towns, and the primary screening is carried out at the county level; Second, the counties will summarize the projects to the provincial level, and the provincial government will make overall planning and conduct secondary screening; Third, the provincial government will feed back the screening results to the county government, and the county government will communicate with local villagers to finally determine the development project; Fourth, after the development project is determined, it is necessary to clarify the construction objectives and contents, project start and end time, land use plan, project layout plan, investment budget, capital guarantee and expected benefit indicators.

6. Change the concept of system design

At present, the land system mostly belongs to "top-down" and "supply-oriented", which actually does not meet the needs of the complicated social and economic development in China at this stage. International experience shows that there is an obvious trend of regionalization and localization in land system design.

Therefore, for the reform of rural land consolidation system, it is a change and innovation of system design concept to change the existing "supply type" into "demand type". For example, farmers should design their own systems and policies, and don't impose the will of "official positions" on them. This is conducive to the formation of a "soil system" adapted to local conditions according to different levels of regional social and economic development and different regional cultures.