农田保护补偿政策异质效应及效能提升研究—以成都、上海、苏州及广东等典型创新实践区域为实证

Agri-environmental schemes (AES) are the main policy instrument in the developed regions and countries, such as the European Union, the United States and so on. It is designed to encourage the farmer households to protect the farmland,and to adopt some environmentally friendly farming methods to enhance (reduce) the supply of agricultural environmental public goods (bads). Such schemes offer fixed incentive payments, technology assistant or cost sharing for farmer households to participate in the agricultural activities. AES is an effective and innovative policy instrument which encourage farmers to participate in the protection of high quality farmland and countryside landscape. In recent years, Chinese government also propose and guide the policies of farmland and prime land’s conservation compensation. And the innovational practices of the farmland and prime land`s financial or ecological compensation have taken place in Shanghai, Suzhou, Chengdu, Guangdong and some other regions. However, policy changes usually have differential spatial effects and individual disparity, because regions and farmer households are differentially endowed with productive factors and farmland resources, which are differentially mobile. So according to the real demand and international experience, there exists the certain efficiency deflection and benefit diverge. This project has several objectives. Firstly, we choose Chengdu, Shanghai, Suzhou, and Guangdong as typical investigative regions, where the farmland ecological compensation or financial compensation have been implemented for six or seven years. Comparing with some regions in Hubei province where the compensation did not exist. Then the dynamic investigation database of farmer households and villages will be constructed. Secondly, we will assess the heterogeneous effects of the farmer households who accept the financial compensation to protect farmland and the spatial effects of farmland`s conservation compensation so as to explore the diverse cost efficiency for the different kinds of compensation modes and regions. Thirdly, we will define the efficient regions, concession farmer households and suitable compensation baseline into the implement of farmland conservation, and to reduce or avoid the incentive compatibility problems such as adverse selection and moral hazard and so on, which combined with information asymmetry about farmland potential and its heterogeneous characteristics. Lastly, we will adjust and rectify the policy deviation and improve the efficiency of farmland’s financial compensation policy, and put forward the path dependency, relevant measures and control system to improve the policy, in order to summarize and make the local governments` abundant innovation practices into a universal, efficient and fairness compatible policy arrangement, so as to achieve the multiple goals of protecting the farmland’s quality, quantity and landscape.

农业环境政策是欧美国家激励农户参与优质农田及乡村适宜景观地保护的有效方式及农业支持保护体系，近年在国内成都、上海、苏州及广东等地得到积极实践及探索创新。然而，补偿政策在实施过程中因地区资源禀赋、要素流动、农户分化及耕地功能转型等多元约束，存在显著的空间异质、个体分化及成本效率差异，较实际需求及国际经验相比存在一定的利益偏离及效率偏差。拟选择在全国率先试点探索耕地保护基金或农田生态补偿等农田保护补偿创新实践模式的典型区域及湖北省部分未实践区域为实证，在测度政策异质性及检验成本效率的基础上，界定纳入补偿政策范畴的重点区域、优先对象及补偿基线，揭示监管过程信息非对称滋生的逆向选择及道德风险等激励非兼容难题，纠正调整补偿政策设计、运行及监管过程存在的利益偏离及效率偏差，提出补偿政策效能改进及提高的调整途径及调控体系，将基层丰富的创新实践模式转化提升为可普及推广、效率与公平兼容的政策设计及制度安排。

农田保护经济补偿作为激励农户参与优质农田保护的创新性政策工具，近年在成都、上海、苏州及广东等省市得到积极实践。政策实施十多年，以点带面、逐渐推广，然而却缺乏系统的成效评估，特别是缺少时空尺度与纵横向的多维比较。项目在农户跟踪调查与社会经济统计数据分析的基础上，量化典型创新实践地区农田保护补偿政策在空间异质、农户分化等约束条件下的政策效应与效率区域，为政策优化与效能提升提供参考。研究结果表明，创新实践地区农田保护补偿政策的持续实施，在耕地数量保护和增强农民收入有积极的成效。补偿政策实施有效地避免广东省3191.65公顷耕地流失，使成都各区县耕地少减少4625.74公顷，苏州市各乡镇耕地流失量平均少减少74.79公顷。此外，直接给予农户现金补贴的耕地补偿模式在提升农民收入效果较为显著。补偿政策实施后，广东省各市和苏州市各乡镇农民人均收入分别较政策实施前增加235.49元和1259.59元。然而，政策对耕地质量的保护效果不明显，这主要是因为政策设计时缺少考虑耕地质量，以及抵抗不住耕地指标交易等其他政策的影响。此外，补偿政策的持续实施显著增强农户政策满意度，激励农民参与耕地保护及农业生产的积极性，促进经济发达地区及耕地生存依赖度低的农户将土地转出。但仍然未能从根本抑制住城市近郊区与经济发达地区优质耕地流失的风险。经济发达地区尽管财政资金相对充裕，补偿标准相对较高，但政策在增加农民收入、改善农户生计、激励农民参与农田保护积极性及提升农户政策满意度方面均较农业地区及欠发达地区缺少效果，建议未来政策重点转向农业生产区及经济欠发达地区。同时，强化农业地区农民对耕地地力维持和质量保护的激励性，利用经济激励机制重点提升耕地质量，注意与相关政策的同向性。