不同主体视角下政府干预与农地规模流转研究：作用机理、效果评估与政策优化

It’s very important to figure out how the government intervention policies are implemented in farmland transfer, and which policies have produced “government failure”, and then which policies need to be regulated and adjusted, for improving the standard management system of farmland transfer, rectifying government failure, and promoting the healthy and orderly development of large-scale farmland transfer. Therefore, this study will systematically investigate the influencing mechanism and implementation effect of government intervention policies (including organizational services, financial subsidies and administrative orders) on large-scale farmland transfer from different perspectives. First, using stakeholder theory, political economics theory, and transaction cost theory, combined with literature research, this study constructs a theoretical analysis framework of “government intervention policies — the implementation/response strategies of various stakeholders — large-scale farmland transfer”. Secondly, from the perspective of direct policy implementers, this study explores the village cadres’ implementation strategies for government intervention policies and its impact on large-scale farmland transfer in the village using simultaneous equations. Then, from the perspectives of both the land-demand and land-supply side, using econometric model and typical case analysis, this study analyzes the impact of government intervention policy on the renting-in decision of new agricultural business entities, and that on farmland suppliers’ choice of transferring their farmland to different tenants and the stability of large-scale farmland transfer. Finally, this study puts forward policy design regarding rectifying government failure and promoting the healthy and orderly development of large-scale farmland transfer.

厘清农地流转中政府干预政策究竟是如何实施的、哪些政策实施后产生了政府失灵、进而哪些政策需要规范和调整，对于健全土地流转规范管理制度、矫正政府失灵、促进农地规模流转健康有序发展具有重要的理论与现实意义。因此，本研究将从不同主体视角，系统研究政府干预政策（包括组织服务、财政补贴和行政命令）对农地规模流转的作用机理与实施效果。首先，运用利益相关者理论、政治经济学理论、交易费用理论等，结合文献研究，构建“政府干预政策—各利益主体对政策的执行/应对策略—农地规模流转”的理论分析框架；其次，从政策直接执行者视角，构建联立方程组，探析村干部对政府干预政策的执行策略及其对村庄农地规模流转的影响；再次，分别从土地需求、供给方视角，利用经济计量模型和典型案例分析，剖析政府干预政策对新型农业经营主体农地转入决策、农户农地转出对象选择及稳定性的影响；最后，提出矫正政府失灵、促进农地规模流转健康有序发展的优化政策。

如何促进农地规模流转健康有序发展、推进农业农村现代化是政界和学界高度关注的热点问题。为此，本研究对农地规模流转的形成机理、效果评估、政策优化进行了深度剖析。首先，从中观村级层面和微观农户层面，利用经济计量模型揭示农地规模流转的形成机理。其次，基于经济计量模型评价农地规模流转的经济、社会绩效。最后，提出推进农地规模流转的优化政策。结果表明：①政府农地流转目标考核政策的实施促进了村庄农地规模流转，村庄制度环境在农地流转目标考核对村庄农地规模流转的影响中发挥了调节作用；提高土地产权安全有利于农地规模流转的发展，如取得新一轮确权证书能激励农户转入更多农地。②经济绩效上，与小农户相比，规模经营主体（包括种植大户和家庭农场）转入农地种粮获得的土地生产率和成本利润率没有显著差异，但能够获得显著更高的劳动生产率和技术效率，说明农地规模流转有助于提高粮食生产中的劳动生产率和技术效率。③社会绩效上，家庭农场（专业大户）因自身发展不足未能带动农户增收，而农民合作社的发展能够带动农户增收；农业企业的发展不利于农户增收，但其进入农地流转市场后，会通过促进农户转出农地间接带动转出户增收，同时通过抑制农户转入农地间接阻碍转入户增收；土地股份合作社的治理机制对社员收入和满意度有重要影响，如参与合作社的决策管理、政府的财政扶持、有效的监事会及财务公开制度均能提高社员从合作社获得的收益和满意度。④进一步推进农地规模流转，需要在推进和完善产权制度改革基础上，逐步增强市场在土地资源配置中的作用，同时强化政府管理和服务作用，如做好农地规模流转风险防控。