被征地农民的补偿安置研究
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摘要
中国是一个发展中的农业大国,土地是农民最基本的生产资料和安身立命之本。工业化和城市化是消除城乡二元结构,实现现代化的必由之路。随着工业化和城市化的推进,大量农业用地转为非农产业用地,与此伴随的是大量农民失去了土地。然而,由于我国征地制度改革滞后,被征地农民数量大,征地补偿费偏低等问题的存在,加之被征地农民安置不力、被征地农民再就业能力较差、社会保障体制不健全等问题一直得不到有效解决,导致一些被征地农民成为种田无地、就业无岗、社保无份的弱势群体。被征地农民问题日益成为影响国民经济发展和社会安定的重要因素,也成为社会各界关注的热点问题。
如何对被征地农民进行合理补偿和安置,如何通过相关政策体系的设计和实施来切实解决被征地农民的生存问题和长远生计,确保被征地农民权益得到有效保障,是解决“三农”问题的一个焦点,是关系农村社会稳定和发展的重大问题,也是关系我国现代化能否顺利实现的重大问题。
本文以被征地农民补偿安置的理论依据为指导,对国内外被征地农民补偿安置的做法进行了分析比较和经验借鉴,对我国农民被征地引发的主要问题进行了深入研究,对山东省补偿安置被征地农民的一系列实践探索进行了实证分析,在此基础上,确定了我国被征地农民补偿安置的总体方略,并提出了补偿安置被征地农民的一系列具体政策措施。
全文共由七章内容构成。
第一章,导言。本章主要阐述了论文的研究背景、研究目的和意义,简要综述了国内外研究动态,阐明了研究思路、方法及创新之处。
第二章,被征地农民补偿安置的理论依据。本章对被征地农民补偿安置的理论依据进行了深入分析。认为地租理论、土地价格评估理论、征地过程的博弈及行政寻租理论、“可持续生计”理论是指导我们在实践中解决被征地农民问题的依据,并分别分析了这些理论对被征地农民补偿安置的现实指导作用。
第三章,中外被征地农民补偿安置的经验借鉴。本章首先对发达国家被征地农民补偿安置、土地征用补偿制度进行了介绍与比较,总结了其对我国解决被征地农民补偿安置问题的启示:(1)严控土地征用,最大限度保护可耕地资源;(2)土地征用的主体只能是国家;(3)土地征用必须出于“公共目的”;(4)遵循市场原则,合理确定补偿标准并给予多样化的补偿;(5)建立和完善土地征用程序,使土地征用过程合法有序;(6)建立土地纠纷仲裁机构。然后在对我国被征地农民补偿安置的缺陷进行分析并探究其成因的基础上,着重对我国各地解决被征地农民补偿安置实践探索进行了归纳总结,分别是留地安置模式、物业开发模式、房屋租赁模式、股权分红模式、土地银行模式、以“土地换社保”模式、“三位一体”的综合保障模式、失业保障模式、养老保障模式、最低生活保障模式、就业促进模式。
第四章,农民被征地引发的问题分析。本章分别分析了农民被征地后引发的身份问题,就业问题和补偿收入问题,并对引发这一系列问题的源头进行了探究。
(1)在被征地农民身份方面,存在身份转换滞后问题。许多被征地农民已经完全失去土地成为事实上的非农居民,但他们的身份仍然是农民。“似农非农”的身份使他们在社会保障、教育、基础设施等方面难以享受到城市居民同样的待遇。
(2)在被征地农民就业方面,存在被征地农民再就业困难,被征地农民再就业受有地农民劳动力冲击等现实问题。大多数被征地农民文化水平和职业技能都较低,参与市场竞争的能力较差,加之受到有地农民劳动力非农就业的冲击,再就业十分困难。因此,对大多数被征地农民而言,失地就等于失业,他们生计缺乏来源,极易引发社会稳定问题。
(3)在被征地农民补偿收入方面,存在被征地农民的补偿收入偏低;支出与补偿收入存在矛盾;医疗和教育支出大,被征地农民不堪重负;投资支出具有盲目性和无计划性等问题。
(4)被征地农民问题产生的源头探究。农民因土地被征用所引发的身份、就业和补偿收入等方面的问题,究其产生的原因,可以从六个方面来分析。一是对征地的概念界定不清晰,征地的范围和目的等具体范畴不明确,因此就无法从根本上确保被征地农民的利益得到保障。二是征地补偿规定不合理,我国对土地征用补偿遵循“适当补偿”原则,而不是依据土地的市场交易价格(在我国即为土地使用权交易价)确定,从而造成了在现实中许多地方在确定补偿额时,严重脱离市场,损害了被征地农民的利益。三是征地安置不到位。货币安置是目前我国征地中最主要的安置方式。除此之外,各地还尝试了社会保险安置、留地安置、招工安置和农业生产安置等辅助性安置措施。各种辅助性安置措施对解决被征地农民的长远生计发挥了重要作用,但也存在着不少弊端,主要是地方政府主导色彩浓,辅助性安置措施挤占了给被征地农民的货币补偿。四是土地使用管制制度不完善,由此导致了征而不用、多征少用等土地浪费现象的发生。五是农村土地流转制度和耕地入市交易机制不健全,导致土地征用权被滥用,不利于控制建设用地规模和保护耕地,也不利于保护被征地农民的利益。六是土地征用没有健全的法律法规作保障,导致了在实际操作中征地的随意性很大,农村集体和农民的利益没有得到法律的保护,他们的损失没有得到完全的补偿。
第五章,被征地农民补偿安置的实证分析——山东省的实践探索。本章以地处沿海、经济快速发展但省内地区之间差异较大的农业大省和人口大省山东省为例,对其各地在解决城市扩张中产生的被征地农民补偿安置问题所进行的实践进行了分析,认为山东省对被征地农民补偿安置的许多做法值得推广。主要包括:统一征地标准,多种渠道安置被征地农民;建立被征地农民基本生活保障制度;提高补偿标准,建立“征地调剂资金”制度;通过实施住房安置政策、建设“城郊新居”、建设中心村对被征地农民进行住房安置;对被征地农民进行就业安排;促使被征地农民顺利转变身份;引导被征地农民合理安排补偿收入投向以及拓宽被征地农民收入来源等六个方面。
第六章,被征地农民补偿安置的总体方略。本章构建了被征地农民补偿安置的总体方略。明确了被征地农民补偿安置的指导思想和应遵循的原则,明确了被征地农民补偿安置的主体,并对被征地农民补偿安置进行明确的战略规划。在我国总体上已进入以工补农、以城带乡的发展阶段的情况下,对被征地农民进行补偿安置,必须要用科学发展观来指导。指出各级政府是被征地农民补偿安置的主体,提出要确保政府主体作用的有效发挥,必须从切实转变观念、严格界定和限制各级政府的征地权、强化征地的全过程监督三个方面转变各级政府职能,明确各级政府的主要职责。在对被征地农民进行补偿安置时必须遵循公正公平原则、群众利益优先原则和短期经济补偿与长期妥善安置相结合的原则。对被征地农民进行补偿安置的战略规划包括四个方面:以建立公平合理的征地补偿制度、保证补偿资金足额到位作为被征地农民补偿安置的出发点;以引导农民用好用活土地征用补偿金,形成长效收益机制作为被征地农民补偿安置的关键;以指导和帮助被征地农民顺利实现职业转换作为被征地农民补偿安置的重要环节;以为被征地农民建立完善的社会保障机制作为被征地农民补偿安置的基石。
第七章,被征地农民补偿安置的政策措施。鉴于被征地农民补偿安置问题产生的复杂性和长期性,结合我国人多地少、市场经济体制正趋于完善的实际情况,本章对当前和今后时期我国解决被征地农民补偿安置问题给出了可操作的具体政策措施,包括以下五个方面:
(1)优化土地征用补偿制度。尽快修订《土地管理法》;规范土地征用及补偿程序;变土地“征用-出让”(征让)单一土地转移途径为征让、征购双途径,通过引入征购这一土地用途转移方式,有利于严格区分公共利益和非公共利益两种不同性质的征地行为,从而采取不同的征地补偿和安置标准;改进土地定价评估工作,科学、合理评估土地价格;允许农民参与土地增值收益分配,并运用相关理论设计了土地增殖收益分配模型,使农民参与土地增值收益分配能够实现定量化,在实践操作中有科学的参照标准;将功能性补偿与产权补偿相结合,让被征地农民分享经济发展的成果。
(2)完善农村集体土地所有制。完善农村集体土地产权制度建设,明确农村土地集体所有权的代表实体,稳定农民土地使用权,让农民集体建设用地使用权直接进入市场流转,使国有土地和集体土地享有同等的权利;加强对农村土地承包经营权的物权保护;明确农民在土地交易中的主体地位,除因公益事业需要征用土地,并由国家给予被征地农民合理补偿外,其他所有非公益性的建设用地,应由农民与建设用地者直接谈判,农民与政府、建设用地者处于同等的谈判地位。
(3)引导和帮助被征地农民合理经营补偿收入。在土地被征用的同时,被征地农民会得到数目不菲的一笔征地补偿款。引导和帮助被征地农民进行资产经营,既是改善其生计、确保其持续发展、生活状况不断改善的一种有效办法,也是帮助他们规避各种生活风险的重要安全网之一。结合被征地农民生活和就业的实际情况,可从三个方面着手:一是抓好被征地农民的住宅规划与建设。既要确保被征地农民居有定所,也要方便他们能从房屋资产中形成长效受益机制。二是发展壮大村级集体经济。农村土地集体所有制的性质决定了在征地补偿过程中,村集体获得了大量的补偿款。利用征地补偿款发展壮大集体经济,关键是选准项目,还应倡导进行社区股份制改革,把资产量化到个人,并明确权利与责任,避免产生过去集体企业所产生的问题,确保集体资产不流失。三是运用资本运营手段保障资产增值。为切实保障被征地农民利益,有必要对补偿收入资金进行运作,使之增值,既使被征地农民有了持续收益,解除其后顾之忧,又可以提高非农化程度。
(4)促进被征地农民向非农领域转移就业。加强对被征地农民的就业培训,提高就业能力;努力开拓就业渠道,拓宽就业服务领域;大力发展乡镇企业,积极挖掘第三产业就业潜力;将开发社区就业岗位实现就地就业与拓展劳务输出实现外出就业相结合。
(5)建立全面的社会保障机制。将解决被征地农民的社会保障问题作为征地的前置条件;全面社会保障的目标和标准要因地制宜;为被征地农民社会保障机制建立专项基金,确保建立全面社会保障制度的资金需求;积极探索被征地农民社会保障基金保值增值运行机制。
论文的创新之处有:
(1)提出实现被征地农民的“可持续生计”是我国城市化和工业化的重要内容和组成部分
被征地农民与城市之间不是简单的土地供求双方这样一种关系,被征地农民是城市化和工业化的主体之一,是重要的参与者。在城市化和工业化进程中实现被征地农民的“可持续生计”,帮助被征地农民继续生存和发展,完成被征地农民的职业转换(从事农业生产到从事非农生产的转换)和身份转换(从农民到市民的转换),完成被征地农民和城市、工业的融合,相互促进共同发展,是城市化和工业化的重要内容和组成部分,也是检验城市化和工业化是否实现健康发展的首要条件。
(2)提出允许被征地农民参与土地增值收益分配,以保障被征地农民的合法权益
提出应当在科学、合理评估土地价格的基础上,允许农民参与土地增值收益分配。运用相关理论设计了土地增值收益分配模型,使农民参与土地增值收益分配能够实现定量化,在实践操作中有科学的参照标准。
(3)提出区别公益性与非公益性征地目的,实行不同的征地补偿和安置标准
提出应按照征地目的的不同,严格区分公共利益和非公共利益两种不同性质的征地行为,采取不同的征地补偿和安置标准。对于公益性征地,以土地市场价格为基础,以相应补偿为原则,提高征地补偿和安置标准。对于非公益性征地,以市场价格为基础,以完全补偿为原则,引入谈判机制,由用地单位与农民个体(集体)自行谈判确定补偿和安置标准。
China is a big developing agricultural country. Land is the most important part of farming and livelihood security of farmers. Industrialization and urbanization are the only way to eliminate urban-rural structure and realize modernization. As the promotion of industrialization and urbanization, mass of agricultural land became non-agricultural with a result of many farmers losing their land. However, because of the lagging land acquisition system reform, large amount of land-expropriated farmers, and relatively low compensation and resettlement fee, and as well as the ineffective resettlement for land-expropriated farmers, the poor re-employment ability of land-expropriated farmers, incomplete social security system, many land-expropriated farmers turn to vulnerable groups with no land, no job and no social security. The problems of land-expropriated farmers have turned to be important factors affecting the national economic development and social security, as well as hot issues concerned by the society.
How to compensate and resettle land-expropriated farmers reasonably, how to solve their surviving and developing problems practically according to the design and implementation of relevant policy system, and how to protect land-expropriated farmers’rights and interests effectively, are the hot focuses on solving“three agricultural problems”, the important issues influencing rural social stability and rural development as well as the realization of China’s modernization.
Guiding by the compensation and settlement theory of land-expropriated farmers, basing on the comparison of the practices of land-expropriated farmers compensation and resettlement both at home and abroad, this paper studies deeply the main problems of land-expropriated farmers in current China, and makes empirical analysis on a series of practical compensation and resettlement exploitation of Shandong Province. Based on the above-mentioned analysis, the author has raised a systematic design of compensation and resettlement for land-expropriated farmers in China and proposed a set of policies and measures.
The paper is divided into seven chapters as follows:
The first chapter is the introduction which explains the research background, purpose and meaning, briefs on the study trends both at home and abroad, and clarifies the research guidelines, methods and the possible innovations.
The second chapter is the theory concerning the compensation and resettlement for land-expropriated farmers, which deeply analyzes the compensation and resettlement theory for land-expropriated farmers land rent theory, and recognizes such theories as land lease theory, land price appraising theory, the theory of the game on land expropriation, administrative rent-seeking theory, and sustainable livelihoods theory are the guidelines to help solve the problems concerning land-expropriated farmers in practice. At the same time, it analyzes respectively the theories in terms of the guiding functions of the compensation and settlement for land-expropriated farmers.
The third chapter is the learning from the experiences of compensating and resettling the land-expropriated farmers both at home and abroad. This chapter compares land-expropriated farmers’compensation and resettlement systems and compensation systems of land expropriation in the developed countries, summarizes the inspirations for our country to solve the compensation and resettlement for land-expropriated farmers:1.Strictly controlling land expropriation and protecting the maximum arable land; 2. Only can the state expropriate the land; 3. The land expropiation should be for public purposes; 4. Setting multiple compensation standards in accordiance to market principles; 5.Establishing and improving land expropriation procedures so as to make the expropiation legal and orderly; 6. Establishing arbitration organizations handling land disputes. Based on the analysis of the flaws and their causes of the compensation and allocation of land-expropriated farmers, the author emphasizes on summing up the practices of the compensation and resettlement for land-expropriated farmers across the country, including the model of resettlement with retained land, the model of property development, the model of leasing houses, the model of equity dividend, the model of land and bank, the model of exchanging social security with land, the comprehensive model of the trinity, unemployment protection model, pension model, minimum livlihood model and employment promotion model.
The fourth chapter is the analysis of the major problems resulting from of land expropriation. This chapter deeply analyzes the issues such as identity conversion, employment and compensation which are caused by land expropriation and their causes.
1.The slow conversion of farmers’identity after their land is expropriated. Many land-expropriated farmers have turned to be actural non-farmers after their land has been expropiated, while their identities are still farmers. The unclear identities make it difficult for them to enjoy the same benefits as urban residents in terms of social security, education and fundamental facilities.
2. The land-expropriated farmers have difficulties in respect of reemployment. Because most of the land-expropriated farmers have less education and and lack skills, it is difficult for them to get reemployment. As matter of fact, for most land-expropriated farmers, land loss means unemployment. It is very easy to cause social stability issues because of lack of money for their livlihood.
3. Low compensation for land-expropriated farmers. Many issues such as contradiction between expenditure and income, heavy expenditure of medicare and education, and aimless investment.
4. The research on the reasons for land-expropriated farmers’issues. The reasons for the issues in terms of indentity conversion, employment, and compensation income for land-expropriated farmers can be analysed in the following six parts: (1) Land-expropriated farmers’interests can not be protected because of the unclear land expropriation concept, uncertain scope and purpose for land expropriation. (2)The compensation prices for the land expropriated are not reasonable, and farmers’interests are damaged because the government compensate the land according to appropriate compensation principle rather than the market trading prices. (3) The resettlement for land-expropriated farmers is incomplete. The resettlement with money is the main method. Plus, local governments have tried some auxiliary resettlement measures including resettlement with social security, resettlement with retained land, resettlement with employment and resettlemnt with agricultural production. The auxiliary resettlement measures play an important role in solving the livelyhood of land-expropriated farmers, while some problems still exist, for example, auxiliary resettlement measures replace the money compensation for land-expropriated farmers. (4) The land use control system is not complete so that the land wasting took place. (5) The abuse of the right to expropriate the land due to incomplete land circulation system and land trading mechanism cannot help control the land scope for construction and protection of arable land,and protect the interest of land-expropriate farmers. (6) The interests for rural collectives and farmers have not been protected by law and their losses have not been compensated due to incomplete law and regulations for land expropriation.
The fifth chapter is the empirical analysis of the compensation and resettlement for the land-expropriated farmers---the practical exploration in Shandong Province. This chapter takes Shandong Province as the example to analyze the practices made to solve the problems resulting from urban expansion, which concern the compensation and resettlement for land-expropriated farmers. Large differences in terms of locations and economic development exist among different regions in Shandong Province which is a major agricultural and populous province. The author thinks that many practices made by Shandong Province to compensate and resettle the land-expropriated farmers are worth expanding. The practices mainly include six respects as consolidating the land acquisition standards, multiple methods to resettle the land-expropriated farmers; establishment of basic life security system; increase of compensation standard and establishment of the Land Acquisition Swap Capital system; resettlement for the land-expropriated farmers by implementing resettlement policies, establishing new suburban residences and building major villages; reemployment arrangement for land-expropriated farmers; the smooth identity transformation from farmers to urban citizen; guiding the land-expropriated farmers to invest their compensation income and to expand their income sources.
The sixth chapter is the overall strategy of the compensation and resettlement for land-expropriated farmers. In this chapter, the author thinks that the compensation and resettlement for land-expropriated farmers is a comprehensive project which needs system innovation and systematic design, raises the guidelines and principles of the compensation and resettlement for land-expropriated farmers, proposes the governments at all levels to be responsible for the compensation and resettlement for land-expropriated farmers, urges the governments to transform their concepts, to define and limit the right to acquire farmland and supervise the whole process of land acquisition so as to assure the governments to play their functions. The author also proposes that the Sustainable Livelihood for land-expropriated farmers is the basic aim in terms of the compensation and resettlement for land-expropriated farmers and the policy frame design to realize the aim. The policy frame mainly includes four parts as follows: building equitable and reasonable land acquisition and resettlement system to guarantee enough compensation; guiding the farmers to make full use of the compensation capital for the long run; guiding and helping the farmers to transform their occupations smoothly; and establish good and complete social security system for land-expropriated farmers in advance.
The seventh chapter is the policy and measure for the compensation and resettlement for land-expropriated farmers. The author proposes the workable and specific measures to solve the problems existing in the matter of compensating and resettling the land-expropriated farmers, which include modification and improvement of land acquisition and compensation system, improvement of collective land ownership in rural areas, optimization of land expropriation and compensation mechanism, guide and help of the land-expropriated farmers to engage in asset operation, encouragement of the land-expropriated farmers’transformation to non-agricultural areas, and establishment of comprehensive social security mechanism.
The possible innovations are as follows:
1. Sustainable livelihood proposed in the paper is the important content and parts in the process of China’s urbanization and industrialization.
The relation between the land-expropriated farmers and cities is not just land supply and demand. Land-expropriated farmers should be the important participants. The Sustainable Livelihood realized during the process of urbanization and industrialization is the important content and parts urbanization and industrialization and the prerequisite to test whether the urbanization and industrialization is developed healthily or not. The Sustainable Livelihood is to help the land-expropriated farmers to continue their living and development, to finish the occupation transformation from agricultural production to non-agricultural production and the identity transformation from peasants to urban citizens, to realize the well combination among the land-expropriated farmers, cities and industry.
2. The proposition of allowing land-expropriated farmers to take part in the benefit distribution of land value increment so as to guarantee the legal rights of land-expropriated farmers
The author proposes that land-expropriated farmers should be allowed to take part in the benefit distribution of land value increment on the basis of scientific and reasonable land appreciation, and makes use of the theories concerned to design the workable benefit distribution model of land value increment in practice, from which the quantitative benefit distribution of land value increment results.
3. Distinction between nonprofit and non-public welfare purpose of land acquisition, implementation of different land compensation and resettlement criteria.
The dissertation thinks that we should strictly differentiate two different land acquisition acts between public interests and non-public interests in accordance with the purpose of the different land acquisition to take different land compensation and resettlement criteria. For non-public welfare land acquisition, land compensation and resettlement criteria should be ascertained by negotiation between individual farmers or collective and land use units based on the market price and full compensation for the principle.
如何对被征地农民进行合理补偿和安置,如何通过相关政策体系的设计和实施来切实解决被征地农民的生存问题和长远生计,确保被征地农民权益得到有效保障,是解决“三农”问题的一个焦点,是关系农村社会稳定和发展的重大问题,也是关系我国现代化能否顺利实现的重大问题。
本文以被征地农民补偿安置的理论依据为指导,对国内外被征地农民补偿安置的做法进行了分析比较和经验借鉴,对我国农民被征地引发的主要问题进行了深入研究,对山东省补偿安置被征地农民的一系列实践探索进行了实证分析,在此基础上,确定了我国被征地农民补偿安置的总体方略,并提出了补偿安置被征地农民的一系列具体政策措施。
全文共由七章内容构成。
第一章,导言。本章主要阐述了论文的研究背景、研究目的和意义,简要综述了国内外研究动态,阐明了研究思路、方法及创新之处。
第二章,被征地农民补偿安置的理论依据。本章对被征地农民补偿安置的理论依据进行了深入分析。认为地租理论、土地价格评估理论、征地过程的博弈及行政寻租理论、“可持续生计”理论是指导我们在实践中解决被征地农民问题的依据,并分别分析了这些理论对被征地农民补偿安置的现实指导作用。
第三章,中外被征地农民补偿安置的经验借鉴。本章首先对发达国家被征地农民补偿安置、土地征用补偿制度进行了介绍与比较,总结了其对我国解决被征地农民补偿安置问题的启示:(1)严控土地征用,最大限度保护可耕地资源;(2)土地征用的主体只能是国家;(3)土地征用必须出于“公共目的”;(4)遵循市场原则,合理确定补偿标准并给予多样化的补偿;(5)建立和完善土地征用程序,使土地征用过程合法有序;(6)建立土地纠纷仲裁机构。然后在对我国被征地农民补偿安置的缺陷进行分析并探究其成因的基础上,着重对我国各地解决被征地农民补偿安置实践探索进行了归纳总结,分别是留地安置模式、物业开发模式、房屋租赁模式、股权分红模式、土地银行模式、以“土地换社保”模式、“三位一体”的综合保障模式、失业保障模式、养老保障模式、最低生活保障模式、就业促进模式。
第四章,农民被征地引发的问题分析。本章分别分析了农民被征地后引发的身份问题,就业问题和补偿收入问题,并对引发这一系列问题的源头进行了探究。
(1)在被征地农民身份方面,存在身份转换滞后问题。许多被征地农民已经完全失去土地成为事实上的非农居民,但他们的身份仍然是农民。“似农非农”的身份使他们在社会保障、教育、基础设施等方面难以享受到城市居民同样的待遇。
(2)在被征地农民就业方面,存在被征地农民再就业困难,被征地农民再就业受有地农民劳动力冲击等现实问题。大多数被征地农民文化水平和职业技能都较低,参与市场竞争的能力较差,加之受到有地农民劳动力非农就业的冲击,再就业十分困难。因此,对大多数被征地农民而言,失地就等于失业,他们生计缺乏来源,极易引发社会稳定问题。
(3)在被征地农民补偿收入方面,存在被征地农民的补偿收入偏低;支出与补偿收入存在矛盾;医疗和教育支出大,被征地农民不堪重负;投资支出具有盲目性和无计划性等问题。
(4)被征地农民问题产生的源头探究。农民因土地被征用所引发的身份、就业和补偿收入等方面的问题,究其产生的原因,可以从六个方面来分析。一是对征地的概念界定不清晰,征地的范围和目的等具体范畴不明确,因此就无法从根本上确保被征地农民的利益得到保障。二是征地补偿规定不合理,我国对土地征用补偿遵循“适当补偿”原则,而不是依据土地的市场交易价格(在我国即为土地使用权交易价)确定,从而造成了在现实中许多地方在确定补偿额时,严重脱离市场,损害了被征地农民的利益。三是征地安置不到位。货币安置是目前我国征地中最主要的安置方式。除此之外,各地还尝试了社会保险安置、留地安置、招工安置和农业生产安置等辅助性安置措施。各种辅助性安置措施对解决被征地农民的长远生计发挥了重要作用,但也存在着不少弊端,主要是地方政府主导色彩浓,辅助性安置措施挤占了给被征地农民的货币补偿。四是土地使用管制制度不完善,由此导致了征而不用、多征少用等土地浪费现象的发生。五是农村土地流转制度和耕地入市交易机制不健全,导致土地征用权被滥用,不利于控制建设用地规模和保护耕地,也不利于保护被征地农民的利益。六是土地征用没有健全的法律法规作保障,导致了在实际操作中征地的随意性很大,农村集体和农民的利益没有得到法律的保护,他们的损失没有得到完全的补偿。
第五章,被征地农民补偿安置的实证分析——山东省的实践探索。本章以地处沿海、经济快速发展但省内地区之间差异较大的农业大省和人口大省山东省为例,对其各地在解决城市扩张中产生的被征地农民补偿安置问题所进行的实践进行了分析,认为山东省对被征地农民补偿安置的许多做法值得推广。主要包括:统一征地标准,多种渠道安置被征地农民;建立被征地农民基本生活保障制度;提高补偿标准,建立“征地调剂资金”制度;通过实施住房安置政策、建设“城郊新居”、建设中心村对被征地农民进行住房安置;对被征地农民进行就业安排;促使被征地农民顺利转变身份;引导被征地农民合理安排补偿收入投向以及拓宽被征地农民收入来源等六个方面。
第六章,被征地农民补偿安置的总体方略。本章构建了被征地农民补偿安置的总体方略。明确了被征地农民补偿安置的指导思想和应遵循的原则,明确了被征地农民补偿安置的主体,并对被征地农民补偿安置进行明确的战略规划。在我国总体上已进入以工补农、以城带乡的发展阶段的情况下,对被征地农民进行补偿安置,必须要用科学发展观来指导。指出各级政府是被征地农民补偿安置的主体,提出要确保政府主体作用的有效发挥,必须从切实转变观念、严格界定和限制各级政府的征地权、强化征地的全过程监督三个方面转变各级政府职能,明确各级政府的主要职责。在对被征地农民进行补偿安置时必须遵循公正公平原则、群众利益优先原则和短期经济补偿与长期妥善安置相结合的原则。对被征地农民进行补偿安置的战略规划包括四个方面:以建立公平合理的征地补偿制度、保证补偿资金足额到位作为被征地农民补偿安置的出发点;以引导农民用好用活土地征用补偿金,形成长效收益机制作为被征地农民补偿安置的关键;以指导和帮助被征地农民顺利实现职业转换作为被征地农民补偿安置的重要环节;以为被征地农民建立完善的社会保障机制作为被征地农民补偿安置的基石。
第七章,被征地农民补偿安置的政策措施。鉴于被征地农民补偿安置问题产生的复杂性和长期性,结合我国人多地少、市场经济体制正趋于完善的实际情况,本章对当前和今后时期我国解决被征地农民补偿安置问题给出了可操作的具体政策措施,包括以下五个方面:
(1)优化土地征用补偿制度。尽快修订《土地管理法》;规范土地征用及补偿程序;变土地“征用-出让”(征让)单一土地转移途径为征让、征购双途径,通过引入征购这一土地用途转移方式,有利于严格区分公共利益和非公共利益两种不同性质的征地行为,从而采取不同的征地补偿和安置标准;改进土地定价评估工作,科学、合理评估土地价格;允许农民参与土地增值收益分配,并运用相关理论设计了土地增殖收益分配模型,使农民参与土地增值收益分配能够实现定量化,在实践操作中有科学的参照标准;将功能性补偿与产权补偿相结合,让被征地农民分享经济发展的成果。
(2)完善农村集体土地所有制。完善农村集体土地产权制度建设,明确农村土地集体所有权的代表实体,稳定农民土地使用权,让农民集体建设用地使用权直接进入市场流转,使国有土地和集体土地享有同等的权利;加强对农村土地承包经营权的物权保护;明确农民在土地交易中的主体地位,除因公益事业需要征用土地,并由国家给予被征地农民合理补偿外,其他所有非公益性的建设用地,应由农民与建设用地者直接谈判,农民与政府、建设用地者处于同等的谈判地位。
(3)引导和帮助被征地农民合理经营补偿收入。在土地被征用的同时,被征地农民会得到数目不菲的一笔征地补偿款。引导和帮助被征地农民进行资产经营,既是改善其生计、确保其持续发展、生活状况不断改善的一种有效办法,也是帮助他们规避各种生活风险的重要安全网之一。结合被征地农民生活和就业的实际情况,可从三个方面着手:一是抓好被征地农民的住宅规划与建设。既要确保被征地农民居有定所,也要方便他们能从房屋资产中形成长效受益机制。二是发展壮大村级集体经济。农村土地集体所有制的性质决定了在征地补偿过程中,村集体获得了大量的补偿款。利用征地补偿款发展壮大集体经济,关键是选准项目,还应倡导进行社区股份制改革,把资产量化到个人,并明确权利与责任,避免产生过去集体企业所产生的问题,确保集体资产不流失。三是运用资本运营手段保障资产增值。为切实保障被征地农民利益,有必要对补偿收入资金进行运作,使之增值,既使被征地农民有了持续收益,解除其后顾之忧,又可以提高非农化程度。
(4)促进被征地农民向非农领域转移就业。加强对被征地农民的就业培训,提高就业能力;努力开拓就业渠道,拓宽就业服务领域;大力发展乡镇企业,积极挖掘第三产业就业潜力;将开发社区就业岗位实现就地就业与拓展劳务输出实现外出就业相结合。
(5)建立全面的社会保障机制。将解决被征地农民的社会保障问题作为征地的前置条件;全面社会保障的目标和标准要因地制宜;为被征地农民社会保障机制建立专项基金,确保建立全面社会保障制度的资金需求;积极探索被征地农民社会保障基金保值增值运行机制。
论文的创新之处有:
(1)提出实现被征地农民的“可持续生计”是我国城市化和工业化的重要内容和组成部分
被征地农民与城市之间不是简单的土地供求双方这样一种关系,被征地农民是城市化和工业化的主体之一,是重要的参与者。在城市化和工业化进程中实现被征地农民的“可持续生计”,帮助被征地农民继续生存和发展,完成被征地农民的职业转换(从事农业生产到从事非农生产的转换)和身份转换(从农民到市民的转换),完成被征地农民和城市、工业的融合,相互促进共同发展,是城市化和工业化的重要内容和组成部分,也是检验城市化和工业化是否实现健康发展的首要条件。
(2)提出允许被征地农民参与土地增值收益分配,以保障被征地农民的合法权益
提出应当在科学、合理评估土地价格的基础上,允许农民参与土地增值收益分配。运用相关理论设计了土地增值收益分配模型,使农民参与土地增值收益分配能够实现定量化,在实践操作中有科学的参照标准。
(3)提出区别公益性与非公益性征地目的,实行不同的征地补偿和安置标准
提出应按照征地目的的不同,严格区分公共利益和非公共利益两种不同性质的征地行为,采取不同的征地补偿和安置标准。对于公益性征地,以土地市场价格为基础,以相应补偿为原则,提高征地补偿和安置标准。对于非公益性征地,以市场价格为基础,以完全补偿为原则,引入谈判机制,由用地单位与农民个体(集体)自行谈判确定补偿和安置标准。
China is a big developing agricultural country. Land is the most important part of farming and livelihood security of farmers. Industrialization and urbanization are the only way to eliminate urban-rural structure and realize modernization. As the promotion of industrialization and urbanization, mass of agricultural land became non-agricultural with a result of many farmers losing their land. However, because of the lagging land acquisition system reform, large amount of land-expropriated farmers, and relatively low compensation and resettlement fee, and as well as the ineffective resettlement for land-expropriated farmers, the poor re-employment ability of land-expropriated farmers, incomplete social security system, many land-expropriated farmers turn to vulnerable groups with no land, no job and no social security. The problems of land-expropriated farmers have turned to be important factors affecting the national economic development and social security, as well as hot issues concerned by the society.
How to compensate and resettle land-expropriated farmers reasonably, how to solve their surviving and developing problems practically according to the design and implementation of relevant policy system, and how to protect land-expropriated farmers’rights and interests effectively, are the hot focuses on solving“three agricultural problems”, the important issues influencing rural social stability and rural development as well as the realization of China’s modernization.
Guiding by the compensation and settlement theory of land-expropriated farmers, basing on the comparison of the practices of land-expropriated farmers compensation and resettlement both at home and abroad, this paper studies deeply the main problems of land-expropriated farmers in current China, and makes empirical analysis on a series of practical compensation and resettlement exploitation of Shandong Province. Based on the above-mentioned analysis, the author has raised a systematic design of compensation and resettlement for land-expropriated farmers in China and proposed a set of policies and measures.
The paper is divided into seven chapters as follows:
The first chapter is the introduction which explains the research background, purpose and meaning, briefs on the study trends both at home and abroad, and clarifies the research guidelines, methods and the possible innovations.
The second chapter is the theory concerning the compensation and resettlement for land-expropriated farmers, which deeply analyzes the compensation and resettlement theory for land-expropriated farmers land rent theory, and recognizes such theories as land lease theory, land price appraising theory, the theory of the game on land expropriation, administrative rent-seeking theory, and sustainable livelihoods theory are the guidelines to help solve the problems concerning land-expropriated farmers in practice. At the same time, it analyzes respectively the theories in terms of the guiding functions of the compensation and settlement for land-expropriated farmers.
The third chapter is the learning from the experiences of compensating and resettling the land-expropriated farmers both at home and abroad. This chapter compares land-expropriated farmers’compensation and resettlement systems and compensation systems of land expropriation in the developed countries, summarizes the inspirations for our country to solve the compensation and resettlement for land-expropriated farmers:1.Strictly controlling land expropriation and protecting the maximum arable land; 2. Only can the state expropriate the land; 3. The land expropiation should be for public purposes; 4. Setting multiple compensation standards in accordiance to market principles; 5.Establishing and improving land expropriation procedures so as to make the expropiation legal and orderly; 6. Establishing arbitration organizations handling land disputes. Based on the analysis of the flaws and their causes of the compensation and allocation of land-expropriated farmers, the author emphasizes on summing up the practices of the compensation and resettlement for land-expropriated farmers across the country, including the model of resettlement with retained land, the model of property development, the model of leasing houses, the model of equity dividend, the model of land and bank, the model of exchanging social security with land, the comprehensive model of the trinity, unemployment protection model, pension model, minimum livlihood model and employment promotion model.
The fourth chapter is the analysis of the major problems resulting from of land expropriation. This chapter deeply analyzes the issues such as identity conversion, employment and compensation which are caused by land expropriation and their causes.
1.The slow conversion of farmers’identity after their land is expropriated. Many land-expropriated farmers have turned to be actural non-farmers after their land has been expropiated, while their identities are still farmers. The unclear identities make it difficult for them to enjoy the same benefits as urban residents in terms of social security, education and fundamental facilities.
2. The land-expropriated farmers have difficulties in respect of reemployment. Because most of the land-expropriated farmers have less education and and lack skills, it is difficult for them to get reemployment. As matter of fact, for most land-expropriated farmers, land loss means unemployment. It is very easy to cause social stability issues because of lack of money for their livlihood.
3. Low compensation for land-expropriated farmers. Many issues such as contradiction between expenditure and income, heavy expenditure of medicare and education, and aimless investment.
4. The research on the reasons for land-expropriated farmers’issues. The reasons for the issues in terms of indentity conversion, employment, and compensation income for land-expropriated farmers can be analysed in the following six parts: (1) Land-expropriated farmers’interests can not be protected because of the unclear land expropriation concept, uncertain scope and purpose for land expropriation. (2)The compensation prices for the land expropriated are not reasonable, and farmers’interests are damaged because the government compensate the land according to appropriate compensation principle rather than the market trading prices. (3) The resettlement for land-expropriated farmers is incomplete. The resettlement with money is the main method. Plus, local governments have tried some auxiliary resettlement measures including resettlement with social security, resettlement with retained land, resettlement with employment and resettlemnt with agricultural production. The auxiliary resettlement measures play an important role in solving the livelyhood of land-expropriated farmers, while some problems still exist, for example, auxiliary resettlement measures replace the money compensation for land-expropriated farmers. (4) The land use control system is not complete so that the land wasting took place. (5) The abuse of the right to expropriate the land due to incomplete land circulation system and land trading mechanism cannot help control the land scope for construction and protection of arable land,and protect the interest of land-expropriate farmers. (6) The interests for rural collectives and farmers have not been protected by law and their losses have not been compensated due to incomplete law and regulations for land expropriation.
The fifth chapter is the empirical analysis of the compensation and resettlement for the land-expropriated farmers---the practical exploration in Shandong Province. This chapter takes Shandong Province as the example to analyze the practices made to solve the problems resulting from urban expansion, which concern the compensation and resettlement for land-expropriated farmers. Large differences in terms of locations and economic development exist among different regions in Shandong Province which is a major agricultural and populous province. The author thinks that many practices made by Shandong Province to compensate and resettle the land-expropriated farmers are worth expanding. The practices mainly include six respects as consolidating the land acquisition standards, multiple methods to resettle the land-expropriated farmers; establishment of basic life security system; increase of compensation standard and establishment of the Land Acquisition Swap Capital system; resettlement for the land-expropriated farmers by implementing resettlement policies, establishing new suburban residences and building major villages; reemployment arrangement for land-expropriated farmers; the smooth identity transformation from farmers to urban citizen; guiding the land-expropriated farmers to invest their compensation income and to expand their income sources.
The sixth chapter is the overall strategy of the compensation and resettlement for land-expropriated farmers. In this chapter, the author thinks that the compensation and resettlement for land-expropriated farmers is a comprehensive project which needs system innovation and systematic design, raises the guidelines and principles of the compensation and resettlement for land-expropriated farmers, proposes the governments at all levels to be responsible for the compensation and resettlement for land-expropriated farmers, urges the governments to transform their concepts, to define and limit the right to acquire farmland and supervise the whole process of land acquisition so as to assure the governments to play their functions. The author also proposes that the Sustainable Livelihood for land-expropriated farmers is the basic aim in terms of the compensation and resettlement for land-expropriated farmers and the policy frame design to realize the aim. The policy frame mainly includes four parts as follows: building equitable and reasonable land acquisition and resettlement system to guarantee enough compensation; guiding the farmers to make full use of the compensation capital for the long run; guiding and helping the farmers to transform their occupations smoothly; and establish good and complete social security system for land-expropriated farmers in advance.
The seventh chapter is the policy and measure for the compensation and resettlement for land-expropriated farmers. The author proposes the workable and specific measures to solve the problems existing in the matter of compensating and resettling the land-expropriated farmers, which include modification and improvement of land acquisition and compensation system, improvement of collective land ownership in rural areas, optimization of land expropriation and compensation mechanism, guide and help of the land-expropriated farmers to engage in asset operation, encouragement of the land-expropriated farmers’transformation to non-agricultural areas, and establishment of comprehensive social security mechanism.
The possible innovations are as follows:
1. Sustainable livelihood proposed in the paper is the important content and parts in the process of China’s urbanization and industrialization.
The relation between the land-expropriated farmers and cities is not just land supply and demand. Land-expropriated farmers should be the important participants. The Sustainable Livelihood realized during the process of urbanization and industrialization is the important content and parts urbanization and industrialization and the prerequisite to test whether the urbanization and industrialization is developed healthily or not. The Sustainable Livelihood is to help the land-expropriated farmers to continue their living and development, to finish the occupation transformation from agricultural production to non-agricultural production and the identity transformation from peasants to urban citizens, to realize the well combination among the land-expropriated farmers, cities and industry.
2. The proposition of allowing land-expropriated farmers to take part in the benefit distribution of land value increment so as to guarantee the legal rights of land-expropriated farmers
The author proposes that land-expropriated farmers should be allowed to take part in the benefit distribution of land value increment on the basis of scientific and reasonable land appreciation, and makes use of the theories concerned to design the workable benefit distribution model of land value increment in practice, from which the quantitative benefit distribution of land value increment results.
3. Distinction between nonprofit and non-public welfare purpose of land acquisition, implementation of different land compensation and resettlement criteria.
The dissertation thinks that we should strictly differentiate two different land acquisition acts between public interests and non-public interests in accordance with the purpose of the different land acquisition to take different land compensation and resettlement criteria. For non-public welfare land acquisition, land compensation and resettlement criteria should be ascertained by negotiation between individual farmers or collective and land use units based on the market price and full compensation for the principle.
引文
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①杜梅萍:经济社会发展新阶段新认识——访国务院发展研究中心农村经济部部长韩俊,前线,2005(3)。
①韩俊:失地农民的就业和社会保障,中国经济时报,2005年6月24日。
①中国社会科学院社会政策研究中心课题组:关于解决失地农民问题的政策建议,中国经贸导刊,2004(24)。
①韩俊:失地农民的就业和社会保障,中国经济时报,2005年6月24日。
①王克强,王洪卫,刘红梅:土地经济学,上海财经大学出版社出版,2006年。
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