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灌溉农业发展的制度性推进机制研究
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摘要
灌溉农业是借助人工灌溉才能存续和发展的农业。我国是一个缺水和旱灾频发的国家,灌溉在农业发展中占极其重要的地位和作用。据概算,灌溉农业生产了我国75%的粮食和90%的经济作物,为保障国家粮食安全和经济社会稳定发展方面做出了巨大贡献。但是,近些年来,发生在华北、西北、西南地区的极度干旱和旱灾损失,也从教训眼前和警示未来的双重层面上,示明了继续研究和发展农田水利与灌溉农业的重大意义。
     本文以新古典经济学和新制度经济学的基本原理为指导,全面考察了我国灌溉农业发展的现实状况,从水权制度、水利设施产权制度和灌溉组织制度三个方面,分析了产权和组织制度对灌溉农业发展的影响,提出了相应的推进机制。主要研究结论如下:
     (1)从总量上看,我国的灌溉农业呈稳步发展之势:农田灌溉面积、农田有效灌溉面积、农田有效实灌面积、机电排灌面积、旱涝保收面积、万亩以上灌区数量都在不断增加;我国灌溉农业的发展质量也在不断提高,其主要标志是节水灌溉也在不断发展。我国灌溉农业的发展还存在如下问题:总量不足、区域差异巨大、水资源利用效率低,等等。
     (2)国有水权是我国水权的最基本的产权形式,在国有水权制度下,水资源的配置一般通过行政手段来进行,导致用水粗放,浪费严重。集体水权是我国水权的又一存在形式,在集体水权制度下,灌溉水权成为“准公共物品”,具有非排他性和消费上的非竞争性,容易出现“搭便车”的行为。私人水权和无主人水权在现实中也是一种客观存在。为推进我国灌溉农业的更好发展,建议在以下方面对水权制度进行改革与完善:推进水权可交易制度发展,提高水资源配置效率;建立水权银行制度,探索水权交易新形式,补充水权交易制度;实行水权承包,完善私人水权(少量用水权)制度;加强零星水资源产权管理,消除无主人水权现象;引入市场机制,调节工农业水权转换关系。
     (3)我国的水利设施产权以国有产权制度和集体产权制度为主,在产权行使过程中容易产生负外部性和“公地悲剧”现象,同时未能很好地吸纳农民用水户参与产权运作与管理,降低了产权运作效率。本文建议对水利设施产权制度做一些改革,以推进灌溉农业更好发展:水利设施的产权制度由单一形式向多元化转变;放开灌溉水利设施的建设权,建立多元化投资机制;明确界定集体水利设施产权主体,解决所有权主体缺位问题。
     (4)我国目前的灌溉组织制度主要包括国家灌溉、农村集体灌溉、农民个人灌溉、农民合作灌溉、农民用水者协会灌溉等几种形式。其中,国家灌溉是主导形式,但也有“最后一公里”问题;集体灌溉虽然生产中需要,但正在逐年退步;农民个人灌溉灵活易行,普遍存在,但个人力量实在有限,水资源浪费较多;农民合作和协作灌溉,符合总体发展方向,但发展偏慢。本文建议采取多元化的发展机制,发展各种组织形式的灌溉,以推动灌溉农业更好发展:大力发展国家灌溉:改造老灌区,建设新灌区;恢复发展集体灌溉:创新机制,国家参与;扶持发展合作灌溉:吸收农户参与灌溉管理;补贴发展个人灌溉:“农民抗旱,政府买单”。
Irrigation agriculture exists and develops by means of artificial irrigation. Because of water shortage and frequent drought disaster in China, irrigation plays extremely important role and has key effect in agriculture development. According to the estimate,75%of grains and90%of economic crops in China are produced by irrigation agriculture, which has made enormous contribution to guarantee nation grain safety and steady development of economic society. However, in recent years, it has showed that there is a great significance to continuously research and develop farmland water conservancy and irrigation agriculture, by exceeding drought and drought loss occurred in North, Northwest and Southwest in China, from aspects of current morals and future cautions.
     In view of basic principles of new classical economics and new institution economics, this paper has overall investigated the status quo of irrigation agriculture in China, analyzed the influence of property right and organization system to development of irrigation agriculture from3aspects of water right system, property right system of water conservancy facilities, and organization system of irrigation, and accordingly applied development strategies. Main research results are as follows:
     (1) From the total amount, irrigation agriculture in China presents the trend of steady development; and increases have been made in farmland irrigation area, farmland effective irrigation area, farmland effective actual irrigation area, electric irrigation area, ensured harvest area in both drought and flood, and the amount of irrigation districts over10thousand mu; also, development quality of irrigation agriculture in China is improved continuously, with the key mark that water saving irrigation is expanding constantly as well. Problems existing in development of irrigation agriculture in China are insufficient total amount, huge difference among regions, low efficiency of water resources utilization, and so forth.
     (2) The state-owned water right is the most basic property right form in China. Under state-owned water right system, it caused extensive water using and serious waste, because that the water resources are generally configured throughout administrative methods. Collective water right is another form in China. Under collective water right system, irrigation water right becomes'quasi public article'with non-excludability and non-competitive in consuming, and the'free ride'behaviors appears easily. Personal water right and ownerless water right are also existed objectively in practice. For better development promoting irrigation agriculture in China, suggestions have been made to reform and improve water right system as follow:advancing the development of water right transaction system, promoting efficiency of water resource configuration; building water right bank system, exploring new forms of water right trading, replenishing water right trading system; using water right contracts, improving personal water right (less water utilizing right) system; enhancing property management of small amount water resources, removing ownerless water right phenomenon; introducing marketing mechanism, regulating the conversion of water right between industry and agriculture.
     (3) Property right of water conservancy facilities in China is mainly state-owned property right system and collective property right system, therefore, negative externality and'the tragedy of the commons'occur easily during property right performing, simultaneously, efficiency of running property right is decreased because it fails to attract peasant water users participating the property right operation and management. Proposals in this paper are taking some reforms to property right system of water conservancy facilities to improve the better development of irrigation agriculture; transforming from single type to diversity of property right system of water conservancy facilities; releasing the construction right of irrigation water conservancy facilities, and building multiple investigation mechanism; clearly defining property right subject of collective water conservancy facilities, resolving problems on subject lacking of ownership.
     (4) At present, irrigation organization system in China mainly includes national irrigation, rural collective irrigation, peasant individual irrigation, peasant cooperative irrigation, and irrigation of peasant using water association, and so on. Among these, national irrigation is the dominant form, but it still has the problem of'the last1 kilometer'; collective irrigation is falling behind year after year, although it is needed in production; peasant individual irrigation is flexible, easy, and ubiquitous, but the water resource wastes a lot because of the limitation of individual strengths; peasant cooperative and associated irrigation are coincide with the general development direction, however, they develops slowly slightly. Suggestions in this paper are to apply diverse development mechanism, carry out irrigation with all kinds of organization forms, to promote irrigation agriculture; energetically expanding national irrigation; rebuild old irrigation areas, build new irrigation areas; recover development of collective irrigation; innovate mechanism, incite nation participation; support cooperating irrigation; attract householders to join irrigation management; use subsidy to develop individual irrigation:'peasants combat the drought, governments pay the bill'.
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