细碎化产权VS整片化土地利用：评承包地确权颁证对农户农地利用集体布局、投资与流转的影响

Household responsibility system establishes the dual operation system of “the combination of centralization and decentralization” in Chinese agricultural production. With the deepening of the reform, the protection of farmers’ rights of land use and freedom has been strengthened. The policy guidance has a trend to be " decentralization " and the " centralization " has been weakened. The policy of land titling and issuing of certificates which is now being implemented and popularized is to further enhance the individual rights of farmers. However, due to the very small land area of households under the household contract responsibility system, agricultural production has shown a strong intensity in certain vital fields such as selection and adjustment of production types, agricultural machinery utilization and land infrastructure investment , showing strongly the economies of scale, externalities and public product characteristics, and therefore showing the characteristics of collective decision-making as well. The intensifying of individual land rights does not help or even may hinder agricultural development until the collective scale of land is fully expanded and most of the collective decision-making is internalized into individual free decision-making. On one hand, this paper reveals the collective decision-making characteristics and fields of agricultural land use, and analyzes the relationship between decision-making model (separate or joint) and land size. On the other hand, based on the collective selection theory, taking contracting land、land titling and issuing of certificates for example, the paper analyzes the influence mechanism which rights segmentation and individual rights strengthening may have on collective decision-making. And finally provide a decision-making reference for the effective implementation of the combination of centralization and decentralization.

家庭联产承包制确立了中国农业生产“统分结合“的双层经营体制。随着改革的深入，农民个体土地权利得以不断强化；政策导向呈现“分”的趋势，“统”的一面则有所削弱。正在实施和推广的农村土地确权颁证政策旨在进一步增强农民个体权利。然而，由于家庭联产承包责任制下农户的地块面积非常小，农业生产在某些至关重要领域，例如生产种类的选择与调整、农业机械利用以及土地基础设施投资等方面，表现出强烈的规模经济、外部性与公共产品特征，因此也表现出集体决策特征。在地块经营规模充分扩大、大部分集体决策内化为个体自由决策之前，对个体土地权利的强化不但无助于甚至可能有碍于农业发展。本研究一方面揭示农地利用的集体决策特征及其领域，分析决策模式（单独还是联合）与地块规模的关系；另一方面基于集体选择理论并以承包地确权颁证为例，分析权利分割与个体权利强化对集体决策的影响机制。最终为有效实施统分结合、“三权分置“”提供决策参考。

中国家庭联产承包制下，整片土地被碎片分割给众多农户承包经营；在紧挨着的小地块上，农业生产诸多领域存在着规模经济与外部性，表现出了集体决策的需要；政府也相应地建立了统分结合双层经营体制进行治理。随着城乡经济的快速转型，农户开始大量参与非农就业；这一方面使组织土地利用集体决策的难度加大，另一方面也使土地转出增多，为改变碎片分割的土地经营格局和降低集体决策需要创造了条件。政府希望通过深化土地产权制度“三权分置”的改革，既让农民放心地转移就业并转出土地，又能促进转出地以连片的形式向少数农户集中、形成规模经营。承包地确权是“三权分置”改革的一项重大措施，本项目评估了该政策对地片层面的作物种类调整、基础设施投资和相邻地块联合流转的影响。研究主要结论包括：.1．经营权碎片分割、确权与地片经营种类调整和投资关系。经营权碎片分割阻碍了地片经营种类调整；而在未改变经营权碎片分割局面之前，确权颁证也表现出阻碍调整的作用。对农户土地投资的分析，结论类似。这意味着中国土地产权制度“三权分置”改革中，需依据碎片化经营格局变化情况逐步弱化村集体而强化经营者的农业经营角色；抑或是在强化个体产权同时，提高集体决策的治理水平。.2．承包地规模、确权与相邻地块联合流转关系。转给相邻地块农户或同他们联合转出是土地流转消减耕地细碎化的主要途径。研究发现，同一地片上的地块规模越小，越可能发生农户的联合转出现象。承包地确权颁证通过明晰地块四至，可以使农户更放心地将地块转给相邻农户或者同他们一起转出，促进了联合流转的发生率。然而，确权也通过强化“产权地理垄断”不利于组织依赖土地置换的连片集中流转，使地租处于零散流转或小规模联合流转的低水平从而抑制了土地转出。确权对土地流转的总效应在实践中并不显著。.应当在“三权分置”思想指导下继续深化改革，有效治理土地产权碎片分割下个体权力和积极性保护与“产权地理垄断”间的矛盾。