《Land Use Policy》| Li et al：中国新农村“三权分离”土地改革导致草地退化：来自内蒙古的实证研究

中国草业发展战略研究中心 2022-12-31

收录于合集

摘要：中国目前正在实施“三权分离”改革，以整治农村土地。这一改革将农村土地产权分为三个部分：不可流转的所有权、不可流转的承包权和可流转的土地使用权。此改革以市场为导向的草原使用权出租作为主要方式。然而，这种安排可能会破坏草原恢复的基石，即草原财产的安全和生态系统服务政策的支付。作为市场导向的替代办法，还鼓励合作社参与草原使用权整治。采用自然实验方法，系统研究了内蒙古两种不同的土地整治方式对草地生态系统服务功能的影响。租佃草地除供给服务外，其他生态系统服务功能均严重退化。被交易的草地使用权被认为是不安全的，这导致了佃农掠夺性的土地使用。相比之下，合作社经营的草地其生态系统服务没有出现严重退化，但这些合作社通过主要亲属关系来限制其群体规模，以避免搭便车的问题；因此，它们不太可能成为草地整治的主要渠道。由于生态系统服务政策补贴仍然分配给草地承包商，而不是租户，这些政策与被租用草地的保护无关。经过分析，提出了完善我国新农村土地产权改革的几点建议，以避免我国草地退化的大浪潮。

关键词: 生态系统服务支付；草地租赁；草地退化；生态服务；合作社；草地生态

Abstract ：China is currently implementing the “separating three property rights” (STPR) reform to consolidate rural land.This reform divides rural land property rights into three components: nontradable ownership, nontradable contractual rights and tradable land use rights. The STPR reform adopts the rental of grassland use rights, a market-oriented approach, as the main arrangement for grassland consolidation. However, this arrangement may undermine the cornerstones of grassland restoration, which are the security of grassland property and payments for ecosystem services (PES) policies. As an alternative to the market-oriented approach, cooperatives are also encouraged to consolidate grassland use rights. We used a natural experiment approach to systematically examine how two different land consolidation arrangements affected key grassland ecosystem services in Inner Mongolia. In rented grasslands, all ecosystem services except provisioning services degenerated severely. Traded grassland use rights were perceived as insecure, which led to predatory land use by tenants. In contrast, cooperative-managed grasslands showed no serious degradation in ecosystem services. However, these cooperatives limited their group size by chief kinship to avoid the free-rider problem; thus, they are unlikely to become a primary channel of grassland consolidation. Because PES policy subsidies are still allocated to grassland contractors rather than to tenants, these policies are irrelevant to the conservation of rented grasslands. Based on our analysis, we suggest several ways to improve this new rural land property reform to avoid a major wave of grassland degradation in China.

Keywords：Payment for ecosystem services；Grassland rental；Grassland degradation；Ecosystem services；Cooperative；Rangeland ecology