全域土地综合整治:实践轨迹、执行困境与纾解路径--基于苏北S县的个案分析  

Global Land Comprehensive Consolidation:Practice Track,Implementation Predicament and Solution Path——Based on Case Study of S County in North Jiangsu Province

作　　者：于水[1] 汤瑜 YU Shui;TANG Yu(School of Public Administration,Nanjing Agricultural University,Nanjing 210095,China)

机构地区：[1]南京农业大学公共管理学院,南京210095

出　　处：《农业经济与管理》2020年第3期42-52,共11页Agricultural Economics and Management

基　　金：国务院发展研究中心项目(2019001);国家社会科学基金青年项目(19CZZ03);江苏高校哲学社会科学研究重点项目(2018SJZDI066);江苏省研究生培养创新工程项目(KYCX18_0731)。

摘　　要：土地整治是应对资源约束趋紧、生态保护压力增大和农业现代化不足、回应新型城镇化及新农村建设发展要求的重要举措。全域土地综合整治因其内容的系统性、规划的前瞻性和手段的综合性成为土地整治全新样态。以苏北S县全域土地综合整治为研究个案,采取"解剖麻雀"的研究方法,分析县乡村三级主体推进过程中的实践理路,在此基础上梳理全域土地综合整治中暴露出的非技术层面执行困境。研究发现,全域土地综合整治在实施过程中呈"高层推动-中层调适-底层创新"的运行轨迹,但也相应出现行政包揽、执行扭曲和精英俘获的执行问题。建议从"价值、组织和制度"三维路径出发扭转政府、行政人员及乡村精英的实利性价值取向,构建农户自治协作组织和执行监督机构,完善农民参与机制、利益分配机制和乡镇财政政治体制。As a response to the requirements of new urbanization and new rural construction,global land consolidation played an important role in dealing with resource constraint,ecological protection pressure and agricultural modernization shortage.Comprehensive land consolidation was a new pattern of land regulation,which had the characteristics of systematic content,prospective planning and comprehensive means.Taking the comprehensive land consolidation in S County of North Jiangsu Province as a case and"dissecting sparrow"as a research method,the practical approaches and the implementation dilemma at the non-technical level in the process of project promoting were analyzed.It could be found that the implementation of global land comprehensive consolidation was on the track of"high-level promotion--middle-level adjustment--low-level innovation".However,some corresponding problems,such as administrative outsourcing,executive distortion and elite capture,appeared.It was suggested that the three-dimensional path of"value,organization and system"should be taken to reverse the practical value orientation of the government,administrative personnel and rural elites,the self-government cooperative organization and executive supervision organization of farmers should be constructed,and the mechanism of farmers'participation,benefit distribution and township financial and political system should be improved.

关 键 词：全域土地综合整治 矩阵式结构 精英俘获 话语权 

分 类 号：F301.2[经济管理—产业经济]