人地关系协调视角下的土地整理
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摘要
以往土地整理在增加耕地、改善农业生产条件和生态环境、提高农业综合生产能力等方面取得了显著成效。随着社会经济发展,新农村建设、现代农业发展、城乡统筹、生态环境保护等一系列综合性的社会经济命题的展开,导致对土地整理研究的社会需求更为旺盛。但是,由于缺乏综合的理论视角,目前土地整理研究的理论体系建设还滞后于土地整理实践的发展,不能对土地整理及其相关的社会经济命题作出科学回答。在社会经济发展的压力下,土地整理如何响应?如何加强土地整理的理论和方法创新,寻求提升土地资源综合生产能力的机理、模式与途径?成为土地资源学科建设和土地整理研究的重要方向。
     本研究适应土地整理综合化发展的趋势,在对人地关系协调与土地整理基础理论辨识的基础上,基于“人地关系背景-人地关系调控-土地整理-人地关系协调”的动态认识过程,构建了基于人地关系协调视角的土地整理过程综合分析框架。参照这一分析框架,以研究区的基本地貌格局为基础,对不同地貌格局下的人地关系特征进行了描述,借助土地利用变化分析及相关的环境效应,反映了重庆市直辖十余年来的人地关系背景,并划分了研究区不同的人地关系类型。在人地关系类型划分的基础上,探讨了不同人地关系类型区土地整理的愿景设计、目标取向、路径设置、潜力测算、现行土地整理过程分析等相关问题,构建了基于人地关系协调的土地整理评价指标体系并进行了实证应用。
     (1)基于“人地关系背景-人地关系调控-土地整理-人地关系协调”的动态认识过程,构建了人地关系协调视角下的土地整理过程综合分析框架,为土地整理研究提供了综合的认识途径。面对新的压力和经济机会,微观尺度的个体响应会改变土地利用行为,驱动土地利用变化;而在社会、经济及资源环境压力下,宏观尺度的公共政策响应也会提出新的社会经济命题,这些命题与土地利用相联系,与微观个体相互作用,形成人地关系调控的新途径。从土地整理着手,科学设定土地整理愿景、目标和路径,并进行科学系统的综合评价,可实现土地整理有效调控人地关系。分析框架摆脱了“二元论”的束缚,反映了基于系统论解释人地关系相互作用机制的新方向。
     (2)人地关系背景分析与类型划分是针对性进行人地关系调控的科学依据。一定地貌格局下的土地利用变化分析可粗线条地反映区域人地关系背景。分析结果表明,重庆西部方山丘陵区,人地关系紧张,退耕还林和农地利用的集约化以及农民生产经营行为的变化,导致劣质坡耕地转向生态用地,改善了生态环境;东北部构造溶蚀层状中山区,在相对集中的优质农地上实施了小面积的集约化生产,同时结合退耕还林,将生产能力低下的耕地用于发展生态产业,减少了人类活动对敏感生态环境的扰动;中部平行岭谷低山丘陵区,人地关系高度紧张,虽然退耕还林和农地利用集约化利用有利于改善生态环境,但是剧烈的非农建设活动和化肥、农药等生产要素的追加导致了环境退化;东南部强岩溶化峡谷低中山区,由于农业劳动力大量外流,作为农地利用集约化的逆过程,粗放化和弃耕现象明显,改善了脆弱的生态环境。基于人地关系背景分析,综合各区域社会经济发展及相关规划,将重庆市划分为都市高压区、环都市紧张区、渝东北敏感区和渝东南脆弱区4种人地关系类型区。人地关系类型区的合理划分,为从土地利用角度进行人地关系调控提供了科学性和针对性。
     (3)资源禀赋基础、社会经济发展战略、产业发展功能定位、未来人地关系情景以及土地利用战略导向是土地整理进行愿景设计的基础和依据。①都市高压区土地整理愿景应服务于区域经济安全,完善城市功能与结构,提高城市土地集约利用水平,改善土地利用条件,转变土地利用功能,发展都市现代农业,推进新农村建设,为城市建设置换用地空间;②环都市紧张区土地整理愿景应服务于重庆市经济和粮食安全,为现代农业生产、规模化集约化经营造就条件,为改善农村居住生活环境,承接都市区的经济梯度转移、支撑区域经济安全提供用地空间;③渝东北敏感区土地整理愿景应服务于区域生态和粮食安全,改善土地利用条件,培育区域特色农业和绿色农业,引导农村产业、居住、公共设施相对集中,营造良好、稳定的生态环境;④渝东南脆弱区土地整理愿景应服务于区域生态和资源安全,加快生态林网建设,加强灾毁地、石漠化及流域综合整治,大力发展生态农业,改善贫困地区生产、生活条件。
     (4)土地整理愿景设计框架和中心功能定位确定了土地整理的目标取向,适合的路径设置是土地整理目标实现的关键。①都市高压区土地整理目标取向应以经济增效为中心功能,为城镇建设和产业发展置换用地空间,并兼顾都市农业发展和新农村建设。城市土地整理、开发区整理、农村居民点整理和农地整理的相互匹配模式是适合的路径;②环都市紧张区土地整理目标取向应以粮食增产稳收、经济增效为中心功能,为促进农业发展、粮食安全,改善人居环境创造条件,同时为承接都市高压区经济发展和建设用地扩张提供支撑。适合的土地整理路径应是以农业生产为主的土地整理模式与以中心村和小城镇为中心的土地整理模式相互匹配;③渝东北敏感区地整理目标取向应以维护和改善生态环境、提高土地生产能力为中心功能,为促进生态保护和农业发展提供保障。生态型土地整理、农业生产综合型土地整理、生态屏障建设型居民点整理的相互匹配模式是适合的路径;④渝东南脆弱区以生态恢复治理、重塑农业生态景观为中心功能,为生态恢复和重塑农业生态景观,促进贫困人口脱贫致富创造有利的条件。合理保护未利用地的整理、灾害防治型土地整理、农业生态景观建设型土地整理以及生态脱贫型农村居民点整理相匹配的整理模式是适合的路径。
     (5)耕地整理、农村居民点整理、适宜未利用地开发和废弃地复垦是构成重庆市土地整理潜力的主要来源。但受资源基础、地形地貌、农村人口规模等因素约束程度不同,不同人地关系类型区土地整理潜力大小和时空分布存在差异。潜力测算结果显示,重庆市新增耕地总潜力为272990.22hm~2,新增园林地及其他农用地总潜力为127037.34hm~2。新增耕地总潜力中,都市高压区21697.12 hm~2,环都市紧张区109921.70hm~2,渝东北敏感区94938.81 hm~2,渝东南脆弱区46432.59 hm~2;新增园林地及其他农用地总潜力中,都市高压区为15481.01 hm~2,环都市紧张区44582.16hm~2,渝东北敏感区53235.68 hm~2,渝东南脆弱区13738.49 hm~2。同时,受相同制约因素影响,同一人地关系区内不同评价单元间土地整理新增耕地、林园地及其他农用地的潜力也存在差异。
     (6)土地整理的过程和效果可客观反映和真实刻画土地整理实践自身的特征和协调区域人地关系的状况。运用2000-2008年研究区土地整理项目统计及相关过程资料,结合212份农户有效调查问卷综合分析,结果表明:①在新增耕地率方面,受未利用地开发、废弃地复垦在土地整理规模中所占比重影响,新增耕地率表现出渝东南脆弱区>渝东北敏感区>环都市紧张区>都市高压区,这与各类型区土地整理潜力资源分布相一致;在土地整理投资强度方面,无论实施规模还是新增耕地每公顷投资强度,均表现为项目级别越高,投资强度越大,即国家级项目>市级项目>区县级项目;项目空间配置方面,经济发展程度和政策导向主导了土地整理项目时空配置,结果表现为渝东北敏感区>环都市紧张区>渝东南脆弱区>都市高压区;②增加耕地显著、农业基础改善、生态完整性提高、促进农民收益是目前土地整理在各人地关系类型区获得的共同成效,但同时“目标单一,模式雷同”、生态型土地整理实践不深入、项目实施后评判机制缺位是土地整理在各类型区存在的普遍问题。
     (7)从土地整理调控人地关系、协调人地矛盾、展现人地关系愿景的角度出发,围绕土地整理导致土地利用条件变化,土地整理的环境、灾害、生态效应,土地整理的资源、经济、社会效应三个方面,确定了28个具体考量指标,构建了基于人地关系协调的土地整理评价指标体系。并通过选取重庆市不同人地关系类型区20个典型土地整理项目,运用AHP与模糊综合评判的方法进行应用评价。评价结果显示,都市高压区人地关系协调度为0.6383,环都市紧张区为0.6659,渝东北敏感区为0.5747,渝东南脆弱区为0.5463。各人地关系类型区土地整理实现人地关系协调程度相差不大,且协调度都在0.6左右。表明目前土地整理在协调各类型区人地关系方面都只取得基本理想的效果,距各类型区土地整理协调人地关系的愿景相差甚远,且在土地整理导致土地利用条件变化、产生相应的环境效应和带来的经济和社会效应方面,各类型区间又存在差异。
     综上所述,面对土地整理及其相关的社会经济命题,本研究以人地关系系统为认识框架,基于“人地关系背景-人地关系调控-土地整理-人地关系协调”的动态认识过程,构建了基于人地关系协调视角下的土地整理过程综合分析框架,为土地整理研究提供了综合的理论视角;人地关系类型的科学划分,较为清楚地刻画出重庆市域的人地关系格局;对不同人地关系类型区土地整理愿景设计、目标取向、路径设置和潜力测算以及现行土地整理过程分析的研究,为重庆市土地整理促进人地关系协调发展提供了指导;基于人地关系协调的土地整理评价指标体系的构建及应用,丰富了土地整理评价理论并客观揭示了重庆市土地整理在协调区域人地关系方面的效果。
Existing land consolidation projects effectively increased the amount of cultivated land, improved agricultural facilities and environment, and enhanced overall agricultural productivity. With the development of social economy, the social demand for land consolidation is increasing since it is related with a series of topics, such as construction of new socialist countryside, modern agricultural development, balancing urban and rural development, and environment protection. However, little attention has paid on comprehensive understanding of land consolidation, since there is a gap between the development of land consolidation theories and its practices. So there lacks scientific answer to land consolidation and relevant social economic problems. For example, how is the pressure of social economic development relieved by land consolidaiton? How to find out the mechanism, pattern and path of increase comprehensive productivity of land resources, mainly through the innovation of land consolidation theories and practices? These problems are very important but no answer in the study of land consolidation and land resource science.
     The analytic framework provided integrative ways to understand land consolidation from the perspective of coordination of HLR, which was based on the dynamic analysis of'context of HLR-coordination of HLR-land consolidation-visions of land consolidation'. It was directed by the theories of coordination of HLR and identification of land consolidation, and was orientated at providing deeper understanding of comprehensive land consolidation. Based on the framework, this dissertation divided the types of HLR, taking Chongqing municipality as a case study. First, land use change and its corresponding environmental effect were analyzed in the basis of description of the characteristics of different landform pattern. Second, the specific context of HLR was explored in Chongqing after it was designated as the fourth Municipality directly under the Central Government. After that, vision designing, oriented objective, path selection and potential appraisals and the process of land consolidation were explored in areas with different HLR types. Finally, the performances of land consolidation were assessed by an index system related to the coordination of HLR, based on samples of land consolidation projects in Chongqing.
     The results are listed as follows:
     (1) The analytic framework based on coordination of HLR provided integrative ways to understand land consolidation. It was put forward based on the analysis of'context of HLR-coordination of HLR-land consolidation-visions of land consolidation'. Micro agents would change their behaviors of land use as a response to new pressure and economic opportunity, which would further driver land use change. Then macro public polices would respond to new social economic problems in the pressure of society, economy, resources and environment. The interaction of micro agents and macro policies would require new ways of coordinating HLR. Land consolidation was regarded as a useful way in the coordination of HLR, if the visions, objectives and paths were designed and assessed scientifically and systematically. The proposed framework could be used to better explain the interaction of human and land based on systematic theory rather than dualistic theory.
     (2) The context analysis and zoning division of HLR types provided scientific foundation of coordination of HLR. The context of HLR would be reflected from land use change analysis in a certain landform. First, a conflict of HLR was witnessed in the western mesa and hilly areas, where environment was improved by'grain to green'policy, intensive agricultural land use and peasants' behavior change in agricultural production and operation. Second, a highly intensive conflict of HLR was found in paralleled valleys and low mountains and hills in the middle of Chongqing. Environment degradation in this area was aggravated by intensive non-agricultural construction activities and use of fertilizer and pesticides, despite it was partly weakened by'grain to green project'and intensive agricultural land use. Third, the disturbance of human activities on environment was reduced in middle-hilly area with eroded and stratified structure in the northeast of Chongqing. In this area, concentrated and high-yield cultivated land was used in small-scale intensive agricultural production, while low-yield cultivated land was utilized in ecological industries due to sloping land conversion program. Fourth, rocky area in valleys and low-middle hills in the southeast part was characterized by recovery from fragile ecological system, which was aroused by extensive and abandoning agricultural production in contrast to intensive land use with transfer of large rural labor force. Based on the above analysis and other plans in social economic development, four types of HLR in Chongqing could be distinguished, namely metropolitan areas with a highly intensive conflict of HLR, a peri-urban area with conflict of HLR, a northeast area with sensitive HLR, and a southeast area with fragile HLR. The rational division of HLR types provided scientific foundation for coordination of HLR through land use.
     (3) The vision designing of land consolidation should consider multiple factors, such as regional resources endowment, social economic development, agricultural functional localization, scenarios of future HLR, and strategic positioning of land use. First, the visions of land consolidation in the metropolitan area could be concluded as ensuring regional economic security, improving urban function and spatial structure, promoting intensive level of urban land use. They also included improving land use efficiency and enhancing its function, developing modern agriculture, and promoting new socialist countryside construction as well as making space for urban expansion through land consolidation. Second, the visions of land consolidation in the peri-urban area should aim at ensuring security of economic development and food supply for Chongqing Municipality. In order to achieve the goals, some measures should be taken into consideration, such as facilitating intensive and scale operation for modern agriculture, improving living environment for rural inhabitants, receiving transferred industries from urban areas, and providing available land for regional economic development. Third, the visions of land consolidation in the northeast area were summarized as ensuring regional security of food and ecology for this area. The facilities for use should be improved through land consolidation projects and the featured or green agriculture should be cultivated through adjustment of agricultural structure. Land consolidation should promote concentration of rural industries, rural inhabitants and public facilities and construction of good and stable ecological system. Fourth, the visions of land consolidation in the southeast area could be described as ensuring security of ecology and resources. Thus the objectives of land consolidation included construction of ecological forest network, rehabilitation of land destroyed by disaster, land with desertification or land in river basins, development of ecological agriculture, and improvement of living and producing conditions for the poor area.
     (4) Objective selection of land consolidation was on the basis of vision designing and central function positioning. Path selection was key factor in achieving the objective of land consolidation. First, the objectives of the metropolitan area were to achieve economic benefits, indicated by making space for urban construction and industrial relocation, and at the same time developing urban agriculture and constructing new socialist countryside. The best path for this area was integrated land consolidation composed of urban land consolidation, development zone's land consolidation, rural residential consolidation and farmland consolidation. Second, the objectives of land consolidation in the peri-urban area were to achieve economic benefits and increase grain production, to promote agricultural development and food security, to improve living environment, and to facilitate transferred industrial development and urban construction. The suitable path of land consolidation should include farmland consolidation for the purpose of agricultural development, and land consolidation in central villages and small towns. Third, the objectives of land consolidation in the northeast area were to maintain and improve environment, improve agricultural productivity. The suitable path should be integration of ecology-oriented land consolidation, farmland consolidation for agricultural development, rural residential consolidation in ecological protection area. Fourth, the objectives of land consolidation in the southeast area were ecological recovery or rehabilitation, agricultural landscape optimization and poverty reduction. The reasonable path in the area should include unused land development, disaster preventing land consolidation, land consolidation for optimized landscape pattern, and rural residential consolidation for the sake of poverty reduction.
     (5) The potential of land consolidation sourced from cultivated land consolidation, rural residential consolidation, unused land development, wasteland reclamation in Chongqing. However, the potential and its spatial-temporal distribution varied in different HLR areas, due to the impacts of different resource endowment, landform, rural population and so on. The results of potential estimation showed that most of the total potential for newly increased cultivated land amounted to 272,990.2 hm2 in the whole Chongqing, and the potential for newly grown horticulture land, forestland and other agricultural land added up to 127,037.34 hm2. In terms of cultivated land potential, the metropolitan area had a potential of 21,697.12 hm2; the peri-urban area having 109,921.70hm2; the northeast area 94,938.81 hm2; the southeast area 46,432.59 hm2. The potential for increased other agricultural land was 15,481.01 hm2 in the metropolitan area; it being 44,582.16 hm2 in the peri-urban area; 53,235.68 hm2 in the northeast area; 13,738.49 hm2 in the southeast area. Furthermor, the potential of newly increased cultivated land, horticultural land, forest land and other agricultural land varied from county to county in the same HLR areas, as a result of different constrains in different counties.
     (6) The process and effects of land consolidation could really reflect the characters of land consolidation practices and coordination of regional HLR. The data used in the analysis included statistics of land consolidation and related materials in the study area between 2000 and 2008, and questionnaire surveying with 212 households. The results showed that the amount of newly increased cultivated land was in the top rank in the southeast area, the second in the northeast area, the third in the peri-urban area, the least in the metropolitan area, which was in accordance with the distribution of land consolidation potential. The amount was mainly determined by the ratio of the amount of unused land development and wasteland reclamation to the amount of land consolidation. In terms of investment of land consolidation, the higher the level of land consolidation projects was, the larger average input per hectare of the total land area or increased cultivated land area was. So the investment per hectare of national projects was more than that of municipal projects, and even more than that of country projects. Furthermore, the distribution of land consolidation projects was impacted by social economic developments and policies making. The northeast area had the highest number of projects, whereas the metropolitan area the second, the southeast area the third, and the metropolitan area the lowest. According to assessment, land consolidation has positive effects such as increasing cultivated land, improving agricultural facilities, protecting intact ecosystem and increasing household income. However, there were many common problems brought about by land consolidation, including simplifying objectives in land consolidation, conforming design of land consolidation projects, neglecting eco-environment recovery, and lacking post-evaluation of projects.
     (7) The evaluated index system was proposed form three kinds of effects brought about by land consolidation, including effects of land use change, effects of disaster and eco-environment, effects related with resource, economy and society, which were connected with adjusting and regulating HLR, reducing human and land contradiction, realizing visions of HLR, respectively. Indices with a number of twenty eight were selected to assess the performance of land consolidation, and then twenty land consolidation projects representing with different HLR were selected for assessment. The methods of AHP and fuzzy comprehensive evaluation were applied. The results indicated that the coordination degree of HLR was 0.6383 in the metropolitan areas,0.6659 in the peri-urban area, 0.5747 in the northeast area, and 0.5463 in the southeast area. The coordinating degree of HLR had no significant difference between different HLR areas, with a proximate value of 0.6. Generally, land consolidation projects had satisfied effects as expected in terms of relieving HLR conflicts, but actual effects of land consolidation projects lagged behind the visions mentioned above. In addition, land consolidation projects had variations in land use change and its multiple effects related to environment, economy and society in these areas.
     In sum, this dissertation conducted a series of research on land consolidation. Considering the relationship between land consolidation and related social economic issues, integrated theoretical perspective was established in land consolidation research, based on the investigation of dynamic process of'context of HLR-coordination of HLR-land consolidation-visions of land consolidation'and the analytical framework of coordinating HLR. The scientific classification of HLR types accurately described the pattern of HLR in Chongqing municipality. After that, study of vision designing, objective selection, path definition, potential appraisal and process investigation provided better understanding on how to coordinate HLR through land consolidation. Finally, the establishment and application of index system of land consolidation from the perspective of coordination HLR improved the theory of land consolidation assessment, and disclosed the effects of coordinating HLR through land consolidation.
引文
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