【作者】 耿永志；

【导师】 王慧军；

【作者基本信息】 河北农业大学 ， 农业经济管理， 2010， 博士

【摘要】 农村社会保障和土地之间的关系实际上是传统保障和现代保障的关系。由于土地承载着传统保障的功能,从土地保障向对社会保障的过渡是一个较长的过渡,是土地保障不断弱化、社会保障不断强化的过程。建立和完善农村社会保障制度,必然涉及到它与传统保障的关系,必然涉及到农村社会保障与农地制度的关系问题。农村社会保障品具有半公共物品的性质,我们主要从以下几个角度考察了农村社会保障和土地之间的关系。(1)利用传统经济学的供求理论,结合农村社会保障品的公共物品属性,对农村社会保障品供给、需求及均衡问题进行了分析,从中考察了土地因素对农村社会保障品供给和需求的影响。并在第六章利用抽样调查数据对当前我国农村社会保障品的供求状况进行了分析。(2)利用制度变迁理论,在城乡统筹发展的背景下,考察土地保障向社会保障的变迁过程。着重分析了在农村劳动力转移、城镇化、公共财政加大对农村社会保障品投入力度的情况下上述过程的实现。并在2030年实现城乡人均社会保障基金支出均等化的假定条件下,对医疗保险和养老保险的城乡统筹进程进行了估算。(3)构建了土地性收入和社会保障支付能力之间的灰色关联模型。研究结果表明：土地性收入在所有类型的收入当中与农户总收入的关联度最好,其次是转移性收入和工资性收入。在社会保障品价格确定的情况下,提高农民来自土地的收益和工资性收益,对于农村社会保障制度建设具有较强的推动作用。更为重要的是,转移性收入也与农民总收入有着较好关联,增加政府对农民的补贴是推动农村社会保障事业发展的重要方面。(4)考察了土地制度与农村社会保障制度之间的关系。农村土地制度和农村社会保障制度建设是相互影响的关系。任何一方的改革都会对另一方产生影响。农村社会保障和土地之间存在着如此紧密的联系,从这个关系出发,都会为我们的农村社会保障建设和土地制度改革带来新的启示。(1)农村社会保障制度建设方面对于农村最低生活保障,收入水平在某种程度上可以理解为惟一影响因素。当前应扩大农村最低生活保障的覆盖范围,把更多的相对贫困的人口涵盖进来。最低生活保障的规范管理问题值得重视。对于农村合作医疗保险,由于保障品价格较低,收入水平并未对农民的参保构成障碍,新型农村合作医疗保险的参保率较高,但是,医疗保险服务水平有待提高,疾病保障范围有待扩大。对于农村养老保险,农民对养老保险的潜在需求是很大的,但是由于在旧制度中,个人承担了主要费用,缴费金额相对较高,农民的养老保险参保率极低。新型农村养老保险应对此进行修正,坚持公共财政投入为主的方式。(2)农村土地制度改革方面从土地流转角度来看,要完善土地流转相关法规政策建议围绕农村土地承包经营权流转,对原来的相关法规进行重新审理,尽快出台促进农村土地流转的农业补贴政策。要规范土地流转行为,健全土地流转市场,完善土地流转价格形成机制,强化政府相应的服务和管理职能。要消除城乡户籍壁垒,鼓励农业企业参与土地流转。要完善农村社会保障制度,提高农村社会保障的保障能力,在城镇化进程过程中为土地流转创造良好的条件。要紧密联系小城镇建设开展农村土地流转工作,从统筹城乡土地流转的高度来认识和解决问题。政府要对土地规模经营给予引导,要对粮食单块种植面积达到一定规模的农户给予专项补贴。从土地征用角度来看,要推动农村集体土地所有权和使用权价值的实现,尽快明确界定公共利益范围,缩小征地范围,允许农民利用土地承包经营权参与多种形式的开发和经营。要提高征地补偿标准,创新征地补偿方式,逐步以持续性补偿的方式取代一次性买断式补偿方式,要采用现期补偿与追加补偿相结合的补偿方法,允许农民以入土地入股的形式参与项目开发。要建立和完善失地农民生活保障金制度,解决好失地农民的最低生活保障问题,对于失去土地造成生活困难的农民,要按照城市最低生活保障线的标准给予补助。要拓宽安置渠道,解决好失地农民的就业和社会保障问题,做到先补偿再征地、先解决社会保障再征地。(3)处理好土地制度改革和农村社会保障之间的关系农地制度改革要有利于提高农民生产积极性和农业生产效率,有利于实现土地规模经营,增加农民收入,进而增强农民社会保障支付能力。农地制度改革要与社会保障制度改革配套进行,土地改革要有利于土地承包经营权的流转,要使那些收入水平较高,并且具有土地经营权转让意愿的农民解除后顾之忧,顺利实现传统土地保障向社会保障的转变。从改革顺序来看,农村社会保障制度应当略早于农村土地制度改革,应尽快为农民土地流转解除后顾之忧,以此促进农地流转和城镇化进程。只进行土地经营权流转制度改革,而不建立和完善相应的农村社会保障制度,土地很难真正流转起来。当然,农村社会保障制度建设并不是一步到位的,土地制度改革给农民带来的收益增加,会增强农民社会保障支付能力,反过来促进农村社会保障制度建设。政策制定者要充分利用两者之间的相互促进关系,避免两者之间的不利影响,推动两项制度改革的顺利进行。(4)土地流转参与农村社会保障建设的建议建立和完善农村社会保障制度,尤其是刚刚开始的新型农村养老保险试点工作,要尽可能的使土地流转参与到农村社会保障制度建设中来。土地流转参与社会保障的方式主要有土地入股参与社会保障、土地换保障、土地租金参与社会保障、地方土地财政参与社会保障,各种参与方式所需要的条件也是不同的。对于土地依赖度较低的农民来讲,土地流转参与社会保障的主要内容在于尽快实现土地的增值,以土地收益直接参与社会保障。对于土地依赖度较高的农民来讲,短期内土地流转参与社会保障的内容应当放在土地逐步向种田能手集中、稳定和扩大农业生产、增强集体经济实力上来,逐步为农村社会保障建设积累资金上来。对于一般农民、农民工、失地农民来讲,土地流转参与社会保障的内容也是有所有同的。不论哪种性质和类型的农民,在土地流转参与社会保障的建设中,政府应拿出土地收益的一部分资金建立“新农保”土地收益专项补助金。更多还原

【Abstract】 The relationship between Rural Social Security and land is actually the relationship between traditional security form and modern security form. As the land playing a role of traditional security functions, changing from land protection to social security is a long-term process. The process shows us a trend of weakening of land, enhancing of social security. Establishment and improvement of rural social security system will inevitably involve the relationship between social security and traditional security, between social security and land.Rural Social Security has a public goods character. We study the relationship between Rural Social Security and land from several angles as following.(1) Using traditional economics theory of supply and demand, considering the character of public goods, we analyzed the supply, demand and equilibrium of Rural Social Security. Land factors which have an impact on supply and demand were summarized after above analysis. In chapterⅥ, the problem in China’s Rural Social Security product’s supply and demand is analyzed based on the data from a sample survey.(2) Using the theory of institutional change, with the background of co-ordination development between urban and rural, we analyzed the process changing from land protect to social security. We are focused on an analysis of the transition under the circumstances of rural labor transfer, urbanization, and public finance investment increasing in rural areas. We estimated the process of coordinated development of medical insurance and pension insurance between urban and rural, under the assumption that China will achieve the equalization between rural and urban in per capita expenditure on social security fund in 2030.(3) We built the Gray Correlation Model between income from land and payment capacity for social security. The result shows that:Among various incomes, the income from land has the strongest correlation with total revenue, followed by transfer payment and wage income. If the price is fixed, increase of farmer’s income from land and wage will has a strong boost on Rural Social Security system. More importantly, the transfer payment has a better correlation with total revenue; increase of government subsidies to farmers will promote the development of Rural Social Security.(4) We analyzed the relationship between land system and Rural Social Security system. There is an interaction relationship between land system and Rural Social Security system. Either side of the reform will have an impact on the other side. There is so closely relationship between Rural Social Security and land. From this relationship, we got inspiration about construction of Rural Social Security and land reform from above relationship.(1) About the construction of Rural Social Security system.For the Rural Minimum Living Security, income levels can be understood as the only factor to some extent. Rural Minimum Living Security coverage should be expanded to cover more relative poverty population. The loopholes in the management of Rural Minimum Living Security should be paid sufficient attention.For the Rural Cooperative Medical Insurance, income level of farmer’s is not an obstacle for them to join the insurance project because of the relative low prices. Participate rate of New Type Rural Cooperative Medical Insurance is relatively high, but the level of medical insurance service needs to be improved, the scope of medical insurance to be expanded.For the Rural Pension Insurance, the farmer’s potential demand of pension insurance is great. But because individual bear the major cost in the old system, the participation rate is very low. In the New Type Rural Pension Insurance, public finance should add investment in rural areas.(2) About the reform of the rural land systemGovernment should improve relevant laws and regulations about land transfer, and should make specification for rural land contracting and management rights transfer should promulgate policy of agricultural subsidies. China should regulate behavior of land transfers market players, should improve price formation mechanism in land transfer market, and should strengthen government services and management functions. The barriers in urban-rural household registration should be eliminated. Agricultural enterprises’participate in land transfer should be encouraged. Rural Social Security System should be improved to create a good condition for land transfer in the process of urbanization. Land transfer should be closely linked with the construction of small towns from the angle of land transfer between urban and rural. Government should provide guidance on large-scale land management, should give special subsidies to farmers if the grain planting area of single block land reaches to a certain size.From the perspective of land expropriation, government should contribute to realize the value of rural collective land ownership and use rights, should define the scope of public interest in expropriation of land to a narrow scope clearly, and should encourage farmers to participate in the project development with land-use right in various forms. Compensation standards of land expropriation should be improved, compensation pattern should be innovated, and the one-time buyout method of compensation should be replaced by a sustainable one. We should establish a social security fund system for landless peasants, should give those who have lost land a subsidy according to the urban minimum living standard. We should broaden the road of resettling landless peasants, strive to compensate before compensation, expropriate land before solve the problem of Social Security.(3) Deal with relationship between the land reform and Rural Social Security System.Agricultural land reform should be conducive to enhance farmers’ enthusiasm and agricultural productivity, should be conducive to achieve large-scale land management and increase farmers’ income, and enhance farmer’s ability to join social security project. Agricultural land reform and Rural Social Security reform should be packaged. Land reform should be conducive to land transfer, should make farmers who reach high income level and have the will to transfer their land took a load off and achieve the change from traditional land protection to social security protection.From the perspective of reform order, the Rural Social Security System reform should be earlier than the Rural Land System reform. Reform of Rural Social Security System can reduce farmers’ scruple after land transfer, can promote the circulation of agricultural land and urbanization. An independent reform of land operation rights transfer system without Rural Social Security System reform can’t promote land transfer. Of course, the Rural Social Security System construction is not a one-step reform. Land reform can increase farmers’ income, enhance the capacity of joining social security project, and promote the Rural Social Security System in turn.Policy-makers should take full advantage of the relationship of mutually reinforcing between two reforms, avoid the adverse effects, and promote the smooth progress of two reforms.(4) Proposal about land’s participation in the construction of Rural Social SecurityIn the process of establishing and improvement Rural Social Security system, especially in the pilot work of the China New Rural Pension Insurance, government should make land involved in rural social security system construction as possible. The model of land participation include:land appraised as capital stock, land exchange for social security, land rent for social security, social security, and land financial support. Environments of different model are various.For the farmers who have weak dependent on land, the purpose of land’s participation is to achieve and add the value of land. For the farmers who have stronger dependent on land, the purpose of land’s participation is to concentrate land to the skilled farmer, expand agricultural production, enhance the economic strength of village collective, and accumulate funds for Rural Social Security gradually.Models of land’s participation for different farmer groups are various. General farmers, migrant workers and landless peasants has different participation model. Regardless of what type of farmers, government should come up as part of land revenue funds to establish special allowance from land revenue to promote the development of New Rural Pension Insurance construction.更多还原