都市边缘区空间管制效果的产权差异及其影响因素——基于基本农田保护区政策视角

在城市区域化下,基本农田保护区（农保）成为都市区生态保育的重要空间载体及划定城市增长边界依据。以广州市白云区为例,以镇和行政村为基本空间单元,研究了1997年以来基本农田保护区空间演变过程,并构建指标体系,建立不同产权主体农保转用的数理模型,揭示农保政策对不同主体管制的差异及其影响因素。研究发现：① 广州都市边缘区农保被大量转用,并以转为集体建设用地为主;② 农保政策对不同主体的空间管制效果差异较大,可分为管制有效型、集体转用失效型、国有转用失效型三种类型;③ 国有转用主要位于镇区周边,是城镇化所需代价,集体转用主要分布于靠近城市中心而远离镇区的村庄;④ 区位及村庄对非农经济收入的追求是农地集体转用的主要原因,而社会变迁因素影响并不显著。总之,基本农田制度对政府的管制有效,对集体则失效,说明了对基本农田的保护不仅需要划定刚性的物理边界,还需协调集体产权所有者的利益。

Effects of Space Control Policy to Different Types of Property Rights and Their Influences in Urban Fringe of Guangzhou,China: A Perspective of Chinese Basic Farmland Conservation Area Policy

In the context of rapid urbanization in China, the basic farmland conservation area,set as the main space control policy tool to constrict agricultural land converted to construction land since 1997, has become an important space carrier of ecological conservation and the foundation to delimitate the urban growth boundary in metropolitan area. Although some scholars hold their reservation of opinions to its real effect, the systematic empirical study about effect to different property right owners is not in-depth enough. 118 administrative villages in four towns were set as the basic spatial example units in north of Baiyun District,Guangzhou City, to study the spatial evolution process of the basic farmland conservation area from 1997 to 2012, based on the ArcGIS platform.Then the model was established to measure the effect of the basic farmland conservation area policy with three indexes, they are the proportions of basic farmland conservation area accounting for each villages, the ratios of agricultural land in 1997 converted to state-owned and collective owned construction land in 2012 respectively, for the sake to reveal the space control policy’s effects to different property right owners. Thirdly,the factors of the location, non-agricultural economic income and social change with 17 indicators, were imported to build the mathematical model to explore the space control policy’ effects to different property rights owners’behaviors and its influence.The study found that: 1) A large number of agricultural land was converted to non-agricultural use in the fringe of Guangzhou City. Most of them were converted to the collective construction land for non-agricultural industries development,giving priority to collective industrial land.Collective residential land is complementary, though it is forbidden by government. 2) The effects of space control policy of basic farmland conservation area are different between stated-owned and collective owned holders. These effects can be divided into three main types: the successful controlling, the failure controlling that leaded by collective behavior and the failure controlling that leaded by state behavior. 3) The failure controlling that leaded by state behavior is mainly located in the township around.This is the cost of urbanization through land requisition. The failure controllingthat leaded by collective behavior is mainly located in the villages close to the downtown and away from the township, with the aim to obtain city rent bonus while avoiding supervision from town government. 4) The location and pursuit of non-agricultural income from village collectiveby illegally converting agricultural land to non-agriculture use are the two main factors, which lead to policy control failure.But the social change factor is not significant. In short, the basic farmland conservation area policy has restricted the conversion behavior from government effectively.But it is failure to control collective action. It suggests that the physical boundary of basic farmland conservation area is not only the strict delineation, the interests of collective property rights owners need to be considered also.