Thoughts on the “Ten Thousands of Fertile Land Construction Project”

1 The background and significance of the "Ten Thousands of Fertile Land Construction Project"

The "Decision of the Central Committee of the Communist Party of China on Several Major Issues in Promoting Rural Reform and Development" passed by the Third Plenary Session of the 17th CPC Central Committee It made specific expressions on the "land reform" that all walks of life are concerned about and gave a clear direction. In order to further deepen the reform of the land system and implement the Scientific Outlook on Development, promote the coordination of urban and rural areas and the construction of a new socialist countryside, achieve a win-win situation of protecting resources and ensuring development, strengthen the conservation and intensive use of land, optimize the land use structure, and promote the development of large-scale and modern agriculture, Promote the effective aggregation of rural farmland resources, construction land resources, labor resources, market demand and public service resources.

The "Notice on Printing and Distributing the "Pilot Plan for the "Ten Thousands of Fertile Land Construction Project" in Jiangsu Province" issued by the Department of Land and Resources of Jiangsu Province (Su Land Zifa [2008] No. 290, hereinafter referred to as the "Notice") It is clearly pointed out that the "Ten Thousands of Fertile Land Construction Project" is based on promoting the construction of a new socialist countryside. Through large-scale farmland consolidation, large-area, contiguous high-standard farmland will be built to promote the scale and modernization of agricultural production and operations; through construction land space Integrate, optimize the land use structure, conserve and intensively use land; promote the identity transformation of farmers to citizens by concentrating farmers to live in cities and enjoy social security, and accelerate the urbanization process. In order to implement the spirit conveyed in the "Notice", Suqian Economic Development Zone plans to launch the "Ten Thousands of Fertile Land Construction Project" pilot project in Sankeshu Township.

2 Innovation Points

2.1 Combining land development and consolidation with linking, that is, land consolidation based on linking

The linking project is actually a form of land consolidation , that is, the "village" arrangement in the comprehensive arrangement of "fields, water, roads, forests, and villages". Simply separating linked projects from comprehensive land consolidation is inconsistent with the requirements of new rural construction.

The "Ten thousand hectares of fertile land construction project" is based on the land development and consolidation project as the carrier, and takes the implementation of the policy of linking the increase and decrease of urban and rural construction land as the starting point. To a certain extent, it combines the land development and consolidation with the linked projects. A new land consolidation model based on hooks was established. It is to increase the effective cultivated land area and improve the quality of cultivated land through comprehensive improvement of fields, water, roads, forests and villages; to move rural residents to cities and towns, to save and intensively use construction land; to build large-area, contiguous and high-standard farmland, It is a systematic project to optimize the regional land use layout and achieve the goals of agricultural land concentration, residential agglomeration, land use intensification, and benefit concentration.

2.2 Coordination of the demolition compensation plan with the agricultural population resettlement plan

The "one-time kick" type of monetary compensation and resettlement lacks long-term consideration for the future of landless farmers, often It is difficult to effectively solve the employment and entrepreneurship of landless farmers in the long term, and it is even more difficult to solve the worries of landless farmers once and for all. This method is contrary to the policy of "Construction Project of Ten Thousands of Fertile Land" and should not be adopted.

The centralized development resettlement represented by Hunan’s “Xianjia Model” not only solves the employment problem of land-lost farmers, but also solves the lifestyle changes and social security issues of land-lost farmers. However, the centralized resettlement model still has shortcomings: first, its scope of application is small, and it is only suitable for economically developed and convenient transportation areas; second, its degree of marketization is poor, which restricts the flexibility and initiative of the flow and appreciation of collective property.

The land shareholding resettlement model is in line with the "improving the transfer mechanism of land contract management rights on a legal, voluntary and paid basis" proposed in the "No. 1 Document" of the Central Committee in 2006. It is a change in my country's land acquisition compensation method. and innovation. At present, our country has not yet formulated a unified national land investment law, so "land investment" cannot be legally protected. In addition, our country's financial market system is very imperfect, and equity investment operations will face great risks.

The social security-type resettlement represented by the "Jiaxing Model" integrates the basic lives of land-expropriated farmers into the social security system of urban residents, and implements classified resettlement for the agricultural population who need to be resettled according to different genders and ages. It is a method, but it also has its limitations: land compensation for landless farmers is low, and they have to pay high premiums, so the level of protection is low.

Due to the socio-economic differences in the areas where the "Ten Thousands of Fertile Land Construction Project" is located, there are also certain differences in farmers' living habits, education levels, material living conditions, etc., and there are also different understandings and understandings of land acquisition issues. understanding, coupled with the shortcomings of various resettlement models, which also determines that it is impossible to build a unified compensation and resettlement model for landless farmers. Each project area should comprehensively consider the pros and cons and find the most appropriate compensation and resettlement model or combination of models.

The Suqian Economic Development Zone's "Ten Thousands of Fertile Land Construction Project" has optimized the model combination. The project area involves the relocation of 1,759 farmers, and adopts the farmers' concentrated residential area - "Happy Community" ” resettlement method, farmers purchase resettlement houses by raising part of their own funds plus demolition compensation, so that they can be resettled first and then demolished.

At the same time, Suqian Economic Development Zone has begun to establish and improve the employment training and social security system for farmers in the project area. This is not only a fundamental requirement for building a new socialist countryside and building a harmonious society, but also for maintaining social stability. , it is of great significance to promote the sound and rapid development of economic development zones.

The population is divided into 4 age groups according to age. Based on the principle of "legal, voluntary and paid", people in the 2nd, 3rd and 4th age groups who give up their land contract management rights can choose whether to participate. Basic living security. The development zone and the township people's government should take active measures to encourage and support farmers to participate in basic living security. The financial department shall set up a special basic living security fund account for farmers in the project area in the bank (composed of individual farmers' basic living security personal accounts and social pooling accounts). Let farmers who have given up their land contract management rights enter the basic living security system for land-expropriated farmers and enjoy equal access to basic living security, employment, medical treatment and other policies for land-expropriated farmers. The specific operation method is explained below.

The township government took the lead in establishing the Sankeshu Township Agricultural Economic Cooperative. The farmers signed a land contract management rights transfer agreement with the cooperative, agreeing to be managed or contracted by the cooperative, and the land compensation fees were paid with the operating or contracting income. and resettlement subsidies, the funds are managed by the financial department. For farmers who have given up their land contract management rights and have not entered the basic living security system, the financial department will directly pay land compensation, resettlement subsidies and living allowances for persons under 16 years old to the farmers; those who have given up their land contract management rights and have entered the basic living security system No less than 70% of the land compensation fees and all resettlement subsidies for farmers in the project area will be transferred to the individual accounts of farmers' basic living security in the project area. If a person receiving basic living security dies, the principal and interest balance in his or her personal account can be inherited in accordance with the law.

Basic living security for farmers who have given up their land contract management rights in the project area is divided into two forms: pension and living allowance. The fee is first paid from the personal account. If the personal account is insufficient to pay, the fee is paid from the social pooling account. Among them:

People in the first age group will receive a one-time living subsidy of 4,000 yuan, which will no longer be included in the basic living security;

People in the second age group will receive it on a monthly basis starting from the month when the land is delivered. Living subsidy, with a period of 2 years and a standard of 120 yuan;

People in the third age group will receive a monthly living subsidy with a standard of 100 yuan starting from the month when basic living security is implemented. After reaching the retirement age Receive pensions on a monthly basis;

Farmers in the fourth age group receive pensions on a monthly basis. The pension payment standard should not be lower than the local average supplementary standard of rural minimum living security in the previous year. The specific standard shall be determined by the township government of the project area.

For farmers who do not give up their land contract management rights, they can prepay the security fee in one lump sum or in installments, and enjoy pension security when they reach retirement age.

The farmers’ pension security system is coordinated by the government and is integrated into the unified management of Sankeshu Township in Suqian Economic Development Zone in accordance with the territorial principle.

In accordance with the principle of "government guidance, departmental supervision, and farmers benefiting", combined with the employment requirements and actual production needs of enterprises in the development zone, the government arranges for demolished farmers to undergo free training at the public training base in the development zone. Technical training. Through training and competition for employment. After farmers master the skills of employment enterprises, they not only solve the problem of employment difficulties in enterprises, but also create conditions for their own development.

At the same time, we must rationally adjust the urban and rural industrial structure and vigorously develop the tertiary industry. Through various professional and technical trainings, demolished farmers are consciously guided to develop into the tertiary industry and start their own businesses. After the completion of the "Happy Community", it together with the "Harmonious Home" *** formed the two major residential gathering areas in Sankeshu Township. Correspondingly, more demolished farmers will be attracted to engage in tertiary industries such as property management, public security management, catering, and service industries. The demolished farmers will be encouraged to engage in activities such as doing business and opening stores. Subject to policy permission, self-employed entrepreneurs will be provided with financial, tax, and other services. Provide support in terms of venues, fees, etc. to reduce their entrepreneurial risks and enhance their confidence in starting their own businesses.

What is more urgent is that we should actively expand community employment channels and combine solving the problem of reemployment of landless farmers with strengthening urban education, greening, environmental protection, health, transportation, convenience services and other undertakings, so that This creates a cycle of providing jobs and creating local wealth. After the plan is implemented, the original village committee members of Dahua Village, Yanglou Village, Tongwei Village and Yangwei Village Baozhuang Group can participate in community management work in farmers’ concentrated areas, and village primary school teachers and medical staff can receive skills training , organize examinations and select some of them for employment in kindergartens, primary schools and Sankeshu Township Hospital in the development zone.

2.3 Effective implementation of the concept of flexible planning

In planning, the so-called flexibility refers to the adaptability of planning ideas and indicator systems to the random development of the market economy. If planning is used as the dependent variable, planning (PR) can be regarded as a function of the market (Si), that is,

PR=f(S1, S2, S3,..., Sn)=f(Si)

In the formula: S1, S2, S3,..., Sn - market factors with uncertainty.

Figure 1 Schematic diagram of elastic planning

As long as one of the market factors changes, it will lead to a relevant response in the planning itself. The sensitivity of this response is flexibility. As shown in Figure 1, planning accepts signals of market changes (M), and through government intervention (N) and market adjustment mechanisms, planning makes corresponding adjustments to market change signals, thereby realizing a flexible planning mechanism under market economy conditions. The elastic planning process is the process of achieving corresponding adjustments through market regulation and administrative intervention under the stimulation of M and N.

The core of the "Ten thousand hectares of fertile land construction project" is to carry out land consolidation based on linked planning, integrating the two originally independently operated projects into one, and improving the scientific planning on the basis of avoiding duplication of construction and saving operating costs. sex and sustainability. At this time, the requirements for cost saving and intensive land use can be regarded as the market (Si), and the planning assumption of land consolidation based on linked planning is a rapid response to changes in Si, such as the "Ten Thousands of Fertile Land Construction Project Area" in Suqian Economic Development Zone "The demolition involved involved 1,759 households and a population of 6,879. But at the same time, considering that the land contracted by the demolition households (891 households, 3,238 people) in the linked project area in 2007 and 2008 was transferred together with the land in the project area, the agricultural population resettlement plan involves 2,650 households with a population of 10,117 people. This not only saves material and labor costs and achieves efficient operation of government functions, but also reflects the flexibility of planning. Moreover, the farmers included in the demolition within the Suqian project area have independent choices of resettlement models and differentiated measures for people of different age groups, which all reflect the flexibility of the plan. However, flexible planning is in a subordinate position. Its role is to make up for the shortcomings of planning rigidity, so that plans with certain rigidity can enhance the flexibility of their preparation and implementation, and better integrate planning science and planning art into the practical activities of planning preparation and implementation. Among them, flexibility must not be discussed in isolation from rigidity, and planning flexibility can only be moderate flexibility. Therefore, land consolidation based on linked planning must be based on flexible planning that obeys the rigid content of linked planning and land consolidation.

3 Several issues that need to be paid attention to in the "Ten thousand hectares of fertile land construction project"

3.1 Determination of the project area

Since the "Ten thousand hectares of fertile land construction project" is aimed at the current local Problems such as scattered farmland management, backward production methods, disordered village layout, excessive land occupation per household, and low security levels have been raised. This requires this measure to promote the transformation of agriculture from decentralized operations to large-scale operations, and from traditional agriculture to modern agriculture. change. Therefore, the determination of the project area should meet the following requirements: ① Taking the county (city, district) as a unit, the scale of agricultural land consolidation with a total area of ??more than 1,000 hectares and a subdivided area of ??more than 300 hectares; ② In line with urban planning and overall land use planning, and reflecting the The connection of relevant plans; ③ Obtain the consent of members of collective economic organizations in the project area; ④ The local government has government financial resources or socialized fund supporting capabilities that are suitable for project construction.

By screening matches with the above-mentioned relevant conditions, Suqian City determined that the Dahua Area and the Yanglou Tongwei Area in the Economic Development Zone are the two large areas of the "Ten Thousands of Fertile Land Construction Project". It can be seen from the remote sensing pictures that the rural settlements in these two large areas are scattered and the land use methods are extensive. Moreover, the Dahua area and Yanglou Tongwei area determined by this construction project are fully connected with the development planning map of the economic development zone. Moreover, the old demolished plots in the "Linked Planning for the Increase and Decrease of Urban and Rural Construction Land in Suqian Economic Development Zone, Jiangsu Province (2007-2009)" are all located in Dahua Village, Sankeshu Township, which reflects the concept of land consolidation planning based on linked planning (Figure 2 , Figure 3).

Figure 2 Remote sensing images of Yanglou Tongwei area (left) and Dahua area (right)

Figure 3 The location of the two large areas in the Suqian Economic Development Zone development plan< /p>

3.2 Establish a project management and innovation mechanism

The implementation of the "Ten Thousands of Fertile Land Construction Project" involves many departments such as land, finance, construction, agriculture, water conservancy, transportation, environment, etc., with thousands of tasks Thousands of threads and complex relationships require mutual cooperation and support from all parties, and an efficient and effective organizational leadership mechanism should be established.

In order to ensure the smooth implementation of the "Ten Thousands of Fertile Land Construction Project" of the Economic Development Zone, Suqian City was established with the mayor as the team leader, the executive deputy mayor as the deputy team leader, and the members were composed of the Agricultural and Industrial Affairs Office of the Municipal Committee, the Land and Resources Bureau, and Finance Bureau, Planning Bureau, Agriculture Bureau, Agricultural Development Bureau, Construction Bureau, Development and Reform Commission, Water Conservancy Bureau, Urban Management Bureau, Transportation Bureau, Forestry Bureau, Labor and Social Security Bureau, Civil Affairs Bureau, Environmental Protection Bureau, Public Security Bureau, Supervision Bureau, Procuratorate, A leading group composed of responsible comrades from the courts, audit bureau, power supply bureau, telecommunications bureau and other departments, as well as the main leaders of the Suqian Economic Development Zone Management Committee where the project area is located, is responsible for the municipal review and pilot of the "Ten Thousands of Fertile Land Construction Project" planning plan Unified leadership and coordination of work.

The Suqian Economic Development Zone Management Committee is responsible for the specific implementation work based on the construction tasks assigned by Jiangsu Province and the approved implementation plan. A working group for the implementation of the "Ten thousand hectares of fertile land construction project" was established, with the main leader as the team leader, the leader in charge as the deputy leader, and the heads of relevant departments and townships as members. It is responsible for the organization and implementation of the "Ten thousand hectares of fertile land construction project" and coordinates and solves various problems. Conflicts, timely research on major issues that arise during the pilot work, implement various supporting measures, follow up on supervision and guidance, evaluate the effectiveness of the work, and promote the smooth development of the pilot work in an orderly manner.

3.3 Achieve full public participation

Since the project area is large and involves many farmers, preliminary preparation and explanation work must be done in advance to ensure social stability. The “No. 1 Document” of the Central Committee of the Communist Party of China in 2006 clearly stated: “We must adhere to the basic rural management system, respect the dominant position of farmers, and constantly innovate rural systems and mechanisms; we must adhere to the people-oriented approach, strive to solve the most pressing practical problems in farmers’ production and life, and effectively make Farmers get benefits.

"As the main body, farmers' participation in the construction of new countryside is not only participation in labor or attendance at ceremonies, but also includes involvement in decision-making and selection processes, contribution and efforts, commitment and ability, utilization and control of resources, capacity building, self-organization and self-reliance, and benefit sharing. Emphasizing that farmers are the main body of new rural construction does not mean that the government can just ignore it. Canada’s experience is worth learning from. First, it should establish a “rural dialogue” mechanism to enable the federal government to understand rural public opinion and opinions in a timely manner. development status; the second is to establish a "rural lens" mechanism to enhance the awareness of officials at all levels of government and departments to "care about the countryside" and "actively serve the countryside"

Only rural construction has achieved the goal of "rural development". The transformation from "top to bottom" to "bottom to top" has realized the transformation from "external development" to "internal development". The concept of "Ten thousand hectares of fertile land construction project" can be fully implemented, and rural construction can have a long-term and sustainable development. It also has creative vitality.

3.4 Strengthen the integration of land consolidation

Rural urbanization is an inevitable process of sustainable social development, which requires rural communities to increasingly possess the characteristics of modern urban communities. At this stage, people pay more attention to rural land consolidation, because the engineering technology, cultural traditions, and ecological economy involved in rural land consolidation are relatively simple compared to urban land development and consolidation. However, since urban-rural integration is an inevitable trend, in the future. Land development and consolidation, especially land development and consolidation in the urban-rural fringe, land development and consolidation in cities and towns involving the relocation of villages and towns, must integrate urban land development and consolidation with rural land development and consolidation, and this is the future of land development and consolidation

3.5 Maximize comprehensive benefits

The two-fold policy of new rural construction is "production development, affluent life, civilized rural style, clean village appearance, and democratic management". "Production development and village appearance neatness" are to improve farmers' production and farming conditions, organize the entire area, and improve the appearance of the countryside. Therefore, the linkage work should not just focus on reclaiming old homesteads into cultivated land. Implement comprehensive consolidation. Local governments should also use the "Ten Thousands of Fertile Land Construction Project" to improve the appearance and working environment of the entire project area.

For example, rural landscape planning and land consolidation processes in the Netherlands are closely linked. Judging from the development trend of land consolidation projects in the Netherlands, their focus is purely on adjusting agriculture and evolving into more effective multiple uses of land in rural areas. Correspondingly, the rural landscape planning in the Netherlands has gradually shifted from agriculture to agriculture. In view of this, the final blueprint of the "Ten Thousands of Fertile Land Construction Project" should be social benefits, economic benefits, and ecological benefits**. *A new trend of winning.

Suqian City's "Ten Thousands of Fertile Land Construction Project" can promote the concentration and contiguous agricultural land through the consolidation of rural construction land. Through the construction of forest networks, it can improve the water and soil structure, improve the ability to maintain yields during droughts and floods, and reduce the risk of drought and floods. Threats of natural disasters such as floods and droughts, and enhance the ability to withstand natural disasters - change the messy pits, ponds, puddles and scattered irrigation canal systems into a unified and orderly drainage and irrigation system that can both irrigate and drain floods, improving water conservancy and drainage level; improve the uneven and winding rural roads to facilitate mechanized operation and pedestrian management of the road network, improve the level of road network; optimize the rural land use structure and layout, can promote the zoning of production and living functions in rural residential areas, and facilitate the The control of domestic pollution sources can reduce pollution to the agricultural ecological environment; scientific planning and rational layout of residential areas can help improve the appearance of the countryside. Through the above transformation and construction, a modern ecologically efficient agricultural park with "square fields, canals forming a network, forests forming rows, roads forming frames, and villages concentrated" will emerge, significantly improving the ecological landscape of the project area.

3.6 Optimize the operation of the funding model

At present, the main sources of financing for domestic land consolidation are finance and land transfer fees, which undoubtedly increases the burden on the finance. And once there is a funding gap, it will also affect the quality of the project to a certain extent.

BOT (Build-Operate-Transfer) is a new investment cooperation method that has emerged internationally since the 1980s. The basic idea is that the government or affiliated institution of the country where the project is located provides a concession agreement as the basis for project financing for the construction and operation of the project, and domestic companies or foreign companies serve as investors and operators of the project to arrange financing and bear risks. , develop and construct the project and operate the project for a limited time to obtain profits, and finally transfer the project to the corresponding government agency according to the agreement (Figure 4).

The special funds required for the construction of the "Ten Thousands of Fertile Land Construction Project" in Suqian Economic Development Zone will be raised by the Development Zone Management Committee. The initial start-up funds can be raised through the development zone finance and Agricultural Development Bank loans. The shortfall can be raised from The government's daily net income from land sales is included in the expenditure to implement the policy requirements of cities supporting rural areas and industry supporting agriculture. Fiscal advances and loans are mainly recovered through the net income from the transfer of land for new reserved areas in the linked turnover indicators: the shortfall in the three funds raised from the land transfer fees for new reserved areas, land consolidation fees and land operating income can be used for loans from the Agricultural Development Bank, Funds used for agricultural development from key agricultural development and construction funds and net income from land transfers can also be used to obtain support funds for rural road reconstruction and water improvement in Jiangsu Province and funds for agricultural development, water-saving irrigation and other projects.

At the same time, we can consider establishing a diversified and multi-channel construction financing mechanism for the "Ten Thousands of Fertile Land Construction Project", adopting a market operation and owner development model, and extensively absorbing social funds to invest in project implementation.

In view of my country’s special national conditions, the government is still operating as the main body and the market is supplementary. However, a new situation of market dominance in the future cannot be ruled out.

Figure 4 BOT mode diagram