摘要
土地托管作为供销社综合改革的切入点而得到政府的大力支持。但在实践中,供销部门土地托管却遭遇困境。本文以山东省共享县供销部门土地托管为个案,通过构建复合型治理理性框架分析土地托管遭遇困境的深层次原因。研究发现,科层治理理性限定了相关主体的行为边界,政策支持的形式化和供销部门与农业部门的职能重叠,是导致供销部门土地托管遭遇困境的首要原因。供销部门内部关系并未理顺和协调,导致其开展土地托管的积极性和主动性难以激发,这是供销部门土地托管遭遇困境的内部原因。县供销社与县级政府、县直部门和乡镇政府等外部主体的关系难以理顺,相关主体更多地基于个人利益最大化的目的,与农村社会主体形成利益共同体,共同抵制供销部门的土地托管,这是供销部门土地托管遭遇困境的外部原因。为此,政府应该采取破除各方主体对供销部门的污名化理解、创新采用"财政切块"方法、提升供销部门职责履行能力以及加快供销社法制建设等措施推动土地托管政策的有效执行,深化供销社综合改革。
Land trusteeship,as a breakthrough point of the comprehensive reform of supply and marketing cooperatives,has received strong support from the government.But in practice,the land trusteeship policy of supply and marketing cooperatives has encountered difficulties.This article takes land trusteeship of supply and marketing cooperatives in Shandong Province as an example and analyzes the deep-seated causes for the dilemmas of land trusteeship by constructing a rational framework of compound governance.The study finds that the rationality of bureaucratic governance limits the action boundaries of relevant subjects,and the formalization of policy support and the overlapping functions of supply and marketing cooperatives and agricultural departments are the primary reasons for the difficulties of land trusteeship of supply and marketing cooperatives.The internal relationship of supply and marketing cooperatives have not been smooth and coordinated,which makes it difficult to stimulate their enthusiasm and initiative to carry out land trusteeship policy.That is the internal reason for the land trusteeship dilemmas.It is difficult to straighten out the relationship between county-level supply and marketing cooperatives and external entities such as county-level governments,county-level departments,and township governments.Related entities,based on the purpose of maximizing their personal interests,form a community of interests with rural social entities and jointly resist land trusteeship of supply and marketing cooperatives.That is the external cause of the difficulties.Therefore,the government should take measures to promote the effective implementation of land trusteeship policy and deepen the comprehensive reform of supply and marketing cooperatives,such as breaking the stigmatized understanding of supply and marketing cooperatives of all parties,innovatively adopting the"financial segmentation"method,improving the ability of supply and marketing cooperatives to perform duties,and accelerating the legal construction of supply and marketing cooperatives.
作者
豆书龙
张明皓
DOU Shulong;ZHANG Minghao
出处
《中国农村经济》
CSSCI
北大核心
2021年第1期125-143,共19页
Chinese Rural Economy
基金
西北农林科技大学博士科研启动项目“土地托管助推小农户衔接现代农业发展机制及其支持政策研究”(编号:Z1090220299)的资助
关键词
供销部门
土地托管
科层治理理性
关系治理理性
Supply and Marketing Cooperative
Land Trusteeship
Bureaucratic Governance Rationality
Relational Governance Rationality
