CAJ | 학술논문

中国土地整理已经进入农村土地综合整治阶段，土地整治以其前所未有的项目规模、推广范围和投资力度成为中国土地资源管理领域的重要议题和社会关注的焦点，并持续深入影响农村地区经济、社会、文化的发展，而以项目为载体、以追求耕地数量为目标、以“自上而下”规划管理为模式的农村土地整理普遍存在严重的过程失控和绩效不足的问题。鉴于此，该文应用过程控制和多项目比较思维，以浙江省12个项目作为评价对象，运用物元评价模型对农村土地整理项目绩效水平及影响因素进行定量研究。研究结果表明：浙江省12个国投项目绩效水平参差不齐，项目之间的差异较大，其中2个项目绩效水平优秀，1个水平良好，3个水平一般，6个水平较差；研究表明影响浙江省农村土地整理项目绩效的主要原因为田间道路密度较低、防护林林网密度较低、土地利用率改善不大、植被覆盖降低以及生物多样性减少等。集合单影响因素分析和过程控制的物元评价模型以及多项目比较的评价思维方法可为中国农村土地整理的政策创新提供科学保障；中国农村土地整理要进一步实施过程控制策略，从项目组织管理过程中寻找绩效改善的空间，理顺制度安排路径。
중국토지정리이경진입농촌토지종합정치계단，토지정치이기전소미유적항목규모、추엄범위화투자력도성위중국토지자원관리영역적중요의제화사회관주적초점，병지속심입영향농촌지구경제、사회、문화적발전，이이항목위재체、이추구경지수량위목표、이“자상이하”규화관리위모식적농촌토지정리보편존재엄중적과정실공화적효불족적문제。감우차，해문응용과정공제화다항목비교사유，이절강성12개항목작위평개대상，운용물원평개모형대농촌토지정리항목적효수평급영향인소진행정량연구。연구결과표명：절강성12개국투항목적효수평삼차불제，항목지간적차이교대，기중2개항목적효수평우수，1개수평량호，3개수평일반，6개수평교차；연구표명영향절강성농촌토지정리항목적효적주요원인위전간도로밀도교저、방호림림망밀도교저、토지이용솔개선불대、식피복개강저이급생물다양성감소등。집합단영향인소분석화과정공제적물원평개모형이급다항목비교적평개사유방법가위중국농촌토지정리적정책창신제공과학보장；중국농촌토지정리요진일보실시과정공제책략，종항목조직관리과정중심조적효개선적공간，리순제도안배로경。
In the comprehensive land consolidation stage, rural land consolidation has become into an important topic and social focus in the field of land resource management because of scale, extension coverage and investment of land consolidation projects. The development of rural land consolidation took the projects as a carrier, the cultivated land quantity as an object and the“top-down”planning management as a model in the past nearly 10 years. Under this background,the problem that process was out of control and performance was insufficiency in rural land consolidation had become far more obvious and serious. After literature review on the topic at home and abroad, it was found that most researches paid attention to the project output and only took a single project as a case, few emphasized the multi-project comparison, which may ignore the most important factors in the performance mechanism. Considering about that, the quantitative research on the performance and its influencing factors of rural land consolidation was done in this paper by the perspective of process control and multi-projects comparison. In the method, the matter-element model was applied and 12 projects of Zhejiang province was taken as the study case, which was chosen based on the field research and officers’ and peasants’ interview. The research result showed that:1) a process logic framework named IPOE (input, process, output and effect) and index system of performance evaluation on rural land consolidation projects should be constructed, which under four dimension of resource input, organization management, construction achievement and comprehensive effect. 2) Generally speaking, the performance of 12 projects in different area of Zhejiang province were different from each other, among which 2 projects were on the excellent level, 1 was on the good level, 3 projects reached the general level, 6 projects was closed to the worse level. 3) The main performance influencing factors were road network density, defense tree network density, land use efficiency, vegetation coverage and biodiversity by the comparison research results of 12 projects. 4) Matter-element evaluation model was suitable for this kind of study. The most important aspect of this method was to set up a scientific classical and extensional matter element. The research showed that:1) Macro-management policy of total amount control leaded to the local government thinking of amount-result, which deviated from the essential value of rural land consolidation far away. According to the study abroad and the research result of this paper, taking the perspective of process, not only the result, will be conducive to study the problem of rural land consolidation deeply and closer to the performance nature, which was the inevitable requirement of the rural land consolidation development in the comprehensive period; 2) Making policy of rural land consolidation needed scientific and rational evaluation method and thought. A single project or the result thinking cannot provide enough reference for the policy making, while the matter-element evaluation model collected with a single impact factor analysis and process control thinking can do. Thus, the evaluation method of multiple projects comparison can provide a scientific guarantee to the policy innovation of rural land consolidation in China;3) To some extension, lower in road network density and defense tree network density, land use inefficiency, lower vegetation coverage and reduction of biodiversity in rural land consolidation areas of Zhejiang province were the inevitable result of lack of process monitor and project organization. Finally, this paper suggests that process control tactics, institution arrangement, project organization management should be implement to reach the higher performance in Chinese rural land consolidation development in the future.