基于城乡统筹的农村土地综合整治研究——以南京市靖安街道“万顷良田建设”为例

COMPREHENSIVE RURAL LAND READJUSTMENT VIEWING FROM URBAN-RURAL INTEGRATION DEVELOPMENT——A CASE STUDY OF "HECTARES FARMLAND PROJECT" IN JING'AN DISTRICT,NANJING

通过实地调查和定性分析考察南京市靖安街道"万顷良田建设"实践,科学界定农村土地综合整治的概念,探讨如何通过制度安排协调和处理农村土地综合整治中出现的社会关系和社会矛盾,探索城乡统筹的新路径。研究表明,农村土地综合整治不仅是包含田、水、路、林、村等建设工程,更重要的通过制度安排协调和处理工程建设中出现的社会关系和社会矛盾。农村土地综合整治是个系统工程,通过万顷良田建设、城乡建设用地增减挂钩和农用地整理等重大工程,实施耕地资源集聚、建设用地资源集聚、劳动力资源集聚、市场需求与服务资源集聚,实现资源失配格局、传统农耕作业方式、农村固有散居模式和既往城乡发展路径的转变。实现农村土地综合整治的目标,需要相应的政策供给,主要包括多元化融资、资金管理制度、户籍改革、社会保障、培训就业、权属调整、技术支撑和监督管理等制度安排。在全国范围内推进农村土地综合整治规划的背景下,科学界定农村土地综合整治的概念,探讨实现农村土地综合整治目标的制度安排无疑具有重要的理论意义和实践意义。

Through investigating the practice of Hectares Farmland Project in Jing＇an district,this paper defined the conception of comprehensive rural land readjustment scientifically, discussed social relations and social contradictions in comprehensive rural land readjustment by institutional arrangements, aiming to achieve urban-rural integration development. The results of study show that comprehensive rural land readjustment not only concerned those projects including landleveling, farml：and irrigation construction, village renovation, roads repairing ,but also cared about social relations and social contradictions in those projects. Comprehensive rural land readjustment was system engineering. It carried out a series of key engineering and system arrangement, aiming to concentrate four kinds of resources and to make four kinds of transition. The major engineering mainly included ＂Hectares Farmland Project＂ ,increase or decrease hook of urban-rural construction land and agricultural land consolidation. Four kinds of resources concentration meant concentration of farmland, construction land, labor force, market and service;four kinds of transition meant the transition of resources mismatch pattern, traditional farming practices, rural inherent scattered model and previous urban-rural development path. The system arrangement mainly included diversified financing, fund management, reform of the household registration system, social security, training and employment, technical support, land property adjustment and supervision and management. Under the background of drawing up comprehensive rural land readjustment planning in China, it is an important theoretical and practical significance to explore scientific problems of comprehensive rural land readjustment.