推进农村土地承包权与经营权再分离的法制构造研究

Study on the Legal Framework of Innovation about Separation of the Right to Contract and the Right to Management in Current Farmland

2014年中央一号文件提出承包权与经营权再分离是对农地所有权与承包经营权初次分离的续造,目的就是要破除初次分离下"农地农民用"和"均田承包"的制度局限,为非农身份主体携带资本进入农业生产提供渠道,满足当前阶层分化背景下农民生存与发展多层次需求,变"农地农民用"为"农地全民用"、"均田承包"为"规模经营",进一步解放"人"和"地"。承包权与经营权再分离后,在宏观层面,需妥当处理所有权、承包权与经营权的功能定位,避免"经营权一权独大、符号化所有权、虚化承包权",遏制工商资本兼并农地和改变农地用途的冲动;在微观层面,要合理厘定再分离后承包权与经营权的权能与性质,平衡两权分离后归属不同主体时的利益冲突,同时对传统承包经营权流转制度进行重造。为此,法律和政策必须要给予全方位的支持。

The 'first document',sighed by the Central in 2014,separate the right to contract and the right to management of rural land,which is further development of the first seperation between farmland ownership and right to the contracted management,the purpose is to break limitation of system which is characterized by 'Farmland can only be used by farmers and 'The average distribution of contracted land',provide opportunities for Non-fanners with capital into agricultural production,truly meet the farmers' survival and development needs of different levels,change fannland use patterns and implements the scale operation,further liberation 'person' and 'ground'.After the second separation of the right to contract and the right to management of farmland,at the macro level,we need to dispose the function orientation of the ownership,the right to contract and the right to management of farmland,avoid the case which the right to management is so stronger that symbolic ownership and weaken the right to contract,curb the impulse of industrial and commercial capital to mergers farmland and the change its use.At the micro level,we need to reasonable set the power and nature of the right to contract and the right to management of farmland,balances the conflict of interest of both rights,and remakes the transfer system of farmland at the same time.The law and policy should give full support to this land reform.