改革三十年农地使用权演变:国家政策与实际执行的对比分析

Evolution of Farm Land Use Rights during Thirty Years of Reform in China:A Comparative Analysis of Policy Evolution and Its Implementation between 1978 and 2008

改革开放以来,中国的农地使用权政策发生了巨大变化,然而这种政策变化在实践中有多大程度得到贯彻执行,至今还没有做系统的比较分析。本文目的是从农地使用权期限、农地调整、农地确权、农民自主经营决策权以及农地转让权5个方面,揭示改革三十年农地使用权政策与实际执行的差异,为未来深化改革提供实证依据。基于具有全国代表性的随机抽样农户调查数据,研究结果表明,虽然农民土地使用权的现实变迁与国家政策的演变方向基本一致,但农民土地使用权稳定性的现实状况不容乐观,现实与政策还有一定差距。为此,本文认为加强既定政策的执行力度和在未来深化农地制度改革同等重要。

The policies of farmland use rights have undergone significantly changes since the reform initiated in rural China in the late 1970s.However,little information is available in the literature on actual implementation of these policies.The overall goal of this paper is to provide empirical evidences of the gaps between the policies and their implementations in the areas of land reallocation,verifying land use rights,rights for renting out,and farmer's management rights and their implications for future policy reform.Based on a unique dataset from a national representative household survey,while we found that the real changes of farmland use rights are generally consistent with the evolution of the policies,we also found the evidences of lacking of full implementation of the policies.Ensuring stability of farmland use rights is still facing challenge.We conclude that it is equally important to strengthen implementation of existed policy and deepen reform of farmland institution in the future.