推进城镇化建设中的农村土地流转:问题与出路

Rural Land Circulation during Urbanization in China:Issues and Solutions

我国农村现行土地流转采用的是一种国家高度垄断和政府全面管制的计划经济模式,远远落后于经济社会发展需要。该模式最大的问题在于农民在农村土地流转中"参与权"被剥夺,土地流转收益与成本的期限错配。而导致当下农村土地流转困局的深层次原因在于错误的土地管理理念及据这些理念所制定的制度和政策。城镇化建设必然绕不开农村土地制度改革和土地流转机制设计的创新。必须制定统一的土地法律,整合国家土地政策管理机构的职能,改变土地政策二元分割格局。农地非农使用所产生的级差收益,应该在中央政府、地方政府、土地使用者、农村集体和农民之间寻求一个合理的分享机制。应允许地权所有者在市场交易过程中主导土地要素价格的制定;土地流转必须遵循市场经济的基本供求关系;在征地、拆迁、补偿和资产置换过程中,发挥村民自治的作用;鼓励农民直接参与工业化和城镇化进程,部分地区"以土地换社保"等创新试验,不能简单推广复制到其他地区。

The reform of the rural land system is always in the way of urbanization. In the consideration of ideological constraint and reform with steady steps, by researching and dis- cussing on the mechanism design of rural land circulation, strategic reform through techno- logical design can be realized. The current rural land circulation system is monopolized and totally controlled by the government, which lags behind the development of economic mar- ketization. The most serious problem in the current rural land circulation is that the term mismatch between the earnings and costs, and also the participation rights of the peasants are denied. This problem is caused by the dysfunctional land institutions which are based on misleading land management ideas. The innovation in the rural land circulation should design a rational mechanism which can share the differential earnings from the non-agricultural use of rural lands in the central government, local government, the land users, the rural col- lectives and the peasants. To be specific, we must follow the basic supply and demand rule in the market. Village self-governance should play a role in land confiscation, removal, compensation and replacement of assets. The owner of land should participate directly in the transaction process and have the pricing power of rural land. The cooperation of peasants should be allowed and encouraged in the market, and also it is one kind of institutional guarantee for the peasants to participate in the process of industrialization and urbaniza- tion. Those experiments in some local areas, such as the so called land exchange social secu- rity should not be rashly expanded and replicated in other areas. A uniform land law is nee- ded to integrate the functions of national land policy management organization, as well as to change the binary segmentation pattern.