人地挂钩与增减挂钩的异同分析及其实施要点

Analysis of the similarities and differences between the connecting of labor and arable land and the connecting of the increase in urban construction land and the decrease of rural construction land and implementation principles

近年来,国家在宏观层面相继提出了城乡建设用地增减挂钩政策和人地挂钩政策,并允许在部分地区开展试点工作。两个挂钩在政策内涵、政策目标、切入点、适用范围及实施机制等方面既有相同之处,同时也存在着较大差别,其中增减挂钩是耕地占补平衡政策的延伸和特例,而人地挂钩则是增减挂钩的拓展和延伸。本文在详细分析两个挂钩异同的基础上,借鉴增减挂钩试点的经验教训,提出了在人地挂钩的试点工作中,一是应以内涵城市化作为实施人地挂钩政策试点的引擎;二是必须坚持以人为本,充分保障农民的合法权益;三是充分发挥政府的主导作用和规划的引领作用,稳妥推进;四是多方筹措资金,为人地挂钩的顺利实施提供资金保障;五是加快构建挂钩指标公开交易平台和土地承包经营权流转平台,为项目的顺利实施奠定基础。

In recent years, the Government has proposed the macroeconomic policy of the connecting of an increase in urban construction and a decrease in rural construction land （CUR） and the policy of the connecting of labor and arable land （CPL）, and implemented some pilot experiments in some regions. These two connecting policies have both similarities and differences in their contents, policy objectives, entry points, scopes and implementation mechanisms. The former is the extension and exception of the implementation of compensation balance of amble land policy and the latter is the expansion and extension of the former. Based on the detailed analysis of the similarities and differences between these two policies, this paper suggested that： 1） the driving force for the CPL pilot programs should be the connotation of urbanization during the connecting; 2） the policy should implement people-orientation to protect the legitimate rights and interests of farmers; 3） the Government should play the planning and leading roles in the implementation of the pilot programs; 4） all the involved parties should help to raise enough capital to ensure the implementation of the pilot programs; and 5） the open trading platform and the land renting and circulation management circulation platform should be established to create a solid foundation for the smooth implementation of the pilot programs.