从农村土地确权看新时期村委会的地位和功能

The Position and Function of Autonomous Grass-roots Organizations in Advancing Confirmation of Rural Land Right

土地确权是中国新一轮农村改革的起点,但是推进的速度滞后于中央的目标。当前土地确权的推进除了法律、政策支撑和政府主导意志外,村委会的参与是影响进程的重要因素。以确权工作的还权赋能为切入点,虽然法律规定村集体经济组织、村委会、村民小组、乡镇集体经济组织行使农村集体土地所有权,但村委会是当前情景下现实意义上的集体产权代理人;同时新时期村委会具有"群众性自治和基层政府代理人"这一"政社合一"的特性,因而在土地改革中村委会不能"去行政化"。对于土地确权,需要明确村委会土地确权推进执行者的历史责任、依靠村委会妥善处理土地权属争议、加强村委会土地确权的动态管理。特别地,需要通过加强组织建设、促进权责对等实现"强村扩权",更好地履行新时期农村土地产权改革的历史使命。

Confirmation of land right is the starting point of Chinese new round of rural reform, but its pace lags behind the central target. The reason for such slow advance lies in the grassroots by the method of SWOT. According to this, the paper makes a research on Autonomous Grass-roots organizations and finds that village committees in the new period bear the features of ＂integration of government administration with eommune management＂ and can＇t de-administrate in the land reform, and village committees possess the subject status in the rural collective land ownership. For confirmation of land right, the village committee, as the executor of the grassroots, must undertake to properly handle land ownership disputes and implement dynamic land owner-ship. As rural collective land lacks the supporting administrative management system, the organization of village committee is weak and its the unequal power and responsibility, there are gaps in laws and policies of land ownership, and it lacks operational rules. Under the new situation, ＂strong village expansion＂ is advocated to enrich the basic-level organization and expansion of executive power to better fulfill the legal function of the village committee.