论地权制度安排与土地集体所有制实现——兼评“三权分置”改革与《农村土地承包法》修订

Land Ownership Arrangement and the Realization of Collective Land Ownership——Comments on the Reform of the Division of Three Rights and the Revision of The Law of the PRC on the Contracting of Rural Land

与私有制下土地作为纯粹财产对象不同,公有土地不仅是农业生产要素,而且具有重要的社会功能。弥合地权配置中公共原则与私人原则之间的冲突是设置我国农地制度的难点。片面强化个体农户承包经营权而虚化集体所有权的农村土地制度改革,最终造成既不公平又无效率的地权配置结果。与之相比,国有农场在地权制度安排中凸显土地的公有属性,在提高土地利用效率和促进社会公平两个方面都存在优势。针对当前农村地权配置矛盾,中央提出"三权分置"的改革思路,落实该项改革的关键是尊重集体所有权,并在此基础上作出合适的产权制度安排。与之相关的《农村土地承包法》修订,也需要从土地公有制出发,兼顾私权保护和社会效益最大化。

Unlike the pure property object under private ownership,land under public ownership is not only an essential element of agricultural production,but also something of important social function.The conflict between the public private principles in land ownership is a difficult point of setting up the agricultural land system in our country.The rural land reform reinforcing individual farmers'right to manage the contratcted land and blurring the collective ownership has led to the unfair and inefficient land right allocation.In contrast,state farms highlight the public attributes of land ownership,and demonstrate advantages in terms of both land use efficiency and promotion of social equity.In view of the current contradictions in the rural land allocation,the central government has put forward the reform idea of'the division of three rights,'the key to which is to respect the collective ownership and make appropriate ownership arrangements on this basis.The corresponding revision of the Contract Law of Rural Land also needs to take public ownership as its departure point,taking into account of both the protection of private rights and the maximization of social benefits.