从“两权分设”到“三权分置”——我国两轮农村土地制度改革背景与改革要点的差异分析

From "Two Rights Divisions" to "Three Rights Divisions" ——An Analysis of Differences between Background and Key Points of China's Two Rounds Rural Land System Reform

从"两权分设"到"三权分置",40年间我国两轮农村土地制度的改革背景,即"三农"问题定位存在显著差异,主要体现为农业由工业基础向工业反哺农业转变,农村由资源输出地向输入地转变,农民从被土地禁锢向可自由进退转变;两次改革的要点也有重大变化,主要体现在需解决的关键问题、需调整的利益关系与核心制度架构等方面。当下"三权分置"改革仍需探讨如下问题,即如何确定集体所有权的主体及权能,如何理解承包权长久不变中变与不变的关系,以及土地经营权的属性为何。改革之难,在于如何保护农民的利益以及保护农民利益的"度"。

From the ＂ two rights divisions＂（ Separating rural landownership rights and management rights） to the ＂ three rights divisions＂（ Separating rural landownership rights,contract rights,and management rights）,there are significant differences in the background of the two rounds rural land system reform in China during the past 40 years,namely,the orientation of ＂ three rural issues＂（ agriculture,countryside and farmers）. The major points of the two reforms have also undergone major changes. This is reflected in the key issues that need to be addressed,the interest relationships that need to be adjusted,and the core institutional framework. The current ＂ three rights divisions＂ reform still needs to argue the following issues： how to determine the subject and power of collective ownership,how to understand the relationship between change and unchanged in long term contractual rights,and the nature of land management rights. The difficulty of reform lies in the ＂ degree＂ of protecting farmer＇s interests.