农村土地三权分置与村民自治:冲击与回应

Division of Three Rights of Rural Land and Villagers' Autonomy:impact and response

农村土地三权分置是农村土地制度的一次伟大变革,其将农村土地相关权利划分为所有权、承包权和经营权,并坚持明晰所有权、稳定承包权、放活经营权的改革思路,允许农村承包土地的经营权可以依法向金融机构融资担保、入股从事农业产业化经营。放活土地经营权的制度设计极大地推动了农村土地流转,催生了土地流转受让方这一规模化的新生土地利益主体,改变了农村的利益结构。这些变革从根本上打破了村民自治既有的治理格局,冲击了村民自治的治理主体和少数服从多数的民主议事规则。为应对这一冲击,村民自治应从建立以户籍为主、土地为辅的村民自治治权资格制度,推动农村协商民主发展以及村民自治治理创新法制化三个方面进行回应。

The separation of three rights of rural land is a great change in the system of rural land.It divides the related rights of rural land into ownership,contract right and management right,and insists on the reform idea of clear ownership,stable contract right and active management right.The management right of rural contracted land may be guaranteed by financial institutions and invested in agricultural industrialization.The system design of activating land management rights has greatly promoted the rural land circulation,spawned the transferee of land circulation as a new land interest subject on a large scale,and changed the interest structure of rural areas.These changes have fundamentally broken the existing governance pattern of villagers' autonomy,and impacts the governing bodies of villagers' autonomy and the democratic rules of procedure of the majority.In order to cope with this shock,the villagers' autonomy should be responded from three aspects:establishing the qualification system of villagers' autonomy,which is based on household registration and supplemented by land,promoting the development of rural consultation and democracy,and innovating the legal system of villagers' autonomy governance.