农村土地“三权分置”改革的两难困境与出路

The Dilemma of the “Three-power Separation” Reform of the Rural Land and Solutions

农地“三权分置”改革是农村改革的又一次重大创新。基于中国的资源禀赋和发展阶段,农地“三权分置”改革具有维护政治稳定与促进农业发展的双重目标。农地“三权分置”改革过分强化土地承包权可能使中国农业发展落入地权固化、难以调整的“东亚陷阱”,而过分强化土地经营权可能使中国社会落入失地农民问题严峻的“拉美陷阱”。农地“三权分置”改革需要在稳定土地承包权和放活土地经营权之间保持平衡,可行路径是在重新界定土地承包权的内涵的基础上合理发挥集体所有权的权能。基于此,《农村土地承包法》修订应重视实践经验,发挥集体土地制度的功能,兼顾农地制度改革的双重目标。

The “Three-power Separation” reform of the rural land in China is another major innovation in the rural reform.Based on China’s resource endowment and development stage,the “Three-power Separation” reform needs to achieve the dual objectives of political stability and agricultural development.While overstrengthening the land contract right in the reform may lead to the “East Asian Trap”,in which it is difficult to adjust the land rights,over-emphasizing the land management right may lead to the “Latin American trap” with serious problems of peasants losing their farmlands.The “Three-power Separation” reform should maintain a balance between stabilizing land contract rights and loosening land management rights.One possible path is to employ the collective ownership rights on the basis of redefining the connotation of the contract rights.The revision of “Rural Land Contract Law” should attach importance to practical experience and take into consideration the institutional advantages of collective ownership and the dual objectives of the rural reform.