中国农村承包地确权:政策变迁、衍生问题与制度设计

The Rights Confirmation of Rural Contracted Farmland in China:Policy Changes,Derived Problem and Institutional Design

本文对3省1市的55个村庄田野调查现状发现:村庄整体确权完成情况较好,具体形式复杂多样,体现出了不同产权归属;平原村庄确权推进速度快,整体实施成本高;确权强化了农民产权意识,提升了农地的预期价值,流转市场租金大幅提高。确权后还衍生出了农地流转陷入“停滞期”规模经营受阻问题、时点衔接过程中无地农民与补贴依据问题、农地非农化倾向与长期投资问题。为此,创新农地土地流转方式,规范农村土地租赁市场,推进农业服务的规模经营;考虑构建无地农民补偿机制,细化第三轮衔接村庄方案;逐步完善长期流转保险制度,合法化承包权继承权能,强化农地保护性长效投资。

This paper takes the field survey of 55 villages in 4 provinces as an example. The results show that the overall completion of the village is good,and the specific forms of Rights Confirmation of the Cultivated Land ( RCCL) are complex, which reflects the ownership of different property rights. It is faster in plain villages,however,the cost is high. That has strengthened farmers' awareness of property rights,raised the expected value,and greatly increased the rent. After the RCCL policy is implemented,it is trapped in the“circulation dilemma”,the scale operation is blocked,the landless farmers and subsidies are involved in the transition stage. It is getting worse about the tendency of agricultural land non-agriculturalization and the long-term investment problem. Based on this,we should innovate the way of land transfer,standardize the rural land rental market,and promote the scale operation of agricultural services. To construct the compensation mechanism for landless farmers, refine the third round of connecting village schemes. Gradually legalize the right to contract inheritance,improve the system of long-term transfer insurance and strengthen long-term investment.