农地“三权分置”产权解构及政策优化建议

Property Rights Decomposition and Policy Improvement of“Tripartite Entitlement System”of Farmland

研究目的:通过对农地产权体系的静态解构和动态演变路径分析,厘清“三权分置”实质及现实制约因素,就如何充分放活土地经营权提出政策优化建议。研究方法:理论研究、政策文本分析。研究结果:(1)从农地产权体系的静态解构来看,集体所有权是“三权分置”政策的法定起点,而土地承包经营权是实际起点,土地经营权是落脚点;目前,“三权”体系框架已较为明确,“分置”的规则及秩序也基本确立,以立法为核心的正式制度为实现土地流转与农地适度规模经营目标奠定了重要基础。(2)农地产权体系正从家庭联产承包经营制阶段的半开放式系统向“三权分置”阶段的复杂半开放式系统演变;从集体到农户再到经营主体,权利主体的复杂身份属性,以及土地经营权通过非单一、非直线型的方式在多种权利主体之间实现流动,使农地产权体系形成了现实中复杂的多元主体网络格局。(3)承包权与经营权的有序分离和经营权的自由流转,是“三权分置”的核心路径,而农民不完全参与市场及其预期不确定性,以及包括价格发现、进入和退出机制、要素配置在内的土地经营权市场尚不完善,是制约农地产权市场体系演进的关键。研究结论:充分发挥农民自由选择权、完善可替代性收入和保障体系、加快公平有序的土地经营权市场建设和放松土地经营权流转的金融约束或应成为现阶段政策优化的主要着力点。

The purposes of this paper are to clarify the essence of the“tripartite entitlement system”of farmland and practical constraints through the static decomposition and dynamic evolution path of farmland property right system,and to put forward the suggestions for policy improvement.The methods employed are theoretical research and policy text analysis.The results are show that:1)although collective ownership is the legal starting point of the policy of“tripartite entitlement system”of farmland,the right of contracted management of farmland is the actual starting point,and the right of land management is the foothold.At present,the framework of“tripartite entitlement system”has been relatively clear,the rules and order of separation have been basically established,and the formal system with legislation as the core has laid an important foundation for the goal of land transfers and moderate scale management of farmland.2)The farmland property right system is evolving from the semi-open-system to the complex-semi-open-system in the stage of“tripartite entitlement system”;and the complex identity of the right subject and the farmland management right flows among various rights subjects in a non-single and non-linear way,thus forming a complex multi subject network pattern.3)The core path of“tripartite entitlement system”of farmland is the orderly separation of contract right and management right and the free transfer of management right.However,farmers’incomplete participation in the market and its expected uncertainty,as well as the imperfection of farmland management right market including price discovery,entry and exit mechanism and factor allocation,are the key to the evolution of farmland property right market system.In conclusion,giving farmers freedom of choice,improving alternative income and security system,speeding up the construction of farmland management right market and relaxing the financial constraints,should be sufficiently considered at this stage.