消除贫困的土地政策研究

Research on Land Policy for Eradicating Poverty

土地既可以促进经济增长也可以导致贫困,因而消除贫困的土地政策与促进增长的土地政策不同。通过分析土地资源型、土地资产型和土地资本型贫困成因,梳理扶贫用地政策沿革,从加大土地政策支持的扶贫实践,提出通过农用地整治、集体建设用地整治、生态用地整治来消除土地资源型贫困;通过确立土地承包经营权、农村集体土地确权、增加建设用地计划来消除土地资产型贫困;通过土地经营权流转、土地经营权和农民住房财产权抵押、耕地占补平衡指标和增减挂钩指标跨区域调剂来消除土地资本型贫困的土地政策。为用好扶贫的土地政策,提出开展全域综合整治防止土地资源型返贫、扩大土地权能防止土地资产型返贫和积累发展资金防止土地资本型返贫的实现途径。

Land can not only promote economic growth,but also lead to poverty.Therefore,the land policy to eliminate poverty is different from that to promote growth.By analyzing the causes of land resource-based,land asset-based,and land capital-based poverty,reviewing the evolution of land policy for poverty alleviation,and from the practice of increasing land policy support,this paper proposes using land policy to eliminate land resource poverty through agricultural land consolidation,collective construction land consolidation and ecological land consolidation;to eliminate land asset poverty through the establishment of land contract management rights,the confirmation of rural collective land rights,and the increase of construction land plan;and to eliminate land capital poverty through the transfer of land management rights,the mortgage of land management rights and farmers'housing property rights,cross-regional adjustment of cultivated land occupation compensation balance quota and increase and decrease linked quota.In order to make good use of the land policy of poverty alleviation,this paper puts forward policy tools,for instance,carrying out comprehensive land management to prevent the land resource type of poverty-returning,expanding land power to prevent the land asset type of poverty-returning,and accumulating development funds to prevent the land capital type of poverty-returning.