土地托管的形成机制、存在问题及对策建议——基于黑龙江省的实践案例

Formation Mechanism,Existing Problems and Countermeasures of Land Trusteeship—Based on the Practical Case of Heilongjiang Province

土地托管是实现农业适度规模经营、推动小农户与现代农业有机衔接的新型实践。土地托管的实质是合约形式下的委托—代理关系,是组织化与市场化融合发展的逻辑必然,同时也是利益驱使与上层引导共同作用的结果。土地托管一方面深化了现代农业发展所必需的专业化分工,另一方面也保留了小农户在土地上的剩余索取权,不仅为小农户发展现代农业提供了一条新的路径,而且在土地产权集体所有的基础上降低了土地的租值耗散。但与此同时,土地托管的供给主体面临着生产、市场以及违约等多重风险,参与农户负担着额外的签约谈判和交易执行等合约费用,并且其退出农业生产后面临的择业困境也增加了土地托管合约的不稳定性。对此,可以通过完善监管和信誉机制、积极培育土地托管服务供给主体以及强化地方扶持政策等方式加以解决。

Land trusteeship is a new model to realize the moderate scale operation of agriculture and promote the organic connection between small farmers and modern agriculture.The essence of land trusteeship is the principal-agent relationship in the form of contract,and its evolution mode is the logical necessity of the integration development of organization and marketization,and the evolution power is the result of the joint action of interest drive and upper guidance.On the one hand,land trusteeship deepens the professional division of labor necessary for the development of modern agriculture,on the other hand,it also retains the residual claim of small farmers on the land,which not only provides a new path for small farmers to develop modern agriculture,but also reduces the dissipation of land rent value on the basis of collective ownership of land property rights.But at the same time,the suppliers of land trusteeship are faced with multiple risks in production,market and default.The participating farmers bear additional contract costs such as contract negotiation and transaction execution,and the employment dilemma after they quit agricultural production also increases the instability of land trusteeship contract.To solve these problems,we should improve the supervision and credit mechanism,actively cultivate the land trusteeship service providers and strengthen local support policies.