城乡土地增减挂钩政策下的合村并居及其内在逻辑

The Integration of Villages and the Internal Logic Under the Policy of Linking the Increase and Decrease of Urban and Rural Land

为促进城乡土地资源优化配置与合理利用,城乡土地增减挂钩政策应运而生,获取规模化的土地指标成为合村并居的直接诱导因素。城乡土地增减挂钩政策下的合村并居是一把双刃剑,对于适合推进的地区有其利处,但诸多地方政府借此违背乡村社会发展规律,大跃进式推进合村并居工程带来更多风险与矛盾。增减挂钩政策下的合村并居体现着政府、社会、农民及开发商等不同主体围绕宅基地进行的利益分配博弈,其实质是土地利益之争,即不同利益主体对腾出的宅基地产生的利益如何分配进行博弈。博弈背后体现了农村宅基地作为一种稀缺资源,由于产权界定不明晰带来的利益分配矛盾。在挂钩政策推动下宅基地转化为建设用地后,使用经营主体发生转移,对土地具有较强控制权的主体很容易利用手中权力强行改变土地利益分配格局,造成了农村居民合法权益受损,由此造成一系列矛盾冲突。违背民意的合村并居实践更使乡村发展陷入困境。

In order to promote the optimal allocation and rational use of urban and rural land resources,the policy of linking the increase and decrease of urban and rural land arises at the historic moment,and the acquisition of large-scale land indicators has become a direct inducement factor for integration of villages.Under the policy of linking the increase and decrease of urban and rural land is a double-edged sword,which has its advantages for the areas suitable for promotion.However,many local governments take this opportunity to violate the law of rural social development and bring more risks and contradictions to the Great Leap Forward project.The integration of villages under the policy of linking increase and decrease of urban and rural land reflects the interest distribution game of different subjects such as government,society,farmers and developers around the homestead.In essence,it is the competition of land interests,that is,different interest subjects play the interest game on how to distribute the interests generated by the vacated homestead.The game reflects the contradiction of interest distribution of rural homestead as a scarce resource due to the unclear definition of property rights.After homestead is converted into construction land under the promotion of the policy of linking the increase and decrease of urban and rural land,the use and operation subjects are transferred,and the subjects with strong control over land can easily use their power to forcibly change the land interest distribution pattern,resulting in damage to the legitimate rights and interests of rural residents,resulting in a series of conflicts.Contrary to public opinion,the practice of integration of villages and living together makes the rural development into a dilemma.