中国共产党百年土地政策试点的法治省思

A Reflection on the CPC’s Centennial Experiment in Land Policy from the Perspective of Rule of Law

中国共产党百年土地制度改革史也是百年政策试点史。从土地革命、减租减息、土地改革、合作化、大包干到包产到户、土地使用权有偿出让和使用等,党领导下的所有土地政策变革莫不从试点开始或经由试点推行。中国共产党百年土地政策试点立基于马克思主义实践认识论,主要目的在于通过"实践"对"认识"进行试错性验证。在法理上,试点分为实施性和创制性两类。其中实施性试点是由点到面波浪式推行政策的一种方式,试错并非其主要目的。先行先试授权制度解决了试点与现行法的矛盾。通过立法,确认地方、基层和群众的试点主体地位,构建上下协调的改革试点决策、审批体制,明确改革试点参与者的权利义务与法律责任,维护改革对象、第三人的合法权益,以时限与评估制度保证试点的充分性与客观性,是百年土地政策试点的基本经验。

The history of the Communist Party of China’s(CPC)centennial land system reform is also a history of its experiment in land policy over the past 100 years.Ranging from the agrarian revolution,to the rent and interest rate reduction campaign,to the land reform,to the co-operation movement in rural areas,to the large-scale land contract to households,and to the paid transfer of land use rights,all land policy changes under the leadership of the CPC started from or were implemented through pilot projects.The Party’s centennial experiment in land policy is based on the Marxist practical epistemology,which mainly lies in the trial-and-error verification of"knowledge"through "practice".However,in terms of its jurisprudential basis,the pilot projects are divided into two categories:implementation and creation.Implementation pilots are a way of implementing policies in the manner of waves developing from point to surface,and trial-and-error verification is not its main purpose.The first trial authorization system resolves the contradiction between the pilot project and the existing law.The basic experience accumulated in the Party’s experiment in land policy over the past 100 years can be summarized as follows:it is necessary to adopt legislation to confirm the status of the local government,the grass-roots community,and the masses as the main participants of the pilot project;to establish a coordinated decision-making and approval system for the land reform project;to clarify the rights,obligations and legal responsibilities of the participants in the reform;to safeguard the legitimate rights and interests of the reform targets and of the third parties;and to ensure the adequacy and objectivity of the pilot project through establishing time limit and an effective evaluation system.