农村承包地退出的路径嬗变、实践困境及其制度变革反思

The Path Evolution,Practical Dilemma and Reflection of Contracted Land Withdrawal

城市化背景下大量进城落户农民转变为城市市民,通过建立承包地退出机制推进土地资源优化配置、农业现代化发展和乡村振兴,是土地制度改革的重要内容。当前,我国正在开展承包地有偿退出制度改革试点,探索用承包地市场化退出路径代替组织化退出路径,改变了承包地退出制度。从试点实践来看,土地退出市场存在市场失灵问题,主要表现为退地者和承退者的积极性较弱,以及土地供需错位。我国土地具有非完全商品属性,土地价值很难衡量、土地退出具有非排他性以及土地功能具有多样性,土地退出市场缺乏有效运行的条件。现行改革思路忽视了土地属性的特殊性,应采取与土地属性相适配的退出制度,发挥集体土地制度在资源配置中的独特作用。

Under the background of urbanization,a large number of farmers who have settled in cities have become citizens.It is an important part of the land system reform to promotethe optimal allocation of resources,the development of agricultural modernization and the revitalization of rural areas by establishing the withdrawal mechanism of contracted land.At present,China is carrying out the reform of the paid withdrawal system of contracted land,forming the withdrawal path of market-oriented contracted land instead of the original exit path of organized contracted land.There is a significant“market failure”problem,which is mainly manifested in the weak enthusiasm of both the land contract terminators and the new land compensation contractors,and the dislocation of land supply and demand.This is due to the fact that China's land has incomplete commodity attributes,the value of land is difficult to measure,the externality of land exit and the diversity of land functions,and the lack of operational conditions for land exit market.The reform of the withdrawal system of contracted land ignores the particularity of land property,so we should take the withdrawal path of contracted land which is suitable for land property,and give play to the unique role of collective land system in the allocation of land resources.