农村集体产权制度改革的实践考察与现实思考——基于上海市松江区的实地调研

Practical Investigation and Realistic Thinking on the Reform of Rural Collective Property Rights System——On the Research of Songjiang District,Shanghai

上海市松江区集体经济组织法人治理机制立足于其特殊性,明确政经分离的重点在于推进人、财、事三方面的清晰界分,但存在实践异化现象。对于成员资格标准与股种设置问题,松江区遵循试点先行、分类有序推进改革的做法,确立以户籍作为成员资格认定的主要标准,不设集体股,仅设包含农龄份额与土地份额的个人股。松江区在收益分配阶段强调区分经营收入与非经营收入,可有效化解集体资产属性分类带来的弊端。对于集体资产运营管理方面,松江区重点推进镇级集体产权改革,以镇级经济联合社作为经营主体,将集体资产委托给下属企业运营管理,同时在区级建立三资监管平台实现对集体资产的动态化、信息化监管。松江区集体资产股权权能彰显严重不足,除明确可继承外,无法实现转让、有偿退出、赠与以及抵押担保等权能。股权静态管理模式与继承股权权能受限性之间存在冲突,可通过建立成员资格法定取得与申请取得的路径予以化解,同时可分步骤建立配套机制以释放集体资产股权权能。

Based on its special characteristics,Shanghai-Songjiang District collective economic organization corporate governance mechanism clearly focuses on promoting the clear separation of people,property and affairs,but there is a phenomenon of practical alienation.With regard to qualification standard of membership and stock rights setting,Songjiang District follows the approach of piloting the reform and promoting it in an orderly manner,establishing household registration as the main qualification standard for membership,and not setting up collective stocks,but only individual stocks containing stocks of farming age and land.Songjiang District emphasizes the distinction between operating income and non-operating income in the income distribution stage,which can effectively solve the drawbacks caused by the classification of collective asset attributes.For the operation and management of collective assets,Songjiang District focuses on promoting the reform of collective property rights at town level,taking the townlevel economic association as the main business entity and entrusting the operation and management of collective assets to subordinate enterprises,while establishing a supervisory platform for the“capitals,assets and resources”at district level to realize dynamic and informative supervision of collective assets.The rights of collective assets in Songjiang District are seriously inadequate,except for the clear inheritance,it is impossible to realize the rights of transfer,paid withdrawal,gift and mortgage guarantee.The contradiction between the static management mode of stock rights and the restricted nature of inherited stock rights can be resolved by establishing the paths of legal and application acquisition of membership,and at the same time,a supporting mechanism can be established in steps to release the stock rights and functions of collective assets.