二轮延包下农户承包权益保障与农地经营效率提升:现实困境与创新举措——来自试点村庄的启示

Protection of Farmers’Contractual Rights and Enhancement of Agricultural Land Management Efficiency under the Second-round Extension:Practical Challenges and Innovative Measures Based on Insights from Pilot Villages

本文首先梳理农地承包经营制度的变迁,总结当前农地承包经营制度的现实困境和内在原因。其次通过对二轮延包试点村庄的实地调查,总结实施难点和创新举措。最后对延包方案所蕴含的逻辑进行凝练,并概括破解农地承包经营制度困境的路径。研究结果显示,村集体公共性处分权能的弱化导致农户承包权益保障存在着承包资格争议与人地矛盾凸显的困境;农地细碎化则导致集体统一流转和规模化经营受阻,农地经营效率难以提高。试点村庄的延包方案蕴含着以“权利行使”落实农地集体所有权的逻辑,通过权益留存、动态确利和确权确股的创新举措,解决二轮延包工作难点,稳定农地承包关系。明晰不同农户承包权权能、保障集体成员依法平等享有土地承包权;充实集体土地处分权权能、促进细碎土地整合流转和适度规模经营是通过二轮延包破解农地承包经营制度困境的路径所在。

This paper first reviews the evolution of agricultural land contracting system by summarizing current practical challenges and underlying reasons of the system.Secondly,through on-site investigations in villages participating in the second-round extension pilot program,the paper summarizes implementation difficulties and innovative measures.Finally,the logic embedded in the extension plan is refined,and the path to resolving the challenges of the agricultural land contracting system is outlined.The results indicate that the weakening of collective dispositional power leads to controversies over contractual qualifications and highlights the contradictions between individuals and land in safeguarding farmers'contractual rights and interests.The fragmentation of agricultural land hinders collective unified transfer,impedes scale operation,and makes it difficult to improve the efficiency of agricultural land management.The extension plan in the pilot villages embodies the logic of implementing collective land ownership through“exercising rights.”Through innovative measures such as equity retention,dynamic benefits determination,and rights and shares confirmation,the paper addresses the difficulties in the second-round extension work and stabilizes agricultural land contracting relationships.Clarifying the capabilities of different farmers'contracting rights,ensuring that collective members enjoy equal land contracting rights under the law,enhancing the collective land dispositional power,promoting the integration and transfer of fragmented land,and encouraging moderately scaled operation constitute the path to overcoming the challenges of agricultural land contracting system through the second-round extension.