农村土地政策改革与城乡融合发展——基于中央“一号文件”的政策分析

Rural Land Policy and the Reconstruction of Urban-Rural Dual Economic Structure:Evolution of Rural Land Policy in the No. 1 Central Document

土地政策是导致城乡二元结构存在并影响城乡融合发展的一个重要因素。依据政策主题与改革重点的不同,中央文件中农村土地政策的变迁可分为'农村导向的二元松动''城市导向的二元松动'以及'城乡融合'三个阶段。虽然农业与农村在不同阶段相应得到了不同程度的发展,但无法改变每一阶段的农村土地制度改革更多支持了城市经济发展的实质,反映出城乡间的非对称互惠关系。要破除城乡二元结构、构建对称的城乡互惠关系,在考虑粮食安全保障、地方政府激励、坚持农村土地集体所有制的前提下,遵循土地使用权改革与财产权改革'两手抓'并以财产权改革为重的总体思路,在承包地、宅基地、集体经营性建设用地以及土地征收四个方面进行政策调整与深化,以实现转移农民进城、城市资本下乡、社会贫富差距缩小、国家粮食安全得到保障的帕累托式改革,实现真正的城乡融合。

Breaking the urban-rural dual structure has always been the focus of academic attention and policy reform.Through the analysis of the changes of the land institution in the No.1 Document of the Year,it is found that the reform of the rural basic management system means that the absolute center status of the city in the urban-rural dual relationship has been loosened.Depending on the policy theme and the reform focus,the changes ofrural land policy in theCentral Document can be divided into three stages:'dualism loosening of rural orientation','dualism loosening of urban orientation'and'rural-urban interaction'.Although agriculture and rural areas have been developed to different degrees at different stages,the essence that the reform of rural land institution at each stage supportsurban economic development more holds,reflecting the asymmetric reciprocal relationship between urban and rural areas.To break the urbanrural dual structure,it is necessary to implement the'agricultural and rural priority development strategy',adhere to the general idea of reforming land use rights and property rights with more emphasis on the property rightsreform,under the premise of considering food security,local government incentives,and adhering to the collective ownership of rural land,and carry out policy adjustment in contracting land,homestead,collectively-operated construction land and land acquisition,in order to realize the'Pareto'reform of farmers transferringinto the city,urban surplus capital going to the countryside,narrowing the gap between the rich and the poor,and ensuring national food security.