城乡关系视野下中国农村土地制度改革的道路选择

The Path Choice of the Reform of Rural Land System in China: In the View of Urban-Rural Relationship

农村土地制度改革的根本分歧在于对城乡关系的认识和判断,可将相关主张分为"城市中心论"和"城乡并举论"。基于城乡并举论的立场,以城乡关系为切入点,梳理农村土地制度不同改革进路的逻辑,辨析城市中心论的逻辑偏差及影响。农村土地制度改革需置于统筹城乡关系的层面,着力促进土地制度红利在城乡间平衡配置,为农民工在城乡顺利往返提供支撑,保障农村建设所需的物质基础和组织条件,为中国产业结构转型升级提供战略缓冲。具体制度设置需注意赋予土地调整权以增强集体统筹能力,防范承包经营权抵押、担保权能的风险,建立大田农民与土地发展权益的制度联系,推动土地发展权益向城市化的主体倾斜。农村土地制度改革要构建城乡互补、城乡互动的格局,促进中国社会整体发展。

The controversy over the rural land system reform is rooted in the cognition and judgment of the relationship between urban and rural areas. Based on this watershed,the propositions and arguments of the reform can be divided into the urban center theory and the theory of simultaneous development of urban and rural areas. Based on the position of simultaneous development of urban and rural areas theory,and taking the relationship between urban and rural areas as a breakthrough point,the author straightened out the basic logic of different approaches for the reform of rural land system,and differentiated the logical dilemma and its consequences of urban center theory. The reform of rural land system should be considered at the level of balancing urban and rural relationship,as well as focusing on balancing the allocation of dividends of land system between urban and rural areas. We should also provide the support for migrant workers to take a smooth round-trip in urban and rural areas. Moreover,we should guarantee the required construction material foundation and organization conditions for rural development,and provide a strategic buffer for transformation and upgrading of industrial structure in China. On the specific institutional setting,in the land adjustments,the collective management should be enhanced,and the mortgage and guarantee risk bought about by the contractual right of land should be prevented. Connections between farmers and land development rights should be established,and land development rights body tilted to the urbanization should be promoted. In the reform of rural land system,a pattern of complementary interaction relationship between urban and rural areas should be built,in order to promote the overall development of Chinese society.