现阶段我国农地制度改革中农地流转问题的思考
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摘要
本文首先回顾了我国农地制度的历史沿革,接着进一步分析现有农地制度的利与弊和实际运作中的正、负效应,然后提出了解决方案和路径,最后总结出农地改革的理论和现实意义,其中特别指出中国土地私有的不可行性和农地制度改革的相关的主要问题的解决办法及其制度安排。本文在对我国现实农地制度进行分析研究的基础上,进一步提出农地流转的方式和操作程序以及如何规范农地流转。本着以科学的态度和辩证的思维,立足于农地制度和农民生存现状,寻求我国农地流转的内在动因和外在影响,进而结合我国的基本经济制度和国情,从正当性和合理性的角度全面分析推理我国农地流转的应然状态和可行性,引申出用行政、经济、法律等手段妥善规范农地改革的各种原则和程序,为有关部门制定相关的法律法规提供理论参考和依据。
本文认为:稳定和完善农地承包关系并建立有效的农地流转机制是深化农地制度改革的核心。实行家庭联产承包责任制,赋予农民生产经营自主权,符合生产关系适应生产力发展要求的规律,符合农业生产自身的特点,不仅适应以手工劳动为主的传统农业,也适应采用先进科学技术和生产手段的现代农业,适合中国的国情和实际,具有广泛的适应性和旺盛的生命力,必须长期坚持下去。坚持家庭承包制,核心是稳定和完善农地承包关系。但是,家庭联产承包责任制并不是农村经济体制改革的终结,而仅仅是改革的开端。家庭承包制本身要完善,要随着农村生产力的发展而不断创新。目前,要解决好承包过程中农地细碎分割、农地所有权流转、集体和农户之间权责利关系的界定,要解决好家庭承包与耕地保护之间的关系、家庭承包制与农地宏观管理之间的关系,还要协调好家庭承包制与农业现代化之间的关系。农地承包权实际上是农民的一种实物权,这种实物权应该可以自由地合法地合理地流转。稳定农地承包权和建立有效的农地流转机制是农地制度安排的核心。进一步在稳定家庭联产承包责任制并且对其进行制度创新和改革的前提下,完善农地产权制度。以入股的方式流转农地承包权,对于完善我国农地承包经营制度和加快生产发展有积极意义。在所有的入股模式之中,比较典型的是农地股份合作制。农地承包经营权入股可以形成新的资源配置机制,可以克服分散经营的局限性。在实践运作中应坚持农地入股不得改变农地的用途的原则,坚持因地制宜、从实际出发原则,农户不承担农地入股风险的原则以及农户自愿组织引导的原则。在农村形成农地集约化规模经营,不仅可以提高农业生产率而且可以转移大量的农村剩余劳动力到二、三产业在去,而且可以解决在城市化进程中诸多问题,这将为我国农地制度改革提供新思路,寻求农地效用最大化和社会公平的结合点。因此,农地承包经营权的流转只能是因地制宜、因时制宜、因户制宜的流转。一乡、一村、一户根据当地、当时的农业生产需要和当事人的意愿,以相应温和的流转方式,坚持依法、自愿、有偿的原则,实现农地承包经营权的流转。
This paper firstly reviews the history of China's agriculural land system evolution, followed by further analysis of the pros and cons of existing agricultural land system and the positive and negative effects of the actual operation, and then proposes its solutions and paths and, finally, the theoretical and practical significance of the agricultual land reform. In particular ,the paper points out China's non-viability of private ownership of land ,the solutions to the major problems related to the agricultural land reform and its institutional arrangements.Based on the analysis and research of the reality of the present agricultual land system in China, this paper proposes the further transferable ways and procedures of the agricultural land and ways of how to regulate the transfer of the agricultural land. With a scientific attitude and dialectical thinking, based on the Chinese present agricultural land system and the status of farmers﹐ life, the paper tries to seek the intrinsic motivation and external influence of the transfer of the agricltual land, combined with China's basic economic system and national conditions .From the point of the legitimate rationality and comprehensive analysis, the contingent status and feasibility of the transfer of the agricultual should be concluded.By the administrative, economic and legal means , the principles and procedures of the agricultural land reform should properly be regulated.The aim of writing the paperfor the related departments is to provide a theoretical reference and basis for formulating lawsand regulations to the certain related departments.
The paper asserts as follows:Steading and perfecting of the System of Household Contract Responsibity is the focus of the agriculural land reform. The System of Household Contract Responsibity, giving famers the authority of production and operation, is consisten with the characteristics of agriculture production itself and the law that the relationships of production must meet the requirements of the development of production forces.The System of Household Contract Responsibity can adapt to not only the intensive traditional agriculture using manual labor but aslo the mordern agriculture using advanced science and technology. It’s full of adaptability and vitality so we should carry on with it for a long time. To keep the System of Household Contract Responsibility, the core is to make it stable and improve the land contract relationships.However, the system is not the end of the rural economic reform. On the contrary, the beginning of further reform.The Household Contract Responsibity system itself needs improvement and innovation with the development of rural productive forces. At present, in the contracting process, we should solve the problem of the division of land fragmentation and the transfer of land ownership, define the benefit and responsibity relationship between collective and household, coordinate the relationship between land protection and household contract, as well as the relationship between household contract responsibility system and macro-management. The contractual right to the agricultural land is actually a kind of material right. The right of this kind should be transfered freely and legitimately. Stability of the contractual rights to agricultrual land and establishment of effective mechanism for land transfer is the core institational innovation and reform, under the premise of improving the rights to land property system. Based on making this system stable, land reform far-reaching and its institutional innovation, we can improve land ownership system.In the form of buying a share, to achieve the transferable right to the land contract will be positive in improving land contract operation system and production development. Among all the shares models, land shareholding cooperative system is typical. Land contractual right as a share can create new mechanism of the allocation of resources, which can overcome the limitations of decentraliced management. In practice, we should follow the following principles.The first principle operating in practice is that the original usage of land shouldn’t be changed.The second principle is that we should make use of land according to local conditions.The third principle is that we should use land based on reality.The fourth principle is that famers don’t bare the risk of land share.The fifth principle is that famers should be guided to organise it voluntarily.In rural area, with the large size of land being intensively managed, agriculture productivity can be enhanced greatly. Also, a large
number of surplus rural labors would be transfered into the second and tertiary industries in the last. More importanty, this process can solve various problems related to land acquisition operation, which also sences as the joint point of maximizing land use and social equity.Therefore, the circulation of the right to agricultural land contract should be suitable for local situation, appropriate time and different household by adopting moderate means and by taking account the needs of agricultural development and the desires of people involved.
本文认为:稳定和完善农地承包关系并建立有效的农地流转机制是深化农地制度改革的核心。实行家庭联产承包责任制,赋予农民生产经营自主权,符合生产关系适应生产力发展要求的规律,符合农业生产自身的特点,不仅适应以手工劳动为主的传统农业,也适应采用先进科学技术和生产手段的现代农业,适合中国的国情和实际,具有广泛的适应性和旺盛的生命力,必须长期坚持下去。坚持家庭承包制,核心是稳定和完善农地承包关系。但是,家庭联产承包责任制并不是农村经济体制改革的终结,而仅仅是改革的开端。家庭承包制本身要完善,要随着农村生产力的发展而不断创新。目前,要解决好承包过程中农地细碎分割、农地所有权流转、集体和农户之间权责利关系的界定,要解决好家庭承包与耕地保护之间的关系、家庭承包制与农地宏观管理之间的关系,还要协调好家庭承包制与农业现代化之间的关系。农地承包权实际上是农民的一种实物权,这种实物权应该可以自由地合法地合理地流转。稳定农地承包权和建立有效的农地流转机制是农地制度安排的核心。进一步在稳定家庭联产承包责任制并且对其进行制度创新和改革的前提下,完善农地产权制度。以入股的方式流转农地承包权,对于完善我国农地承包经营制度和加快生产发展有积极意义。在所有的入股模式之中,比较典型的是农地股份合作制。农地承包经营权入股可以形成新的资源配置机制,可以克服分散经营的局限性。在实践运作中应坚持农地入股不得改变农地的用途的原则,坚持因地制宜、从实际出发原则,农户不承担农地入股风险的原则以及农户自愿组织引导的原则。在农村形成农地集约化规模经营,不仅可以提高农业生产率而且可以转移大量的农村剩余劳动力到二、三产业在去,而且可以解决在城市化进程中诸多问题,这将为我国农地制度改革提供新思路,寻求农地效用最大化和社会公平的结合点。因此,农地承包经营权的流转只能是因地制宜、因时制宜、因户制宜的流转。一乡、一村、一户根据当地、当时的农业生产需要和当事人的意愿,以相应温和的流转方式,坚持依法、自愿、有偿的原则,实现农地承包经营权的流转。
This paper firstly reviews the history of China's agriculural land system evolution, followed by further analysis of the pros and cons of existing agricultural land system and the positive and negative effects of the actual operation, and then proposes its solutions and paths and, finally, the theoretical and practical significance of the agricultual land reform. In particular ,the paper points out China's non-viability of private ownership of land ,the solutions to the major problems related to the agricultural land reform and its institutional arrangements.Based on the analysis and research of the reality of the present agricultual land system in China, this paper proposes the further transferable ways and procedures of the agricultural land and ways of how to regulate the transfer of the agricultural land. With a scientific attitude and dialectical thinking, based on the Chinese present agricultural land system and the status of farmers﹐ life, the paper tries to seek the intrinsic motivation and external influence of the transfer of the agricltual land, combined with China's basic economic system and national conditions .From the point of the legitimate rationality and comprehensive analysis, the contingent status and feasibility of the transfer of the agricultual should be concluded.By the administrative, economic and legal means , the principles and procedures of the agricultural land reform should properly be regulated.The aim of writing the paperfor the related departments is to provide a theoretical reference and basis for formulating lawsand regulations to the certain related departments.
The paper asserts as follows:Steading and perfecting of the System of Household Contract Responsibity is the focus of the agriculural land reform. The System of Household Contract Responsibity, giving famers the authority of production and operation, is consisten with the characteristics of agriculture production itself and the law that the relationships of production must meet the requirements of the development of production forces.The System of Household Contract Responsibity can adapt to not only the intensive traditional agriculture using manual labor but aslo the mordern agriculture using advanced science and technology. It’s full of adaptability and vitality so we should carry on with it for a long time. To keep the System of Household Contract Responsibility, the core is to make it stable and improve the land contract relationships.However, the system is not the end of the rural economic reform. On the contrary, the beginning of further reform.The Household Contract Responsibity system itself needs improvement and innovation with the development of rural productive forces. At present, in the contracting process, we should solve the problem of the division of land fragmentation and the transfer of land ownership, define the benefit and responsibity relationship between collective and household, coordinate the relationship between land protection and household contract, as well as the relationship between household contract responsibility system and macro-management. The contractual right to the agricultural land is actually a kind of material right. The right of this kind should be transfered freely and legitimately. Stability of the contractual rights to agricultrual land and establishment of effective mechanism for land transfer is the core institational innovation and reform, under the premise of improving the rights to land property system. Based on making this system stable, land reform far-reaching and its institutional innovation, we can improve land ownership system.In the form of buying a share, to achieve the transferable right to the land contract will be positive in improving land contract operation system and production development. Among all the shares models, land shareholding cooperative system is typical. Land contractual right as a share can create new mechanism of the allocation of resources, which can overcome the limitations of decentraliced management. In practice, we should follow the following principles.The first principle operating in practice is that the original usage of land shouldn’t be changed.The second principle is that we should make use of land according to local conditions.The third principle is that we should use land based on reality.The fourth principle is that famers don’t bare the risk of land share.The fifth principle is that famers should be guided to organise it voluntarily.In rural area, with the large size of land being intensively managed, agriculture productivity can be enhanced greatly. Also, a large
number of surplus rural labors would be transfered into the second and tertiary industries in the last. More importanty, this process can solve various problems related to land acquisition operation, which also sences as the joint point of maximizing land use and social equity.Therefore, the circulation of the right to agricultural land contract should be suitable for local situation, appropriate time and different household by adopting moderate means and by taking account the needs of agricultural development and the desires of people involved.
引文
[1]王宗非.农村土地承包法释义与适用[M].北京:人民教育出版社,2002:101.
[1]国家统计局.伟大的十年[M].北京:人民出版社,1959:29.
[1]蔡继明.中国的现代化、城市化和农地制度改革[J].2005:4.
[1]戴双兴.台湾省合作社运营之绩效与问题[J].载《统一论坛》2004(3):10.
[1]武力、郑有贵.解决“三农”问题之路[M].北京:中国经济出版社,2003:668.
[1]邓小平.邓小平文选(第三卷)[M].北京:人民出版社,1993:355.
[1]孟勤国.中国农村土地流转问题研究[M].北京:法律出版社,2009:43-92.
[2]韩俊.中国经济改革30年·农村经济卷[M].重庆:重庆大学出版社,2008:22-40.
[3]林炜.中国经济结构调整战略[M].北京:中国社会科学院出版社,2003:55-70.
[4]牛若峰,李成贵.中国的“三农”问题回顾与展望[M].北京:中国社会科学出版社,2004:170-175.
[5]陈征.社会主义城市地租研究[M].山西:山西经济出版社1996:1-11.
[6]朱道华.农业经济学(第四版)IM].北京:中国农业出版社,1999:22-41.
[7]毛泽东、邓小平、江泽民论科学发展[M].北京:中央文献出版社,党建读物出版社2008:1-66.
[8]周新城.社会主义经济制度论[M].北京:中国经济出版社,2008:11-20.
[9]艾思奇.辨证唯物主义历史唯物主义[M].北京:人民出版社, 1978:29-129.
[10]杨达伟.马克思主义政治经济学原理[M].北京:光明日报出版社,2005:101-150.
[11]卫兴华、张宇.社会主义经济理论[M].北京:高等教育出版社, 2007:70-77,114-115
[12]中国社会科学院农村发展研究所、国家统计局农村社会经济调查总队.农村经济绿皮书——2002-2003年:中国农村经济形势分析与预测[M].北京:社会科学文献出版社,2003:182-194.
[13]孟繁炳.市场经济和中国农业发展[M].安徽:安徽大学出版社,1999:158-282.
[14]武力,郑有贵.解决“三农”问题之路[M].北京:中国经济出版社,2003:669-680.
[15]王振中.中国农业、农村与农(政治经济研究报告)[M].北京:社会科学文献出版社, 2006:16-127.
[16]构建社会主义和谐社会知识读本[M].北京:中国传媒大学出版社, 2006:182-202.
[17]迟福林.把土地使用权真正交给农民[M].北京:中国经济出版社, 2002:89-208.
[18]十六大报告辅导读本[M].北京:人民出版社, 2002:131-147.
[19]吴敬琏.当代中国经济改革[M].上海:上海远东出版社2003: 69-70.
[20]国民经济和社会发展“十一五”规划大参考[M].北京:红旗出版社,2005:151-153.
[21]王梦奎.回顾和前瞻——走向市场经济的中国[M].北京:中国经济出版社, 2003:72-116.
[22]张卓无.中国改革开放经验的经济学思考[M].北京:经济管理出版社2000:29-65.
[23]十七大报告辅导读本[M].北京:人民出版社,2007:139-152.
[24]林善浪.中国农村土地制度与效率研究[M].北京:经济科学出版社,1999:39-170.
[1]国家统计局.伟大的十年[M].北京:人民出版社,1959:29.
[1]蔡继明.中国的现代化、城市化和农地制度改革[J].2005:4.
[1]戴双兴.台湾省合作社运营之绩效与问题[J].载《统一论坛》2004(3):10.
[1]武力、郑有贵.解决“三农”问题之路[M].北京:中国经济出版社,2003:668.
[1]邓小平.邓小平文选(第三卷)[M].北京:人民出版社,1993:355.
[1]孟勤国.中国农村土地流转问题研究[M].北京:法律出版社,2009:43-92.
[2]韩俊.中国经济改革30年·农村经济卷[M].重庆:重庆大学出版社,2008:22-40.
[3]林炜.中国经济结构调整战略[M].北京:中国社会科学院出版社,2003:55-70.
[4]牛若峰,李成贵.中国的“三农”问题回顾与展望[M].北京:中国社会科学出版社,2004:170-175.
[5]陈征.社会主义城市地租研究[M].山西:山西经济出版社1996:1-11.
[6]朱道华.农业经济学(第四版)IM].北京:中国农业出版社,1999:22-41.
[7]毛泽东、邓小平、江泽民论科学发展[M].北京:中央文献出版社,党建读物出版社2008:1-66.
[8]周新城.社会主义经济制度论[M].北京:中国经济出版社,2008:11-20.
[9]艾思奇.辨证唯物主义历史唯物主义[M].北京:人民出版社, 1978:29-129.
[10]杨达伟.马克思主义政治经济学原理[M].北京:光明日报出版社,2005:101-150.
[11]卫兴华、张宇.社会主义经济理论[M].北京:高等教育出版社, 2007:70-77,114-115
[12]中国社会科学院农村发展研究所、国家统计局农村社会经济调查总队.农村经济绿皮书——2002-2003年:中国农村经济形势分析与预测[M].北京:社会科学文献出版社,2003:182-194.
[13]孟繁炳.市场经济和中国农业发展[M].安徽:安徽大学出版社,1999:158-282.
[14]武力,郑有贵.解决“三农”问题之路[M].北京:中国经济出版社,2003:669-680.
[15]王振中.中国农业、农村与农(政治经济研究报告)[M].北京:社会科学文献出版社, 2006:16-127.
[16]构建社会主义和谐社会知识读本[M].北京:中国传媒大学出版社, 2006:182-202.
[17]迟福林.把土地使用权真正交给农民[M].北京:中国经济出版社, 2002:89-208.
[18]十六大报告辅导读本[M].北京:人民出版社, 2002:131-147.
[19]吴敬琏.当代中国经济改革[M].上海:上海远东出版社2003: 69-70.
[20]国民经济和社会发展“十一五”规划大参考[M].北京:红旗出版社,2005:151-153.
[21]王梦奎.回顾和前瞻——走向市场经济的中国[M].北京:中国经济出版社, 2003:72-116.
[22]张卓无.中国改革开放经验的经济学思考[M].北京:经济管理出版社2000:29-65.
[23]十七大报告辅导读本[M].北京:人民出版社,2007:139-152.
[24]林善浪.中国农村土地制度与效率研究[M].北京:经济科学出版社,1999:39-170.