探寻土地使用制度改革的历史方位  

Searching the historical position for land use system reform

作　　者：黄小虎 HUANG Xiaohu(Chinese Land Surveying and Planning Institute,Beijing 100035,China)

机构地区：[1]中国国土勘测规划院,北京100035

出　　处：《上海国土资源》2020年第4期1-8,共8页Shanghai Land & Resources

摘　　要：全面总结中国改革开放以来土地使用制度的改革历程,系统阐释农地使用制度改革、集体建设用地使用制度改革、土地管理改革的理论内涵与实践意义,揭示土地使用制度改革40年的重要启示与历史地位。文章认为:以大包干为主的农业家庭联产承包责任制,本质上是农地使用制度改革。其核心经验是把农地所有权与使用权相分离,农民凭借承包的农地使用权,成为市场主体。这是中国农民的伟大创造。集体建设用地使用权进入市场,助推了乡镇企业的异军突起,助推了国家工业化和城市化,这也是中国农民的重要贡献。但历经较长的曲折,才最终得到法律、制度的认可。其间,相关土地管理政策的偏差,与城市优先发展路线,及分税制改革以后形成的财政分配格局密切相关。土地使用制度改革40年的启示,一是社会主义市场经济理论的核心是产权保护;二是制定法律、出台政策,要把维护农村农民的利益放在首位,要尊重集体和农民为实现自身利益的各种创新、创造。This study comprehensively summarizes the reform process of land use systems since China’s reform.It begins by systematically explaining the reform of the farmland use system and collective construction land use system,as well as the theoretical connotation and practical significance of management reform,revealing the important enlightenment and historical status of the reform of the land use system over the past 40 y.Additionally,this study suggests that the agricultural family contract responsibility system mainly based on a big package is essentially the reform of the farmland use system,and its core experience is to separate the ownership and use rights of farmland.By contracted farmland use rights,farmers become the main body of market management in that it is the great intelligent creation of Chinese farmers.When the use rights of collective construction land enter the market,they not only boost township enterprises but also help national industrialization and urbanization.It is also an important contribution of Chinese farmers,but the use rights of collective construction land entering the market go through a lengthy process and are finally recognized by law and system.In this period,the comprehensive deviation of relevant land management policies and the urban priority development route,and the financial distribution pattern are closely related after the tax sharing reform.The enlightenment of the 40-y of land use system reform shows that the core of the socialist market economy theory is the protection of property rights,and the laws and policies must prioritize safeguarding the interests of rural farmers.Finally,all types of innovation and creation by collectives and farmers should be respected to allow them to realize their own interests.

关 键 词：土地使用制度 改革历程 历史方位 农地使用制度 集体建设用地 土地管理 

分 类 号：F301.1[经济管理—产业经济]