土地承包关系“长久不变”下无地农民权益保障机制研究  

The Mechanism of Guaranteeing the Rights and Interests of Landless Farmers under the“Long and Steady”Land Contract Relationship

作　　者：刘灵辉 曾静 张欣可 LIU Linghui;ZENG Jing;ZHANG Xinke(School of Public Affairs and Administration,University of Electronic Science and Technology of China,Chengdu 611731,China)

机构地区：[1]电子科技大学公共管理学院,成都611731

出　　处：《四川轻化工大学学报（社会科学版）》2021年第1期34-46,共13页Journal of Sichuan University of Science & Engineering：Social Sciences Edition

基　　金：国家社会科学基金项目(20BGL228)。

摘　　要：“增人不增地,减人不减地”、土地承包关系“长久不变”、土地确权登记颁证等农村集体土地产权制度改革措施,一方面,固化了农村现有人地之间的权利义务关系,强化了农民对分得承包地的财产功能;另一方面,也使部分农民丧失了凭借集体成员身份获得承包地的机会而沦为无地农民,失去了依靠承包地获得种地收益及国家农业补贴的权利,影响了他们的可持续生计,极易诱发潜在的社会矛盾与冲突。通过文献梳理,分析无地农民依靠传统的土地调整和土地经营权流转两种模式获得承包地,不仅在理论上存在着争议,而且在现实中存在着瓶颈和障碍;然后,在土地承包关系“长久不变”背景下,尝试构建起“有地分地,无地赋权”的无地农民权益保障机制,该权益保障机制具体包括:“分地”机制、“赋权”机制、“分地”与“赋权”相并行机制。不同集体经济组织因地制宜地根据各自的“三资”状况、享有权益保障资格的无地农民人数等选择确定适合本地区的无地农民权益保障机制;同时,“分地”机制、“赋权”机制、“分地”与“赋权”相并行机制存在着不同的内在运行机理,具体而言,第一,“分地”机制。在集体经济组织内掌握有机动地、通过依法开垦等方式增加的土地、农民在自愿有偿前提下交回或退出的土地、收回“消亡户”的土地等依法可用于再分配的土地资源时,应尽可能扩大这些类型的土地来源与数量,科学确定无地农民应分得承包地数量标准,建立起合理的无地农民轮候排地的次序规则;第二,“赋权”机制。在集体经济组织没有掌握依法可用于再分配的土地资源时,采用赋予无地农民集体资产收益分配权、集体公益性岗位优先权、股权等方式保障其合法权益,以替代土地对农民的社会保障功能。第三,“分地”与“赋权”相并行机制。�The reform measures of the rural collective land property rights system,such as"increasing the number of people without increasing the land and decreasing the number of people without decreasing the land",the rural land contract relation permanency and the registration and the rural land right affirmation,on the one hand,have solidified the existing relationship of rights and obligations between people and land,and strengthened the property function of farmers over their share of contracted land;on the other hand,some farmers have lost the opportunity to obtain contracted land by relying on collective membership and become landless farmers.The loss of the right to obtain income and national agricultural subsidies through contracted land affects their sustainable livelihoods and can easily lead to social contradictions and conflicts.Through literature review and through analyzing the two models of landless farmers relying on traditional land adjustment and land management rights transfer to obtain contracted land,it is found that they are not only controversial in theory but also bottlenecks and obstacles in reality.Then,under the background of“long and steady land contract relationship”,we will try to build a mechanism to protect the rights and interests of landless farmers by"sharing land with land and empowering them without land".The rights protection mechanism specifically includes the mechanism of"land division","empowerment","land division"and"empowerment"in parallel.Different collective economic organizations,according to the local conditions,their"three assets"situation and the number of landless farmers who enjoy the qualification of rights and interests protection,determine the local landless farmers rights and interests protection mechanism.At the same time,the mechanisms of"land division","empowerment",and"land division"and"empowerment"in parallel have different internal mechanisms of operation.Specifically,the first is the"land division"mechanism.In the collective economic organizations,when the

关 键 词：长久不变 地权固化 无地农民 权益保障 分地机制 赋权机制 可持续生计 

分 类 号：F301.1[经济管理—产业经济] C913[社会学]