既保護農(nong)戶(hu)承包權益，又放(fang)活土地經營權

“三權分置”改革是重大制(zhi)度創新(政(zheng)策(ce)解讀(du)·聚焦)

解(jie)讀人(ren)：農業部部長  韓長賦  采訪人(ren)：本報記(ji)者  高云才(cai)  馮  華(hua)

在中(zhong)央農(nong)(nong)村工作會(hui)議(yi)召開(kai)前夕，本(ben)報記者就中(zhong)辦(ban)、國(guo)辦(ban)前不久印發(fa)的(de)(de)《關(guan)于引導(dao)農(nong)(nong)村土(tu)地(di)(di)經營(ying)權(quan)有(you)序(xu)流轉發(fa)展農(nong)(nong)業適度(du)規模經營(ying)的(de)(de)意(yi)見》中(zhong)的(de)(de)相(xiang)關(guan)政策，獨家(jia)采訪了農(nong)(nong)業部部長(chang)韓長(chang)賦(fu)。他說，《意(yi)見》闡(chan)述的(de)(de)“三權(quan)分(fen)置”改革是我國(guo)土(tu)地(di)(di)制度(du)改革的(de)(de)重大制度(du)創(chuang)(chuang)新(xin)、理論創(chuang)(chuang)新(xin)和實踐創(chuang)(chuang)新(xin)。領會(hui)《意(yi)見》精(jing)神，通俗(su)地(di)(di)講，就是準確把握(wo)32個字：“三權(quan)分(fen)置，確權(quan)登記，有(you)序(xu)流轉，適度(du)規模，家(jia)庭基礎，農(nong)(nong)民自愿(yuan)，農(nong)(nong)地(di)(di)農(nong)(nong)用，鼓勵(li)種(zhong)糧。”

從“兩權分(fen)置”過(guo)渡到(dao)“三權分(fen)置”，是(shi)巨(ju)大的政策飛躍

韓長賦介紹，三(san)權(quan)(quan)分(fen)置，就是(shi)要在堅持農村土地(di)集體所有的前(qian)提下(xia)，實現(xian)土地(di)所有權(quan)(quan)、承包(bao)權(quan)(quan)、經(jing)營權(quan)(quan)分(fen)置。

十(shi)一屆三中全會以后，我國(guo)實(shi)行農(nong)(nong)(nong)(nong)戶承(cheng)包經(jing)(jing)營(ying)，土(tu)地集(ji)體所有權(quan)(quan)與農(nong)(nong)(nong)(nong)戶承(cheng)包經(jing)(jing)營(ying)權(quan)(quan)實(shi)現了“兩權(quan)(quan)分(fen)置”，這是我國(guo)農(nong)(nong)(nong)(nong)村(cun)(cun)改(gai)革(ge)的(de)重大(da)創新(xin)。當前，工業化(hua)(hua)、城鎮化(hua)(hua)快速(su)發(fa)展，大(da)量勞動力(li)離開農(nong)(nong)(nong)(nong)村(cun)(cun)，農(nong)(nong)(nong)(nong)民(min)(min)出現了分(fen)化(hua)(hua)，承(cheng)包農(nong)(nong)(nong)(nong)戶不經(jing)(jing)營(ying)自己承(cheng)包地的(de)情況(kuang)越來越多。順(shun)應農(nong)(nong)(nong)(nong)民(min)(min)保留土(tu)地承(cheng)包權(quan)(quan)、流(liu)轉土(tu)地經(jing)(jing)營(ying)權(quan)(quan)的(de)意愿，把農(nong)(nong)(nong)(nong)民(min)(min)土(tu)地承(cheng)包經(jing)(jing)營(ying)權(quan)(quan)分(fen)為(wei)承(cheng)包權(quan)(quan)和經(jing)(jing)營(ying)權(quan)(quan)，實(shi)現承(cheng)包權(quan)(quan)和經(jing)(jing)營(ying)權(quan)(quan)分(fen)置并行，這是我國(guo)農(nong)(nong)(nong)(nong)村(cun)(cun)改(gai)革(ge)的(de)又一次重大(da)創新(xin)。

韓長賦表示，從“兩權分(fen)置(zhi)(zhi)”過渡到“三(san)權分(fen)置(zhi)(zhi)”是巨大(da)的(de)(de)政策飛躍。“‘三(san)權分(fen)置(zhi)(zhi)’是引導(dao)土(tu)地(di)(di)有序(xu)流轉的(de)(de)重要基礎，既(ji)可以(yi)維護集體土(tu)地(di)(di)所有者(zhe)權益，保護農(nong)戶的(de)(de)承包權益，又能夠放活(huo)土(tu)地(di)(di)經營(ying)權，解決土(tu)地(di)(di)要素優化配置(zhi)(zhi)的(de)(de)問題；既(ji)可以(yi)適(shi)應二(er)三(san)產業快速發展的(de)(de)需(xu)要，讓農(nong)村(cun)勞動力放心(xin)轉移就業、放心(xin)流轉土(tu)地(di)(di)，又能夠促進土(tu)地(di)(di)規模經營(ying)的(de)(de)形(xing)成。”

承包地確權登記和有序流轉，是保護(hu)農民(min)利益和提高農業效率的制度性安排

確權(quan)(quan)(quan)登記(ji)，就是要(yao)穩定(ding)土(tu)地(di)承包關系。韓長(chang)賦說：“只(zhi)有穩定(ding)土(tu)地(di)承包關系，農民(min)的(de)(de)土(tu)地(di)承包經(jing)營(ying)權(quan)(quan)(quan)得(de)到充分保障，他們才能放心長(chang)期流轉(zhuan)土(tu)地(di)，流入方(fang)才能獲(huo)得(de)穩定(ding)的(de)(de)經(jing)營(ying)預(yu)期。”目前，農戶承包地(di)仍然存在面積(ji)不準、空間位置不明(ming)、登記(ji)簿不健全等問題，這使許多農民(min)心里不夠(gou)踏實，總擔心土(tu)地(di)流轉(zhuan)出去自己的(de)(de)權(quan)(quan)(quan)益無法(fa)保障。解(jie)決這一問題，關鍵是要(yao)搞好(hao)承包地(di)確權(quan)(quan)(quan)登記(ji)頒證(zheng)工(gong)作，頒發權(quan)(quan)(quan)屬證(zheng)書，強化(hua)物權(quan)(quan)(quan)保護，為土(tu)地(di)經(jing)營(ying)權(quan)(quan)(quan)流轉(zhuan)奠定(ding)堅(jian)實的(de)(de)產權(quan)(quan)(quan)基礎，真正(zheng)讓農民(min)吃上(shang)“定(ding)心丸”。

有(you)序流(liu)(liu)(liu)轉(zhuan)(zhuan)，就(jiu)是要確保土(tu)(tu)(tu)地經(jing)(jing)營(ying)權流(liu)(liu)(liu)轉(zhuan)(zhuan)規范(fan)有(you)序進(jin)行(xing)(xing)。《意見》一方面強調(diao)(diao)鼓勵土(tu)(tu)(tu)地流(liu)(liu)(liu)轉(zhuan)(zhuan)，另一方面強調(diao)(diao)土(tu)(tu)(tu)地流(liu)(liu)(liu)轉(zhuan)(zhuan)要有(you)序。什么是有(you)序？韓長賦表示(shi)，就(jiu)是要遵(zun)循經(jing)(jing)濟發展(zhan)(zhan)規律，不超越階段；尊重農民的意愿，不強迫命令；保護經(jing)(jing)營(ying)者權益，不隨意毀約(yue)；遵(zun)守法制規范(fan)，不留隱(yin)患漏洞。“我們(men)要順其自(zi)然、因勢利(li)導，不能人(ren)還沒有(you)出去，就(jiu)強行(xing)(xing)把(ba)地給流(liu)(liu)(liu)轉(zhuan)(zhuan)了(le)，那(nei)會影響(xiang)土(tu)(tu)(tu)地流(liu)(liu)(liu)轉(zhuan)(zhuan)健康發展(zhan)(zhan)的基礎。土(tu)(tu)(tu)地流(liu)(liu)(liu)轉(zhuan)(zhuan)一定要堅持依法自(zi)愿有(you)償、市場配(pei)置資(zi)源原則，政府主要是搞好(hao)管理(li)和(he)服務(wu)，嚴禁(jin)下指標、定任務(wu)，防止欲速不達(da)。”

適度(du)規模，就是(shi)要(yao)(yao)把(ba)握(wo)好(hao)規模經(jing)營的(de)度(du)。發(fa)展規模經(jing)營勢在必(bi)行(xing)，但(dan)規模要(yao)(yao)適度(du)，要(yao)(yao)與(yu)農(nong)業勞動(dong)力(li)和人口流(liu)出(chu)相適應(ying)，要(yao)(yao)兼顧效率(lv)與(yu)公(gong)平(ping)、發(fa)展與(yu)穩定(ding)，不(bu)能脫(tuo)離人多(duo)地少的(de)基本國情。到底(di)多(duo)少算“適度(du)”，需要(yao)(yao)根(gen)據區(qu)域(yu)特征、土(tu)地條件、作物品(pin)種(zhong)以及(ji)經(jing)濟社會(hui)發(fa)展水平(ping)等多(duo)種(zhong)因素來確定(ding)。各地可依(yi)據農(nong)村(cun)勞動(dong)力(li)轉移情況(kuang)、農(nong)業機(ji)械化水平(ping)和農(nong)業生產條件，研究確定(ding)本地區(qu)土(tu)地規模經(jing)營的(de)適宜標準。

確權登記、有序流(liu)轉，在(zai)依法(fa)保(bao)護農(nong)(nong)民利益的同時(shi)，激發農(nong)(nong)村土地要素活力，提高農(nong)(nong)業效率(lv)。

堅持家庭(ting)經營的(de)基礎性地位，土地流轉的(de)前提(ti)是(shi)農民自愿

家(jia)(jia)庭(ting)基(ji)(ji)(ji)礎(chu)(chu)，是指要在穩定(ding)家(jia)(jia)庭(ting)經(jing)(jing)(jing)營(ying)(ying)基(ji)(ji)(ji)礎(chu)(chu)上培(pei)育新型經(jing)(jing)(jing)營(ying)(ying)主體(ti)。韓(han)長賦說：“堅持家(jia)(jia)庭(ting)經(jing)(jing)(jing)營(ying)(ying)在農(nong)(nong)(nong)(nong)業(ye)生產中的(de)基(ji)(ji)(ji)礎(chu)(chu)性地位，是由農(nong)(nong)(nong)(nong)業(ye)自身特性所決(jue)定(ding)的(de)。家(jia)(jia)庭(ting)經(jing)(jing)(jing)營(ying)(ying)現(xian)在是、將來也(ye)是我(wo)國農(nong)(nong)(nong)(nong)業(ye)最基(ji)(ji)(ji)本的(de)經(jing)(jing)(jing)營(ying)(ying)形式。也(ye)就是說，我(wo)們在支(zhi)持各類農(nong)(nong)(nong)(nong)業(ye)新型經(jing)(jing)(jing)營(ying)(ying)主體(ti)發(fa)展(zhan)的(de)同(tong)時，不能忘(wang)了仍占大多數的(de)普通農(nong)(nong)(nong)(nong)戶。”在此(ci)基(ji)(ji)(ji)礎(chu)(chu)上，國家(jia)(jia)鼓勵(li)土(tu)地經(jing)(jing)(jing)營(ying)(ying)權(quan)向種田能手流轉，大力(li)培(pei)育家(jia)(jia)庭(ting)農(nong)(nong)(nong)(nong)場、農(nong)(nong)(nong)(nong)民合作(zuo)社，打(da)造傳(chuan)統承包(bao)農(nong)(nong)(nong)(nong)戶的(de)“升級版”，加快構建(jian)以農(nong)(nong)(nong)(nong)戶家(jia)(jia)庭(ting)經(jing)(jing)(jing)營(ying)(ying)為基(ji)(ji)(ji)礎(chu)(chu)、合作(zuo)與聯合為紐(niu)帶、社會化服(fu)務為支(zhi)撐的(de)立體(ti)式復合型現(xian)代農(nong)(nong)(nong)(nong)業(ye)經(jing)(jing)(jing)營(ying)(ying)體(ti)系。

農(nong)民自愿，就(jiu)是要(yao)充(chong)分尊(zun)重農(nong)民意愿。農(nong)民是承(cheng)(cheng)包(bao)(bao)地(di)的(de)主(zhu)人，搞好土地(di)流(liu)轉，必(bi)須尊(zun)重農(nong)民的(de)主(zhu)體地(di)位，不能為(wei)了追求農(nong)業規模(mo)的(de)快(kuai)速擴大，而(er)侵害農(nong)民權(quan)益(yi)。制定出臺促進土地(di)流(liu)轉和(he)規模(mo)經(jing)(jing)營發展的(de)政(zheng)策措施，一定要(yao)在政(zheng)策“引導(dao)”上而(er)不是行(xing)政(zheng)“推(tui)動(dong)”上下(xia)功(gong)夫。“要(yao)切(qie)記土地(di)承(cheng)(cheng)包(bao)(bao)經(jing)(jing)營權(quan)屬于農(nong)民家庭(ting)，土地(di)是否流(liu)轉、價(jia)格如(ru)何(he)確定、形式如(ru)何(he)選擇(ze)，應當(dang)由承(cheng)(cheng)包(bao)(bao)農(nong)戶自主(zhu)決定，村(cun)級組(zu)織(zhi)和(he)基(ji)層(ceng)政(zheng)府(fu)都不能越俎代庖。”韓(han)長賦表(biao)示。

堅持農地農用(yong)的(de)底線，鼓勵(li)種(zhong)糧(liang)保障國家糧(liang)食安(an)全

農(nong)(nong)(nong)地(di)(di)農(nong)(nong)(nong)用，就是要(yao)堅守農(nong)(nong)(nong)地(di)(di)農(nong)(nong)(nong)用的底線。韓長(chang)賦說，耕地(di)(di)紅(hong)線要(yao)嚴(yan)防死守，必須嚴(yan)格落(luo)實(shi)耕地(di)(di)保護責任制。改造傳(chuan)統農(nong)(nong)(nong)業、發(fa)展(zhan)(zhan)現代農(nong)(nong)(nong)業，工商(shang)資本(ben)進(jin)入農(nong)(nong)(nong)業是必要(yao)的，也(ye)是鼓勵(li)和(he)歡迎的。但工商(shang)企業進(jin)入農(nong)(nong)(nong)業，應(ying)主要(yao)在產前產中產后提(ti)供服(fu)務和(he)發(fa)展(zhan)(zhan)適合(he)企業化經(jing)營的現代種(zhong)養業，把一(yi)般種(zhong)養環(huan)節留給(gei)農(nong)(nong)(nong)民，與(yu)農(nong)(nong)(nong)民形(xing)成利益共同體(ti)，不(bu)一(yi)定都要(yao)大面積(ji)直接租(zu)種(zhong)農(nong)(nong)(nong)戶承(cheng)(cheng)包地(di)(di)，尤其不(bu)能觸碰土(tu)(tu)地(di)(di)“非(fei)農(nong)(nong)(nong)化”的底線。“老(lao)(lao)板下(xia)鄉，應(ying)是帶動老(lao)(lao)鄉，而不(bu)是代替老(lao)(lao)鄉。”韓長(chang)賦指出(chu)，要(yao)加(jia)強對工商(shang)企業下(xia)鄉租(zu)賃農(nong)(nong)(nong)戶承(cheng)(cheng)包地(di)(di)的準入監管，加(jia)強土(tu)(tu)地(di)(di)流(liu)轉(zhuan)用途管制，嚴(yan)禁借(jie)土(tu)(tu)地(di)(di)流(liu)轉(zhuan)之名搞(gao)“非(fei)農(nong)(nong)(nong)化”建設(she)。

鼓勵(li)種(zhong)(zhong)糧(liang)(liang)，就是要(yao)重點支(zhi)(zhi)持糧(liang)(liang)食規模化生產。怎(zen)樣(yang)才能端牢(lao)飯碗？怎(zen)樣(yang)保障國家糧(liang)(liang)食安全？韓長賦認為，一方面，要(yao)嚴(yan)守耕地紅線，確保農(nong)地農(nong)用；另一方面，要(yao)提(ti)(ti)高種(zhong)(zhong)糧(liang)(liang)效(xiao)益，保護和調動(dong)農(nong)民種(zhong)(zhong)糧(liang)(liang)積極性。種(zhong)(zhong)糧(liang)(liang)效(xiao)益怎(zen)么提(ti)(ti)高？既要(yao)靠(kao)政策、靠(kao)科技、靠(kao)投入(ru)，也要(yao)靠(kao)適度規模經營，提(ti)(ti)高比(bi)較(jiao)效(xiao)益。要(yao)采取(qu)扶持措施，鼓勵(li)和引(yin)導(dao)流轉土地種(zhong)(zhong)糧(liang)(liang)食，重點支(zhi)(zhi)持發(fa)展(zhan)糧(liang)(liang)食規模化生產。

鏈 接

工商企業租地(di)“非農(nong)化(hua)”較突出

近年(nian)來(lai)我國農村土地(di)(di)(di)流(liu)轉呈(cheng)加快趨(qu)勢。截至2014年(nian)6月底(di)(di)，全國家庭承(cheng)包(bao)經營耕地(di)(di)(di)流(liu)轉面積(ji)3.8億畝，占(zhan)家庭承(cheng)包(bao)耕地(di)(di)(di)總面積(ji)的(de)(de)28.8%。對于社會關注的(de)(de)工商資本(ben)流(liu)轉土地(di)(di)(di)情況，農業部的(de)(de)數據顯示，到(dao)2014年(nian)6月底(di)(di)，流(liu)入企(qi)業的(de)(de)承(cheng)包(bao)地(di)(di)(di)面積(ji)已達到(dao)3864.7萬畝，呈(cheng)逐年(nian)上升趨(qu)勢。

從總體上看，我國農(nong)村土地(di)(di)(di)流(liu)轉平穩(wen)健康，但也存在一些需要重視的問(wen)題。比(bi)如，有(you)的地(di)(di)(di)方(fang)強行(xing)推動土地(di)(di)(di)流(liu)轉，片面(mian)追求流(liu)轉規模，侵害了農(nong)民合法權益；有(you)的地(di)(di)(di)方(fang)土地(di)(di)(di)流(liu)轉市(shi)場不(bu)健全，服務水(shui)平有(you)待(dai)提高；有(you)的工商企業長時間、大面(mian)積租(zu)賃農(nong)戶承包(bao)地(di)(di)(di)，“非糧化”“非農(nong)化”問(wen)題比(bi)較突出。

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