价值追求指导下农村土地管理政策中的公平与效率分析

ANALYSIS OF FAIRNESS AND EFFICIENCY IN RURAL LAND MANAGEMENT POLICY UNDER THE GUIDANCE OF VALUE PURSUIT

关键词:  土地管理  政策变迁  价值追求  公平与效率  农村

Key words:  land management  policy change  value pursuit  fairness and efficiency  rural area

摘要:

目的 农村土地管理关乎农村社会经济的发展，分析1949年以来我国农村各阶段土地管理政策公平与效率问题，有助于制定更加合理的农村土地政策，促进农村社会稳定、农民收入提高。方法 文章基于制度变迁理论梳理1949年以来我国农村土地管理政策的变迁阶段及分析各阶段公平与效率的关系，并探究价值追求中消除公平与效率矛盾的途径。结果 我国的农村土地政策变迁中，农民土地私有制阶段（1949—1952年）实现公平为主，兼顾效率提升；私有制向集体所有制转变阶段（1953—1981年）追求绝对公平，导致效率降低；集体所有制阶段（1982年以来）保证公平的基础上向效率倾斜；通过明确土地权属，建立完善的土地流转市场和农村社会保障机制，确保农民对农地经营权流转的自主决定权利，逐步消除农村土地管理中的公平与效率矛盾。结论 在土地政策制定中，应加快推进农村土地确权工作，同时着力建设完善的农村土地流转市场和农村社会保障机制，保障土地权利实现过程的公平性，促进土地资源的合理有效利用，让农民更多地分享土地增值收益。

Abstract:

Rural land management is related to the development of the rural social economy. Analyzing the fairness and efficiency of land management policies in rural areas since the founding of the People's Republic of China will conductive to formulating more reasonable rural land policies, promoting rural social stability and increase farmers' income. Based on the theory of institutional change, this paper untangled the changing stages of rural land management policy since the founding of the People's Republic of China, analyzed the relationship between fairness and efficiency in each stage, and explored the ways to eliminate the contradiction between fairness and efficiency in the pursuit of value. The results were showed as follows. In the change of rural land policy in China, the stage of private ownership of farmers' land (1949—1952) gave priority to fairness and considered efficiency improvement at the same time. During the transition from private ownership to collective ownership (1953—1981), the pursuit of absolute fairness led to the decrease of efficiency. In the stage of collective ownership (since 1982), efficiency was tilted on the basis of fairness. The contradiction between fairness and efficiency in rural land management can be gradually eliminated through clarifying the land ownership, establishing a comprehensive land transfer market and rural social security mechanism, to ensure farmers' independent decision-making right during the transfer of rural land management right. In summary, in the process of land policy-making, we should speed up the work of rural land right confirmation, and puts forth effort on establishing a comprehensive rural land circulation market and rural social security mechanism at the same time, so as to ensure the fairness during the realization process of land rights, promote the rational and effective use of land resources, and let farmers in rural areas share more land value-added benefits.