农村土地制度改革的“碎片化”及其整体性治理

THE FRAGMENTATION OF RURAL LAND SYSTEM REFORM AND ITS HOLISTIC GOVERNANCE

关键词:  耕地  林地  宅基地  制度改革  碎片化

Key words:  cultivated land  forest land  homestead land  institutional reform  fragmentation

摘要:

目的 农村土地制度是国家治理的重要基础。然而，农村土地制度改革的“碎片化”现象已经严重影响了改革成效，亟需深入剖析农村土地制度改革“碎片化”的表现形式，并探索有效的破解路径。方法 文章采用历史制度主义分析范式，以耕地、林地和宅基地等农村主要土地类型为研究对象，从历史回溯和现实审视两个维度对农村土地制度改革中的“碎片化”现象进行联动分析。结果 （1）从历史回溯角度看，以耕地、林地和宅基地为核心的农村土地制度改革在特定阶段存在着“碎片化”现象。（2）从现实审视角度看，农村土地制度改革“碎片化”的表征形式主要有目标碎片化、主体碎片化、过程碎片化、效果碎片化等。（3）整体性治理理论与农村土地制度改革高度契合，是消解农村土地制度改革“碎片化”的新理论资源和系统性分析框架。结论 农村土地制度改革“碎片化”的治理，应当遵循整体主义逻辑，从“理念层面、组织层面、主体层面、技术层面”加以路径优化，推动农村土地制度的持续优化。

Abstract:

The rural land system is a vital foundation for effective national governance. However, the phenomenon of “fragmentation” in rural land system reforms has severely compromised the effectiveness of these reforms. This highlights the urgency of conducting an in-depth analysis of the manifestations of fragmentation in rural land system reforms and exploring effective pathways to address this challenge. Focusing on the major types of rural land, including arable land, forest land, and homestead land, this research employed the analytical framework of historical institutionalism to conduct a linkage analysis of the "fragmentation" phenomenon in rural land system reform from two dimensions: historical retrospection and contemporary evaluation. The findings were summarized as follows. (1) From a historical perspective, there was a fragmentation at specific stages in the reform of the rural land system, centered on arable land, forest land, and homestead land. (2) From a contemporary perspective, the manifestations of fragmentation in the reform process were primarily characterized by fragmented objectives, fragmented actors, fragmented processes, and fragmented outcomes. (3) The theory of holistic governance was highly compatible with the reform of the rural land system and provided a robust theoretical resource and systematic analytical framework for addressing fragmentation. Based on these findings, the governance of fragmentation in the reform of the rural land system should adhere to a holistic logic. This involves optimizing pathways from multiple dimensions, including conceptual, organizational, actor-based, and technological aspects, to promote the continuous optimization of the rural land system.