乡村振兴背景下集聚提升型村庄土地制度创新

张伟 杨安华

摘 要：【目的/意义】集聚提升型村庄占我国村庄的大多数，是乡村振兴的重点，而土地制度是农村制度体系的基础和核心，通过聚焦集聚提升型村庄的土地制度创新，拓宽农村土地改革的整体性视野，以期推动乡村振兴战略实施。【方法/过程】以江苏省泗洪县S村土地改革为研究对象，运用案例研究和跟踪调查法进行分析。【结果/结论】研究发现：土地制度创新是乡村振兴的关键解锁点，其实质是土地制度的优化实现了乡村生产要素优化组合、公共空间再造与村庄共同体重塑，进而推动乡村振兴，但该模式下仍面临农民发展的非同步性和不确定性风险。未来集聚提升型村庄土地制度改革应强化实施包括宏观与微观方面的总体策略，通过完善顶层设计，确保改革实践的有效运行，积极稳妥地推动乡村振兴。

关键词：集聚提升型村庄;乡村振兴;适应性治理;土地制度创新

中图分类号：F321.1文献标志码：A文章编号：1637-5617（2021）02-0029-07

Abstract： 【Objective/Meaning】The gathering and upgrading villages account for the majority of villages in China， which are the focus of rural revitalization， while the land system is the foundation and core of rural institutional system. By focusing on the innovation of land system in the gathering and upgrading villages， the overall vision of the rural land reform was broadened to promote the implementation of the rural revitalization strategy. 【Methods/Procedures】By taking the land reform in S village of Sihong County in Jiangsu Province as the research object， the case study and tracking survey methods were used to analyze. 【Results/Conclusions】It was found that the innovation of land system was the key unlocking point of rural revitalization. Its essence was that the optimization of land system achieved the optimal combination of rural production factors， the reconstruction of public space and the remodeling of village community， thus to promote the rural revitalization. However， there were still unsynchronized and uncertain risks of farmersdevelopment in this mode. In the future， the reform of land system in the gathering and upgrading villages should strengthen the implementation of the overall strategy including the macroscopic and microscopic aspects， and ensure the effective operation of the reform practice by improving the top-level design， so as to actively and steadily promote the rural revitalization.

Key words： gathering and upgrading village; rural revitalization; adaptive governance; innovation of land system

土地制度是一个国家社会经济发展最基本的制度[1]。农村土地制度作为农村制度体系的基础和核心，是全面深化改革的重点，也是乡村振兴战略的关键解锁点。因其特殊性地位，农地制度创新成为了国家政策聚焦的关键领域，2013年中共中央出台《关于全面深化改革若干重大问题的决定》强调赋予农民承包地、宅基地相关权利;2017年党的十九大报告提出深化土地制度改革;同时，2013-2020年“中央一号”文件以及近期十九届五中全会均强调“土地制度改革与创新”，并提出了诸如农地三權分置、宅基地三权分置、集体建设用地改革等多样化试点方略，以多样化改革试点推动农村土地制度创新。……