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《中共中央國(guó)務(wù)院關(guān)于保持土地承包關(guān)系穩(wěn)定并長(zhǎng)久不變的意見》發(fā)布會(huì)舉行,你關(guān)心的問(wèn)題都在這里!

2019-11-28 17:21:56 來(lái)源:農(nóng)機(jī)網(wǎng)整理發(fā)布 閱讀量:38842 評(píng)論

導(dǎo)讀:《中共中央 國(guó)務(wù)院關(guān)于保持土地承包關(guān)系穩(wěn)定并長(zhǎng)久不變的意見》(簡(jiǎn)稱《意見》)日前已正式公布,11月28日,國(guó)務(wù)院新聞辦公室召開新聞發(fā)布會(huì),就《意見》進(jìn)行解讀并答記者問(wèn)。

  【農(nóng)機(jī)網(wǎng) 熱點(diǎn)關(guān)注】 《中共中央 國(guó)務(wù)院關(guān)于保持土地承包關(guān)系穩(wěn)定并長(zhǎng)久不變的意見》(簡(jiǎn)稱《意見》)日前已正式公布,11月28日,國(guó)務(wù)院新聞辦公室召開新聞發(fā)布會(huì),就《意見》進(jìn)行解讀并答記者問(wèn)。
 
  如何組織實(shí)施以確保“長(zhǎng)久不變”的政策落地?
 
  農(nóng)業(yè)農(nóng)村部部長(zhǎng)韓長(zhǎng)賦表示,這次《意見》明確規(guī)定:一是堅(jiān)持延包原則,延包是一個(gè)原則,不得將承包地打亂重分,要確保絕大多數(shù)農(nóng)戶原有承包地繼續(xù)保持穩(wěn)定。絕大多數(shù)農(nóng)戶原來(lái)包哪個(gè)地,還是哪個(gè)地,所以延包是原則。二是延包的起點(diǎn)以各地第二輪土地承包到期開始計(jì)算,承包期還是三十年。具體到一個(gè)地方,特別是到一個(gè)縣,是從二輪承包到期為起點(diǎn)開始算起。
 
  如何組織實(shí)施還有很多問(wèn)題需要探索,有些問(wèn)題還要通過(guò)探索來(lái)解決。主要是三個(gè)方面的工作,從目前講:一是把證書發(fā)到農(nóng)民手中。從2014年起,我們開始推進(jìn)承包地的確權(quán)登記頒證,經(jīng)過(guò)六年來(lái)的集中攻堅(jiān),這項(xiàng)工作已經(jīng)基本完成。目前發(fā)證率超過(guò)94%,下一步要繼續(xù)抓好掃尾,做到應(yīng)發(fā)盡發(fā),要把現(xiàn)在農(nóng)戶的承包地明確下來(lái),進(jìn)一步確定下來(lái)。二是健全配套法律政策。按照新修訂的《農(nóng)村土地承包法》,這個(gè)剛剛修訂并已經(jīng)實(shí)施了,要抓緊修改完善《土地經(jīng)營(yíng)權(quán)流轉(zhuǎn)管理辦法》等相關(guān)配套法律法規(guī)和政策措施。因?yàn)殛P(guān)于土地承包、延包,那里面都有明確的法律表述,要進(jìn)一步完善配套政策,還要依法來(lái)進(jìn)行這項(xiàng)工作。三是開展延包試點(diǎn)。準(zhǔn)備在一部分縣,主要是先期到期的縣開展第二輪土地承包到期后的延包試點(diǎn),現(xiàn)在我們正在組織申報(bào)。通過(guò)試點(diǎn),來(lái)摸索經(jīng)驗(yàn),指導(dǎo)基層探索延包的具體辦法。關(guān)于延包,在大面積操作實(shí)行之前,中央以及有關(guān)部門還會(huì)出臺(tái)指導(dǎo)意見。
 
  進(jìn)城農(nóng)民的承包地應(yīng)該如何處置?
 
  韓部長(zhǎng)說(shuō),這個(gè)問(wèn)題是大家關(guān)心也是比較熱議的問(wèn)題,不僅進(jìn)城的農(nóng)民關(guān)心,不進(jìn)城的農(nóng)民也關(guān)心。
 
  隨著城鎮(zhèn)化的加快推進(jìn),大量農(nóng)民進(jìn)城,全國(guó)現(xiàn)在進(jìn)城務(wù)工經(jīng)商的農(nóng)民大約是2.88億,其中舉家進(jìn)城務(wù)工經(jīng)商的有3000多萬(wàn)戶。所以有的村里的房子閑著,存在“空心村”現(xiàn)象。其中,相當(dāng)一部分在城里落戶了,但是多數(shù)過(guò)年過(guò)節(jié)時(shí)還回村里??偟膩?lái)講,舉家進(jìn)城落戶的農(nóng)戶越來(lái)越多,這種現(xiàn)象越來(lái)越普遍。
 
  進(jìn)城農(nóng)戶的承包地怎么處置?這關(guān)系到農(nóng)民的切身利益,也關(guān)系到農(nóng)村社會(huì)穩(wěn)定??偟闹v,我們?cè)谕恋貑?wèn)題上要有足夠的歷史耐心,不要著急,不要急于收回農(nóng)民的承包地。我們?cè)谕恋貑?wèn)題上,要尊重農(nóng)民的意愿和維護(hù)農(nóng)民權(quán)益,把選擇權(quán)交給農(nóng)民,由農(nóng)民選擇,而不是代替農(nóng)民選擇。
 
  這次出臺(tái)的《意見》明確提出,現(xiàn)階段不得以退出土地承包權(quán)作為農(nóng)戶進(jìn)城落戶的條件。對(duì)進(jìn)城落戶的農(nóng)民,一方面可以引導(dǎo)他們?cè)谝婪ㄗ栽赣袃數(shù)脑瓌t下,將承包地轉(zhuǎn)讓或者退還集體,前提是自愿有償。另一方面,也可以保留承包權(quán)、流轉(zhuǎn)經(jīng)營(yíng)權(quán)或者通過(guò)代耕托管等方式發(fā)展多種形式的適度規(guī)模經(jīng)營(yíng)。他自愿,可以在自愿有償?shù)那闆r下,當(dāng)然要依法,將承包地退還給集體,或者在集體成員內(nèi)轉(zhuǎn)讓他的承包權(quán)。他不愿意,就要保留承包權(quán),允許他通過(guò)流轉(zhuǎn)經(jīng)營(yíng)權(quán)或者通過(guò)代耕托管的方式來(lái)發(fā)展多種形式適度規(guī)模經(jīng)營(yíng)。對(duì)長(zhǎng)期棄耕拋荒承包地的,《意見》也有明確的政策。發(fā)包方可以依法采取措施予以糾正,不能長(zhǎng)期撂荒,這是不可以的。
 
  在此我想再?gòu)?qiáng)調(diào)一下,對(duì)進(jìn)城農(nóng)戶是否放棄承包地,要尊重農(nóng)民的意愿,可以示范和引導(dǎo),但不能搞強(qiáng)迫命令。
 
  承包土地確權(quán)登記頒證工作目前進(jìn)展如何?
 
  韓部長(zhǎng)表示,開展農(nóng)村承包地確權(quán)登記頒證工作是黨中央做出的一項(xiàng)重大決策部署。開展這項(xiàng)工作的初衷,就是要穩(wěn)定土地承包關(guān)系,給農(nóng)民吃“定心丸”,同時(shí)把土地承包的情況進(jìn)一步搞清楚。這項(xiàng)工作,在2014年以前就開始試點(diǎn),中央農(nóng)辦、農(nóng)業(yè)農(nóng)村部和中央有關(guān)部門組織開展試點(diǎn),從2014年開始全面推開。到2018年底,這項(xiàng)確權(quán)工作已經(jīng)基本完成,今年是開始“回頭看”,因?yàn)檫@項(xiàng)工作非常具體,工作也非常浩繁。
 
  通過(guò)確權(quán)登記,全國(guó)累計(jì)測(cè)量了11億個(gè)地塊,我前面講了,我們是15億多畝承包地,有11億地塊,很多地方土地單塊面積還是不大的。清理了2億多農(nóng)戶的檔案資料,可以說(shuō)通過(guò)這次確權(quán)登記摸清了家底,解決了長(zhǎng)期以來(lái)農(nóng)村土地四至不清、面積不準(zhǔn)、權(quán)屬不明等問(wèn)題。這項(xiàng)工作在確權(quán)登記基礎(chǔ)上,進(jìn)行頒證,叫“確實(shí)權(quán)、頒鐵證”,把改革開放以來(lái)的農(nóng)村土地承包關(guān)系,也包括承包的地塊,進(jìn)一步搞明白、搞清楚,而且這個(gè)確權(quán)登記是好幾次公開,要在村里公開,同時(shí)政府主管部門要登記、錄入。大家都清楚,這項(xiàng)工作各方反映成效是顯著的,強(qiáng)化了對(duì)農(nóng)民土地承包經(jīng)營(yíng)權(quán)的物權(quán)保護(hù),農(nóng)民拿到了證書,他對(duì)自己的承包地就放心、就踏實(shí),他就可以放心地流轉(zhuǎn)他的土地經(jīng)營(yíng)權(quán),他也可以開展土地經(jīng)營(yíng)權(quán)的抵押和擔(dān)保。
 
  大家可以看到,這項(xiàng)工作實(shí)際上為將要開展的第二輪到期后的新一輪延包打下了扎實(shí)基礎(chǔ)。所以這次中央《意見》明確要求,在延包工作中要以這一次承包地確權(quán)登記頒證為基礎(chǔ)。您剛才說(shuō)到,證書頒發(fā)了以后到下一輪承包還有沒有效?我可以明確回答,是有效的?!兑庖姟分v得已經(jīng)很清楚,已頒發(fā)的土地承包權(quán)利證書,在新的承包期繼續(xù)有效,且不變不換。有一個(gè)技術(shù)上的問(wèn)題,證書記載的承包期限,到延包時(shí)再做統(tǒng)一變更。
 
  無(wú)地和少地的農(nóng)戶權(quán)益該如何保障?
 
  韓部長(zhǎng)說(shuō),二輪承包以來(lái),因?yàn)槌邪r(nóng)戶家庭人口變動(dòng)等原因,一些承包農(nóng)戶之間占有的耕地不均,這也是必然、客觀的情況,生老病死是客觀現(xiàn)象。也有一些農(nóng)戶少地甚至無(wú)地,當(dāng)時(shí)也有的農(nóng)戶是二輪承包時(shí)舉家進(jìn)城打工了,也有的主動(dòng)提出放棄參加第二輪承包了,這種情況也有。他們的土地承包權(quán)益如何保障?也是落實(shí)長(zhǎng)久不變政策需要解決的問(wèn)題。我們對(duì)這個(gè)問(wèn)題高度重視,通過(guò)各地進(jìn)行的初步調(diào)查和統(tǒng)計(jì),大體上這部分農(nóng)戶占總農(nóng)戶的0.94%,不到1%?!兑庖姟穼?duì)此作出明確規(guī)定,第二輪承包到期后,應(yīng)堅(jiān)持延包原則,不得將承包地打亂重分,現(xiàn)有承包地在二輪承包期期滿以后由農(nóng)戶繼續(xù)承包,有自然災(zāi)害損毀等特殊情形時(shí),可按照大穩(wěn)定、小調(diào)整的原則,按照法定程序可以在個(gè)別農(nóng)戶間做適當(dāng)調(diào)整,但是要依法依規(guī)、從嚴(yán)掌握??偟膩?lái)說(shuō),不是通過(guò)把地打亂重分的方式來(lái)解決無(wú)地或者少地農(nóng)戶的問(wèn)題,有的情況可以本著“大穩(wěn)定、小調(diào)整”的原則進(jìn)行適當(dāng)調(diào)整,但只是在個(gè)別農(nóng)戶間,還要依法依規(guī)進(jìn)行。
 
  做這樣的規(guī)定是怎么考慮的呢?主要是考慮要保持承包關(guān)系的穩(wěn)定。農(nóng)業(yè)家庭經(jīng)營(yíng)關(guān)鍵是有穩(wěn)定預(yù)期,農(nóng)民有了長(zhǎng)期的穩(wěn)定的自主經(jīng)營(yíng)的土地,他才能有穩(wěn)定的經(jīng)營(yíng)預(yù)期和長(zhǎng)遠(yuǎn)的經(jīng)營(yíng)打算,才能放心地在土地上謀發(fā)展、增加投入、改善生產(chǎn)條件,提高土地的質(zhì)量。他既種地,還要保護(hù)這個(gè)地。如果承包地不斷調(diào)來(lái)調(diào)去,一個(gè)農(nóng)戶今年種這塊地,明年種那塊地,就難以愛惜土地、養(yǎng)護(hù)土地,甚至可能出現(xiàn)掠奪性的利用土地,這樣農(nóng)業(yè)就難以持續(xù)穩(wěn)定發(fā)展。在承包期內(nèi)是這樣,承包到期后延包的時(shí)候也是一樣的道理,主要是從保護(hù)農(nóng)戶的承包權(quán)益和保障農(nóng)業(yè)可持續(xù)發(fā)展兩個(gè)方面角度考慮的。
 
  無(wú)地少地農(nóng)戶怎么辦?如何保障他們的基本生活呢?各地也在研究和探索。一方面,有條件的地方可以通過(guò)集體預(yù)留的機(jī)動(dòng)地,二輪承包的時(shí)候允許集體有條件可以留不超過(guò)5%的機(jī)動(dòng)地;還有新開墾的耕地,以及原承包戶依法自愿交回的耕地,還有承包農(nóng)戶消亡了,集體依法收回的耕地,通過(guò)這些耕地來(lái)解決。另一方面,可以幫助無(wú)地少地的農(nóng)民通過(guò)流轉(zhuǎn)土地經(jīng)營(yíng)權(quán)來(lái)耕種土地,也可以流轉(zhuǎn)其他進(jìn)城務(wù)工農(nóng)民的土地,他愿意流轉(zhuǎn)的土地你可以生產(chǎn)經(jīng)營(yíng)。此外,還要在地外做文章,因?yàn)槲覀儾荒軣o(wú)限地分割耕地來(lái)解決這些問(wèn)題,因?yàn)橹袊?guó)就是人多地少,這是我們的基本國(guó)情,所以還要從地外做文章,幫助無(wú)地少地的農(nóng)戶提高就業(yè)技能、提高就業(yè)服務(wù)、廣辟就業(yè)門路。我們一方面鼓勵(lì)農(nóng)民工外出進(jìn)城打工,實(shí)際上農(nóng)村現(xiàn)在大量甚至有些地方是多數(shù)的青壯勞動(dòng)力沒有在家里種地,出去打工了。還有,在實(shí)施鄉(xiāng)村振興戰(zhàn)略當(dāng)中,習(xí)近平總書記提出要搞“五個(gè)振興”,其中一個(gè)就是鄉(xiāng)村產(chǎn)業(yè)振興,就是發(fā)展鄉(xiāng)村產(chǎn)業(yè),推進(jìn)農(nóng)村一二三產(chǎn)業(yè)融合,發(fā)展倉(cāng)儲(chǔ)保鮮、冷鏈物流、農(nóng)產(chǎn)品加工、農(nóng)村電商等,包括鄉(xiāng)村旅游,擴(kuò)大農(nóng)民就業(yè)和增收的門路。當(dāng)然,可能還有確實(shí)生活無(wú)著有實(shí)際困難的,可以通過(guò)提供基本社會(huì)保障來(lái)解決。
 
  二輪承包即將到期,是否會(huì)影響新型經(jīng)營(yíng)主體流轉(zhuǎn)土地的積極性?
 
  農(nóng)業(yè)農(nóng)村部黨組成員兼中央農(nóng)辦秘書局局長(zhǎng)吳宏耀表示,《意見》規(guī)定了延包的原則和辦法,這次二輪土地承包到期以后要延包,強(qiáng)調(diào)穩(wěn)定現(xiàn)有的土地承包關(guān)系,讓絕大多數(shù)農(nóng)戶原有的承包地繼續(xù)保持穩(wěn)定。這一方面給承包戶一顆“定心丸”,同時(shí)給土地的受讓方,也就是新型經(jīng)營(yíng)主體也吃下了“定心丸”,到期以后農(nóng)戶可以延包,經(jīng)營(yíng)主體可以再簽續(xù)訂合同,可以延期流轉(zhuǎn)土地。這是一個(gè)途徑。
 
  新修訂的土地承包法也給出了一些方案。法律規(guī)定,經(jīng)承包方同意,受讓方可以依法投資改良土壤,建設(shè)農(nóng)業(yè)生產(chǎn)輔助設(shè)施、配套設(shè)施,并按照合同約定對(duì)投資部分獲得合理補(bǔ)償。按照法律規(guī)定,投資主體對(duì)農(nóng)業(yè)的長(zhǎng)期投資,可按照合同約定獲得合理補(bǔ)償。所以要求在尊重農(nóng)民意愿并進(jìn)行充分協(xié)商的基礎(chǔ)上,新型經(jīng)營(yíng)主體在流轉(zhuǎn)土地時(shí),可以通過(guò)合同約定等方式協(xié)商確定二輪到期后繼續(xù)經(jīng)營(yíng)的具體條款。這在法律上給了保障。
 
  我們?cè)谡{(diào)研中也看到,很多農(nóng)民和新型經(jīng)營(yíng)主體在合同中都約定,在承包到期后,在政策允許的情況下,繼續(xù)由新型經(jīng)營(yíng)主體,也就是原來(lái)的主體經(jīng)營(yíng),較好地解決了這方面的問(wèn)題?,F(xiàn)在從政策上、法律上都給出了辦法,這方面的障礙可以消除。所以長(zhǎng)時(shí)間流轉(zhuǎn)農(nóng)民的土地搞經(jīng)營(yíng)活動(dòng),對(duì)農(nóng)業(yè)長(zhǎng)期投資有一個(gè)比較穩(wěn)定、可預(yù)期的效果,所以這方面的政策是有的,法律也是有規(guī)定的。
 
  “三權(quán)分置”和保持土地承包關(guān)系穩(wěn)定并長(zhǎng)久不變,二者是否有矛盾?
 
  韓部長(zhǎng)說(shuō),我首先明確這兩件事并不矛盾。2016年中央印發(fā)了《關(guān)于完善農(nóng)村土地所有權(quán)承包權(quán)經(jīng)營(yíng)權(quán)分置辦法的意見》,在農(nóng)村實(shí)行土地集體所有權(quán)、農(nóng)戶承包權(quán)和土地經(jīng)營(yíng)權(quán)“三權(quán)分置”。這個(gè)制度安排,有兩點(diǎn)特別重要:,它是家庭承包制基礎(chǔ)上的完善和發(fā)展,就像我剛才介紹的兩權(quán)分離基礎(chǔ)上,把承包經(jīng)營(yíng)權(quán)當(dāng)中的經(jīng)營(yíng)權(quán)分置出來(lái),它可以流轉(zhuǎn),實(shí)行“三權(quán)分置”。第二,這個(gè)制度安排順應(yīng)了許多農(nóng)民進(jìn)城打工以后,他想保留承包權(quán),但又不想或者是不方便經(jīng)營(yíng)土地,就想流轉(zhuǎn)土地經(jīng)營(yíng)權(quán),有這樣的一個(gè)愿望。同時(shí),也滿足了一些種田能手、種糧大戶,以及一些新型經(jīng)營(yíng)主體,包括家庭農(nóng)場(chǎng)想多種地的需求。制度設(shè)計(jì)是這樣的一個(gè)基本內(nèi)涵。
 
  現(xiàn)在大約多少土地在流轉(zhuǎn)?到2018年底,全國(guó)有5.39億畝耕地在不同主體間進(jìn)行流轉(zhuǎn)。流轉(zhuǎn)方式有多種,時(shí)間有長(zhǎng)短,期限的問(wèn)題剛才宏耀同志已經(jīng)說(shuō)明了。所以“三權(quán)分置”的制度安排,實(shí)際上是順應(yīng)了城市化、工業(yè)化和農(nóng)業(yè)現(xiàn)代化需要,因?yàn)檗r(nóng)業(yè)現(xiàn)代化要使用機(jī)械,也需要適度規(guī)模經(jīng)營(yíng),所以土地經(jīng)營(yíng)權(quán)需要流轉(zhuǎn)起來(lái),因?yàn)橥恋亟?jīng)營(yíng)權(quán)本身也是生產(chǎn)要素,作為要素,它也應(yīng)該更有效地配置。
 
  當(dāng)然,流轉(zhuǎn)不流轉(zhuǎn)土地,是承包農(nóng)戶自己的愿望,是他自己的選擇和決定,誰(shuí)也不能強(qiáng)迫,任何組織和個(gè)人不能強(qiáng)迫承包農(nóng)戶流轉(zhuǎn)或者不流轉(zhuǎn)土地經(jīng)營(yíng)權(quán)。流轉(zhuǎn)的期限不能超過(guò)第二輪承包剩余期限,土地流轉(zhuǎn)了,還必須搞農(nóng)業(yè),不能從事非農(nóng)建設(shè),這都是法律規(guī)定的。在堅(jiān)持集體所有權(quán)、穩(wěn)定農(nóng)戶承包權(quán)的基礎(chǔ)上,使農(nóng)村土地經(jīng)營(yíng)權(quán)流動(dòng)起來(lái),激發(fā)了農(nóng)村基本經(jīng)營(yíng)制度活力,這實(shí)際上也是對(duì)農(nóng)村基本經(jīng)營(yíng)制度的完善。
 
  這次發(fā)布的《意見》,強(qiáng)調(diào)了“兩不變,一穩(wěn)定”,既可以進(jìn)一步穩(wěn)定農(nóng)戶承包權(quán),使農(nóng)民放心地流轉(zhuǎn)土地,也能讓新型經(jīng)營(yíng)主體有穩(wěn)定的預(yù)期,能夠放心地流入土地,加大農(nóng)業(yè)投入,發(fā)展現(xiàn)代農(nóng)業(yè)。前面我講,兩件事并不矛盾。這兩者的關(guān)系可以簡(jiǎn)單地表述,穩(wěn)定是為了更好地放活,放活是為了長(zhǎng)久的穩(wěn)定。只有土地承包關(guān)系穩(wěn)定了,才能確保“三權(quán)分置”得以確立,并且穩(wěn)步實(shí)施。如果承包權(quán)變來(lái)變?nèi)ィ?jīng)營(yíng)權(quán)就沒有了基礎(chǔ)。只有實(shí)行“三權(quán)分置”,放活土地經(jīng)營(yíng)權(quán),承包關(guān)系才能保持長(zhǎng)久穩(wěn)定,這樣農(nóng)戶的承包權(quán)才能更好地實(shí)現(xiàn),土地才能夠得到充分有效地利用。
 
  本文由農(nóng)機(jī)網(wǎng)整理發(fā)布,資料來(lái)源:中國(guó)政府網(wǎng),如有侵權(quán)或異議請(qǐng)聯(lián)系我們。
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