地权的时空切割：农地新政如何受到制度路径依赖的制约
The Mechanism Cutting Land Property Rights in Space and Time: How the Agricultural Land System Reform Restricted by the System Path Dependence
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摘要: 农地新政是否能实现赋权于农的目标，是引发关注的议题。基于路径依赖理论，本文发现，旧制度下地方政府实施的“地权时空切割”机制仍可能延续于新政的实施环境下，制约农地新政的目标实现。与强调土地发展权国有化和民有论优势的观点不同，本文强调，农地新政是否能够有效推进，不取决于国有或民有的制度方案具有怎样的优势，而在于如何克服地方政府“地权时空切割”机制所形成的路径依赖。只有在财税体制、土地管理体制等宏观层面上理顺央地关系，新政才可能激励地方政府赋权于民，才能进一步拓展国家回应农民诉求的空间。Abstract: It is an issues of concern that whether the agricultural land system reform can achieve the goal of empowering the farmers.Based on the path dependence theory, this article finds that the mechanism cutting land property rights in space and time which implemented by local governments under the old system may still continue, and restrict the realization of the goals of the agricultural land system reform.Unlike the point of view that emphasizes the nationalization of land development rights and the advantages of private ownership, this article emphasizes that whether the new policy of agricultural land can be effectively promoted does not depend on the advantages of state-owned or private institutional programs, but on how to overcome local government’s power embedding in land proper rights. Only when the fiscal and taxation system and the land management system are rationalized at the macro level can the system reform encourage local governments to empower the people and further expand the country’s space to respond to farmers’ demands.
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表 1 农地新政如何受到旧制度的制约
新政议题 赋权的主要内容 如何受到“地权时空切割机制”的制约 征地改革 缩小征地范围，以片区综合地价补偿农民 征地、规划权、“增减挂钩”政策的时间切割效应仍会延续。 集体经营性建设用地入市 允许农地在符合规划的前提下入市 征地、规划权、“增减挂钩”的捆绑政策作为时间切割制约农地入市；新政规定的规划权力所切割的“圈内征收、圈外出让”是空间切割的延续。 宅基地改革 推动宅基地有偿退出，实行“所有权、资格权和使用权”的分置 征地、规划权、“增减挂钩”的捆绑政策作为时间切割制约农民的宅基地权利；以违规名义整治宅基地也是空间切割机制。 
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