The core issue of rural development is "Where does the money come from"? Chengdu has set the term of farmers' land contract as "long-term unchanged", which has laid a solid and reliable foundation for the orderly transfer of land and the entry of social funds into the countryside in the future. The reform of rural property rights is actually a difficult interest adjustment.
Reform of rural property right system in Chengdu
Our correspondent Yin Hongwei's special correspondent Vision Wei reports from Chengdu.
In Heming Village, Liu Jie Town, Dujiangyan City, which is under the jurisdiction of Chengdu, a huge billboard at the entrance of the village reads "The first village of rural property right system reform in Chengdu's comprehensive urban and rural reform pilot zone". Just after the Spring Festival, Heming Village, which is full of rape blossoms, seems calm on the surface, but the reform of rural property rights system has brought about earth-shaking changes inside it. In the past, the theme of farmers' life here was to go to large and small cities to work every year. Nowadays, with the farmers' confirmation of land and houses, rural communities have begun to revive.
The reform of rural property right system in Chengdu since 2008 has accurately touched the core topic of land. "Where does the money for rural development come from?" This is a subject that Chengdu has been thinking about since the reform of urban-rural integration began in 2003. Reformers in Chengdu believe that farmers are actually living in poverty and relative poverty with "golden rice bowls". Reformers hope to combine improving land use efficiency with safeguarding farmers' interests, promote the marketization of land elements, and then drive the free flow of "rural labor" elements. The reform of rural property rights system has become a key link for Chengdu to create a new urban and rural form.
Starting from the pilot reform
In the summer of 2005, Chengdu Agriculture Committee conducted a comprehensive survey on the development of rural collective economy in the city: 8.35% of the villages in the city have an annual collective economic income of more than 654.38+10,000 yuan, 38. 165.438+0% of the villages are below 50,000 yuan, and 35.24% of the "empty-shell villages" have no collective economic income; Only 39.33% of the village-level collective economic benefits in the city can be distributed to farmers.
He Ming Village is located in the fertile western sichuan bazi. In 2007, Chengqing expressway passed through Heming Village from Chengdu to Qingcheng Mountain, and the former "corner zone" became a "fragrant steamed bun". This year, more than 40 acres of land in the village were transferred out. "If you have money, you won't pour manure." Villagers who used to go out to work and abandon their land began to look for village cadres and wanted to return to the contracted land for returning farmland.
This really embarrassed the cadres in He Ming Village. Since the 1990s, some villagers in the village who go out to work all the year round are reluctant to farm. The reason is simple: they can buy 65,438+00 kilograms of rice in a day's work. In the eighth group of Heming Village, there are five or six acres of land abandoned for a long time, and the team leader can only share the taxes and fees that need to be paid for abandoned land with other villagers. Yu Yue, director of the village committee, has one more task every year: go door to door and beg villagers to farm.
"Land contracting has solved the problem of farmers' eating, but there is no' golden doll' on the land. "Starting from 200 1, China's rural tax and fee system reform began to be piloted. By 2006, farmers will not only stop paying all kinds of taxes and fees, but also subsidize grain production every year. Many villagers are excited about the benefits that can be produced on the land.
Lantian Community, Hanchang Town, Dayi County, which is dozens of kilometers away from Heming Village, has witnessed a vigorous development of edible fungi industry in recent years. By the end of 2009, most of the 4,000 mu of land transferred by Hanchang Town was concentrated in Lantian community.
Chengdu hopes that the scale of land circulation will be further expanded, the degree of farmers' organization will be further improved, and the ability to enter the market will be further enhanced. But where is the motivation for farmers to enter the market? As early as 2003, when Chengdu deployed the strategy of urban-rural integration, it proposed to explore the synchronous income increase of rural and urban areas through various forms such as land scale management, realize agricultural industrialization, develop modern agriculture, and guide farmers to the road of prosperity.
However, a real problem is facing Chengdu: although the collective ownership of rural land is a collection of individual ownership of farmers, who are the ultimate owners of collective property rights, individual farmers do not own the ownership of collective land. The land rights owned by farmers are empty, so it is difficult to turn resources into capital.
According to Sun Ping, executive vice mayor of Chengdu, the crux lies in the fact that the real market economy has not been established in rural areas, "the factor market has not been formed, and land, people and capital have not really been activated". In February 2007, Chengdu Municipal Committee held a working conference on urban-rural integration, and the idea of "solving the problem of urban-rural integration with market-oriented methods" was officially thrown out.
"The process of property rights reform will weaken the interests of local governments, but it is good for the development of the whole countryside." In Sun Ping's view, the rural property right reform is actually an interest adjustment. "In the past, the government spent a small price to get land from farmers, and it could increase its value many times by changing hands. The government took a lot in the middle, but it didn't really solve the problem of farmers. This is also the essence of the long-term unresolved problems of agriculture, rural areas and farmers. "
A scholar who participated in the pilot reform revealed that the resistance from all sides in the reform was "very great": "The suburban counties of Chengdu, including those towns and villages supported by industrial projects, are unwilling to be determined by local governments. How to defend rights without confirming rights? What about the reform of property rights system? Every time a meeting is held to discuss production reform, it is not an exaggeration to argue between departments. " He said that there is even an official research institution in Chengdu that has made a special report. On the surface, it is affirmed that the core of rural property right reform is to confirm the right. In fact, I hope to return to the previous land system in disguise through rural property rights reform. "This actually reflects that local high-level officials have different voices and views on reform. It is undeniable that this has brought great pressure to the reform. "
Because of the well-known "sensitivity", Chengdu decided to carry out pilot projects in Shuangliu County, Wenjiang District, Dujiangyan City and Dayi County, while Dujiangyan City chose more than 20 villages with different industrial types in six towns of Pingba District, Yanshan District and mountainous area. The pilot content includes rural collective land ownership, collective construction land use right, land contractual management right, forest right, housing ownership registration, and clear property rights; Collective land ownership and collective construction land use rights are confirmed to the village or group; Contracted land, private plots, homesteads and farmers' houses are confirmed to be households.
"At the beginning of the property rights system reform, our village cadres analyzed that the first round of land contract reform made farmers afford to eat, and the second round of land contract gave farmers reassurance. This reform should still be beneficial. " As the earliest pilot village, Liu Wenxiang, the village party secretary, said that the understanding of the rural property right system reform was rather vague: the reform was to find out the family property of the village.
Liu Wenxiang said: "Everyone who works at the grass-roots level in rural areas knows that family planning is the most difficult thing in rural areas, but in fact, it is even more difficult to mediate land disputes than family planning. In the past, due to various reasons, such as agricultural tax and the tide of working, some farmers abandoned their land and other villagers planted and paid agricultural tax. But whose land should this be? Village cadres have a headache to mediate this problem. "
New starting point highlights fairness
On the last day of March, 2008, Yu Yue and 34 villagers from Group 7 of Heming Village got the rural land contractual management right certificate, collective construction land use right certificate and property right certificate with the same rights as urban houses for the first time. He may be the first person to get the certificate in this round of rural property right reform in China.
Like Yu Yue, each of the 574 farmers in the village got three certificates. A few people with forest land have an extra forest right certificate. In addition to the "four certificates", everyone also received the "two certificates", namely the cultivated land protection certificate and the endowment insurance certificate. In the course of production reform, Chengdu proposed to innovate the farmland protection mechanism, and the municipal and county governments should allocate 2.6 billion yuan from the fiscal budget each year to set up a farmland protection fund (the subsidy standard is 400 yuan per mu of basic farmland and 300 yuan per mu of general farmland) to provide old-age insurance subsidies for farmers responsible for farmland protection, mobilize farmers' enthusiasm for farmland protection, and ensure that the total amount of cultivated land and grain production capacity will not decline.
Dujiangyan identified agricultural cooperatives, agricultural cooperative associations and township collective asset management committees as the main bodies of collective land ownership at the group, village and township levels, which not only standardized the main bodies of ownership, but also established and improved rural collective economic organizations.
Subsequently, Chengdu Modern Agricultural Development Investment Company and Chengdu Small Town Investment Company, two engines of Chengdu's rural market-oriented reform, were established. Policymakers hope to use the limited start-up funds of the government to incite financial and social funds to invest in modern agriculture and rural infrastructure.
After confirming the right, the "gold content" of the warrants owned by farmers lies in that farmers with certificates can transfer contracted land in various ways and obtain various benefits. In this regard, the image metaphor of Liu Junlin, assistant mayor of Chengdu and secretary of Dujiangyan Municipal Party Committee, is that the rural property right reform is equivalent to opening a hive. When we establish a perfect property right system, it is like taming all the bees, so that we can enjoy the honey in the hive. "
On June 28th, 2008, 10, Chengdu took the lead in establishing a comprehensive rural property rights exchange. The Exchange will provide professional services for projects such as forest right, land contractual management right, rural housing property right and collective construction land use right. In 2009, the certification of rural property rights system reform in Chengdu was basically completed, and all the funds raised at the municipal level were in place. 254 towns and villages distributed cultivated land protection funds of11400,000 yuan, benefiting109,000 farmers, involving 3.84 million mu of cultivated land. There were 27,000 rural property rights transactions with an amount of 210.2 billion yuan, and the rural property rights mortgage financing method was formulated.
On June 5438+065438+ 10, 2009, all the certificates of rural land contractual management right in the hands of villagers in heming village changed the contracted term: the contracted term of land was changed from "2027" to "permanent". Xiao Jincheng, an expert on land issues and deputy secretary-general of China Regional Economics Association, believes that the cultivated land protection fund and urban and rural social security system established in Chengdu have provided a solid foundation for the "long-term" reform of property rights.
The improvement of rural property right system reform is still in progress. The municipal government of Chengdu requires that land, registered permanent residence, certificate, contract and farmland insurance fund must be "five consistent". Only by insisting on confirming the right can we lay a solid and reliable foundation for the orderly transfer of land in the future.
Changes are still going on: in 2009, Hanchang Town was identified as a pilot town of property rights financing in Dayi County; 20 10 March, two villagers in Lantian Community will get financing loans ranging from 50,000 to 654.38+10,000 yuan with the help of Dayi County Property Right Transfer Guarantee Company and based on the confirmed property right certificate.
In Heming Village, villagers who confirmed their rights voluntarily joined the new rural community construction project. A flower base of 135 mu was introduced into the village, and a villager was unwilling to transfer his land and continue to grow his favorite food crops on his contracted land. Li Junjiang, the village party secretary of Lantian Community, believes that with the certificate of land contractual management right, the villagers' backs are straighter, and it is up to them to decide whether to participate in land transfer or not. The village can only respect the villagers' decision, but it does have an impact on the introduction of enterprises and can only continue to do the villagers' work.
Chen Jiaze, director of the Institute of Economics of Chengdu Academy of Social Sciences, said that the essence of rural property right system reform is the reconstruction of rural microeconomic foundation. Without this step, rural reform will be built on the beach without a solid foundation.
Simple and orderly folk wisdom
In March 2008, Li, member of the Standing Committee of Sichuan Provincial Party Committee and secretary of Chengdu Municipal Party Committee, went to the village for investigation and asked: How are the contradictions in production reform solved? Liu's answer is: we solve contradictions at the grassroots level. Li asked again: You are the most basic unit here. How can there be a basic unit? Liu Ye replied: Our grass-roots unit is the mediation team of the Council established by various villagers' groups.
Villagers' committees came into being with the reform of property rights. Chengdu requires that cadres who participate in the reform of rural property rights system must widely mobilize the masses and do basic work at the grassroots level. In the process of propaganda and mobilization, some officials have their own opinions on how to solve the problem of fair distribution of property or right to use in the process of confirming rights, and no one can convince anyone. However, the village group held a forum, and the problems and policies were handed over to the masses. As soon as the masses participated, the problems were solved.
He Mingcun set up a council, and each group set up a mediation group to mediate ownership disputes among villagers. The mediation group is elected by each group according to the number of villagers' representatives per 5 ~ 15 households/kloc-0. He mingcun's mediation team has formulated five principles: first, "justice is free from people's hearts" (relative justice); Second, "more is better than less, and some is better than nothing" (first come, first served); Third, "eat bamboo shoots layer by layer" (step by step); Fourth, "keep your word" (honesty); Fifth, "We are all in the same boat, and we should help each other in the same boat".
But village cadres also have headaches and grievances. I heard that we need to confirm the right to issue certificates. Villagers who went out to work all the year round and left the contracted land began to come back to the village cadres to contract the land. Villager Luo Tinggui, 1998 went out to work. When the contracted land was thrown to the village, he wrote a promise that he would not return to his contracted land within 30 years. I heard that he came back from hundreds of kilometers away after the housing reform began.
The villagers only know how many acres of contracted land they have, and how many contracted land there are in the village. Some villagers in the village group are not clear. Before the death of the former leader of the fourth group of villagers in heming village, the contracted land contracts and original materials of the villagers in this group could not be found after his death. After the confirmation, the four groups of new team leaders will have to re-register and re-establish the contracted land files of each household.
After nearly a month of registration, measurement and publicity, the ownership of collective land and the right to use collective construction land in Heming Village have been confirmed to the village or group. Contracted land, private plots, homesteads, and farmers' houses are all confirmed to the households. In order to show transparency, Liu Jie Town was inspired by the "fish scale map" more than 600 years ago, and developed the "fish scale" digital system, which accurately determined the ownership of farmers' land by measuring and combining with satellite maps. Every household in He Ming Village puts their fingerprints on the "fish scale map" of the whole village land, which looks like fish scales. On this map of the whole village, the ownership of every house, homestead, contracted land and forest right is clear.
When the property right reform was confirmed, Luo Tinggui's request was rejected by the members of heming village committee. He has been to Liu Wenxiang three or four times, and the latter's answer is: the village can't change what the Council decides, and "honest people who farm land can't suffer".
Yang, an official of Chengdu Land and Resources Bureau, said that farmers who have not contracted land demand the adjustment of contracted land, which is their right as members of collective economic organizations. However, it is protected by law that laid-off workers do not quit the contracted land, and the contradiction between adjustment and non-adjustment of rural land contractual management rights is increasingly prominent. He, a staff member of Agricultural Development Bureau of Dayi County, said: In 2009, more than 500 villagers in Dayi County went to the county to petition or consult. "Why do some people have' land where the dead grow the living' without contracted land?"
At the beginning of the production reform in 2008, I heard that it was necessary to re-measure and adjust the contracted land, make up the contracted land and make up the farmers' fields. Liu Rulin, a villager from Lantian Community, Hanchang Town, Dayi County, resolutely opposed it. The old couple Liu Rulin cultivated more than 6 mu of contracted land, far exceeding the per capita contracted land standard in the village. His son was admitted to the university, but the contracted land did not quit; My daughter got married and the contracted land didn't quit.
Although the village Committee and the mediation team have done their work many times, Liu Rulin is still very confident that the land contractual management right certificate after confirmation has been sent to me and there is no right to change it. Li Junjiang, the village party secretary, described Liu Rulin's "career": In 2009, Lantian Community introduced a company to build a flower base, and the circulating capital per mu of land was equivalent to 800 Jin of rice. Liu Rulin is worried that if the transfer funds are distributed, the money will be distributed to other villagers.
Liu Rulin decided to petition, but he could petition twice. After on-the-spot investigation by relevant departments, his reply was to respect the decisions of the village Committee and the mediation team of this group. 2065 438+00. 2. 23 Liu Rulin changed his mind. He took the initiative to find the town and agreed to withdraw from the contracted land of more than one acre. Some people speculate that since everything decided by the Council has been agreed by the villagers, everyone must have opinions on Liu Rulin's practice. Looking down at him in the village every day, Liu Rulin is distressed.
Similar problems emerge one after another in the production reform. But because of the main role and wisdom of the grassroots, the whole process is relatively smooth. Moreover, the government also attaches great importance to the orientation of not intensifying contradictions. This is a very important experience of rural property rights reform in Chengdu.