农地流转制度创新的逻辑与步骤

农地规模经营需克服土地细碎化，这以农地流转制度创新为前提。自发土地流转难以克服土地细碎化，“行政干预市场”又损害了弱势农民自主交易权利，这启示制度创新需在满足保障农户自主交易前提下供给低成本整合细碎化土地产权的机制。皖中宣州县经验表明可行的制度创新步骤是：首先建立农地所有权、承包权和使用权“三权分离”新制度，重构土地集体所有制；其次建立自下而上的农地流转组织和规范体系，形成“农户主体、村社中介”的农地流转新模式。我国完全可以利用集体所有制优势，创新农地流转制度，克服东亚小农国家共同面临的土地细碎化问题。

Logic and Procedures of System Innovation in Farmland Circulation

Farmland system innovation is a prerequisite to overcome land fragmentation;however,its difficult to overcome the problem of land fragmentation relying on spontaneous land circulation;on the other hand,“administrative intervention”hurts farmers trading rights.Therefore,the system innovation should be a low-cost land fragmentation integration mechanism that guarantees farmersautonomous trans-action rights.Experience from Xuanzhou County has shown that：firstly to build a“Three Rights Separa-tion”system which separate land ownership,contracting right and the rights of using,and rebuild the collective ownership of land;secondly,to establish a farmland circulation organization and normative sys-tem from bottom to top,and form a new mode of farmland circulation of“farmers as the main body and villages as the intermediary agent”.Our country can make use of the advantages of collective ownership, innovate the farmland circulation system,and overcome farmland fragmentation problem,which has been faced by East Asian countries.