黨的十九大(da)報(bao)告強調，完(wan)善承包(bao)地“三(san)(san)權”分(fen)置制度。土地“三(san)(san)權”分(fen)置，是(shi)繼家庭承包(bao)責任制后農(nong)村(cun)改(gai)革(ge)又(you)一重(zhong)大(da)制度創(chuang)新，是(shi)習近平(ping)總書記“三(san)(san)農(nong)”思想重(zhong)要組成。從“兩(liang)權”分(fen)離到“三(san)(san)權”分(fen)置，是(shi)適應生產力發展、順應農(nong)民意愿、符合(he)農(nong)村(cun)實際、繼往開(kai)來(lai)的制度變革(ge)，是(shi)改(gai)革(ge)開(kai)放以來(lai)農(nong)村(cun)土地制度的與時俱進——

習(xi)近(jin)平總書記指出，新(xin)形勢(shi)下(xia)深化農(nong)村(cun)改革，主(zhu)線仍是處理好農(nong)民和(he)土(tu)地(di)(di)的(de)(de)關系。2016年，習(xi)近(jin)平總書記主(zhu)持中央深改小組(zu)會(hui)議，審定下(xia)發(fa)《關于完善(shan)農(nong)村(cun)土(tu)地(di)(di)所(suo)有(you)權(quan)(quan)承(cheng)包(bao)權(quan)(quan)經(jing)營權(quan)(quan)分置辦法的(de)(de)意(yi)見》。黨的(de)(de)十九大(da)報告進一步強調，要完善(shan)承(cheng)包(bao)地(di)(di)“三權(quan)(quan)”分置制度。土(tu)地(di)(di)“三權(quan)(quan)”分置，是繼(ji)家庭承(cheng)包(bao)責(ze)任(ren)制后農(nong)村(cun)改革又(you)一重(zhong)大(da)制度創新(xin)，是習(xi)近(jin)平“三農(nong)”思想(xiang)重(zhong)要組(zu)成。

一、“三權”分置具有豐富的創新內涵

“三權(quan)(quan)(quan)”分(fen)置(zhi)的(de)演變歷(li)程(cheng)，符合(he)生產(chan)關系適(shi)應生產(chan)力發展的(de)客觀規律。人民公社(she)時期，農村(cun)集(ji)(ji)體(ti)土(tu)地所有權(quan)(quan)(quan)和(he)經(jing)(jing)營(ying)權(quan)(quan)(quan)“兩(liang)權(quan)(quan)(quan)”合(he)一(yi)(yi)，土(tu)地集(ji)(ji)體(ti)所有、集(ji)(ji)體(ti)統一(yi)(yi)經(jing)(jing)營(ying)。改革(ge)(ge)開(kai)放以后(hou)，農村(cun)土(tu)地集(ji)(ji)體(ti)所有權(quan)(quan)(quan)和(he)農戶承(cheng)包(bao)(bao)經(jing)(jing)營(ying)權(quan)(quan)(quan)“兩(liang)權(quan)(quan)(quan)”分(fen)離，土(tu)地集(ji)(ji)體(ti)所有、家(jia)庭承(cheng)包(bao)(bao)經(jing)(jing)營(ying)。黨的(de)十八(ba)大以來(lai)，將土(tu)地承(cheng)包(bao)(bao)經(jing)(jing)營(ying)權(quan)(quan)(quan)分(fen)為承(cheng)包(bao)(bao)權(quan)(quan)(quan)和(he)經(jing)(jing)營(ying)權(quan)(quan)(quan)，實行“三權(quan)(quan)(quan)”分(fen)置(zhi)，這是農村(cun)改革(ge)(ge)又一(yi)(yi)重(zhong)大創新。

一(yi)(yi)(yi)是(shi)統籌解(jie)決了(le)穩(wen)(wen)(wen)定(ding)(ding)與放(fang)活(huo)的(de)(de)問題。土(tu)(tu)地(di)制(zhi)度(du)(du)是(shi)國家(jia)(jia)(jia)的(de)(de)基(ji)礎性(xing)(xing)制(zhi)度(du)(du)，在土(tu)(tu)地(di)問題上要(yao)有(you)歷史耐心。從(cong)“兩權(quan)(quan)(quan)”分離(li)到“三(san)(san)權(quan)(quan)(quan)”分置(zhi)，以穩(wen)(wen)(wen)定(ding)(ding)為(wei)基(ji)礎，以放(fang)活(huo)為(wei)目標(biao)，堅(jian)持了(le)土(tu)(tu)地(di)集(ji)體所有(you)權(quan)(quan)(quan)，穩(wen)(wen)(wen)定(ding)(ding)了(le)農(nong)(nong)(nong)戶承包(bao)(bao)權(quan)(quan)(quan)，放(fang)活(huo)了(le)土(tu)(tu)地(di)經(jing)營(ying)權(quan)(quan)(quan)，促進(jin)農(nong)(nong)(nong)村(cun)資源要(yao)素(su)(su)合理配置(zhi)，推(tui)動(dong)多種形式(shi)的(de)(de)規(gui)模經(jing)營(ying)發展(zhan)，進(jin)一(yi)(yi)(yi)步解(jie)放(fang)和(he)發展(zhan)了(le)農(nong)(nong)(nong)村(cun)社會生(sheng)產力。總有(you)人(ren)認(ren)為(wei)，一(yi)(yi)(yi)家(jia)(jia)(jia)一(yi)(yi)(yi)戶搞不了(le)現代化(hua)，要(yao)把(ba)承包(bao)(bao)地(di)收回(hui)來(lai)，實(shi)行集(ji)體經(jing)營(ying)。但回(hui)到集(ji)體統一(yi)(yi)(yi)經(jing)營(ying)，這條路(lu)(lu)早(zao)已證明是(shi)走(zou)不通(tong)的(de)(de)。“三(san)(san)權(quan)(quan)(quan)”分置(zhi)創造性(xing)(xing)地(di)處理了(le)變(bian)與不變(bian)的(de)(de)關(guan)系(xi)，以農(nong)(nong)(nong)村(cun)土(tu)(tu)地(di)集(ji)體所有(you)、家(jia)(jia)(jia)庭經(jing)營(ying)基(ji)礎性(xing)(xing)地(di)位、土(tu)(tu)地(di)承包(bao)(bao)關(guan)系(xi)的(de)(de)不變(bian)，來(lai)適應(ying)土(tu)(tu)地(di)作為(wei)生(sheng)產要(yao)素(su)(su)的(de)(de)流動(dong)、農(nong)(nong)(nong)業經(jing)營(ying)方式(shi)的(de)(de)多樣化(hua)，順應(ying)了(le)農(nong)(nong)(nong)民(min)(min)想保留承包(bao)(bao)權(quan)(quan)(quan)、又想流轉經(jing)營(ying)權(quan)(quan)(quan)的(de)(de)意(yi)愿，既沒有(you)回(hui)到人(ren)民(min)(min)公社歸大(da)堆的(de)(de)老路(lu)(lu)，也沒有(you)否定(ding)(ding)家(jia)(jia)(jia)庭承包(bao)(bao)經(jing)營(ying)的(de)(de)基(ji)礎性(xing)(xing)地(di)位，推(tui)動(dong)農(nong)(nong)(nong)業生(sheng)產經(jing)營(ying)集(ji)約(yue)化(hua)、專業化(hua)、組織化(hua)、社會化(hua)發展(zhan)，使(shi)農(nong)(nong)(nong)村(cun)基(ji)本經(jing)營(ying)制(zhi)度(du)(du)更(geng)加(jia)充滿持久的(de)(de)制(zhi)度(du)(du)活(huo)力。

二是(shi)統籌解決(jue)了公平(ping)與(yu)效(xiao)率的(de)(de)問題。土(tu)(tu)地(di)(di)是(shi)財富之母(mu)。“兩(liang)權(quan)”分離實行農戶平(ping)均承(cheng)包土(tu)(tu)地(di)(di)，保障每個農村人口(kou)基本生(sheng)(sheng)存發(fa)展權(quan)利(li)，解決(jue)了十(shi)幾億人口(kou)的(de)(de)溫飽問題。但在(zai)土(tu)(tu)地(di)(di)分包過(guo)(guo)程中，不少(shao)地(di)(di)方實行水旱、肥瘦、遠(yuan)近(jin)搭(da)配，導致承(cheng)包土(tu)(tu)地(di)(di)細碎化，全(quan)國戶均耕(geng)地(di)(di)7.5畝(mu)、5.7塊，農業生(sheng)(sheng)產效(xiao)率難以提(ti)升。“三權(quan)”分置找到(dao)了兼顧公平(ping)和效(xiao)率的(de)(de)有效(xiao)辦法，通(tong)過(guo)(guo)土(tu)(tu)地(di)(di)經營權(quan)的(de)(de)流轉，促進經營權(quan)的(de)(de)協商交換、土(tu)(tu)地(di)(di)整(zheng)理，實現小塊變大塊、連片經營；通(tong)過(guo)(guo)經營權(quan)的(de)(de)流轉、托(tuo)管等，發(fa)展多(duo)種形(xing)式適度規模經營，提(ti)高了土(tu)(tu)地(di)(di)產出率、勞動生(sheng)(sheng)產率、資(zi)源(yuan)利(li)用率。

三是(shi)統籌(chou)解決了(le)(le)封閉(bi)與開放(fang)的(de)問題。我國農(nong)村(cun)(cun)土地(di)承(cheng)(cheng)包采取農(nong)村(cun)(cun)經(jing)(jing)(jing)(jing)濟(ji)組(zu)織內(nei)部的(de)家庭承(cheng)(cheng)包方式，只有集(ji)體(ti)經(jing)(jing)(jing)(jing)濟(ji)組(zu)織成員(yuan)才有資格承(cheng)(cheng)包土地(di)。在(zai)“兩(liang)權(quan)(quan)(quan)(quan)”分離(li)制度下，土地(di)承(cheng)(cheng)包經(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)權(quan)(quan)(quan)(quan)在(zai)一(yi)起，誰(shui)承(cheng)(cheng)包誰(shui)經(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)，承(cheng)(cheng)包者(zhe)就是(shi)經(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)者(zhe)，承(cheng)(cheng)包經(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)權(quan)(quan)(quan)(quan)具(ju)有一(yi)定的(de)封閉(bi)性、排他性。“三權(quan)(quan)(quan)(quan)”分置(zhi)(zhi)后(hou)，實(shi)現了(le)(le)承(cheng)(cheng)包權(quan)(quan)(quan)(quan)和經(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)權(quan)(quan)(quan)(quan)分離(li)，承(cheng)(cheng)包權(quan)(quan)(quan)(quan)是(shi)成員(yuan)權(quan)(quan)(quan)(quan)，在(zai)集(ji)體(ti)經(jing)(jing)(jing)(jing)濟(ji)組(zu)織內(nei)封閉(bi)運行，保障了(le)(le)集(ji)體(ti)經(jing)(jing)(jing)(jing)濟(ji)成員(yuan)的(de)合法(fa)權(quan)(quan)(quan)(quan)益(yi)；經(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)權(quan)(quan)(quan)(quan)是(shi)用益(yi)物權(quan)(quan)(quan)(quan)，具(ju)有開放(fang)性、社(she)會性。這(zhe)樣一(yi)來，農(nong)村(cun)(cun)土地(di)可(ke)以由本(ben)村(cun)(cun)人經(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)，可(ke)以將經(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)權(quan)(quan)(quan)(quan)流轉給外村(cun)(cun)人，也(ye)可(ke)以流轉給城里人，實(shi)現了(le)(le)土地(di)資源在(zai)更(geng)大范圍內(nei)優化配置(zhi)(zhi)。

四是(shi)統籌解決(jue)了外出務(wu)工(gong)與“誰來(lai)種(zhong)地(di)”的(de)(de)(de)問(wen)題。近(jin)年來(lai)，隨著大量(liang)農(nong)(nong)(nong)(nong)(nong)(nong)村(cun)勞(lao)動(dong)力向城鎮和二三產業轉(zhuan)移就業，農(nong)(nong)(nong)(nong)(nong)(nong)村(cun)青壯年勞(lao)動(dong)力大幅(fu)減少，加上(shang)農(nong)(nong)(nong)(nong)(nong)(nong)業生產成(cheng)(cheng)本不斷(duan)上(shang)升，農(nong)(nong)(nong)(nong)(nong)(nong)業經(jing)營效益持(chi)續降低，農(nong)(nong)(nong)(nong)(nong)(nong)業勞(lao)動(dong)力兼業化、老齡化、婦女化問(wen)題突出。“三權”分置推動(dong)了土地(di)經(jing)營權流(liu)轉(zhuan)，全(quan)國2.3億農(nong)(nong)(nong)(nong)(nong)(nong)戶中流(liu)轉(zhuan)土地(di)的(de)(de)(de)超(chao)過了7000萬戶，比(bi)例近(jin)30%，促進了農(nong)(nong)(nong)(nong)(nong)(nong)村(cun)分工(gong)分業。外出務(wu)工(gong)農(nong)(nong)(nong)(nong)(nong)(nong)民安(an)心進城，新型(xing)職業農(nong)(nong)(nong)(nong)(nong)(nong)民茁(zhuo)壯成(cheng)(cheng)長，農(nong)(nong)(nong)(nong)(nong)(nong)民務(wu)工(gong)務(wu)農(nong)(nong)(nong)(nong)(nong)(nong)各(ge)(ge)得其所，新型(xing)經(jing)營主體蓬(peng)勃發展(zhan)，解決(jue)了農(nong)(nong)(nong)(nong)(nong)(nong)村(cun)“誰來(lai)種(zhong)地(di)”的(de)(de)(de)問(wen)題。目前全(quan)國各(ge)(ge)類新型(xing)經(jing)營主體達到270萬家，新型(xing)職業農(nong)(nong)(nong)(nong)(nong)(nong)民超(chao)過1200萬人，成(cheng)(cheng)為發展(zhan)現代(dai)農(nong)(nong)(nong)(nong)(nong)(nong)業的(de)(de)(de)生力軍(jun)和領頭羊。

五是統籌解決了家(jia)(jia)庭(ting)承包(bao)與(yu)規(gui)模(mo)經(jing)(jing)(jing)營(ying)(ying)的問(wen)題。長期以(yi)(yi)(yi)來，我國(guo)農(nong)民(min)“家(jia)(jia)家(jia)(jia)包(bao)地(di)、戶(hu)(hu)戶(hu)(hu)種(zhong)(zhong)(zhong)(zhong)田(tian)”，千(qian)(qian)家(jia)(jia)萬戶(hu)(hu)的小(xiao)規(gui)模(mo)分散經(jing)(jing)(jing)營(ying)(ying)，難以(yi)(yi)(yi)適(shi)應千(qian)(qian)變萬化的大市(shi)場，也難以(yi)(yi)(yi)容納(na)現代技術裝備，家(jia)(jia)庭(ting)經(jing)(jing)(jing)營(ying)(ying)效益也難以(yi)(yi)(yi)提高。“三(san)權(quan)”分置(zhi)放活(huo)了土地(di)經(jing)(jing)(jing)營(ying)(ying)權(quan)，土地(di)向種(zhong)(zhong)(zhong)(zhong)田(tian)能手(shou)、種(zhong)(zhong)(zhong)(zhong)養大戶(hu)(hu)集(ji)中，小(xiao)規(gui)模(mo)分散經(jing)(jing)(jing)營(ying)(ying)在減(jian)少，多(duo)種(zhong)(zhong)(zhong)(zhong)形(xing)式(shi)(shi)的適(shi)度規(gui)模(mo)經(jing)(jing)(jing)營(ying)(ying)在發展(zhan)，日益成為現代農(nong)業建設的引領力量。目前，全國(guo)家(jia)(jia)庭(ting)承包(bao)經(jing)(jing)(jing)營(ying)(ying)耕地(di)流轉(zhuan)面積達(da)到了4.6億畝，約占承包(bao)地(di)的1/3，經(jing)(jing)(jing)營(ying)(ying)耕地(di)50畝以(yi)(yi)(yi)上的規(gui)模(mo)經(jing)(jing)(jing)營(ying)(ying)農(nong)戶(hu)(hu)超過(guo)350萬戶(hu)(hu)，農(nong)民(min)合作社達(da)到190萬個。近年來，隨著土地(di)流轉(zhuan)、土地(di)入股、土地(di)托管等多(duo)種(zhong)(zhong)(zhong)(zhong)形(xing)式(shi)(shi)規(gui)模(mo)經(jing)(jing)(jing)營(ying)(ying)的發展(zhan)，農(nong)業機械(xie)化加快推進，主(zhu)要農(nong)作物耕種(zhong)(zhong)(zhong)(zhong)收(shou)綜合機械(xie)化水平超過(guo)65%。

二、“三權”分置是充滿政治智慧的制度安排

從“兩權”分離到(dao)“三權”分置，是適(shi)應(ying)生產力發展、順(shun)應(ying)農(nong)民意愿、符合(he)農(nong)村(cun)實際、繼(ji)往開來的(de)(de)制度變革，是改(gai)革開放以來農(nong)村(cun)土地制度的(de)(de)與時俱進。

（一）“三(san)權(quan)(quan)(quan)”分置為(wei)合(he)理配置土(tu)(tu)地(di)資(zi)源提供(gong)了制度(du)保障(zhang)。在(zai)(zai)“三(san)權(quan)(quan)(quan)”分置的(de)制度(du)安排下，進(jin)城務工的(de)農(nong)戶(hu)擁有(you)穩定的(de)承(cheng)包權(quan)(quan)(quan)，可以放(fang)心流轉出土(tu)(tu)地(di)經營(ying)(ying)權(quan)(quan)(quan)；想種(zhong)地(di)、多種(zhong)地(di)的(de)農(nong)戶(hu)，可以多種(zhong)渠道流轉進(jin)土(tu)(tu)地(di)經營(ying)(ying)權(quan)(quan)(quan)，擴大生(sheng)(sheng)產(chan)經營(ying)(ying)規模。“三(san)權(quan)(quan)(quan)”分置實(shi)(shi)現(xian)了村組集(ji)體(ti)(ti)、承(cheng)包農(nong)戶(hu)、新(xin)型農(nong)業經營(ying)(ying)主(zhu)體(ti)(ti)對土(tu)(tu)地(di)權(quan)(quan)(quan)利的(de)共享，土(tu)(tu)地(di)所有(you)者、承(cheng)包者和(he)經營(ying)(ying)者各有(you)所得、無有(you)所失，集(ji)體(ti)(ti)土(tu)(tu)地(di)作為(wei)要素在(zai)(zai)生(sheng)(sheng)產(chan)經營(ying)(ying)中實(shi)(shi)現(xian)流動，流出土(tu)(tu)地(di)經營(ying)(ying)權(quan)(quan)(quan)的(de)農(nong)戶(hu)增加(jia)財(cai)產(chan)性收入，新(xin)型農(nong)業經營(ying)(ying)主(zhu)體(ti)(ti)實(shi)(shi)現(xian)規模收益，達到了最大公(gong)約數效果(guo)。

（二(er)）“三權”分置為(wei)(wei)增(zeng)加農(nong)(nong)(nong)業(ye)(ye)(ye)農(nong)(nong)(nong)村(cun)發(fa)(fa)展活(huo)力創(chuang)新(xin)(xin)了(le)(le)制(zhi)度供(gong)給(gei)。當年(nian)土地(di)(di)家(jia)庭(ting)承包(bao)，實行(xing)“兩權”分離，這個制(zhi)度供(gong)給(gei)打破了(le)(le)大鍋飯(fan)，極大地(di)(di)調動了(le)(le)農(nong)(nong)(nong)民生(sheng)產積極性，解決(jue)了(le)(le)出(chu)(chu)工不(bu)出(chu)(chu)力、種地(di)(di)不(bu)打糧(liang)的(de)(de)問(wen)題，一舉解決(jue)了(le)(le)溫飽問(wen)題。“三權”分置作為(wei)(wei)農(nong)(nong)(nong)村(cun)土地(di)(di)制(zhi)度的(de)(de)又(you)一次(ci)重大創(chuang)新(xin)(xin)，實際也(ye)是新(xin)(xin)時期農(nong)(nong)(nong)業(ye)(ye)(ye)農(nong)(nong)(nong)村(cun)發(fa)(fa)展的(de)(de)又(you)一次(ci)帶(dai)有全(quan)局性的(de)(de)制(zhi)度供(gong)給(gei)，必(bi)將再一次(ci)釋(shi)放出(chu)(chu)巨大的(de)(de)改革紅利。土地(di)(di)經(jing)(jing)營(ying)(ying)權流轉(zhuan)，提升了(le)(le)農(nong)(nong)(nong)業(ye)(ye)(ye)經(jing)(jing)營(ying)(ying)規模效益；經(jing)(jing)營(ying)(ying)權托(tuo)管(guan)，發(fa)(fa)展了(le)(le)農(nong)(nong)(nong)業(ye)(ye)(ye)生(sheng)產性服務業(ye)(ye)(ye)；經(jing)(jing)營(ying)(ying)權互(hu)換，實現(xian)了(le)(le)土地(di)(di)集中連片種植；經(jing)(jing)營(ying)(ying)權抵押，解決(jue)了(le)(le)新(xin)(xin)型經(jing)(jing)營(ying)(ying)主體融資(zi)問(wen)題。經(jing)(jing)營(ying)(ying)權的(de)(de)放活(huo)，還為(wei)(wei)多元主體投資(zi)農(nong)(nong)(nong)業(ye)(ye)(ye)、創(chuang)業(ye)(ye)(ye)創(chuang)新(xin)(xin)開辟了(le)(le)空間，推動資(zi)金、人才、技(ji)術等要素(su)加快向農(nong)(nong)(nong)業(ye)(ye)(ye)農(nong)(nong)(nong)村(cun)集聚。現(xian)在(zai)，農(nong)(nong)(nong)村(cun)創(chuang)業(ye)(ye)(ye)創(chuang)新(xin)(xin)活(huo)力空前迸發(fa)(fa)，“三權”分置正在(zai)為(wei)(wei)農(nong)(nong)(nong)業(ye)(ye)(ye)農(nong)(nong)(nong)村(cun)持續發(fa)(fa)展提供(gong)新(xin)(xin)的(de)(de)動力源(yuan)泉。

（三(san)）“三(san)權”分(fen)置(zhi)(zhi)為推(tui)進(jin)中(zhong)國(guo)(guo)特色農(nong)(nong)(nong)業(ye)現代化(hua)帶來(lai)了(le)制(zhi)(zhi)(zhi)度(du)績效。“三(san)權”分(fen)置(zhi)(zhi)是對(dui)“兩權”分(fen)離的繼承和發(fa)展(zhan)，創新了(le)農(nong)(nong)(nong)村土(tu)地集體(ti)所有(you)制(zhi)(zhi)(zhi)的有(you)效實現形式(shi)，豐(feng)富(fu)了(le)以(yi)家庭承包經(jing)(jing)營(ying)為基(ji)礎、統分(fen)結合的雙層經(jing)(jing)營(ying)體(ti)制(zhi)(zhi)(zhi)的內(nei)涵，使我國(guo)(guo)農(nong)(nong)(nong)村基(ji)本(ben)經(jing)(jing)營(ying)制(zhi)(zhi)(zhi)度(du)煥發(fa)出新的生(sheng)機(ji)和活力。“三(san)權”分(fen)置(zhi)(zhi)促進(jin)農(nong)(nong)(nong)村資源要素(su)優化(hua)配置(zhi)(zhi)，推(tui)動(dong)發(fa)展(zhan)多種形式(shi)的適度(du)規模經(jing)(jing)營(ying)，催生(sheng)了(le)家庭農(nong)(nong)(nong)場(chang)、合作社(she)、農(nong)(nong)(nong)業(ye)企業(ye)等(deng)多種類型(xing)的新型(xing)農(nong)(nong)(nong)業(ye)經(jing)(jing)營(ying)主體(ti)如(ru)雨后(hou)春筍(sun)般蓬勃發(fa)展(zhan)，為中(zhong)國(guo)(guo)特色農(nong)(nong)(nong)業(ye)現代化(hua)開(kai)辟了(le)新路徑。“三(san)權”分(fen)置(zhi)(zhi)使中(zhong)國(guo)(guo)的土(tu)地制(zhi)(zhi)(zhi)度(du)更好對(dui)接農(nong)(nong)(nong)業(ye)現代化(hua)，現代技術、裝備、管理(li)、金融、人才等(deng)可以(yi)更好融入農(nong)(nong)(nong)業(ye)，促進(jin)農(nong)(nong)(nong)業(ye)生(sheng)產性服務業(ye)、農(nong)(nong)(nong)村一二三(san)產業(ye)融合發(fa)展(zhan)和農(nong)(nong)(nong)產品市場(chang)化(hua)。“三(san)權”分(fen)置(zhi)(zhi)植根中(zhong)國(guo)(guo)大(da)地，富(fu)有(you)中(zhong)國(guo)(guo)特色，也為世界(jie)上人多地少國(guo)(guo)家的土(tu)地制(zhi)(zhi)(zhi)度(du)創新提供了(le)“中(zhong)國(guo)(guo)方案”。

三、“三權”分置的意義還在于既解決了農業問題，又解決了農民問題

人(ren)(ren)多(duo)(duo)地(di)(di)少是中國(guo)的國(guo)情，人(ren)(ren)多(duo)(duo)主(zhu)要是農(nong)(nong)(nong)民(min)多(duo)(duo)，這決(jue)定了(le)小農(nong)(nong)(nong)戶(hu)將長期(qi)存在。“三農(nong)(nong)(nong)”問(wen)(wen)(wen)題(ti)的核心是農(nong)(nong)(nong)民(min)問(wen)(wen)(wen)題(ti)，不(bu)是農(nong)(nong)(nong)業問(wen)(wen)(wen)題(ti)。如果單(dan)純(chun)講(jiang)農(nong)(nong)(nong)業問(wen)(wen)(wen)題(ti)，土地(di)(di)歸大堆、人(ren)(ren)為壘大戶(hu)、培育“大地(di)(di)主(zhu)”，地(di)(di)讓(rang)工商資本來(lai)種，農(nong)(nong)(nong)業問(wen)(wen)(wen)題(ti)也(ye)可(ke)以(yi)解(jie)決(jue)，農(nong)(nong)(nong)業的規模、效益、現代手段也(ye)可(ke)以(yi)提高，但會導(dao)致(zhi)大量農(nong)(nong)(nong)民(min)失地(di)(di)失業失權(quan)，成為農(nong)(nong)(nong)村貧民(min)或(huo)城(cheng)市貧民(min)。土地(di)(di)承包(bao)關系變動(dong)也(ye)會引(yin)起農(nong)(nong)(nong)村社(she)會不(bu)穩定，進而(er)動(dong)搖黨在農(nong)(nong)(nong)村的執(zhi)政基礎。我們不(bu)能解(jie)決(jue)了(le)農(nong)(nong)(nong)業問(wen)(wen)(wen)題(ti)，惡化了(le)農(nong)(nong)(nong)民(min)問(wen)(wen)(wen)題(ti)，要把(ba)農(nong)(nong)(nong)業、農(nong)(nong)(nong)民(min)問(wen)(wen)(wen)題(ti)放在一(yi)起統籌考(kao)慮，不(bu)能顧此失彼，防止出現“拉美陷阱”。

“三權(quan)(quan)(quan)(quan)(quan)”分置為統籌解(jie)(jie)決農(nong)(nong)(nong)業(ye)、農(nong)(nong)(nong)民(min)(min)問題找(zhao)到了(le)(le)新(xin)路(lu)徑。農(nong)(nong)(nong)民(min)(min)作為集體經(jing)(jing)(jing)(jing)濟組織成(cheng)員，是土(tu)地所有(you)者的(de)(de)一分子(zi)。通(tong)(tong)過土(tu)地確權(quan)(quan)(quan)(quan)(quan)登記頒(ban)證，“確實(shi)權(quan)(quan)(quan)(quan)(quan)、頒(ban)鐵證”，農(nong)(nong)(nong)戶擁有(you)穩定(ding)的(de)(de)承包權(quan)(quan)(quan)(quan)(quan)，可以(yi)(yi)(yi)進(jin)(jin)退有(you)據(ju)，合(he)法(fa)權(quan)(quan)(quan)(quan)(quan)益得到保護；通(tong)(tong)過經(jing)(jing)(jing)(jing)營權(quan)(quan)(quan)(quan)(quan)出租、入股(gu)、托管等，農(nong)(nong)(nong)戶可以(yi)(yi)(yi)獲得穩定(ding)的(de)(de)財產性收益。土(tu)地經(jing)(jing)(jing)(jing)營權(quan)(quan)(quan)(quan)(quan)流動起來，可以(yi)(yi)(yi)實(shi)現規(gui)模經(jing)(jing)(jing)(jing)營，發(fa)展新(xin)型經(jing)(jing)(jing)(jing)營主體，推進(jin)(jin)農(nong)(nong)(nong)業(ye)現代化，從而實(shi)現農(nong)(nong)(nong)業(ye)農(nong)(nong)(nong)民(min)(min)“兩(liang)道(dao)題目”一起解(jie)(jie)。可以(yi)(yi)(yi)說，“三權(quan)(quan)(quan)(quan)(quan)”分置制(zhi)度安(an)排，給家庭承包經(jing)(jing)(jing)(jing)營制(zhi)度增添了(le)(le)活力，保障(zhang)了(le)(le)普通(tong)(tong)小農(nong)(nong)(nong)戶的(de)(de)權(quan)(quan)(quan)(quan)(quan)益和生計；也為小農(nong)(nong)(nong)戶和現代農(nong)(nong)(nong)業(ye)有(you)機(ji)銜接找(zhao)到了(le)(le)新(xin)路(lu)子(zi)，開辟了(le)(le)符(fu)合(he)我國國情(qing)的(de)(de)農(nong)(nong)(nong)業(ye)現代化、市場化道(dao)路(lu)。

顯然，“三權”分(fen)(fen)置作為(wei)一(yi)種長(chang)遠制(zhi)度安排，其前提(ti)是農村(cun)土(tu)(tu)(tu)地(di)承(cheng)(cheng)包關系長(chang)久(jiu)穩(wen)定(ding)(ding)不變，基礎還是農村(cun)集(ji)體土(tu)(tu)(tu)地(di)所有權不變，土(tu)(tu)(tu)地(di)家庭承(cheng)(cheng)包不變。習近平總書記講(jiang)，這是農村(cun)土(tu)(tu)(tu)地(di)經營制(zhi)度的根和魂(hun)。所以，要搞(gao)土(tu)(tu)(tu)地(di)確(que)權登(deng)記，把集(ji)體所有權固定(ding)(ding)下來(lai)，把農戶承(cheng)(cheng)包權穩(wen)定(ding)(ding)下來(lai)，在(zai)此基礎上實(shi)行“三權”分(fen)(fen)置，由此推進(jin)中國特色(se)農村(cun)土(tu)(tu)(tu)地(di)制(zhi)度再次(ci)創新、更加完(wan)善。

當然，“三(san)權(quan)”分置(zhi)并沒有(you)窮(qiong)盡(jin)中(zhong)國土地制度(du)創新(xin)，也(ye)不可能要求一(yi)項制度(du)創新(xin)解決未來遇(yu)到的(de)(de)(de)(de)所有(you)問題(ti)。現(xian)在，“三(san)權(quan)”分置(zhi)的(de)(de)(de)(de)制度(du)框(kuang)架已經建立，也(ye)需(xu)要不斷完善和發展，包括(kuo)需(xu)要深入研究農(nong)(nong)民集體和承(cheng)包農(nong)(nong)戶(hu)在承(cheng)包土地、承(cheng)包農(nong)(nong)戶(hu)和經營主體在土地流轉(zhuan)中(zhong)的(de)(de)(de)(de)權(quan)利邊界及相互權(quan)利關系；研究賦(fu)予(yu)經營權(quan)享有(you)抵押、擔保、入股等用益物(wu)權(quan)權(quan)能，為(wei)經營者提(ti)供長期穩定(ding)的(de)(de)(de)(de)經營預期；研究探索土地承(cheng)包權(quan)退(tui)出(chu)的(de)(de)(de)(de)有(you)效(xiao)辦法和途徑(jing)，引導(dao)舉家(jia)進城的(de)(de)(de)(de)承(cheng)包戶(hu)自愿有(you)償(chang)退(tui)出(chu)承(cheng)包權(quan)，等等。這是改革的(de)(de)(de)(de)必然，也(ye)是改革的(de)(de)(de)(de)生命力。 

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