集体林权流转制度改革:历程回顾、核心议题与路径选择

改革开放以来,我国集体林权流转制度改革经历了林业"三定"时期、两次集体林改过渡时期和新一轮集体林改时期。研究结果显示:集体林权流转是集体经济组织和林农流出的过程,流入方注入新的生产要素与经营理念,集体林经营的资本密集度渐增;集体林权流转主体不断增多,每个时期都有主要的集体林权流转参与主体,且从单向流转向多向流转转变;政府部门从禁止集体林权流转转向鼓励和支持集体林权流转,林地收益是集体林权流转的保障,多异质性主体和林农非林就业机会增多是集体林权流转的必要条件;集体林权流转从木质产权交易演化到木质与非木质并重的产权交易,生态价值得以体现。在可以预见的未来,小农和村集体将继续向新型经营主体和工商资本等流转集体林权。为实现集体林权有序流转和保障各方利益,有必要进一步强化集体林确权工作,完善集体林权流转平台建设,规范政府行为,完善政策法规,明确生态公益林等林业区划原则,完善利益联结机制。

The Reforms of Collective Forestland Tenures Transfer in China:Retrospectives,Key Issues and Path Selection

Since the reform and opening up, the reforms of collective forestland tenures transfer system in China has gone through three important periods: forestry "three fixations", two transition periods of the reforms of collective forestland and the new round of collective forest reform. Collective forestland tenures transfer is a process of collective economic organizations and forest farmers’ rent-out, with input side injecting new essential productive factors and entrepreneurship, and the capital intensity of collective forest management is increasing. The number of entities of collective forestland tenures transfer is increasing, and each period has the main participants of collective forestland tenures transfer, from oneway transfer to multi-way transfer. The governmental agency changes from prohibiting collective forest rights transfer to encouraging collective forest rights transfer. Forest revenue is the guarantee of collective forest rights transfer, multi-heterogeneity entities and non-forest employment opportunities are the necessary conditions for collective forest rights transfer. The collective forest tenures transfer evolved from wood property rights transaction to both wood and non-wood property rights transaction, in which the ecological value is reflected. In the foreseeable future, small-scale farmers and village collectives will continue to transfer collective forest tenures to new business entities, and to industrial and commercial capitals. In order to realize the orderly transfer of collective forest property rights and protect the interests of all parties, it is necessary to further strengthen the confirmation of collective forest tenures, to improve the construction of collective forest tenures transfer platform, formalize government behavior, to improve policies and regulations, and to clarify the principles of forest zone ecological forests and others, and also to update interest linking mechanisms.