Policy Effect of Linking Land Increase and Decrease

With the deepening of the practice of linking the increase and decrease of urban and rural construction land, the understanding of this new policy has been deepened from the state to the local, from the land department to the governments at all levels, and from the managers to the masses. Its multiple effects are mainly reflected in:

First, the linkage between increase and decrease is an effective mechanism to promote urban and rural planning and the construction of new socialist countryside.

To realize the coordinated development of urban and rural areas, we must increase investment in rural areas and provide more public products. The policy of linking the increase and decrease of urban construction land has found a good way for us and contains great strategic ideas. Practice has proved that the combination of increase and decrease, land consolidation and agricultural industrialization development is conducive to improving agricultural production conditions and promoting moderate agricultural scale operation and rural collective economic development. At the same time, the land saved by the implementation of rural collective construction land consolidation will be adjusted and used according to the principle of differential land rent. In accordance with the requirements of taking the city as the driving force to the countryside and supplementing agriculture with industry, the income from land differential will be used to develop rural collective economy, rural infrastructure and public service facilities, which will not only increase farmers' income and improve the living standards of local farmers, but also change the backward appearance of rural areas and promote the construction of new countryside and the integrated development of urban and rural areas. Shandong, Tianjin, Ningxia, Sichuan, Jiangsu and other pilot counties have combined the increase and decrease linkage with the construction of rural new villages and the renovation of dangerous houses, and integrated various agricultural funds, effectively solving the problems of rural drinking water, communication services, clean energy, sanitary toilet improvement and environmental protection.

Second, linking the increase and decrease is an important way to promote the protection of cultivated land and save intensive land use.

The basic motive force of cultivated land protection in China mainly comes from two aspects. First, the government led the implementation of land development and consolidation projects to promote protection through construction and increase the quantity and quality of cultivated land; Second, the occupation of cultivated land by construction projects needs to fulfill the obligation of "balance between occupation and compensation", based on cultivated land itself. The author believes that "linking increase and decrease" is a reasonable extension of the idea of "balance between occupation and compensation", and it is an index to check the cultivated land area increased by construction land consolidation as the cultivated land occupied by construction, and finally realize the increase of cultivated land area in the project area without lowering the quality. With the combination of increase and decrease, Jiangsu has implemented the construction project of "ten thousand hectares of fertile land" with a total construction scale of 830 thousand mu. After implementation, the cultivated land can be increased by10.2 million mu. Jiangxi, Sichuan, and Hubei regard the linkage of increase and decrease as an important part of promoting the project of "cultivating land, increasing grain and enriching people", "golden land project" and "high-yield farmland demonstration project", which effectively increases the cultivated land area. Economical and intensive use of land can be expressed as less land, or as the same land can carry more people, more economic entities and more buildings. The land-saving effect of "increase or decrease hook" is twofold. Through the adjustment of urban and rural land layout, the original extensive use will be eliminated and the new land will be used more intensively. According to investigation and statistics, the implementation of increase or decrease linkage can save about 50% of the land on average.

Thirdly, increasing or decreasing the connection is an important measure to optimize the land use structure and spatial layout.

In China's land policy system, the main function of land development and consolidation is to solve the problem of broken and disorderly land use pattern and increase cultivated land area. The main way is to merge scattered plots and reclaim abandoned plots. The main function of cultivated land occupation and compensation balance policy is to protect cultivated land area. The main way is to require all localities to supplement cultivated land with the same area and quality through rural land improvement and unused land development. The main function of the collective construction land transfer policy is to revitalize the rural collective management construction land obtained according to law, and the main way is to openly and standardly transfer the land use right through the unified tangible land market. However, these three policies cannot fundamentally solve the problem of "scattered, chaotic and empty" rural housing and village construction land, nor can they solve the problem of adjustment and optimization of urban and rural construction land layout. The implementation of linking the increase and decrease of urban and rural construction land and the planned demolition and construction of rural construction land under the guidance of planning have promoted the spatial adjustment and exchange of land, and solved the problems of fragmentation of cultivated land and extensive waste of collective construction land in most rural areas of China to some extent.

Fourth, the increase and decrease linkage is a booster for deepening the reform of rural land management system.

"Increase and decrease linkage" involves land confirmation, adjustment of construction land layout and maintenance of farmers' land rights and interests. In the pilot practice of linking increase and decrease, all localities have actively explored the reform of rural land property rights system, standardizing the circulation of collective construction land, building an economic compensation mechanism for cultivated land protection, building a unified land market in urban and rural areas, and improving the land income distribution mechanism. For example, Chengdu will implement rural collective construction land consolidation "linking the saved construction land indicators with the regional uses in line with the overall land use planning and urban and rural planning, so as to legally obtain collective construction land", stipulating that "most of the initial transfer proceeds of collective construction land use rights belong to collective economic organizations, and county and township governments can extract urban and rural construction funds from the transfer proceeds in a certain proportion for agricultural and rural development".

Due to the lack of land in cities and money in rural areas, all localities have a high enthusiasm for linking urban and rural construction land to increase or decrease. Like other new things, there are also some problems in the practice of linking increase and decrease: First, some places have "linked" without authorization outside the pilot approved by the Ministry of Land and Resources, which has expanded the scale of urban construction land, impacted the index management of the current land use plan to some extent, and affected the macro-control effect. Second, within the approved pilot range of linking increase and decrease, some places unilaterally pursue the differential income of land, illegally use turnover indicators across counties, and concentrate surplus indicators in central cities, which is not conducive to the overall development of urban and rural areas. Third, the planning of rural construction in some places is lagging behind, and the revision of rural land planning has not yet been completed, which leads to the failure to fully connect the project area setting with the overall land use planning, and the lack of coordination between the increase and decrease linkage and agricultural development and rural construction, which reduces the comprehensive benefits of the increase and decrease linkage.

These problems are mainly caused by some areas' misunderstanding of the relevant provisions of the policy of linking increase and decrease, irregular practices and management defects. On the basis of "two unifications, two persistence, two perfection and two exploration", we should sum up experience, standardize promotion and give full play to the comprehensive role of the policy of linking increase and decrease. "two explorations", one is to explore the formation of an institutional system to protect farmers' rights and interests. At the beginning of the pilot, the state did not have unified regulations on ownership adjustment, compensation and resettlement, and income return. It involves the renovation of rural construction land, and all localities go their own way. The protection of farmers' rights and interests and the protection of land property rights stay on respecting farmers' wishes, which depends on the management level of local governments. In the next stage, we need to focus on perfecting the system and establishing the mechanism, study and formulate specific measures such as land ownership management and income return, explore the introduction of market evaluation system, and improve the price formation mechanism. The second is to explore and improve the institutional environment of rural land consolidation. In many places, the linkage between increase and decrease is gradually closely combined with land circulation and land consolidation, which has become a comprehensive reform of rural land management system. There is an urgent need to explore three forms of rural land management system reform policies and measures, namely, linking increase and decrease, land consolidation and collective construction land circulation integration, give full play to the advantages of project integration, capital integration and linking adjustment, promote the trinity management of land resources, assets and capital, and improve the comprehensive benefits of policies.