宋圭武观点157正确看待承包制对农村发展的推动作用

什么是承包制，简单来说，就是一个“包”字。改革开放以来，农村有一系列的制度创新，承包制仅是一个方面，即推动农村变革的自变量是多元的，不能把农村变革都归结为一个变量所致，即都归结为承包制，这是认识误区。

大致从78年到85年，农村发展较好，农村出现万元户。这一阶段为什么发展好，有多种因素。一是农产品总体处于短缺阶段，另外，国家没有取消统购统销政策，农民不存在产品销售困难。二是农产品价格国家控制，国家对农产品提价，提价幅度在50%以上。三是农村生产有更多自由，经济作物播种面积增加三分之一左右。四是国家发展战略转变，以经济建设为中心。五是高考制度恢复，一些农民子弟考入大学，且当时考入大学的学生学费是国家负担，且工作不愁分配，且多数工作后对农村家庭都有帮助。六是这一阶段公社集体经济并未全部解散。七是推进承包制改革。八是乡镇企业发展。在这八个因素中，承包制仅是一个方面，在这个阶段，客观看，承包制也许发挥了一定积极作用，同时，由于许多改革变量的共同作用，也掩盖了承包制的副作用。

从85年开始，到94年，国家开始逐步取消统购统销政策，农民大面积出现销售困难，小生产与大市场冲突加剧，为增加农民收入，国家大力鼓励乡镇企业发展，这一阶段，乡镇企业对农村发展有较大贡献，而承包户在这一阶段更多体现了副作用。而乡镇企业的发展，又离不开前集体经济的基础。

94年以后，城市化成为带动农村发展的主要动力。85年以后，由于乡镇企业的大面积发展，对国有企业又产生较大冲击，90年代以后，国有企业又出现大面积亏损问题。在这种情况下，一面是出现国有企业大面积破产倒闭，职工下岗，一面是由于国有企业没有更多利润上交，导致中央财政出现困难。于是，94年搞分税制改革。94年分税制改革的一个直接结果是，催生了土地财政和房地产的扩张，由此也加速了城市化进程，同时，房地产和城市化也成为增加农民收入的主要渠道。另外，在这个阶段，国家对三农投入很多，补贴很多。2004年，国务院开始实行减征或免征农业税的惠农政策。2006年1月1日起废止《农业税条例》

从农村发展的几个阶段看，承包制并不是主要动力，应是其他更多因素促进农村发展。而且越到后期，随着国家工业化和市场化越深入，承包制缺陷越大。

另外，农村推行家庭承包制，虽然提高了自由度，但也增加了社会流动无序度，客观增加了社会犯罪问题。大量农民的自由流动，必然会极大增加社会管理成本，也增加了许多案件的侦破难度。比如，甘肃白银一个变态杀人恶魔，好多年后才偶然破案，这与农村管理松散和农民自由流动是密切相关的。由于社会治安混乱的增加，83年开始，国家三年严打，后面国家又有多次严打。目前，随着摄像头的普遍安装，以及城市各单位门卫制度的完善，包括人脸识别技术的普遍应用，一些流动犯罪问题才得到有效遏制。

可以说，过去农村贫困，分配是主要方面，主要是农业支援工业，而现在农村，虽然国家对三农投入很多，但仍然面临很大贫困风险，应是小农经济生产的低效率是主要原因。

当然，我们也要看到承包制的优点，比如自由，有利于调动农民的积极性等。但这些优点最终被其因缺乏分工和规模效率所导致的缺陷所掩盖。当然，若把承包制纳入到分工和规模框架内，承包制也是有效率的。但目前我们的承包制，更多体现的是类似小农经济的单干情况，这肯定是没有长久效率的。

对于我们这样一个人口大国，如何长期解决好三农问题，制度创新最根本。

第一，农民还是需要组织起来。农村微观生产组织可考虑建设为半自治半行政农场。农业是一种特殊的产业，具有休闲松散特点，所以，农业的管理模式应符合农业产业的特点，这里既不能完全按行政的模式管理，也不能按完全自治的模式管理，应实行半自治半行政管理模式。具体，农场书记和场长，任命权掌握在上级组织手里，由上级组织考察任命。但否决权，掌握在农场职工手里。对不称职的农场书记和场长，农场职工可通过职工大会或党员大会投票罢免。农场一线职工实行半休闲半忙碌工作制度。在农闲时间，农场可允许一线职工外出打工。没有外出打工的，农场要多组织各种娱乐活动和各种学习活动。农场在主要产业选择上，要以种植粮食为主要产业。这是确保国家粮食安全的需要。在确保国家粮食安全的基础上，农场可多种经营。农场要以生产有机农产品为主。农场经营目标主要是确保粮食安全和防止大规模返贫。农场经营目标或考核农场效益，要以生产高质量粮食为主要任务或主要指标，经济收入指标可考虑以不亏损为底线，或实现薄利即可，重点要以确保两个底线为主要经营目标或主要考核目标。在农场管理上，为预防农场腐败，要严格限制农场盲目投资和基建。农场所有账目，要全面实行公开制，接受职工全面监督。国家对农业的所有补贴，都可直接补贴到农场。农场可吸收大学生就业，也可安排部分乡镇人员或城乡富裕人员进入农场工作。现有村干部和村委会，可全部并入农场。包括一些合作社等，都可并入农场。农场可实行类似人民公社工、农、商、学、兵综合模式。

第二，国家在三农宏观管理上，可考虑实行半计划半市场管理体制。所谓半计划半市场，是说农场部分产品要有计划生产，部分产品可根据市场生产。

第三，在农场产品流通上，可实行半统购半统销模式。

另外，在土地制度上，乡村土地分公田和私田两部分。一部分是自留地，是私田，集体所有，农民有自主经营权；一部分是农场土地，是公田，集体所有，农场有经营权。在农民自己庭院周围的土地，可划归为自留地，属私田，便于农民直接经营。离农户家庭住址较远的一些农村大田，以及一些撂荒地，可统一归集体或国家所有，属公田，实行农场统一经营模式。依据乡村普遍经济发展基础薄弱情况，农场农民工只能普遍实行低工资制。同时，农场职工可参加各种保险，并可享受退休待遇。

最终，国家形成城乡适度二元体制。好，谢谢，谢谢。

Song Guiwu's View 157 Correctly View the Promoting Role of Contract System in Rural Development

What is the contract system? In simple terms, it is a "package".Since the reform and opening up, there have been a series of institutional innovations in rural areas, and the contract system is only one aspect. That is to say, the independent variables that promote rural change are diversified. We cannot attribute rural change to one variable, that is, the contract system. This is a misunderstanding. Roughly from 1978 to 1985, rural development was good, and there were ten thousand households in rural areas.There are many factors why this stage of development was good.First, agricultural products were in short supply. In addition, the state did not cancel the monopoly purchase and marketing policy, so farmers did not have difficulties in selling their products.Second, the price of agricultural products was controlled by the state, and the state raised the price of agricultural products by more than 50%.Third, rural production had more freedom, and the sowing area of cash crops increased by about one third.Fourth, the national development strategy was changed to take economic construction as the center.Fifth, the college entrance examination system was restored, and some farmers' children were admitted to college. At that time, the tuition fees of students admitted to college were borne by the state, and they did not worry about job distribution, and most of them helped rural families after work.Six, the collective economy of the communes was not dissolved in this stage.Seven, the reform of the contract system was promoted.Eight, the development of township enterprises. In these eight factors, the contract system is only one aspect, in this stage, objectively, the contract system may play a positive role, at the same time, due to the joint action of many reform variables, but also covered the side effects of the contract system.From 85 years, to 94, the state began to gradually cancel the monopoly purchase and marketing policy, farmers large area of sales difficulties, small production and market conflict intensified, in order to increase farmers' income, the state vigorously encouraged the development of township enterprises, this stage, township enterprises have a greater contribution to rural development, and the contractor in this stage more reflected the side effects.And the development of township enterprises, and inseparable from the foundation of the former collective economy.After 94, urbanization has become the main driving force for rural development.After 85, due to the large area of the development of township enterprises, and produce a greater impact on state-owned enterprises, after 90 years, state-owned enterprises and a large area of losses.In this case, one is the emergence of large area of state-owned enterprises bankruptcy, laid off workers, one is due to state-owned enterprises do not have more profits to hand over, resulting in the central finance difficulties.So, in 94 to do tax system reform. A direct result of the tax-sharing reform in 1994 was the expansion of land finance and real estate, which also accelerated the process of urbanization. At the same time, real estate and urbanization also became the main channels to increase farmers' income.In addition, in this stage, the state invested a lot in agriculture, rural areas and farmers, and gave a lot of subsidies.In 2004, the State Council began to implement the policy of reducing or exempting agricultural taxes.The Regulations on Agricultural Tax was abolished on January 1, 2006.From the several stages of rural development, the contract system is not the main driving force, but more other factors should be promoted to promote rural development.And the later, with the deepening of national industrialization and marketization, the contract system has more defects.In addition, the implementation of the household contract system in rural areas, although it improved the degree of freedom, but also increased the degree of social disorder, objectively increasing social crime.The free flow of a large number of farmers will inevitably greatly increase the cost of social management, and also increase the difficulty of many cases.For example, a sick killer in Baiyin, Gansu, was accidentally solved many years later, which is closely related to the loose management of rural areas and the free flow of farmers.Because of the increase of social disorder, the state began to crack down on it for three years in 1983, and then many times after that. At present, with the widespread installation of cameras and the improvement of the doorman system in various urban units, including the widespread application of facial recognition technology, some mobile crimes have been effectively curbed. It can be said that in the past, rural poverty, distribution is the main aspect, mainly agriculture to support industry, and now the countryside, although the state has invested a lot in agriculture, rural areas and farmers, but still faces a great risk of poverty, should be the main reason for the low efficiency of small-scale peasant economic production.Of course, we also need to see the advantages of the contract system, such as freedom, is conducive to mobilizing the enthusiasm of farmers.But these advantages are eventually covered by the defects caused by the lack of division of labor and scale efficiency.Of course, if the contract system is brought into the framework of division of labor and scale, the contract system is also efficient.But at present our contract system, more reflects the similar small-scale peasant economy, which is certainly not long-term efficiency. For such a populous country as China, how to solve the problems of agriculture, rural areas and farmers in the long term, institutional innovation is the most fundamental. First, farmers still need to organize.Rural micro production organizations can be considered to be built as semi-autonomous semi-administrative farms. Agriculture is a special industry, with leisure and loose characteristics, so the management mode of agriculture should conform to the characteristics of agricultural industry. Here, it can neither be managed completely according to the administrative mode, nor be managed completely according to the autonomous mode, but should be managed semi-autonomous and semi-administrative mode. Specifically, the appointment right of the farm secretary and the farm manager is in the hands of the higher organization, and the higher organization appoints them after examination. But the right of veto is in the hands of the farm workers. The incompetent farm secretary and the farm manager can be removed by voting through the staff meeting or the party meeting. The farm front-line workers implement a semi-leisure and semi-busy work system. In the leisure time, the farm can allow the front-line workers to go out to work. Those who do not go out to work, the farm should organize various recreational activities and various learning activities. In the selection of the main industry, the farm should take grain planting as the main industry. This is the need to ensure national food security. On the basis of ensuring national food security, the farm can be diversified. The farm should mainly produce organic agricultural products. The main goal of the farm operation is to ensure food security and prevent large-scale poverty. Farm operation objectives or assessment of farm benefits, to produce high-quality grain as the main task or index, economic income index can consider to not lose as the bottom line, or achieve a small profit, the focus is to ensure that the two bottom line as the main operation objectives or main assessment objectives.In the farm management, to prevent farm corruption, to strictly limit the farm blind investment and infrastructure.All the accounts of the farm, to fully implement the open system, accept the full supervision of the staff.All the state subsidies for agriculture, can be directly subsidized to the farm.The farm can absorb college students to work, but also can arrange some township personnel or urban and rural wealthy people into the farm work.The existing village cadres and village committees, can be integrated into the farm.Including some cooperatives, can be integrated into the farm.The farm can implement a similar people's commune workers, agriculture, commerce, learning, military comprehensive mode.Second, the state in the macro management of agriculture, rural areas and farmers, can consider the implementation of a semi-planned and semi-market management system.The so-called semi-planned and semi-market, that is, some of the farm products to planned production, some products can be produced according to the market.Third, in the circulation of farm products, can implement a semi-monopoly sales mode.In addition, in the land system, rural land is divided into public land and private land two parts.One part is self-retained land, is private land, collectively owned, farmers have the right to independent management; Part of the land is farmland, public land, collectively owned, the farm has the right to manage.The land around the farmers' own yards can be classified as private land, private land, convenient for farmers to directly manage.Some of the large farmland far from the farmers' home address, as well as some abandoned land, can be unified into collective or state-owned public land, a unified farm management mode.In view of the general weak foundation of rural economic development, the farm migrant workers can only generally implement a low wage system.At the same time, the farm workers can participate in various insurances, and can enjoy retirement benefits.Finally, the country forms a moderate dual system of urban and rural areas.OK, thank you, thank you.