農(nong)地(di)(di)“三(san)權(quan)(quan)(quan)分置”改(gai)革，是(shi)繼(ji)家(jia)庭聯產(chan)承(cheng)(cheng)包(bao)責任制后農(nong)村(cun)改(gai)革的(de)(de)(de)又一(yi)重大(da)制度(du)創新，是(shi)在堅持(chi)農(nong)村(cun)土(tu)(tu)(tu)地(di)(di)農(nong)民集體(ti)(ti)(ti)所有制、堅持(chi)家(jia)庭經(jing)(jing)營(ying)基(ji)礎(chu)性地(di)(di)位(wei)和堅持(chi)穩定土(tu)(tu)(tu)地(di)(di)承(cheng)(cheng)包(bao)關系的(de)(de)(de)基(ji)礎(chu)上，對農(nong)村(cun)基(ji)本經(jing)(jing)營(ying)制度(du)——集體(ti)(ti)(ti)所有制之(zhi)下(xia)的(de)(de)(de)以家(jia)庭承(cheng)(cheng)包(bao)經(jing)(jing)營(ying)為(wei)基(ji)礎(chu)、統(tong)分結合的(de)(de)(de)雙層(ceng)經(jing)(jing)營(ying)體(ti)(ti)(ti)制的(de)(de)(de)進一(yi)步完善，以“落實(shi)(shi)(shi)集體(ti)(ti)(ti)所有權(quan)(quan)(quan)、穩定農(nong)戶(hu)(hu)承(cheng)(cheng)包(bao)權(quan)(quan)(quan)、放活土(tu)(tu)(tu)地(di)(di)經(jing)(jing)營(ying)權(quan)(quan)(quan)”為(wei)基(ji)本方向(xiang)，在保障農(nong)戶(hu)(hu)土(tu)(tu)(tu)地(di)(di)承(cheng)(cheng)包(bao)經(jing)(jing)營(ying)權(quan)(quan)(quan)的(de)(de)(de)同時推動(dong)經(jing)(jing)營(ying)權(quan)(quan)(quan)有序流(liu)轉，旨在實(shi)(shi)(shi)現(xian)土(tu)(tu)(tu)地(di)(di)資源配置的(de)(de)(de)優化，促(cu)進實(shi)(shi)(shi)現(xian)多種形式(shi)(shi)適(shi)度(du)規模經(jing)(jing)營(ying)和新型農(nong)業經(jing)(jing)營(ying)體(ti)(ti)(ti)系的(de)(de)(de)構(gou)建，促(cu)進實(shi)(shi)(shi)現(xian)農(nong)業現(xian)代(dai)化。修改(gai)后的(de)(de)(de)農(nong)村(cun)土(tu)(tu)(tu)地(di)(di)承(cheng)(cheng)包(bao)法(fa)落實(shi)(shi)(shi)了“三(san)權(quan)(quan)(quan)分置”的(de)(de)(de)政策(ce)要求，農(nong)村(cun)土(tu)(tu)(tu)地(di)(di)法(fa)權(quan)(quan)(quan)結構(gou)正式(shi)(shi)由“兩權(quan)(quan)(quan)分離”走向(xiang)“三(san)權(quan)(quan)(quan)分置”。

新中國成(cheng)立(li)(li)以(yi)(yi)(yi)來(lai)，經(jing)(jing)過土(tu)(tu)(tu)地(di)改革→互(hu)助組→初級社→高(gao)級社→人民公(gong)社的(de)(de)(de)制(zhi)度(du)變遷(qian)，集(ji)體(ti)所(suo)(suo)有(you)(you)(you)制(zhi)被確(que)立(li)(li)為社會主義公(gong)有(you)(you)(you)制(zhi)在(zai)中國鄉村(cun)(cun)(cun)的(de)(de)(de)實現(xian)形(xing)式。改革開(kai)放以(yi)(yi)(yi)來(lai)，又在(zai)集(ji)體(ti)所(suo)(suo)有(you)(you)(you)制(zhi)下(xia)逐(zhu)漸確(que)立(li)(li)了以(yi)(yi)(yi)家(jia)庭(ting)承(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)經(jing)(jing)營(ying)(ying)為基礎(chu)(chu)、統分(fen)(fen)結合的(de)(de)(de)雙層經(jing)(jing)營(ying)(ying)體(ti)制(zhi)。集(ji)體(ti)土(tu)(tu)(tu)地(di)所(suo)(suo)有(you)(you)(you)權(quan)(quan)(quan)(quan)、土(tu)(tu)(tu)地(di)承(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)(quan)“兩(liang)權(quan)(quan)(quan)(quan)分(fen)(fen)離(li)(li)”作(zuo)為集(ji)體(ti)土(tu)(tu)(tu)地(di)所(suo)(suo)有(you)(you)(you)制(zhi)實現(xian)方(fang)式的(de)(de)(de)探索成(cheng)果，由(you)2002年頒布的(de)(de)(de)農(nong)村(cun)(cun)(cun)土(tu)(tu)(tu)地(di)承(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)法(fa)加(jia)以(yi)(yi)(yi)明確(que)。在(zai)“兩(liang)權(quan)(quan)(quan)(quan)分(fen)(fen)離(li)(li)”模式下(xia)，農(nong)村(cun)(cun)(cun)土(tu)(tu)(tu)地(di)歸農(nong)民集(ji)體(ti)所(suo)(suo)有(you)(you)(you)，集(ji)體(ti)經(jing)(jing)濟(ji)組織成(cheng)員(yuan)以(yi)(yi)(yi)戶為單位取得(de)土(tu)(tu)(tu)地(di)承(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)(quan)，享(xiang)有(you)(you)(you)占(zhan)有(you)(you)(you)、使用、收益和受(shou)(shou)限制(zhi)的(de)(de)(de)處分(fen)(fen)權(quan)(quan)(quan)(quan)能。基于當時的(de)(de)(de)社會歷史背景和立(li)(li)法(fa)基礎(chu)(chu)，農(nong)村(cun)(cun)(cun)土(tu)(tu)(tu)地(di)承(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)法(fa)以(yi)(yi)(yi)保護土(tu)(tu)(tu)地(di)公(gong)有(you)(you)(you)制(zhi)為宗旨，為家(jia)庭(ting)聯(lian)產(chan)承(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)責任制(zhi)提供法(fa)制(zhi)基礎(chu)(chu)和法(fa)權(quan)(quan)(quan)(quan)保障。土(tu)(tu)(tu)地(di)承(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)(quan)的(de)(de)(de)構造(zao)以(yi)(yi)(yi)保障承(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)者權(quan)(quan)(quan)(quan)利穩(wen)(wen)定(ding)為主要目標，流(liu)轉受(shou)(shou)到較(jiao)多(duo)限制(zhi)。例如，承(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)方(fang)轉讓(rang)土(tu)(tu)(tu)地(di)承(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)(quan)，須(xu)“有(you)(you)(you)穩(wen)(wen)定(ding)的(de)(de)(de)非農(nong)職業或(huo)者有(you)(you)(you)穩(wen)(wen)定(ding)的(de)(de)(de)收入來(lai)源(yuan)”；以(yi)(yi)(yi)家(jia)庭(ting)承(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)方(fang)式取得(de)的(de)(de)(de)土(tu)(tu)(tu)地(di)承(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)(quan)不得(de)進行擔保融資(zi)；土(tu)(tu)(tu)地(di)承(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)(quan)的(de)(de)(de)入股限于合作(zuo)生產(chan)，等(deng)等(deng)。

自20世(shi)紀(ji)80年代中(zhong)(zhong)期起，土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)流(liu)轉(zhuan)與(yu)規模(mo)經(jing)(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)(ying)便自發發生(sheng)并持續(xu)至今，各類專業大(da)戶、合作社、農(nong)(nong)(nong)業產業化(hua)龍頭企(qi)業等(deng)新(xin)型經(jing)(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)(ying)主體(ti)(ti)大(da)量涌現(xian)，土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)流(liu)轉(zhuan)面積(ji)不斷(duan)擴大(da)，規模(mo)化(hua)、集(ji)約化(hua)經(jing)(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)(ying)水平不斷(duan)提升，呈(cheng)現(xian)“家庭承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)、多元經(jing)(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)(ying)”的(de)(de)格局(ju)。隨著“農(nong)(nong)(nong)二代”成(cheng)為(wei)人口遷移主力軍，他們與(yu)鄉村(cun)的(de)(de)經(jing)(jing)(jing)(jing)(jing)(jing)濟(ji)社會行(xing)為(wei)關(guan)系發生(sheng)變化(hua)，農(nong)(nong)(nong)民(min)對土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)經(jing)(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)(ying)權(quan)(quan)(quan)的(de)(de)依賴(lai)程(cheng)度逐漸降低(di)，土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)的(de)(de)生(sheng)活保(bao)障功能減弱，農(nong)(nong)(nong)民(min)對土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)利(li)(li)用(yong)的(de)(de)精心程(cheng)度降低(di)，部分(fen)(fen)地(di)(di)區甚至大(da)量出現(xian)棄耕(geng)拋荒的(de)(de)現(xian)象，實(shi)踐當中(zhong)(zhong)亟待(dai)健全土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)流(liu)轉(zhuan)機制(zhi)，實(shi)現(xian)資源的(de)(de)有(you)(you)效利(li)(li)用(yong)。本次修法，就是(shi)對農(nong)(nong)(nong)村(cun)土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)經(jing)(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)(ying)方式變革與(yu)流(liu)轉(zhuan)現(xian)實(shi)的(de)(de)回應。修改后(hou)的(de)(de)農(nong)(nong)(nong)村(cun)土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)法構造(zao)了“三(san)權(quan)(quan)(quan)分(fen)(fen)置”的(de)(de)地(di)(di)權(quan)(quan)(quan)結構，在集(ji)體(ti)(ti)土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)所(suo)有(you)(you)權(quan)(quan)(quan)、土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)經(jing)(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)(ying)權(quan)(quan)(quan)的(de)(de)“兩(liang)權(quan)(quan)(quan)”安排(pai)基礎(chu)上(shang)，從土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)經(jing)(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)(ying)權(quan)(quan)(quan)中(zhong)(zhong)派(pai)生(sheng)出土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)經(jing)(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)(ying)權(quan)(quan)(quan)，形成(cheng)土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)集(ji)體(ti)(ti)所(suo)有(you)(you)權(quan)(quan)(quan)、成(cheng)員(yuan)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)權(quan)(quan)(quan)、耕(geng)作者(zhe)經(jing)(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)(ying)權(quan)(quan)(quan)的(de)(de)權(quan)(quan)(quan)利(li)(li)框架(jia)。農(nong)(nong)(nong)村(cun)集(ji)體(ti)(ti)經(jing)(jing)(jing)(jing)(jing)(jing)濟(ji)組織成(cheng)員(yuan)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)后(hou)，享有(you)(you)土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)經(jing)(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)(ying)權(quan)(quan)(quan)，可以(yi)自己經(jing)(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)(ying)，也可以(yi)保(bao)留(liu)土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)權(quan)(quan)(quan)，流(liu)轉(zhuan)其承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)地(di)(di)的(de)(de)土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)經(jing)(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)(ying)權(quan)(quan)(quan)，由他人經(jing)(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)(ying)。土(tu)(tu)(tu)(tu)(tu)(tu)地(di)(di)經(jing)(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)(ying)權(quan)(quan)(quan)從承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)經(jing)(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)(ying)權(quan)(quan)(quan)派(pai)生(sheng)出來后(hou)，在法律(lv)上(shang)賦(fu)予經(jing)(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)(ying)(ying)者(zhe)平等(deng)的(de)(de)、受法律(lv)保(bao)護的(de)(de)耕(geng)作權(quan)(quan)(quan)利(li)(li)。

集(ji)體(ti)(ti)(ti)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)所有(you)(you)(you)權(quan)(quan)(quan)(quan)是農民集(ji)體(ti)(ti)(ti)對(dui)于集(ji)體(ti)(ti)(ti)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)的(de)(de)(de)(de)所有(you)(you)(you)權(quan)(quan)(quan)(quan)，是農村(cun)(cun)(cun)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)集(ji)體(ti)(ti)(ti)所有(you)(you)(you)制的(de)(de)(de)(de)實現形式(shi)。其(qi)權(quan)(quan)(quan)(quan)利(li)內(nei)容包(bao)括：對(dui)集(ji)體(ti)(ti)(ti)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)依法(fa)(fa)享有(you)(you)(you)占有(you)(you)(you)、使用、收益和處(chu)分(fen)的(de)(de)(de)(de)權(quan)(quan)(quan)(quan)利(li)；依法(fa)(fa)發包(bao)集(ji)體(ti)(ti)(ti)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)；因自(zi)然災害(hai)嚴重毀損(sun)(sun)等(deng)(deng)特(te)殊(shu)情形依法(fa)(fa)調(diao)整承(cheng)(cheng)(cheng)包(bao)地(di)(di)(di)(di)(di)(di)(di)(di)；對(dui)承(cheng)(cheng)(cheng)包(bao)農戶(hu)和經(jing)(jing)營主體(ti)(ti)(ti)使用承(cheng)(cheng)(cheng)包(bao)地(di)(di)(di)(di)(di)(di)(di)(di)進行(xing)監督，并(bing)采(cai)取措施防止和糾正長期拋荒、毀損(sun)(sun)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)、非法(fa)(fa)改(gai)變土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)用途等(deng)(deng)行(xing)為；依法(fa)(fa)對(dui)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)經(jing)(jing)營權(quan)(quan)(quan)(quan)的(de)(de)(de)(de)流轉進行(xing)監督；集(ji)體(ti)(ti)(ti)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)被征收的(de)(de)(de)(de)，農民集(ji)體(ti)(ti)(ti)有(you)(you)(you)權(quan)(quan)(quan)(quan)就征地(di)(di)(di)(di)(di)(di)(di)(di)補償(chang)安置(zhi)(zhi)(zhi)方案等(deng)(deng)提出意(yi)見并(bing)依法(fa)(fa)獲(huo)得補償(chang)，等(deng)(deng)等(deng)(deng)。要(yao)強調(diao)的(de)(de)(de)(de)是，修改(gai)后的(de)(de)(de)(de)農村(cun)(cun)(cun)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)承(cheng)(cheng)(cheng)包(bao)法(fa)(fa)未對(dui)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)所有(you)(you)(you)權(quan)(quan)(quan)(quan)的(de)(de)(de)(de)規定進行(xing)調(diao)整和變動(dong)(dong)，僅在(zai)(zai)第69條通(tong)過轉致(zhi)條款(kuan)規定了集(ji)體(ti)(ti)(ti)經(jing)(jing)濟組織成(cheng)員資(zi)格(ge)確認的(de)(de)(de)(de)原則和程序由法(fa)(fa)律法(fa)(fa)規規定，意(yi)在(zai)(zai)穩定集(ji)體(ti)(ti)(ti)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)所有(you)(you)(you)權(quan)(quan)(quan)(quan)，目的(de)(de)(de)(de)并(bing)不是通(tong)過強化所有(you)(you)(you)權(quan)(quan)(quan)(quan)來壯(zhuang)大集(ji)體(ti)(ti)(ti)經(jing)(jing)濟。中共中央辦(ban)(ban)公(gong)廳、國務院(yuan)辦(ban)(ban)公(gong)廳《關(guan)于完(wan)善農村(cun)(cun)(cun)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)所有(you)(you)(you)權(quan)(quan)(quan)(quan)承(cheng)(cheng)(cheng)包(bao)權(quan)(quan)(quan)(quan)經(jing)(jing)營權(quan)(quan)(quan)(quan)分(fen)置(zhi)(zhi)(zhi)辦(ban)(ban)法(fa)(fa)的(de)(de)(de)(de)意(yi)見》要(yao)求(qiu)農地(di)(di)(di)(di)(di)(di)(di)(di)“三(san)權(quan)(quan)(quan)(quan)分(fen)置(zhi)(zhi)(zhi)”須始終(zhong)堅持農村(cun)(cun)(cun)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)集(ji)體(ti)(ti)(ti)所有(you)(you)(you)權(quan)(quan)(quan)(quan)的(de)(de)(de)(de)根本地(di)(di)(di)(di)(di)(di)(di)(di)位(wei)，是為了避免虛(xu)置(zhi)(zhi)(zhi)和動(dong)(dong)搖集(ji)體(ti)(ti)(ti)所有(you)(you)(you)權(quan)(quan)(quan)(quan)。“三(san)權(quan)(quan)(quan)(quan)分(fen)置(zhi)(zhi)(zhi)”的(de)(de)(de)(de)權(quan)(quan)(quan)(quan)利(li)塑造(zao)重在(zai)(zai)放活經(jing)(jing)營權(quan)(quan)(quan)(quan)，賦予經(jing)(jing)營主體(ti)(ti)(ti)更有(you)(you)(you)保障的(de)(de)(de)(de)土(tu)(tu)(tu)地(di)(di)(di)(di)(di)(di)(di)(di)經(jing)(jing)營權(quan)(quan)(quan)(quan)，這是“完(wan)善農村(cun)(cun)(cun)基本經(jing)(jing)營制度(du)的(de)(de)(de)(de)關(guan)鍵”。

土(tu)(tu)(tu)地(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)經(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)權(quan)(quan)(quan)為農戶(hu)享(xiang)有(you)，修改(gai)后(hou)的(de)農村土(tu)(tu)(tu)地(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)法進(jin)(jin)(jin)(jin)一步(bu)為土(tu)(tu)(tu)地(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)經(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)權(quan)(quan)(quan)強權(quan)(quan)(quan)賦能(neng)(neng)(neng)。一是(shi)明(ming)(ming)確耕地(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)期屆滿后(hou)再(zai)延(yan)長(chang)30年，草地(di)(di)(di)、林地(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)期屆滿后(hou)依(yi)照規定相應延(yan)長(chang)，從而(er)使得土(tu)(tu)(tu)地(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)經(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)權(quan)(quan)(quan)更(geng)加穩(wen)定。二是(shi)完善土(tu)(tu)(tu)地(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)經(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)權(quan)(quan)(quan)權(quan)(quan)(quan)能(neng)(neng)(neng)。經(jing)(jing)(jing)(jing)(jing)發包(bao)(bao)(bao)(bao)(bao)方(fang)(fang)同意(yi)，承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)方(fang)(fang)可以(yi)將全(quan)部或者(zhe)部分(fen)的(de)土(tu)(tu)(tu)地(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)經(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)權(quan)(quan)(quan)轉讓(rang)給本(ben)集(ji)體(ti)經(jing)(jing)(jing)(jing)(jing)濟組織的(de)其他農戶(hu)，刪去了承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)方(fang)(fang)須“有(you)穩(wen)定的(de)非農職業或者(zhe)有(you)穩(wen)定的(de)收入(ru)來源”的(de)條件(jian)限制。承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)方(fang)(fang)可以(yi)將土(tu)(tu)(tu)地(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)經(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)權(quan)(quan)(quan)向金融(rong)機構融(rong)資擔保，入(ru)股權(quan)(quan)(quan)能(neng)(neng)(neng)也得到擴充，不(bu)再(zai)限于合作生產。承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)方(fang)(fang)還可以(yi)在(zai)土(tu)(tu)(tu)地(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)經(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)權(quan)(quan)(quan)基(ji)礎(chu)上(shang)派生土(tu)(tu)(tu)地(di)(di)(di)經(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)權(quan)(quan)(quan)，交由(you)他人(ren)經(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)土(tu)(tu)(tu)地(di)(di)(di)。三是(shi)進(jin)(jin)(jin)(jin)一步(bu)保障進(jin)(jin)(jin)(jin)城(cheng)農戶(hu)和(he)婦(fu)女的(de)土(tu)(tu)(tu)地(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)經(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)權(quan)(quan)(quan)。明(ming)(ming)確了承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)期內農民進(jin)(jin)(jin)(jin)城(cheng)落戶(hu)，無論(lun)是(shi)部分(fen)成(cheng)員或舉家遷入(ru)，都不(bu)得以(yi)退出土(tu)(tu)(tu)地(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)經(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)權(quan)(quan)(quan)作為進(jin)(jin)(jin)(jin)城(cheng)落戶(hu)的(de)條件(jian)，農民不(bu)因進(jin)(jin)(jin)(jin)城(cheng)落戶(hu)納入(ru)城(cheng)鎮住房和(he)社會保障體(ti)系而(er)喪失土(tu)(tu)(tu)地(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)(bao)(bao)(bao)經(jing)(jing)(jing)(jing)(jing)營(ying)(ying)(ying)權(quan)(quan)(quan)。

土(tu)(tu)地(di)(di)(di)(di)(di)經(jing)(jing)(jing)營(ying)(ying)(ying)(ying)權(quan)(quan)(quan)是指土(tu)(tu)地(di)(di)(di)(di)(di)經(jing)(jing)(jing)營(ying)(ying)(ying)(ying)權(quan)(quan)(quan)人依(yi)法對農(nong)村(cun)土(tu)(tu)地(di)(di)(di)(di)(di)享(xiang)有(you)(you)從事種植(zhi)業、林業、畜牧(mu)業等(deng)(deng)農(nong)業生產(chan)并(bing)取得收益的權(quan)(quan)(quan)利。土(tu)(tu)地(di)(di)(di)(di)(di)經(jing)(jing)(jing)營(ying)(ying)(ying)(ying)權(quan)(quan)(quan)人對流轉(zhuan)土(tu)(tu)地(di)(di)(di)(di)(di)依(yi)法享(xiang)有(you)(you)在一定期限內占有(you)(you)、耕作并(bing)取得相應(ying)收益的權(quan)(quan)(quan)利，可(ke)以(yi)通過多種方(fang)式處分(fen)土(tu)(tu)地(di)(di)(di)(di)(di)經(jing)(jing)(jing)營(ying)(ying)(ying)(ying)權(quan)(quan)(quan)，例如土(tu)(tu)地(di)(di)(di)(di)(di)經(jing)(jing)(jing)營(ying)(ying)(ying)(ying)權(quan)(quan)(quan)的融資擔(dan)(dan)保(bao)(bao)、入股和再流轉(zhuan)等(deng)(deng)。修改后(hou)的農(nong)村(cun)土(tu)(tu)地(di)(di)(di)(di)(di)承包(bao)法以(yi)放活(huo)土(tu)(tu)地(di)(di)(di)(di)(di)經(jing)(jing)(jing)營(ying)(ying)(ying)(ying)權(quan)(quan)(quan)為價值導向，賦予了(le)土(tu)(tu)地(di)(di)(di)(di)(di)經(jing)(jing)(jing)營(ying)(ying)(ying)(ying)權(quan)(quan)(quan)靈活(huo)的流轉(zhuan)方(fang)式。其一，經(jing)(jing)(jing)營(ying)(ying)(ying)(ying)權(quan)(quan)(quan)主體(ti)(ti)沒有(you)(you)身份限制，各類專業大戶、合作社、農(nong)業產(chan)業化(hua)龍(long)頭企業等(deng)(deng)新型經(jing)(jing)(jing)營(ying)(ying)(ying)(ying)主體(ti)(ti)均可(ke)以(yi)取得土(tu)(tu)地(di)(di)(di)(di)(di)經(jing)(jing)(jing)營(ying)(ying)(ying)(ying)權(quan)(quan)(quan)。其二，經(jing)(jing)(jing)承包(bao)方(fang)書面同意，并(bing)向本集體(ti)(ti)經(jing)(jing)(jing)濟組織備案，受(shou)讓(rang)方(fang)可(ke)以(yi)再流轉(zhuan)土(tu)(tu)地(di)(di)(di)(di)(di)經(jing)(jing)(jing)營(ying)(ying)(ying)(ying)權(quan)(quan)(quan)。其三，土(tu)(tu)地(di)(di)(di)(di)(di)經(jing)(jing)(jing)營(ying)(ying)(ying)(ying)權(quan)(quan)(quan)具有(you)(you)出租(zu)、入股、融資擔(dan)(dan)保(bao)(bao)等(deng)(deng)權(quan)(quan)(quan)能。

“三權(quan)(quan)(quan)”分別具(ju)有(you)(you)各(ge)自的(de)(de)(de)(de)制度功能，形(xing)成(cheng)了一(yi)個完整的(de)(de)(de)(de)權(quan)(quan)(quan)利(li)(li)體(ti)系。集(ji)(ji)體(ti)土(tu)(tu)地(di)所(suo)(suo)(suo)有(you)(you)權(quan)(quan)(quan)在(zai)所(suo)(suo)(suo)有(you)(you)權(quan)(quan)(quan)層(ceng)面實(shi)現了土(tu)(tu)地(di)公有(you)(you)制的(de)(de)(de)(de)目標，確保農村土(tu)(tu)地(di)集(ji)(ji)體(ti)所(suo)(suo)(suo)有(you)(you)不動搖(yao)。土(tu)(tu)地(di)承(cheng)包經(jing)營權(quan)(quan)(quan)是“兩權(quan)(quan)(quan)分離(li)”和“三權(quan)(quan)(quan)分置”并存時的(de)(de)(de)(de)一(yi)類(lei)用益物(wu)權(quan)(quan)(quan)，兼具(ju)財產屬(shu)性(xing)和身份屬(shu)性(xing)，對集(ji)(ji)體(ti)經(jing)濟(ji)組織(zhi)成(cheng)員而言是最主要(yao)的(de)(de)(de)(de)集(ji)(ji)體(ti)成(cheng)員權(quan)(quan)(quan)利(li)(li)。在(zai)“三權(quan)(quan)(quan)分置”中，土(tu)(tu)地(di)承(cheng)包經(jing)營權(quan)(quan)(quan)具(ju)有(you)(you)核心地(di)位和樞紐功能，前后聯結土(tu)(tu)地(di)所(suo)(suo)(suo)有(you)(you)權(quan)(quan)(quan)和土(tu)(tu)地(di)經(jing)營權(quan)(quan)(quan)。土(tu)(tu)地(di)經(jing)營權(quan)(quan)(quan)直接反映(ying)出促進土(tu)(tu)地(di)資源市(shi)場化配置、發展適度規模經(jing)營、推進農業供給(gei)側結構性(xing)改(gai)革的(de)(de)(de)(de)政策(ce)目標，旨在(zai)賦權(quan)(quan)(quan)承(cheng)包農戶將土(tu)(tu)地(di)經(jing)營權(quan)(quan)(quan)依法自愿配置給(gei)有(you)(you)經(jing)營意愿和經(jing)營能力的(de)(de)(de)(de)主體(ti)，以(yi)發展多種形(xing)式(shi)的(de)(de)(de)(de)適度規模經(jing)營。

集體(ti)土(tu)(tu)(tu)地(di)(di)(di)(di)所有(you)(you)權(quan)(quan)(quan)為“三(san)(san)權(quan)(quan)(quan)”中的(de)(de)母權(quan)(quan)(quan)利，派(pai)生出土(tu)(tu)(tu)地(di)(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)包(bao)(bao)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)。土(tu)(tu)(tu)地(di)(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)包(bao)(bao)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)是集體(ti)土(tu)(tu)(tu)地(di)(di)(di)(di)所有(you)(you)權(quan)(quan)(quan)的(de)(de)具體(ti)實現形式，由本集體(ti)經(jing)(jing)濟(ji)組織成員承(cheng)(cheng)(cheng)(cheng)包(bao)(bao)取(qu)得。承(cheng)(cheng)(cheng)(cheng)包(bao)(bao)方(fang)轉(zhuan)(zhuan)(zhuan)讓(rang)、互(hu)換(huan)土(tu)(tu)(tu)地(di)(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)包(bao)(bao)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)，不產生“三(san)(san)權(quan)(quan)(quan)分置”的(de)(de)效果(guo)。承(cheng)(cheng)(cheng)(cheng)包(bao)(bao)方(fang)通過出租（轉(zhuan)(zhuan)(zhuan)包(bao)(bao)）、入股或其(qi)他(ta)方(fang)式向(xiang)他(ta)人流(liu)轉(zhuan)(zhuan)(zhuan)土(tu)(tu)(tu)地(di)(di)(di)(di)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)，則會(hui)產生“三(san)(san)權(quan)(quan)(quan)分置”的(de)(de)效果(guo)，此時土(tu)(tu)(tu)地(di)(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)包(bao)(bao)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)派(pai)生出土(tu)(tu)(tu)地(di)(di)(di)(di)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)。派(pai)生土(tu)(tu)(tu)地(di)(di)(di)(di)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)是對土(tu)(tu)(tu)地(di)(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)包(bao)(bao)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)的(de)(de)財產功能的(de)(de)激活與分割，農(nong)戶的(de)(de)土(tu)(tu)(tu)地(di)(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)包(bao)(bao)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)本身(shen)不因此發生改(gai)(gai)變(bian)，承(cheng)(cheng)(cheng)(cheng)包(bao)(bao)農(nong)戶與發包(bao)(bao)方(fang)的(de)(de)承(cheng)(cheng)(cheng)(cheng)包(bao)(bao)關(guan)系(xi)不變(bian)。受(shou)讓(rang)人改(gai)(gai)良土(tu)(tu)(tu)壤，建設農(nong)業生產附屬(shu)、配(pei)套(tao)設施，或對經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)進行(xing)融資(zi)擔保(bao)、再流(liu)轉(zhuan)(zhuan)(zhuan)的(de)(de)，須(xu)經(jing)(jing)承(cheng)(cheng)(cheng)(cheng)包(bao)(bao)方(fang)同意(yi)。土(tu)(tu)(tu)地(di)(di)(di)(di)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)派(pai)生自(zi)土(tu)(tu)(tu)地(di)(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)包(bao)(bao)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)，與集體(ti)土(tu)(tu)(tu)地(di)(di)(di)(di)所有(you)(you)權(quan)(quan)(quan)沒有(you)(you)直接(jie)的(de)(de)關(guan)系(xi)。但(dan)是，按(an)照修改(gai)(gai)后(hou)的(de)(de)農(nong)村土(tu)(tu)(tu)地(di)(di)(di)(di)承(cheng)(cheng)(cheng)(cheng)包(bao)(bao)法，受(shou)讓(rang)人行(xing)使土(tu)(tu)(tu)地(di)(di)(di)(di)經(jing)(jing)營(ying)(ying)權(quan)(quan)(quan)從事生產經(jing)(jing)營(ying)(ying)活動時，需要(yao)接(jie)受(shou)發包(bao)(bao)方(fang)在(zai)用途、土(tu)(tu)(tu)地(di)(di)(di)(di)利用方(fang)式等各方(fang)面的(de)(de)監督(du)。