我国自留山经营权流转政策发展及实践探索

划分自留山近40年来，由于人员变迁和自然变故等因素导致自留山经营单位（家庭）消失，对此类自留山处置的争议和纠纷时有发生，严重影响社会稳定和林业生产。自留山使用权流转受到严格限制，但在各地实践中自留山使用权流转事实上依然存在。文中梳理自留山政策发展过程及部分省（区、市）有关自留山政策，结合浙江省开化县和仙居县一些典型案例处置的实践探索，提出如下建议:将自留山使用权分解为资格权和经营权，实行自留山所有权、资格权、经营权"三权分置"；坚持林地集体所有权，保障农户资格权，适度放活经营权；正确处理好消失农户（外迁或亡故）的自留山资格权，进一步深化集体林权制度改革，使自留山经营权得以正常流转。

Policy Evolution and Practice Exploration of Private Hilly Land Management Right Circulation

For nearly 40 years after hilly land was allotted for private use, there have been some derelict hilly land without the management unit (families) due to the population migration and the natural changes. This has in turn aroused the disputes over how to dispose of the ownerless hilly land, which negatively affects the social stability and forestry production. Though strictly limited, the transfer of management right of private hilly land does exist in practice. The paper reviews the hilly land related policies in some provinces and their evolution, and analyses the typical cases in Kaihua County and Xianju County, Zhejiang Province. Thereafter it proposes to divide the use right of private hilly land into "qualification right" and "management right", so as to separate "proprietary right", "qualification right" and "management right", i.e., upholding the collective proprietary right of forest land, ensuring the qualification right of farmer households, and loosening the management right. In addition, the qualification right of the ownerless hilly land should be properly dealt with, thus deepening the reform of collective forest tenure system, and safeguarding the organized transfer of management right of private hilly land.