农村宅基地制度改革的理论逻辑与深化路径——基于农民权益的分析视角  

Rural Homestead System Reform in the New Period: Theory and Path

作　　者：乔陆印[1] QIAO Luyin

机构地区：[1]山西大学城乡发展研究中心,太原030006

出　　处：《农业经济问题》2022年第3期97-108,共12页Issues in Agricultural Economy

基　　金：国家自然科学基金项目“资源型地区乡村转型发展的多维过程及其动力机制研究”(编号:41701195)。

摘　　要：让农民受益是宅基地制度改革的出发点和落脚点。本文基于农民权益变化视角审视宅基地制度70年变迁历程发现,自“两权分离”后宅基地制度表现出“房地分离、差别赋权、产权管制”的特征,即同一时期宅基地与农房的限定性赋权并不同步,国家逐渐加强对宅基地及农房的产权与权能管制,农民宅基地权益在产权管制中受到损害。乡村振兴背景下,宅基地制度改革的基本趋向是放松产权管制与还权赋能,改革的逻辑思路是以维护国家公益(保障居住功能)为基点,以发展农民私益(显化财产功能)为驱动力,以“三权分置”产权结构重塑为总统领,积极探索深化改革。宅基地“三权分置”本质上是宅基地权利体系的重构过程,即通过三权的重新设置发挥其独特功能和整体效能。在实践路径方面,强化集体所有权重点在于明晰权利主体,赋予完整权能;保障农户资格权首先要厘清权利性质,明确入法路径;适度放活使用权,亟需进一步放宽使用权流转范围与用途功能,实现有偿使用。Benefiting farmers is the starting point and foothold of homestead system reform.Based on the perspective of farmers’ rights and interests change, this paper examines the 70 years’ change process of the homestead system and finds that since the separation of two rights, the homestead system shows the characteristics of “separation of homestead and house, differential empowerment, and property rights control”.The restrictive empowerment of homestead and rural housing is not synchronized in the same period, China gradually strengthens the property rights and power control of homestead and rural housing, and the farmers’ homestead rights and interests are in production right to control is damaged.Under the background of rural revitalization, the basic trend of homestead system reform is to relax the control of property rights and return the right to empowerment.The logical idea of reform is to actively explore and deepen the reform based on maintenance of national public welfare(residential security function),development of farmers’ private interests(explicit property function),and the remodeling of the property structure of “separation of three rights”.In essence, the “separation of three rights” of homestead is the reconstruction process of homestead right system.That is to play its unique function and overall efficiency through the reestablishment of the three rights.In terms of practice path, the focus of strengthening collective ownership is to clarify the subject of rights and endow them with complete power.In order to protect the farmers’ qualification right, we should first clarify the nature of rights and clarify the path into law;moderately liberalize the right of use, we need to further relax the circulation scope and use function of the right to use, and realize the existing compensation use.

关 键 词：宅基地制度 农民权益 三权分置 公益与私益 市场化流转 

分 类 号：F321.1[经济管理—产业经济]