传统闲置宅基地退出困境下的产权再造与政策因应

Property Rights Reengineering and Policy Response under the Dilemma of Exiting Traditional Idle Homestead

相对于发达地区的城郊、农村,传统农区宅基地的“人宅分离”现象更为突出,宅基地闲置问题更为严重。传统农区因资源缺乏、人口数量大、以农业为主要产业、城镇化落后及剩余劳动力多的特殊性,成为闲置宅基地退出改革中的深水区。通过取样晋江、义乌、平罗和余江四处具有地方代表性的试点进行比较分析,传统农区宅基地退出实践中存在着祖业权观念影响较大、宅基地四至不清、市场手段难以完全嵌入和国家层面法律、政策缺失的困境。对此,应将传统农区闲置宅基地问题放入三农的大背景中寻求盘活利用的破解之道:包括从宏观上把握传统农区闲置宅基地的形成机制、制度变迁的基本规律,聚焦闲置宅基地整治、土地优化、多元利用等调控策略。具体制度上,继续深化传统农区宅基地“三权分置”改革,探索三权分置下宅基地入市的产权再造,推进国家层面对宅基地保障属性的确认,完善宅基地的用益物权属性,建构多元化的补偿标准。同时,因地制宜、因户施策,完善农区宅基地改革的相关配套制度和收益分配机制,切实保障制度改革中农民的合法权益。

Compared to suburban and rural areas in developed regions,the phenomenon of“separation of people and houses”in traditional agricultural homesteads is more prominent,and the problem of idle homesteads is more serious.Due to the scarcity of resources,large population,agriculture as the main industry,backward urbanization,and the particularity of a large surplus labor force,traditional agricultural areas have become a deep-water area for the withdrawal of idle homesteads from the reform.Through comparative analysis of representative pilot projects in Jinjiang,Yiwu,Pingluo,and Yujiang,it was found that there are difficulties in the practice of traditional rural homestead withdrawal,such as significant influence of ancestral rights,unclear distribution of homesteads,difficulty in fully embedding market means,and lack of laws and policies at the national level.In this regard,the issue of idle homesteads in traditional agricultural areas should be placed in the context of agriculture,rural areas,and farmers to seek solutions to revitalize their utilization.This includes grasping the formation mechanism and basic laws of institutional changes of idle homesteads in traditional agricultural areas from a macro perspective,focusing on regulation strategies such as idle homestead remediation,land optimization,and diversified utilization.In terms of specific systems,we will continue to deepen the reform of the“three rights separation”of traditional rural homesteads,explore the property rights reconstruction of homesteads entering the market under the three rights separation,promote the confirmation of homestead security attributes at the national level,improve the usufructuary rights attributes of homesteads,and construct diversified compensation standards.At the same time,adjust measures to local conditions and implement policies according to households,improve the relevant supporting systems and income distribution mechanisms for the reform of rural residential land,and effectively safeguard the legitimate rights and interests of farmers in the institutional reform.