公有制视野下宅基地制度及其改革方向辨析

The“Public-Owned and Private-Using”System for Rural Housing Land and Its Realization

生产资料公有制是设置我国土地制度的起点,集体组织向农民分配宅基地,形成我国农村宅基地公有私用制度。我国土地制度本质是一套针对公有生产资料的自上至下管理体系,由此决定集体所有与一般意义上的财产所有权不同,法律上的宅基地使用权也与一般其他物权不同。宅基地管理要实现集体内部资源公平配置和土地有效利用两重目标。宅基地财产化主张不仅错误地认识宅基地市场价值,而且破坏公有与私用的平衡关系,瓦解集体内部宅基地公共管理机制的制度基础。城市化进程中所产生的宅基地问题,显示出基层政府与集体组织管理能力弱化。下一步改革要坚持土地公有性质,通过强化基层治理能力,实现宅基地"用益"性质,采用城乡住房保障政策挂钩办法促进农民进城,并实施"村庄更新"政策,提高留村农民居住福利。

The public ownership of means of production is the starting point for shaping the land system in China. Collective organizations distribute housing land to peasants, leading to the formation of a ＂public-owned and private-using＂ system for rural housing land. The nature of China＇s land system is a top-down management system for public- owned means of production, which determines that collective ownership is different from other property ownership, and that the private using of housing land is different from other property rights. Housing land is managed in order to meet the aim of a fair distribution of resources within collectives and the aim of an efficient usage of land. The proposition for transforming housing land into property mistakenly understands the market value of housing land; also, it will makedamage to the balance between ＂public- owned＂ and ＂private using＂, and it will lead to the collapse of the public management for housing land within collectives. Problems arising from urbanization show that the management capability of local governments and collective organizations has been weak- ened. The next step for the reform should keep with the public ownership of land, and promote the migration of peasants from rural to urban areas through strengthening the management capability of local organizations and developing the security housing sys- tem, and carry out the ＂village renewing＂ policies to raise the benefits of peasant resi- dents.