宅基地审批管理中的权利(力)冲突与权利失配——土地发展权配置视角的研究

CONFLICT OF POWER AND RIGHTS AND SPATIAL MISMATCH OF RIGHTS ON THE RURAL HOMESTEAD APPROVAL:A RESEARCH FROM THE PERSPECTIVE OF LAND DEVELOPMENT RIGHT

新增宅基地审批管理是赋予农民将其他类型土地转变为农村住宅用地的权利,其实质是对特定类型土地发展权的配置。由于宅基地承担一定的社会保障功能,宅基地发展权的配置既有行使公权力以维护公共利益的性质,又有保障和落实农民基本权利的要求。其特殊属性形成宅基地发展权配置过程中公权力行使与农民私权利保障之间的冲突,以及发展权空间配置要求与农民对土地的现状权属分布不相匹配的矛盾。权利(力)冲突状况下,政府与农民的利益博弈造成农民权益受损与土地低效利用问题并存的现实,而空间规划编制和实施过程中未能有效化解权利空间失配的矛盾使得规划失去实际指导作用,影响到宅基地空间布局优化目标的实现。因而,如何解决权利(力)冲突问题和化解权利空间失配的矛盾是破解目前宅基地审批管理困境的关键问题。

The approval for new homestead land use is to give farmers right of changing other types of land uses to housing land use, the essence of which is the allocation of specific types of land development right. Because rural homestead has the function of social security, the allocation of development right of homestead should not only protect the public interest, but also ensure the basic right of farmers. Its special attributes cause the conflict between public power and farmer＇s private rights in the process of the allocation of development right of rural homestead, and the contradiction between the allocation of spatial development right and the distribution of the land ownership. Amid the conflict of power and rights, due to the games of benefit between government and farmers, farmer＇s rights and benefits are damaged and the land useefficiency is low. In the process of establishment and implementation of the spatial planning, if it fails to effectively resolve the problem of spatial mismatch of rights, the realization of the goal of optimization of spatial distribution of homestead will be affected. Therefore, how to resolve the problems of conflict of power and rights and the spatial mismatch of rights is the key to solve the predicament of the approval management of rural homestead.