农村宅基地制度变迁70年历史回顾与前景展望

Homestead Institutions Change in 70 Years: Historical Reviews and Future Prospects

农村宅基地制度改革是新时代城乡土地制度改革的难点和重点问题,其目的旨在通过制度创新降低协调成本、提高资源配置效率和为实现乡村振兴提供体制机制保障。在农村土地集体所有制和城市土地国家所有制这一特色社会主义土地公有制度锁定前提下,农村宅基地制度改革所要探索完成的主要任务是集体所有制的多种实现形式。反思新中国成立以来近70年农村宅基地制度变迁的基本路径,可以发现宅基地所有权与使用权分离过程具有明显的阶段性特征,正式制度约束显著决定着宅基地的权利关系构成,也对宅基地制度变革中的国家、集体、农户和其他市场主体间利益博弈产生重要影响。2013年底的十八届三中全会明确了农民住房财产权抵押、担保和转让的制度演进方向,2018年初中央"一号文件"提出实施乡村振兴战略进一步明确了宅基地制度改革的顶层设计架构。未来时期,紧紧围绕科学处理地方政府和集体农户在土地增值收益上的利益关系,不断增强农村土地制度改革的系统性、整体性和协同性,实现宅基地制度改革与城乡发展一体化制度体系建设的系统集成,就必须加快完善农民闲置宅基地和闲置农房政策,探索宅基地所有权、资格权、使用权"三权分置"的有效形式,真正落实宅基地集体所有权、切实保障宅基地农户资格权和农民房屋财产权,适度放活宅基地和农民房屋使用权,全面促进农村宅基地制度改革、农村集体经营性建设用地入市与农村土地"三权分置"制度改革实现协同创新。

The reform of rural homestead system is a difficult and important issue in the reform of urban and rural land system in the new era. Under the premise that the collective ownership of rural land and the state ownership of urban land are locked,the main task to be explored in the reform of rural homestead system is the realization of collective ownership. Reflection on the basic path of rural homestead system change since the establishment of the new China,we can find that the separation of homestead ownership and usufruct has obvious periodic characteristics,the formal system restraint determines the rights of homestead structure obviously,and also has an important influence on the state,collective and peasant interests in the reform of homestead system. The 3 rd Plenary of the 18 th Central Committee of Communist Party at the end of 2013 provided institutional support for farmers' mortgage,guarantee and transfer of housing property rights. At the beginning of 2018,the implementation of the rural revitalization strategy in document No. 1 of the Central Government,which further clarified the top design framework and the direction of institutional change in the reform of the homestead system. And the policies shows that the governments will explore effective forms of ownership,qualification and usufruct of homestead land,genuinely realize the right of collective ownership of homestead land,guarantee the right of peasant farmers' qualification and the property rights of farmers' houses,appropriately release homestead land and the right to use farmers' houses,and comprehensively promote the reform of the rural homestead system and land for rural collective management construction.