农村宅基地“三权分置”政策的立法表达——以“民法典物权编”的编纂为中心

The Research on Separation of the “Three Rights” Policy to Homestead's Use Right: Focusing on Compilation of the Civil Code

宅基地"两权分离"向"三权分置"的演进满足了农村经济发展和宅基地财产化的现实需求,为我国深化宅基地制度改革指明方向。但宅基地"三权分置"政策中"权利"在法律上的妥适表达,需要着眼于权利的功能定位,立足于法律自身的逻辑进行综合判断,不能简单地套用政策术语。宅基地"三权分置"的构建应该以宅基地使用权制度为基础,不宜将农户资格权阐释为一项成员权,而应将其定性为一项身份性的财产权,特指创设次级使用权之后的宅基地使用权。宅基地"三权分置"在法律上表达为:集体土地所有权分置出宅基地使用权,宅基地使用权(农户资格权)分置出次级使用权。基于权利的功能定位,次级使用权应该界定为一项物权权利。在立法论层面,未来"民法典物权编"应该将次级使用权上升为法定的用益物权,实现次级使用权的法定化。

The evolution of the"separation of the two rights"from the homestead to the"separation of the three rights"satisfies the realistic needs of the rural economic development,the realization of the housing estate property,and points out the direction for the deepening of the homestead system reform in China.However,in the "three rights separation " policy of the homestead,the proper expression of"rights"in the law needs to focus on the functional positioning of rights.It should base on the logic of the law itself,instead of simply applying policy terms.The construction of the "separation of three rights"to homestead should be based on the system of the right to use the homestead.It is not appropriate to interpret the qualification of the farmer as a member right,but should be characterized as an identity property right,especially making the right to use the homestead inferior to the right to use.The "separation of three rights"to the homestead is legally expressed as: the collective land ownership is divided into the use right of the homestead,and the right to use the homestead is divided into secondary use rights.For rights-based functional positioning,secondary use rights should be defined as a property right.On the legislative level,in the process of compiling the "Civil Code of Property Rights"in the future,the right to use secondary rights should be raised to the statutory usufructuary right,and the legalization of secondary use rights should be realized.