我国农村宅基地制度改革试点评估——基于义乌市与宜城市对比研究的视角

Policy Evaluation on the Rural Homestead System Pilot Reform in China: Comparing Yiwu and Yicheng

不合理的土地制度与产权结构严重抑制了我国城乡建设用地市场一体化进程和城镇化的高质量发展,2015年国家实施的农村土地制度改革三项试点政策(又称"三块地"改革)旨在探索这些问题的有效解决方案。以浙江省义乌市与湖北省宜城市为例,采用S-CAD政策评估方法对农村宅基地制度改革试点政策进行评估,发现试点地区改革的侧重点和市场反响不尽相同,以义乌市为代表的土地财产权显性化地区重点挖掘了宅基地财产价值,但在放活宅基地与失地农民保障的平衡上仍面临考验;宜城市等传统农业地区改革基础较为薄弱,重点关注解决农地历史遗留问题、明确宅基地各项权利以及完善宅基地管理制度。总的来说,试点地区较好地实现了中央政策预期,在宅基地审批、有偿使用与退出、用益物权多样化实现等方面都进行了不同程度的探索。通过此次试点,中央政府为《中华人民共和国土地管理法》修法收集了有效经验参考,但同时应注意发达与欠发达地区发展阶段、改革基础和土地市场化程度的不同,因地制宜地推进改革试点工作。

The purpose of this paper is to evaluate the Rural Homestead System Pilot Reform launched in 2015, and provide policy recommendations for further reforms. By conducting a policy evaluation, utilizing the S-CAD method and taking Yiwu in Zhejiang province and Yicheng in Hubei province as examples, results show that the reform tendencies and market responses are different among pilot cities. Developed areas like Yiwu focus on exploring the property value of homestead, but also face challenges in balancing the release of homestead value and the protection of landless rural inhabitants. Reforms in undeveloped areas with weak reform bases like Yicheng focus on solving the historical issues of rural land management, clarifying the homestead property rights and improving the homestead management system. In general, pilot cities have achieved the reform expectations of the central government, also they have made efforts in the aspects of the homestead approval, the paid use and exit of homestead, and the pluralization of homestead usufructuary rights. This paper concludes that by implementing this pilot reform, the central government has gained effective experiences for the revision of the Land Administration Law. For the central government, it should pay additional attention to the differences in the development stages of different areas, the reform bases and the land marketization degrees between developed and undeveloped areas, as well as implement reforms according to varying local conditions.