农村宅基地制度改革的武进试验(2015—2019年):回顾、评析与展望

Rural homestead system reform in Wujin District,Changzhou City from 2015 to 2019:Progress,review and prospects

宅基地制度是关乎广大农民切身利益的重要制度安排,是全面深化农村土地制度改革的关键环节。武进区作为乡镇企业的发祥地之一,一直都是中国农村改革的“试验田”,具有优良的改革创新传统。在上轮改革中,武进区承担过农村宅基地制度改革以及统筹推进“三项试点”的重要任务。本研究以常州市武进区为对象,回顾了武进区农村宅基地制度改革的进展。通过NVivo质性研究等方法分析其围绕保障“户有宜居”、完善宅基地抵押权能、探索有偿使用和退出及“三权分置”等方面开展的实践探索,总结武进区农村宅基地制度改革实践和制度经验。具体而言,通过构建制度体系、四大综合管理平台及有效的推进机制,为改革奠定了坚实的基础。通过引导宅基地有偿退出、构建农民住房财产权抵押机制,探索了宅基地还权、赋能、强能的实现途径。通过编制村庄规划,加强宅基地管理,引导集中居住区建设,优化了村庄布局。通过完善土地收益分配机制,保障农民公平分享土地增值收益,探索了增加农民财产性收入的路径。通过研究具有物权属性宅基地使用权的不动产登记实现形式,确定资格权人的宅基地使用权和非资格权人的宅基地使用权登记操作办法,探索了宅基地“三权分置”实现形式。通过农村宅基地制度改革,武进区改善了人居环境,盘活了农村闲置资源,为农村产业的发展拓宽了空间。但改革并非尽善尽美,还存在部分规划难落实、住房财产权抵押和宅基地退出推进缓慢、宅基地“三权分置”探索有待深入、试点范围需进一步扩大、重城轻乡的体制惯性等问题需进一步研究解决。

Homestead system is an important institutional arrangement related to the interests of a large number of farmers.It is a key link in deepening the reform of the rural land system.As one of the birthplace of township enterprises,Wujin District has always been one of the“experimental fields”of China s rural reform,it has a fine tradition of reform and innovation.In the last round of reform,Wujin District undertook the important task of rural homestead system reform.Taking Wujin District of Changzhou City as a case,this study reviewed the progress of rural homestead system reform in Wujin District.Through the analysis of its exploration on the protection of“Every family has a place to live”,improvement of housing mortgage ability,exploration of paid use and withdrawal,and“separation of three rights”,the study summarizes the reform practice and institutional experience of rural homestead system in Wujin District.Specifically,it sums up the solid foundation for the reform through the establishment of institutional system,four comprehensive management platform and effective promotion mechanism.By guiding the paid withdrawal of homestead and establishing the mortgage mechanism of farmers housing property rights,it explores effective ways to return the rights,empower the capacities,and strengthen capacities for the homestead land.Through the village planning and guiding the construction of concentrated residential areas,it probes the way to strengthen the management of homestead sites and optimize the layout of villages.It also explores ways to increase farmers property income,and finds that farmers are ensured to share the income from land appreciation fairly by improving the land income distribution mechanism.Through studying the right to use the homestead with the property right registration form,it experiments the“separation of three rights”for homestead by determining the right to use the homestead of the qualified right holder,the procedures for the operation of registration as well as the use guidance of homestead for unqualified right holder.Through the reform of rural homestead system,Wujin District has improved the living environment,revitalized the idle resources in rural areas,and expanded the space for the development of rural industries.However,the reform is not perfect.There are still some problems that need to be further studied and solved,such as the difficulty in implementing some planning,the slow progress of housing property right mortgage and homestead withdrawal,the exploration of“separation of three rights”for homestead sites,the further expansion of pilot areas,and urbanization-bias system reform.