中国农村宅基地使用政策变迁逻辑

Study on the Changing Logic of Rural Homestead Use Policy in China

实行农村宅基地有偿使用是新中国建立以来土地政策的重大改革,是加强农村宅基地管理的重要举措。以间断—均衡理论的核心观点和要素为基础,结合中国的制度结构和实际情境构建了理论分析框架,基于新中国建立以来中央政府和地方政府发布的农村宅基地使用政策文本数量的年度分布特征,借助政策范式理论,采用政策总体性目标、政策工具和政策工具精确设置解释并验证了农村宅基地使用政策变迁过程,从制度结构、情境认知、政府注意力三个方面阐释了中国农村宅基地使用政策变迁的原因。研究结果表明,中国农村宅基地使用政策总体上呈现出渐进性均衡和突发性间断相结合的变迁特征,政策的间断式变迁体现为政策总体性目标、政策工具和政策工具设置三个变量的范式转换。稳定的政治制度是政策变迁的根本性基础,固有的制度结构和宏观层面的情境认知使农村宅基地使用政策保持长期均衡;制度结构转型、制度供给环境和制度创新驱动使政府的注意力发生转移,从而导致农村宅基地使用政策发生间断和变革。在乡村振兴和城乡融合发展的新时代背景下,应继续实行有条件的农村宅基地无偿分配制度,借助市场机制不断深化农村宅基地有偿使用的探索和实践,完善农村宅基地增值收益分配机制,实现农村宅基地资源优化配置和有效利用。

Based on the discontinuity-equilibrium theory,combined with China’s institutional context,a theoretical analysis framework is constructed,the evolution process of rural homestead land use policies is combed,and the reasons for the evolution of homestead land use policies are explained.The results of the study show that the policy of using rural homesteads in China presents the characteristics of a combination of gradual equilibrium and sudden discontinuity.The discontinuous change of policy is reflected in the paradigm shift of the overall policy objectives,policy tools and policy tool settings.China’s stable political system is the fundamental foundation of policy evolution.The inherent institutional structure and macro situation awareness maintain the long-term balance of rural homestead use policies;institutional structural transformation,institutional supply environment,and institutional innovation drive government attention.The transfer has led to interruptions and changes in the policy of using rural homesteads.