宅基地“三权分置”的政策意蕴与制度实现

On the Policy Connotation and Legal Realization of the“Separation of Three Rights”in Homestead

宅基地"三权分置"政策以农户居住保障和宅基地流转放活为双重目标。宅基地使用权赋权扩能和用益物权属性纯化,符合宅基地制度改革的基本走向及权利塑造的法理逻辑。"三权分置"政策实现的重点在于确保农户不因农房或宅基地流转而丧失居住保障,应打破现行制度之宅基地使用权身份性和无期限性,确立宅基地使用权固定期限+自动续期(以户内仍有本集体成员为前提),宅基地资格权可以重复行使之规则。资格权应属于集体成员权,承担着农户宅基地使用权固定期限届满后自动续期的制度功能,使用权应作为纯粹的用益物权。因应宅基地"三权分置"制度变革要求,应当充实宅基地集体所有权的管理和收益权能,从主体、权能、行使和退出等方面塑造宅基地资格权,对宅基地使用权进行用益物权纯化改造,建立宅基地使用权"固定期限+自动续期"制度。

The policy of Separation of Three Rights(farmers’collective ownership,the household right and transferee’s right to use homestead)aims to ensure the housing security of farmers and propel the circulation of homestead.It is in line with the basic trend of homestead system reform and the legal logic of rights structure to expand right capacity of the household right to use homestead as a usufructuary right by nature.The key point of implementation of Separation of Three Rights policy is to ensure that farmers do not lose the residential security due to the transfer of idle rural houses or homestead.Therefore,the identity and permanence of the household right to use homestead in the current system shall be abandoned,the rules of term fixed and renewed automatically on the premise that there still remains collective member in the household of the right to use homestead and homestead qualification right can be exercised repeatedly shall be established.The qualification right,which aims to guarantee the automatic renewal of household right to use homestead,should be defined as membership right.The use right is a usufructuary right in nature.In response to the requirements of the system reform of separation of three rights in homestead,it’s essential to strengthen the right capacity of seeking profits and management of the famers’collective ownership of homestead;to establish the rules of qualifier confirmation,right capacity,repeated exercise and withdrawal of the homestead qualification right;to renovate the right to use homestead as a usufructuary right by nature;and to implement the system of term fixed and renewed automatically of the right to use homestead.