宅基地“三权分置”制度改革的潜在风险及其管控

The Potential Risks of“Three Rights Separation”System Reform of Homestead Land and Its Control

作为新的制度优化举措,宅基地"三权分置"制度改革存在制度绩效损失的风险,而产权治理结构是引发制度风险的关键因素。基于产权治理结构的视角,从产权安排、外部环境与主体因素方面构建了宅基地"三权分置"制度改革风险生成的理论分析框架。在改革实践中,宅基地"三权分置"制度改革试点地区存在"弱市场+自保障""弱市场+强保障""强市场+自保障"和"强市场+强保障"等差异化产权治理结构,但由于产权治理结构存在内在运行机制和环境适配性缺陷的不确定性,导致实践过程中产生宅基地权益难以充分实现、宅基地再配置与再利用效益不足等潜在风险损失。为防范和管控宅基地"三权分置"制度改革风险,应从健全交易体系,完善配套措施,提升宅基地产权治理结构效率;强化农民主体地位,因地制宜推进改革,改善产权治理结构适配性等方面制订风险管控的具体措施。

As a new system optimization measure,there is a risk of system performance loss in the“three rights separation”system reform of homestead land,and the property rights governance structure is a key factor that causes system risk.Based on the perspective of property rights governance structure,a theoretical analysis framework for the risk generation of the“three rights separation”system reform of homestead land is constructed from the aspects of property rights arrangement,external environment and subject factors.In the reform practice,the pilot areas of the“three rights separation”system reform of homestead land have formed differentiated property rights governance structure including“weak market and self-guarantee”,“weak market and strong guarantee”,“strong market and self-guarantee”and“strong market and strong guarantee”.However,the uncertainty of the inherent operational mechanism and environmental adaptability deficiencies of the property rights governance structure,results in the potential risks and losses including the difficulty of fully realizing the rights and interests of homestead land,insufficient benefits of the reallocation and reuse of homestead land.In order to prevent and control the risks of the“three rights separation”system reform of homestead land,the specific measures of risk control should be formulated from two aspects:firstly,improve the transaction system and supporting measures,and enhance the efficiency of homestead property rights governance structure;secondly,strengthen the main position of farmers,promote reforms according to local conditions,and improve the adaptability of the property rights governance structure.