“地权集体化”:传统农区宅基地制度改革的逻辑

Collectivization of Land Right:the Logic of the Reform of Homestead System in Traditional Rural Areas

由于基层多样的制度创新,传统农区宅基地制度改革超出了现行政策提倡的财产化改革的范畴,需要在理论上作出新的概括。以两个村庄的宅基地制度改革案例为分析对象,通过治理视角考察宅基地制度改革背景下,宅基地地权集体化的政治社会效应及其结构性条件。研究发现,传统农区宅基地地权集体化超越了保障农民财产权的经济效应,具有提高宅基地管理效率,推进村庄建设,提升基层治理能力的政治社会效应。宅基地地权集体化的实现,有赖于农村集体土地所有制的制度基础、“权责均衡”的治理基础及政府支持的政治空间。研究证明,传统农区宅基地制度改革的关键不是扩大权能,而是实现宅基地有效治理。在宅基地制度改革中,“集体”的权利可以被激活,因此,宅基地制度改革需要给村集体留出实践其所有权的空间。

Due to the diverse system innovations at the grassroots level,the reform of the homestead system in traditional rural areas has gone beyond the path of property reform advocated by the current policies,and a new theoretical generalization is needed.This article takes the case of the homestead system reform in two villages as the analysis object,and examines the political and social effects and structural conditions of the collectivization of homestead land rights under the background of the reform of the homestead system from the perspective of governance.The study found that the collectivization of homestead land rights in traditional rural areas surpasses the economic effect of protecting farmers’property rights,and has the political and social effects of improving homestead management efficiency,promoting village construction,and improving grassroots governance capabilities.The realization of the collectivization of homestead land rights depends on the institutional basis of rural collective land ownership,the governance basis of“balance of power and responsibility”,and the political space supported by the government.Studies have proved that the key to the reform of the traditional rural housing land system is not to expand the powers and capabilities,but to achieve effective governance of the housing land.In the reform of the homestead system,the rights of the“collective”can be activated.Therefore,the reform of the homestead system needs to leave room for the village collective to practice its ownership.