农村宅基地分配制度:历史演变、运行困境与改革思路

Rural Homestead Distribution System:Historical Evolution,Operation Status and Reform Ideas

农村宅基地分配制度是宅基地制度体系的基础组成部分。新中国成立以来,宅基地分配制度在不同历史阶段呈现出各自特点。现行宅基地分配制度面临无偿分配名存实亡、以户为单位的取得制度困难重重、“一户一宅”难以实现、集体经济组织功能未充分展现等运行困境。从宏观视角观察,我国宅基地分配制度是社会主义公有制背景下特有的制度设计,目前还呈现出明显的不成熟性。从微观视角观察,宅基地分配制度又呈现出复杂性和独成体系性。应当按照市场化、法治化、系统化的目标促进宅基地制度体系的完善和优化。在未来改革和立法中,应该厘清宅基地上的私法权利体系和构造,固化资格权到户,原则上坚持“一户一宅”和无偿分配,细化宅基地分配程序,发挥农村集体经济组织作用,并遵循“面积限定”“规划管控”等管制规则。

Homestead distribution system is the basic part of homestead system.Since the founding of new China,the homestead distribution system has shown different characteristics at different historical stages.The current homestead distribution system is facing many operational difficulties,such as the existence of free distribution in name only,the difficulties of household⁃based acquisition system,the difficulties to realize“one household,one house”and the inadequate performance of function of collective economic organization.From a macro⁃perspective,China􀆳s homestead distribution system is a unique system design under the background of socialist public ownership.At present,it still shows obvious immaturity.From the micro⁃perspective,the homestead distribution system is complex and independent.We should promote the perfection and optimization of the homestead system according to the goal of marketization,legalization and systematization.In the future reform and legislation,we should clarify the conception of system and structure of private law rights on homestead,solidify the qualification right to each household,adhere to“one household,one house”principle and free distribution,refine the homestead distribution procedures,give full play to the role of rural collective economic organizations,and follow the rules of control such as“area limitation”and“planning control”.