农村宅基地制度:演变轨迹、主要问题、改革探索与建议

Institution of Rural Homestead:Process of Evolution,Main Problems,Pilot Reform Experiments and Suggestions

文章系统介绍了中国农村宅基地制度演变轨迹、主要问题和改革探索,界定了宅基地“三权分置”内涵,即宅基地所有权、农户长期资格权和固定期限使用权分置。宅基地资格权,不同于集体经济组织成员资格权。农村宅基地兼有生活资料和生产资料双重属性,兼有保障、资产和农耕文明传承三重功能。深化宅基地制度改革,应坚持尊重历史和传统习惯、差别化对待、严格保护农民利益等五项原则。最后提出的改革建议包括:合理划分各级政府和村民自治组织宅基地管理权限;以户而非以人口数量为依据分配宅基地;当前全面推行宅基地有偿使用条件不成熟,需要为之设立三项前置条件;永久退出宅基地,均应获得补偿;宅基地使用权应当允许出租、入股、抵押和继承;城乡居民享有同等宅基地继承权等。

This paper systematically introduces the institution of rural homesteads,which is related to process of its evolution,main problems and pilot reform experiments.It also defines the connotation of“separation of three rights”of homestead,namely,the separation of homestead ownership,farmers’long-term qualification rights and fixed-term usufruct.The right of homestead qualification is different from the right of membership of collective economic organizations.Rural homestead has the dual attributes of means of living and means of production,as well as the triple functions of security,assets and the inheritance of agricultural civilization.To deepen the reform of the homestead institution,we should adhere to the principles of respecting history and traditions,treating issues appropriately,and strictly protecting the interests of farmers.Finally,the paper proposes to reasonably divide the authority of homestead management of governments at all levels and villagers’autonomous organizations;distribute homestead based on households rather than population;three preconditions need to be set up under the background that the conditions for the full implementation of paid use of homestead are not mature;permanent withdrawal from the homestead shall be compensated;the usufruct shall be allowed to be rented,sold,mortgaged and inherited;urban and rural residents have the same right to inherit the homestead.