农村闲置宅基地盘活利用清单管理的制度逻辑

Institutional Logic of List Management for Idle Rural Residential Land Redevelopment

研究目的:通过考察农村闲置宅基地盘活利用和清单管理的制度文本和社会实践,揭示宅基地盘活利用清单管理的整体制度逻辑。研究方法:法律社会学和行政管理学相结合的制度分析方法。研究结果:宅基地盘活利用的政策内涵是促进乡村振兴和城乡融合,清单管理的政策内涵是实施技术治理的科学理性,转变政府职能,清晰界定市场与政府的边界。宅基地盘活利用偏重于私权保护,对管理负外部性和提供公共服务等公权问题重视不足。清单管理存在着权力清单、责任清单和负面清单之间内在逻辑不统一的问题。宅基地盘活利用清单管理需要构建一个统一协调、科学理性的内在制度逻辑。研究结论:三张清单是宅基地盘活利用中界定市场与政府边界的重要制度工具。宅基地盘活利用权力清单着眼于构建有限政府,其适合的理想构造型式为“权力追责”型;责任清单着眼于构建责任政府,其适合的理想构造型式为“职责追责”型;负面清单着眼于构建有效市场,其适合的理想构造型式为“分立耦合”型。宅基地盘活利用权力清单和责任清单要与负面清单的禁入行为和限入行为清单相衔接,权力清单的事前审批、事中事后监管和公共服务事项需要分别与责任清单进行逻辑关联。

The purpose of this study is to discover the institutional logic of list management(LM)for idle rural residential land redevelopment(IRRLR)through investigating the institutional provisions,objectives and practices of IRRLR and LM.The research method of institutional analysis of legal sociology and public administration is comprehensively employed.The results show that the policy aim of IRRLR is to promote rural revitalization.In addition,the policy aim of LM is to establish an effective market and a responsible government.Furthermore,the practices show that IRRLR is more focused on protection of private rights,and less attention is paid to public issues such as management of negative externalities and provision of public services.There exist problems that the power list,the accountability list and the negative list are not sufficiently connected with each other and the internal logic is not unified in the practices of LM.An unified and coordinated logical framework of LM is proposed for IRRLR.The power list aims at establishing a limited government and it’s suitable ideal structure is the accountability type.The responsibility list aims at establishing a responsible government and it’s suitable structure is the responsibility type.The negative list aims at establishing an efficient market and it’s suitable structure is independently coupled type.The lists of power and responsibility of LM should be logically and respectively connected with forbidden and restricted behaviors in the negative list.Pre-approval,in-process and post-operation supervision and public service of the power list should be logically and respectively related to the responsibility list.