乡村振兴背景下宅基地“三权分置”改革的政策意蕴与实践模式

The Policy Implications and Practical Models of the"Three Rights Separation"Reform of Homestead in the Background of Rural Revitalization

宅基地“三权分置”改革是乡村振兴背景下亟须突破的一项土地制度改革。基于治理视角和对试点地区的考察,分析宅基地“三权分置”改革的政策意蕴、现实困境与实践模式。研究表明,宅基地“三权分置”作为全面推进乡村振兴战略过程中的重大理论创新,其政策意蕴在于发挥所有权治理功能进行权能重构,通过强化所有权治理功能统摄地位,兼顾资格权居住保障功能,适度放活使用权财产功能,构建适应中国特色土地产权制度的宅基地制度,推动乡村振兴。当前,宅基地“三权分置”政策执行中仍面临所有权行使机制不完善、资格权保障机制未建立、使用权流转机制不顺畅等现实困境。新一轮宅基地制度改革试点地区“三权分置”权能重构与治理路径的实践模式和经验表明,只有突出所有权在宅基地治理中的根本地位,结合区位优势、资源禀赋,因地制宜选择自愿有偿退出或使用权盘活模式,平衡资格权保障功能与使用权财产功能,才能破解改革中面临的问题,使宅基地“三权分置”改革成为全面实现乡村振兴的重要内生动力。

The"three rights separation"reform of homestead is a land system reform that urgently needs to be broken through in the context of rural revitalization.Based on a governance perspective and an investigation of pilot areas,the authors analyze the policy implications,practical dilemmas,and practical models of the"three rights separation"reform of homestead.Research shows that the of homestead,as a major theoretical innovation in comprehensively promoting the rural revitalization strategy,its policy implication lies in restructuring the power through a governance perspective,giving play to the governance function of ownership,strengthening the membership rights of collective land ownership,taking into account the residential protection function,moderately liberalizing the property function of the right to use,formulating the homestead system with the consideration of land property right system with Chinese characteristics,and promoting rural revitalization.At present,the current"three rights separation"of homestead still faces practical problems such as incomplete ownership exercise mechanisms,incomplete qualification rights protection mechanisms,and unsmooth transfer mechanisms of use rights.The practical models and experiences of restructuring the power of"three rights separation"and the governance path in the reform pilot areas show that highlighting the fundamental position of ownership in homestead governance,and combining different geographical advantages and resource endowments,choosing a voluntary paid exit or use rights revitalization model based on local conditions,and balancing residential protection function and property function of the right to use can help us solve the problems faced in the reform,and make the"three rights separation"reform of homestead an important endogenous driving force for achieving comprehensive rural revitalization.