“保权退出”:宅基地退出的一种新模式研究

“Withdrawal with the qualification right”:a new model of the homestead withdrawal

伴随我国城镇化工业化进程加快,农村宅基地不可避免的大量闲置、低效利用,“农村空心化”现象日益严峻。为盘活利用农村闲置宅基地,提高农村土地资源利用效率,我国积极推进宅基地改革,安徽省滁州市凤阳县就在宅基地改革中探索出“保权退出”的新模式。首先从理论层面和实践层面分析保障宅基地资格权的困境,再结合对凤阳县Y镇FY村和G镇GH社区的实地调研,对两个不同地域村庄探索的闲置宅基地退出新模式进行总结和剖析,分析保权退出各利益相关主体的得失,从而得出优化农村宅基地“保权退出”模式的路径思路,为开展农村闲置宅基地有效退出工作提供政策建议:(1)完善宅基地资格权保障制度,建立资格权确权颁证制度,探索多元路径保障农户资格权内涵的居住权;(2)要提高农户对宅基地相关政策的认知水平,推动闲置宅基地的有效退出;(3)构建地方政府、村集体、农民各利益主体稳定的利益联结机制,找到各方都满意的宅基地退出利益分配方案。

With the acceleration of urbanization and industrialization in China,vacant and inefficient use of homestead is inevitable,and the phenomenon of"rural hollowing"is becoming increasingly severe.In order to revitalize the utilization of vacant homestead and improve the efficiency of rural land resource utilization,Fengyang County of Chuzhou City in Anhui Province has explored a new model of"withdrawal with the qualification right".This article first analyzes the dilemma of ensuring the homestead qualification rights from theoretical and practical perspectives.Then,combined with on-site research on FY Village and GH Com‐munity in Y Town in Fengyang County,it summarizes the new models of withdrawal explored by two different villages in different regions and analyzes the gains and losses of various stakeholders and thus comes up with a path to optimize the"reserve the right to withdraw"model.It provides policy recommendations as follows:improve the qualification rights protection system,establish qualification rights confirmation and certification system,and explore multiple paths to ensure farmers’residential rights;improve farmers'awareness of policies related to homestead to promote the effective withdrawal;establish a stable interest linkage mechanism among local governments,village collectives,farmers to find a satisfactory plan for the distribution of benefits for the withdrawal.