论农村超占宅基地有偿使用制度的公私法配置

On the public and private law configuration of the paid use system of rural over-occupied homestead land

超占宅基地有偿使用制度是促进宅基地节约集约利用、引导农户合理用地的重要规范。但目前试点地区制度呈现公法要素多、私法要素少的配置模式,引发村集体宅基地私权保护效果不彰、市场机制失灵、村民委员会决策代替私法自治等问题。优化有偿使用制度,应合理配比公法与私法要素,以强化村集体经济组织的宅基地私权权能为核心,确定制度要素,将收费定价置于市场机制;同时,以比例原则适配公法规范,包括基于公共利益目标确定公权力的介入标准,采用行政指导为介入方式,搭建地区宅基地地价平台,为宅基地市场提供公共物品,实现对不同超占情形的合理规制。

The paid use system for over-occupied homestead land is an important norm to promote the economical and intensive use of homestead land and guide farmers to rationally use land.However,the current system in pilot areas presents a configuration model with many public law elements and few private law elements,which has led to problems such as ineffective protection of private rights in village collective homesteads,failure of market mechanism and village committee decision-making replacing private law autonomy.To optimize the paid use system,we should reasonably balance public law and private law elements,with the core of strengthening the private rights of homestead land of village collective economic organizations,determine the system elements and place fee pricing in the market mechanism;at the same time,the principle of proportionality should be used to adapt to public law norms,including determining the intervention standards of public power based on public interest objectives,using administrative guidance as the intervention method,building a price platform of regional homestead land and providing public goods for the homestead market to achieve reasonable regulation for different over-occupied situations.