宅基地制度改革的历史性机遇与发展选择

Historic Opportunities and Developmental Options for the Reform of the Homestead System

回溯处于改革深水区的宅基地制度演进脉络,诉诸理论意涵,观照时代革新,解码现实、慎思未来,以因应社会现实的严峻挑战。观测两次全国性宅基地制度试点改革运作,多以清理或解决历史遗留问题为主导。行至当下,突显了确权问题是其顶层或核心,而集体主体地位无以彰显、农民成员权难以落地、经济利用与社会保障管控依然冲突、缠绕史今的宅基地继承法则缺漏、土地用途单向被动转换等问题,皆与宅基地权利制度本身难以著明、控权管理时而过强息息相关。抓住推进中国式现代化之历史性机遇,以“新”提“质”,审慎中突破,创新中守恒。匡正宅基地管理权力服务于使用权利规则,坚持其社会保障功能和有限市场化利用功能并举,揭示宅基地所有权及其使用权确权与权能本质内涵,顺应“所有权—成员权—宅基地使用权”法治理路,创造性夯实有效联动的宅基地法制体系。

Retracing the evolution of the homestead system in the deep-water reform zone,we have resorted to theoretical implications,observed the innovations of the times,and decoded the realities to think carefully about the future,in order to cope with the serious challenges of the social reality.Observing the operation of the two national pilot reforms of the homestead system,we find that they are dominated by clearing up or solving the problems left from the past.Nowadays,it highlights that the issue of confirming the right is the top or the core of the system,while the status of the collective subject cannot be manifested,the farmers' membership rights are difficult to be realized,the economic use and the control of social security are still in conflict,the law of inheritance entangling both the past and the present is missing,and the one-way passive conversion of the land use is closely related to the difficulty of the system of the right of the residential land itself and the control of the right of the management is too strong at times.Seizing the historic opportunity of Chinese modernization,we should improve the quality of the system through“newness”,make breakthrough in prudence,and maintain constancy in innovation.We should correct the rule that the management power of residential base serves the right to use,insist on its functions of social security and limited market utilization,reveal the essential connotation of the ownership and power of residential base and its right to use the authentic rights,and conform to the legal governance of“ownership-membership rights-rural homestead use rights”.In this way,we can consolidate the effective linkage of the legal system of residential land in a creative way.