从“人役权”到“地上权”——宅基地使用权制度的再塑造

From “Personal Servitude” to “Superficies”——Reshaping the Right to Use the Homestead

我国用益物权体系下的宅基地使用权刻有"人役权"性质的烙印,虽实现了社会保障功能,却难以实现土地的财产价值和融资功能。宅基地"三权分置"政策是对土地私权的细分,以求拓展宅基地使用权的权利内容。我国民法典物权编宜采取"地上权"的塑造路径,回应"三权分置"的政策指引,突破"人役权"的制度障碍,并需完善相应的制度设计。宅基地使用权的流转应予以适当"解禁",从而回归其财产权本质,促进融资功能的实现;借助确权登记完成之契机,采取登记生效主义规则,实现物权变动的公示;探索有偿性的取得机制,并采取区别对待的方式构建;宜采取自愿为基础的退出、补偿模式,并完善保障农民利益的多重补偿机制;应强化集体土地所有权,防止其弱化和虚空,落实集体成员权,实现农民权利的保障。

The right to use the homestead under the usufruct system is engraved with the character of personal servitude. Although the social security function has been realized, it is difficult to realize the property value and financing function of the land. The policy of separation of three rights relating to rural homestead is a subdivision of the private rights of the land, expanding the right to use the homestead. Firstly, the compilation of property rights in the civil code should adopt the shaping path of superficies, respond to the policy guideline of separation of three rights,break through the institutional barriers of the personal servitude, and improve the corresponding system design. Secondly, the circulation of the right to use the homestead should be properly lifted, so as to retrieve the nature of property rights and promote the realization of financing function. Thirdly, taking advantage of the opportunity of the completion of registering the rights of contracted land, we should adopt the rules of registration effectiveness to realize the publicity of the change of real right. Fourthly, exploring the rewarding acquisition mechanism and adopting the approach of different treatment to construct, we should adopt the withdrawal and compensation model on a voluntary basis and perfect the multiple compensation mechanism to protect peasants’ interests. Lastly, we should strengthen the collective land ownership, prevent it from weakening and being void, and fulfill the collective member right,so as to realize the protection of peasants’ rights.