农村空心化下宅基地三权分置的功能作用、潜在风险与制度建构

宅基地两权分置限制使用权流转,加剧"内空外扩"农村空心化困局,使其落后于乡村发展需要。在我国城市化进程加快及乡村振兴战略实施等时代背景下,宅基地三权分置实现了保障性权能与财产性权能的分离,进而实现了使用权的独立性与完整性,使宅基地使用权市场化流转成为可能,重新盘活了乡村宅基地资源并符合人口双向流动新趋势。然而,当前宅基地三权分置仍处于初步探索阶段,需注意其因政策实践偏差而诱发宅基地集体使用权虚化、保障性权能弱化等潜在风险。因此,亟需完善配套制度,建立宅基地使用权流转市场,强化政策监控,加强"失宅"农民权益保障,合理配置闲置宅基地资源。

Function,Risk and Realization of the Separation of the Three Rights in the Homestead under Rural Hollowing out

The separation of the two rights of homestead restricts the circulation of the land use right, aggravating the dilemma of "expanding from the interior to the exterior" and making it lag behind the needs of rural development. Under the background of China’s accelerated urbanization process and the implementation of the rural revitalization strategy, the separation of the three rights of homestead has realized the separation of indemnificatory rights and property rights, thus realizing the independence and integrity of the right to use homestead, making it possible for the market circulation of the right to use homestead, reactivating the resources of rural homestead and conforming to the new trend of two-way population flow. However, the separation of the three rights of homestead is still in the initial stage of exploration, and attention should be paid to the potential risks of collective ownership of homestead and weakening of indemnificatory power due to the deviation of policy practice. Therefore, it is urgent to improve the supporting system, establish a market for the transfer of the right to use homestead, strengthen policy monitoring, strengthen the protection of the rights and interests of "lost homestead" farmers, and rationally allocate idle homestead resources.