农村宅基地使用权退出机制研究—以温州地区为例
摘 要
随着我国城镇化进程的推进，农民的生活水平得到了巨大的提升，但快速城镇化不仅造成了“空心村”的出现，也使国有建设用地、集体建设用地出现了非正常的“双增长”现象。城镇发展建设、农村宅基地建设每年都需要大量的土地指标支持，这不仅造成了土地资源的浪费、土地利用结构的失衡，加重了土地供应的压力，更不利于农村的合理可持续发展，不利于农业产业的安全保障。因此，在土地资源管理方面迫切地需要建立农村宅基地使用权的退出机制，以促使违法占用（超面积占用）的宅基地使用权进行收回，促进闲置的合法宅基地使用权进行有偿退出。
本文通过农民建房宅基地需求问卷调查、宅基地调查数据统计、相关政策分析的方式，根据对温州市农村宅基地利用情况进行的分类汇总、法律法规对宅基地使用权流转政策的综合分析、其他省市对宅基地使用权流转的先进经验，指出了目前宅基地使用权登记发证覆盖率不高、“无宅”和“一户多宅”现象并存及宅基地上房屋闲置现象较为普遍的客观事实，依据目前宅基地使用权退出的主要政策、闲置宅基地为退出提供了有利条件以及宅基地使用权退出为专项建设提供大量的用地空间，提出了宅基地使用权退出的可行性、必要性，并结合国土资源行政部门的日常工作及区域农村的差异性分析出宅基地使用权登记发证率不高、政策与农村差别化不适应、村庄规划的缺失、退出方式及刚性约束制度薄弱、分配和退出制度不完善等因素是造成宅基地使用权退出难的主要障碍。
通过上述各种类型的分析研究，并基于农村宅基地使用权退出机制的建立，本文根据宅基地使用权退出的主导、实施主体不同将退出方式分为政府实施、集体经济组织实施、企业实施和市场配置四个类别，根据宅基地使用权退出是否涉及补偿将退出程序分为无偿退出、有偿退出两类，并根据宅基地使用权退出补偿的形式不同、对象不同进行分类以及探索多元化补偿方式的需求，同时结合温州市“三改一拆”专项工
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作目前的进展、乐清市农房流转经验，以及温州市近年来出台的农村产权交易和配套的保障性政策文件进行研究，提出了关于宅基地使用权退出的三点政策性建议：完善宅基地相关产权确权登记基础、制定科学农村规划布局、合理界定政府角色。
关键词：农村；宅基地使用权；退出机制
THE RESEARCH ON THE EXIT MECHANISM OF HOMESTEAD USING RIGHT IN THE RURAL AREA—
TAKING WENZHOU AS AN EXAMPLE
ABSTRACT
With the advancement of urbanization in China, the living standard of farmers has improved a lot, but rapid urbanization has also made the %urban construction land and collective construction land grow abnormally. Urban construction and homestead need many indicators every year, it’s not only a waste of land resources, a disadvantage to the balance of land using structure, increasing the burden on land supply, but also a disadvantage to the sustainable development of rural areas and the security of agriculture. Therefore, it’s urgent to establish exit mechanisms of homestead using rights in land management, taking back the illegal homestead using rights, to promote the paid exits of the idle and legal homestead.
Through questionnaire investigation of demand for farmhouse, statistics of homestead and policy analysis, this article summarizes the utilization of the homestead in Wenzhou and drawing on the advanced experience of homestead using right circulation in other cities; it points out that the low coverage of homestead using right registration, farmers with no house or many houses existing side by side, a large number of idle farmhouses are the existing objective facts and based on the policy analysis of the exit mechanisms of homestead using right, the favorable terms for the exit mechanisms that provided by the idle homestead, the large land for the development that supplied by the exit mechanisms of homestead using right, suggests the necessity of the exit mechanisms of homestead using right; it analyzes the low registration rate of homestead using right, the disparity between policy and rural area, the deficiency of rural planning, the weakness of
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exit mode and restraint system and the imperfection of distribution. Exit mechanism is the obstacle to the exit of the homestead using right by the daily work in administration and the diversity of rural area.
Through the above analysis of various, and based on the establishment of exit mechanisms of homestead using right, in this article, the exit of homestead using right is classified into four types by subject of implementation: the government's implementation, rural collective implementation, enterprise implementation and market allocation type. It’s also classified by compensation into free exit and paid exit, which refines the paid exit by different mode, and There is a demand for exploring diversified paid exit mode. This article suggests three policies that improves the registration rate, formulates rural planning, and defines the role of government with the progress of san gai yi chai in Wenzhou, the experience of the farmhouse exchanging in Yueqing, the policy document of the farmhouse exchanging and the social Security in Wenzhou.
KEY WORDS：rural area; homestead using right; exit mechanism
目 录
摘 要 ............................................................................................................................ I ABSTRACT ................................................................................................................ III 目 录 .......................................................................................................................... V 一、绪论 ....................................................................................................................... 1
(一）选题的背景及意义 ....................................................................................... 1 (二）国内外研究现状 ........................................................................................... 2
1．国外研究现状 ............................................................................................ 2 2．国内研究现状 ............................................................................................ 2 (三）研究方法 ....................................................................................................... 4
1．文献研究法 ................................................................................................ 4 2．实际调查法 ................................................................................................ 4 3．个案调查法 ................................................................................................ 4
二、温州地区宅基地利用现状调查分析 ................................................................... 5
(一）宅基地使用权登记发证覆盖率不高 ........................................................... 5 (二）“无宅”和“一户多宅”现象并存 .................................................................... 6 (三）宅基地上房屋闲置现象较为普遍 ............................................................... 7
1．因生活方式改变导致宅基地上房屋闲置 ................................................ 7 2．因合法继承等原因导致宅基地上房屋闲置 ............................................ 8 3．因建新不拆旧等原因导致宅基地上房屋闲置 ........................................ 8
三、宅基地使用权退出的可行性及必要性 ............................................................... 9
(一）目前宅基地使用权退出的主要政策 ........................................................... 9 (二）闲置宅基地为退出提供有利条件 ............................................................. 10 (三）宅基地使用权退出为专项建设提供用地空间 ......................................... 11 四、宅基地使用权退出的阻碍因素 ......................................................................... 13
(一）宅基地使用权登记发证率不高 ................................................................. 13
1．物权意识不高 .......................................................................................... 13 2．村落分布散及调查人力物力不足 .......................................................... 13 3．历史遗留问题多且权属情况复杂 .......................................................... 14 4．违章和建新不拆旧现象普遍 .................................................................. 14 (二）政策与农村差别化不适应 ......................................................................... 15 (三）村庄规划的缺失 ......................................................................................... 16
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