我国农村宅基地使用权退出的法律问题研究

发布时间：2018-07-24 17:06

【摘要】：目前,我国社会经济改革步入深水区,在全面建成小康社会的目标下,城镇化建设是政府的必然选择,而城乡统筹发展显现着对建设用地的硬性需求。在现有土地制度下,既要保障耕地不低于国家红线,又要满足城镇化对建设用地的扩展需求,单纯依靠有限的农村宅基地使用权流转或土地征用已经显得捉襟见肘。因此,提高全国建设用地利用效率,探索农村土地制度变革,特别是农村宅基地使用权退出制度已经成为学术界和政府关注的焦点。农村宅基地使用权是研究农村宅基地退出的前提,首先对农村宅基地使用权的含义、性质和内容等基础理论进行研究,明确农村宅基地使用权是一种用益物权,且具有占有、使用、收益和处分等权能。学术界对宅基地退出的含义并没有进行清晰的界定,从法理学角度看,农村宅基地退出是指宅基地使用权人通过一定方式,将某个特定宅基地上的使用权归还宅基地所有权人,宅基地所有权与宅基地使用权统一于同一个主体的法律行为。因为处分权的对象包括特定标的物或标的物上的某项权利,所以农村宅基地退出属于农村宅基地使用权人对其拥有的使用权进行处分的表现。虽然学术界容易混淆农村宅基地使用权流转和退出以及土地征收的概念,但宅基地使用权流转是使用权人发生变化,土地征收是宅基地的所有权发生了变化,而宅基地退出是特定宅基地使用权的灭失,三者具有不同的内涵和外延。根据部分学者对农村宅基地利用现状的调查显示,许多农民对农村宅基地退出的热情并不高。但是从完善用益物权权能、提高土地利用效率、促进城乡统筹发展等方面来看,我国农村宅基地退出是非常必要的。我国社会经济发生了深刻的变化,随着经济的快速发展,第一产业在整个国民经济中的比重不断降低,许多农村居民进城务工,更多的参与到第二、三产业中来,农村居民对土地的依附关系在逐步减弱。并且随着我国城镇化水平不断提高,农村人口不断减少,僵化落后的农村土地制度不能满足社会经济发展的需要,而很多农民也确实存在退出农村宅基地的意愿。所以,从经济、社会、农民意愿以及我国现有法律法规和政策的导向来看,我国农村宅基地退出制度的实施是可行的。通过分析我国农村宅基地的使用现状,发现我国农村宅基地的利用存在粗放使用、闲置比例高等一系列问题,表明农村土地利用现状的改变刻不容缓。从天津开始探索城乡建设用地指标增减挂钩制度以后,我国各地开始结合本地情况探索宅基地退出制度。在调查研究我国典型试点地区的宅基地使用权利用情况和退出现状以后,发现无论是重庆的宅基地退出与户籍制度改革结合的方式,还是嘉兴的"两分两换"方式,其中的共性是用原有的宅基地使用权置换新的房屋。这些方式都有利于提高土地利用效率,改善农村居民生活环境等,但是现有的宅基地退出制度中存在着一系列的问题,例如政府是否应该参与农村宅基地退出,农民是否可以基于宅基地使用权本身获得补偿等。针对目前典型试点地区宅基地退出方式中存在的理论困境,政府应该从立法上肯定宅基地使用权权能的扩大,并且通过明确宅基地退出的含义来防止使用权人权利的无限扩大。而政府在农村宅基地退出的定位应该是一个服务者的角色,引导村集体经济组织合理有序的推进农村宅基地退出。面对宅基地退出各个环节,为了保障退出过程公开公平,更好地保障宅基地使用权人的合法权益,政府应该制定相应的法律法规,对宅基地及房屋的价值进行科学的评估,确定测量标准和收益分配方以及宅基地退出后土地的复垦等问题。通过不断完善农村宅基地退出制度,让农村宅基地退出制度最终能够推广到全国各地。
[Abstract]:At present, the social and economic reform in China has entered the deep water area. Under the goal of building a well-off society in an all-round way, the urbanization construction is the inevitable choice of the government. The overall development of urban and rural development shows the hard demand for the construction land. Under the existing land system, the cultivated land should be guaranteed not less than the national red line and the expansion of the urban construction land. It is difficult to rely solely on the limited use of Rural Homestead Land use rights and land expropriation. Therefore, it has become the focus of academic and government attention to improve the efficiency of land use in the whole country and explore the reform of rural land system, especially the withdrawal system of the right to use the homestead in rural areas. The premise of rural homestead exit is to study the basic theory of the meaning, nature and content of the rural homestead right of use. It is clear that the right to use the rural homestead is a kind of usufruct, and has the power of possession, use, income and disposition. The meaning of the retreat of Homestead is not clearly defined by the academic circle from the angle of jurisprudence. From the point of view, the withdrawal of the rural homestead means that the right holder of the homestead will return the right of use of a particular homestead to the owner of the homestead through a certain way, and that the ownership of the house land and the right to use the homestead are unified with the same subject, because the object of the disposition includes a certain subject matter or a certain right on the subject matter. The withdrawal of the rural homestead is a manifestation of the disposal of the right of use of the rural homestead. Although the academic circles can easily confuse the transfer and withdrawal of the right to use the rural homestead and the concept of land expropriation, the transfer of the right to use the homestead is the change of the right holders, and the land expropriation is the ownership of the homestead. The withdrawal of the homestead is the loss of the right to use the specific homestead, and the three have different connotation and extension. According to the investigation of the current situation of the rural homestead use by some scholars, many farmers are not enthusiastic about the withdrawal of the rural homestead. But from the improvement of the right of usufructuary right, the efficiency of land use is improved and the urban and rural development is promoted. The exit of rural homestead in China is very necessary. The social economy of our country has undergone profound changes. With the rapid development of the economy, the proportion of the first industry in the whole national economy is decreasing. Many rural residents work in the city and participate in the second, third industry, and the rural residents depend on the land. With the gradual improvement of the level of urbanization in China, the rural population is constantly decreasing and the rigid and backward rural land system can not meet the needs of the social and economic development, and many farmers do have the desire to withdraw from the rural homestead. So, from the economic, social, peasant's will and the existing laws and regulations and policies of our country Through the analysis of the current situation of the use of rural homestead in China, it is found that the utilization of the rural homestead in our country has a series of problems, such as extensive use and high idle proportion, which shows that the change of rural land use status is urgent. From Tianjin, the construction of urban and rural construction is explored. After the land index system is added and reduced, all parts of our country begin to explore the system of homestead withdrawal. After investigating and studying the use of the right to use the homestead in the typical pilot areas of China and the withdrawal of the status quo, it is found that whether it is the way in which Chongqing's homestead withdraws from the reform of the household registration system, or the "two points and two changes" in Jiaxing. The common way is to replace the new houses with the right to use the original homestead. These methods all help to improve the efficiency of land use and improve the living environment of the rural residents. However, there are a series of problems in the existing housing land withdrawal system, such as whether the government should take part in the rural homestead and whether the farmers can base them on. In view of the theoretical predicament in the typical pilot area, the government should affirm the expansion of the right and power of the right to use the homestead, and prevent the unlimited expansion of the right to use human rights through the definition of the homestead exiting, and the government is in the rural homestead. The positioning should be a role of a service provider, guide the village collective economic organization to promote the exit of the rural homestead in a reasonable and orderly way. In the face of the exit of the homestead, in order to ensure the open and fair process of the withdrawal, and better protect the legitimate rights and interests of the owner of the homestead, the government should formulate relevant laws and regulations to the homestead and the house. The value of the house is scientifically evaluated, the measurement standard and the income formula and the reclamation of the land after the homestead exit. Through the continuous improvement of the rural homestead withdrawal system, the rural homestead withdrawal system can eventually be extended to all parts of the country.
【学位授予单位】：南京农业大学
【学位级别】：硕士
【学位授予年份】：2015
【分类号】：D923.2

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