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宅基地制度形成于20世纪60年代,该制度下集体公有的土地与农民私有的住宅构成中国特色的农民住宅制度。该制度满足了我国农民的基本居住需求,是农民享有的基本土地权利。宅基地制度涉及的权利复杂,包含住宅所有权、土地所有权、土地使用权、农民居住权及农村集体权利。现行法律与相关政策在宅基地使用权的内涵及取得、使用、收益、流转等方面的规定存在漏洞与冲突。随着社会变迁,城镇化进程的推进,一味坚持房地一体原则与宅基地使用权的身份性会损害农民享有的财产利益,亦无法为整个社会带来正面效益。为使该制度不致过于僵化,也不致因宅基地之自由流转而引发社会动荡,需要适度改造。制度的创新,须挖掘传统物权法中的制度资源,对宅基地使用权进行层级构造,在宅基地使用权上设立地上权,在不触及土地公有格局与宅基地使用权身份性的同时,为宅基地及地上房屋开辟出入市流转的渠道。
The system of housing sites was formed in the 1960s. Under this system, the collectively-owned land and the privately-owned houses of peasants constitute the peasant housing system with Chinese characteristics. The system meets the basic living needs of peasants in our country and is the basic land right enjoyed by peasants. The rights of the homestead system are complicated and include residential ownership, land ownership, land use rights, peasant residency rights and rural collective rights. Existing laws and related policies in the use of homestead connotation and access to, use, income, circulation and other aspects of the provisions of loopholes and conflicts. With the social changes and the progress of urbanization, insisting on the principle of integration of premises and the identity of the right to use housing sites will damage the property interests enjoyed by peasants and will not bring positive benefits to the entire society. In order to prevent the system from being too rigid and not to cause social unrest due to the free circulation of housing sites, it needs to be moderated. The innovation of the system must excavate the system resources in the traditional real right law, construct the right of use of housing sites hierarchically, and set up the right of the above ground on the right of use of homestead. Without denying the public ownership of the land and the right of use of the sites, And open up the market on the housing transfer channels.