宅基地使用權財產權化的公私法融合路徑

科學認識並合理界定宅基地使用權的權利性質，是化解宅基地“三權分置”改革難點的關鍵所在。在我國現行法秩序中，宅基地使用權自誕生之初即為公共財產無償利用權而非財產權或社會保障權。改革開放後，這種公共財產無償使用權逐步具有了私法財產權的法律地位和部分內涵，但也長期處於權利性質不清且功能紊亂的狀態。在推進中國式現代化的過程中，宅基地“三權分置”改革需要與宅基地使用權財產權化改革同步推進。為此，首先，應通過宅基地使用權財產權化改革，明確宅基地所有權、資格權、使用權在可分配和已分配宅基地兩個領域的權利性質、功能、行使條件以及在公私法上的法律表達方式;其次，應通過宅基地“三權分置”改革落實宅基地使用權的財產權化改造目標，進而實現宅基地權利體系的豐富和完善;最後，應合理區分政府與市場的邊界以及政府與集體的義務，綜合運用土地分配、住房保障、財政補貼、金融支持等多種制度保障農民在公法上的戶有所居權。

Scientifically understanding and reasonably defining the legal nature of rural homestead use rights is key to addressing the challenges of reforming the“three rights separation”system. In China's current legal framework, homestead use rights were established as non-compensatory public property use rights rather than property rights or social security rights. Since the reform era, these rights have gradually acquired private law property characteristics, yet changes in their regulatory connotation have left their legal nature ambiguous and their functions disordered. As part of advancing Chinese modernization, the“three rights separation”reform must be aligned with the property-right transformation of homestead use rights. This entails clarifying the nature, functions, and conditions for exercising ownership, qualification, and use rights within the realms of both allocable and allocated homesteads, as well as their legal expression in public and private law. Furthermore, the reform should achieve the transformation of homestead use rights into property rights, enriching and improving China's homestead rights system. Finally, based on the development goals of Chinese modernization, it is crucial to clearly delineate the boundaries between government and market roles, define the obligations of governments and collectives, and employ mechanisms such as land allocation, housing security, fiscal subsidies, and financial support to ensure farmers' rights to secure housing under public law.