农村“五保户”的承包地问题研究

Research on the Contracted Land Issue of Rural"Five Guarantees Households"

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摘要 “五保户”是农村可持续发展水平最差的群体之一,属于农村中绝对的弱势群体,且“五保户”未来大概率会走向消亡。故而,研究“五保户”的承包地权益保护问题,对于保障农村弱势群体的权益,规范农村土地承包关系,具有较高的作用和价值。通过案例分析后发现,“五保户”承包地的使用与处置失范现象主要表现在:第一,“五保户”生前处置承包地的行为效力不被重视或认可;第二,“五保户”消亡后其承包地归近亲属或供养人耕种但存在着确权与否的差异;第三,“五保户”消亡后其承包地被集体收回后再分配给其他主体诱发矛盾冲突;第四,“五保户”消亡后供养人使用其承包地的年限存在差异;第五,“五保户”结婚后夫妻一方死亡另一方继承土地权益被否定。“五保户”承包地问题的成因主要有三个方面:第一,相关法律制度的缺陷与不足;第二,“五保户”身份的特殊性与复杂性;第三,农村土地的集体公有与农户私权的双重属性。由此,针对性地提出了保障“五保户”承包地权益的政策建议:第一,明确“五保户”生前对承包地的各项处置权利;第二,赋予“五保户”土地退出权;第三,依法厘清“五保户”消亡后的承包地继承问题;第四,保障“五保户”中外嫁女的土地权益;第五,规范“五保户”通过合户以维护土地权益的行为。 "Five Guarantees Households"are among the groups with the lowest sustainable development capacity in rural China,representing an absolute vulnerable population.Moreover,"Five Guarantees Households"are highly likely to become extinguished in the future.Therefore,studying the protection of their contracted land rights is crucial for safeguarding the interests of rural vulnerable groups and regulating rural land contractual relationships.It holds significant value in both theoretical and practical contexts.Through case analysis,this study identifies five key irregularities in the use and disposal of contracted land by"Five Guarantees Households":Firstly,the validity of act of lifetime disposal of contracted land by"Five Guarantees Households"is often disregarded or unrecognized;Secondly,after the extinguishment of a household,its contracted land is cultivated by close relatives or caregivers,but discrepancies exist in whether land rights are formally confirmed;Thirdly,conflicts arise when collectives reclaim and redistribute contracted land after a household's extinguishment;Fourthly,variations exist in the duration of land use by caregivers after a household's extinguishment;Fifthly,denial of land inheritance rights for surviving spouses when one member of a married"Five Guarantees Households"dies.The root causes of these issues lie in three dimensions:Firstly,flaws and gaps in relevant legal frameworks;Secondly,the unique and complex status of"Five Guarantees Households";Thirdly,the dual nature of rural land ownership?(collective public ownership vs.private household rights).Thereout,this paper proposes targeted policy recommendations to protect the contracted land rights of"Five Guarantees Households":Firstly,clarifing their lifetime rights to dispose of contracted land;Secondly,granting"Five Guarantees Households"the right to voluntarily exit land contracts;Thirdly,legally resolving inheritance issues postextinguishment;Fourthly,protecting land rights of women married into"Five Guarantees Households";Fifthly,regulating collective household mergers used to preserve land right.

作者刘灵辉 LIU Ling-hui(School of Public Administration,University of Electronic Science and Technology of China,Chengdu 611731,China)

机构地区电子科技大学公共管理学院

出处《河北法学》北大核心 2025年第10期19-34,共16页 Hebei Law Science

基金 2020年国家社科基金一般项目“土地承包关系‘长久不变’背景下无地农民权益保障机制研究”(20BGL228) 四川省哲学社会科学基金重点项目“四川撂荒耕地空间格局及分类利用研究”(SCJJ23ND44)的阶段性成果。

关键词五保户承包地土地承包经营权消亡户户内继承 five guarantees households contracted land land contractual management right extinguished household inheritance within the household

分类号 DF45 [政治法律—经济法学]

作者简介刘灵辉,男,河南伊川人,电子科技大学公共管理学院教授,博士生导师,研究方向:公共政策、三农问题、城乡融合。