东岳论丛

农村宅基地有偿使用制度改革是2020年以来全国“新一轮”宅基地制度改革试点的探索内容之一，针对“多宅”、面积超标、非本集体成员继承、跨集体实现资格权等情况的有偿使用探索“自上而下”推行较难，亟待对这一现实问题进行理论研究，构建农村宅基地有偿使用政策实施的“集体行动逻辑”。以禹城“全域有偿使用改革”成功案例为样本，运用行动者网络理论，识别宅基地有偿使用政策实施中的各类行动者，发现“强制通行点”,解构转译过程，揭示宅基地改革中行动者网络构建的历程。研究发现：中央政府、地方政府、集体经济组织、村干部、村民以及第三方专家都是有偿使用政策实施网络中的行动者；宅基地有偿使用政策实施进行了两步转译过程，中央政府是第一层转译的核心行动者，在行政系统内部围绕制度建设形成“中央政府+制度”的行动者网络；地方政府是第二层转译的核心行动者，在基层行政系统和自治系统之间进行征召，形成“地方政府+村民”的行动者网络。行动者网络的构建过程仰赖行政系统和自治组织的良性互动，自主治理在其中表现出明显的优越性，畅通的信息传递渠道是网络构建的关键。推进宅基地有偿使用制度改革需要完善制度体系，明确行政机关和自治组织的权利，以村民为核心构建行动者网络，通过畅通沟通渠道，增强行动者网络的凝聚力。

The reform of the paid use system for rural homesteads is one of the exploration contents of the national "new round" of homestead system reform pilot since 2020.It is difficult to implement the paid use exploration from top to bottom for situations such as "multiple homesteads",excessive area,inheritance by non members of the collective,and cross collective realization of qualification rights.It is urgent to conduct theoretical research on this practical problem and construct a "collective action logic" for the implementation of the paid use policy for rural homesteads.The article takes the successful case of Yucheng's "comprehensive paid use reform" as a sample,applies actor network theory to identify various actors in the implementation of the policy of paid use of homestead land,discover "mandatory access points",deconstruct the translation process,and reveal the process of actor network construction in the reform of homestead land.It is found that:The central government,local governments,village collective economic organizations,village cadres,villagers,and third-party experts are all actors in the implementation network of paid use policies.The implementation of the policy of paid use of homesteads has undergone a two-step translation process.The central government is the core actor of the first layer of translation,forming a network of "central government+system" actors within the administrative system around institutional construction.Local governments are the core actors in the second layer of translation,recruiting between grassroots administrative systems and autonomous systems to form an actor network of " local governments+villagers".The construction process of actor networks relies on the positive interaction between administrative systems and autonomous organizations,in which autonomous governance shows obvious advantages.Smooth information transmission channels are the key to network construction.To promote the reform of the p aid use system for homestead land,it is necessary to improve the institutional system,clarify the rights of administrative organs and autonomous organizations,build a network of actors with villagers as the core,and enhance the cohesion of the actor network through smooth communication channels.