The dilemma and policy suggestions of the homestead circulation market in rural tourism destinations

Author: Wang Guanghao Fei Luocheng talks about Xinyi

As an important means of production and livelihood for peasants, rural homesteads play an important role in ensuring that peasants have a place to live and maintain rural social stability, and have an important social security function. In recent years, the level of urbanization in mainland China has increased significantly, and it is still in a stage of rapid development. From 2010 to 2020, the number of permanent residents in rural areas decreased by about 160 million, but the area of rural homesteads increased instead of decreasing, and the phenomenon of idle rural homesteads became increasingly serious. In this context, the mainland has issued a series of policy documents to solve the problem of idle homesteads and improve the efficiency of homestead utilization. In 2018, the No. 1 document of the Central Committee of the Communist Party of China and the State Council on the implementation of the rural revitalization strategy proposed for the first time to "explore the separation of homestead ownership, qualification rights and use rights", that is, to implement the collective ownership of homesteads, protect the qualification rights of homestead farmers and farmers' housing property rights, and moderately revitalize homesteads and farmers' housing use rights. In 2021, the No. 1 Central Document "Opinions of the Central Committee of the Communist Party of China and the State Council on Comprehensively Promoting Rural Revitalization and Accelerating the Modernization of Agriculture and Rural Areas" pointed out that it is necessary to "strengthen the management of homesteads, steadily and prudently promote the pilot reform of the rural homestead system, and explore the effective realization of homestead ownership, qualification rights, and use rights." The state has paid more and more attention to the reform of the "separation of three rights" of homesteads, which provides policy space for the circulation of homesteads, activates the market value of homesteads, and provides factor guarantees for rural revitalization.

With the increasing expansion of the scale of homestead circulation, the problems existing in the homestead circulation transaction have gradually emerged. The legitimate rights and interests of individual villagers and village collectives have not been effectively protected, such as the serious phenomenon of invisible circulation of homesteads, the imperfection of relevant laws and regulations, the ambiguity of homestead ownership subjects, and the lack of rural homestead management capabilities. At present, the homestead circulation rate is still at a low level, far lower than the farmland circulation rate in the same period, and there are certain risks and uncertainties in the homestead circulation market.

The circulation of homestead land presents certain spatial differences, and has a first-mover advantage in areas with high resource endowment value. In recent years, rural tourism has developed rapidly, which provides a new path for the revitalization and utilization of idle homesteads. At present, the cases of homestead circulation in rural tourism areas are gradually increasing, and they are becoming the pioneer and advantageous areas of the reform of "separation of three rights" of homesteads. Considering the high value of tourism resources in rural tourism areas, many industrial and commercial capitals have actively gone to the countryside and transferred to idle homesteads to develop tourism-related industries such as homestays and shops, and developed a certain homestead circulation market. The homestead circulation of rural tourism areas has not only brought rich economic returns to all relevant entities, but also become an important way to achieve rural revitalization. Therefore, the homestead circulation market of rural tourism has high research value.

1 Definition of relevant concepts

1.1 Homestead

The 2019 revised Land Management Law stipulates that homestead land belongs to farmers' collectives, and stipulates that rural villagers can only own one homestead per household, encouraging rural collective economic organizations and their members to revitalize and utilize idle homesteads and idle residences. The 2019 Notice of the Office of the Central Rural Work Leading Group and the Ministry of Agriculture and Rural Affairs on Further Strengthening the Management of Rural Homesteads (Zhong Nong Fa [2019] No. 11) stipulates that rural homesteads are collective construction land used by rural villagers for the construction of houses and their ancillary facilities, including land such as housing, ancillary houses and courtyards, excluding agricultural production land connected to homesteads and idle land occupied by farmers beyond the scope of homesteads.

The concept of homestead in the broad sense refers to the land used by rural residents for living and living, that is, the land used by rural villagers for the construction of houses and buildings and facilities related to residential life, that is, the land for housing and its necessary ancillary facilities, and the land for homestead in the narrow sense refers to the land used for rural residents to live and use for the houses built [1]. Therefore, this study defines homestead land as the land for collective construction and its ancillary facilities that can be used for building houses enjoyed by rural villagers based on their membership in the collective economic organization.

1.2 Homestead circulation

In 2018, the No. 1 document of the Central Committee of the Communist Party of China and the State Council on the implementation of the rural revitalization strategy proposed to explore the reform of the "separation of three rights" of homesteads, separating the ownership, qualification and use rights of homesteads, and emphasizing the implementation of collective ownership of homesteads, ensuring the qualification rights of homestead farmers and the property rights of farmers' houses, and moderately revitalizing homesteads and farmers' housing use rights. This kind of homestead power expansion provides policy space for homestead circulation, and various forms of homestead circulation practice exploration have also been carried out in various places. Broadly speaking, the circulation of homestead ownership and use rights also includes withdrawal, expropriation, etc., while this study only focuses on the circulation of use rights. Generally speaking, the circulation of homestead use rights includes various forms such as leasing, transferring, mortgage, and shareholding. In recent years, it has also been derived from the form of villagers transferring idle homesteads to collectives, and the collectives will unify investment and open transactions with the outside world. In homestead circulation, the most common form of usufruct circulation is leasing. For rural households with the right to use homesteads, renting out idle homesteads and farmhouses can obtain relatively generous rents, and do not affect the original rights and interests of homesteads and houses, which has a certain degree of security. Therefore, many farmers are also willing to transfer their homesteads. To sum up, focusing on the main types of homestead circulation in practice, this study defines homestead circulation as the process of renting out homesteads by members of collective economic organizations who have the right to use homesteads in order to revitalize and utilize idle homesteads.

1.3 Homestead circulation market

The term "homestead circulation market" has two levels, the broad sense of the homestead circulation market refers to the sum of all the trading activities that occur in the process of homestead circulation, and the narrow sense of the homestead circulation market refers to the homestead circulation has its fixed place, such as Yiwu City, Zhejiang Province through the homestead "three rights separation" reform of the formation of the land voucher market is a narrow sense of the homestead circulation market. Farmers exchange their homesteads for houses in cities and towns to live in cities and towns or withdraw from homesteads, etc., which have a fixed place and need to be listed or auctioned on the Yiwu property rights trading platform [2]. It should be emphasized that the homestead circulation market in this study does not include the homestead circulation market such as the expropriation, withdrawal, and transfer of homesteads, but only refers to the homestead use right circulation market. At present, according to the measures for the management of homestead circulation promulgated by the state, the circulation of homestead use rights is limited to the collective economic organization, that is, the right to use homestead land can only be transferred among the members of the collective economic organization. However, in the actual research process, in order to capitalize the homestead, many rural households have adopted methods such as "invisible circulation" to transfer the right to use the homestead to people other than the members of the collective economic organization, including villagers from other villages and foreign industrial and commercial capital.

To sum up, the homestead circulation market defined in this study refers to the circulation market formed by the members of the collective economic organization who transfer the right to use the homestead land to other entities in order to realize the capitalization of the homestead, and the homestead use right is freely circulated among the trading entities.

1.4 Rural tourism destinations

Rural tourism destinations are a type of tourist destination and the basis of rural tourism activities [3]. At present, there are many studies on rural tourism destinations at home and abroad, and the definition of rural tourism destinations is also different. Liu Chengliang et al. [4] believe that rural tourism destinations are tourist destinations based on rural natural ecological landscapes, rural industries, and rural culture. You Haitao et al. [5] believe that rural tourism destinations refer to a type of destination that provides tourists with rural products, services and experiences. Zhang Shiyu et al. [6] defined rural tourism as the place where rural tourism activities take place, with certain rural natural or human resources, and can meet the needs of tourists for rural tourism.

It can be found that although there is no unified definition of the concept of rural tourism destination in the academic circles, it is all centered on rurality. Therefore, this study defines rural tourism destinations as areas that can provide tourists with rural tourism activities within the scope of rural areas, based on certain natural and cultural tourism resources, and with considerable facilities and reception capacity.

2 Research status of homestead circulation

2.1 Research on the necessity of homestead transfer

Under the background of the reform of "separation of three rights" of homesteads, the circulation of homesteads can not only realize the property rights and interests of farmers, but also realize the efficient allocation of rural land resources, which meets the needs of rural revitalization. Based on this, the academic community has carried out a series of studies on the necessity of homestead transfer. First of all, scholars have analyzed the rationality of homestead circulation, and most of them believe that with the change of homestead function and the development of market economy, the circulation of homestead land should be allowed to highlight the capital value of rural land [7] to meet the needs of practical development [8]. Secondly, scholars analyzed the causes and values of homestead circulation, and believed that the vacancy and idleness of homestead land is a major cause of rural decay [9], and that the circulation and integration of rural homestead land is conducive to the efficient and intensive use of land, the strengthening of collective economic strength, the improvement of rural governance capacity, and the realization of effective governance requirements in rural revitalization [10]. Some scholars have analyzed the main body of homestead circulation and believe that the current homestead circulation is still limited to the collective economic organization, and in the future, rural households' homestead should be allowed to circulate and mortgage conditionally inside and outside the collective economic organization on a voluntary and compensatory basis [11]. Finally, some scholars have demonstrated the necessity of homestead circulation through empirical analysis, and found that homestead circulation is of great significance for revitalizing rural land assets and sustainable use of land resources [12], which can play a positive role in community environment and farmers' income increase, promote the growth of farmers' property income, and achieve the goal of reform and growth [13,14].

In summary, it can be found that the academic community has carried out in-depth research on the necessity of homestead circulation, including the background, rationality, causes and value of homestead circulation, which has laid a solid foundation for this study.

2.2 Research on the circulation of homesteads in rural tourism areas

At present, there are few studies on the homestead circulation of rural tourism destinations, and only some scholars have made a preliminary analysis of the dilemma and revitalization and utilization of rural tourism homestead circulation. In terms of the dilemma of homestead circulation in rural tourism destinations, factors such as insufficient construction of service facilities, lack of brand building in the tourism industry [15], virtual ownership of homesteads, ambiguity of the main body of tourism, lack of circulation mechanism for homestead tourism utilization, limited circulation of market transaction information, and insignificant role of tourism in local economic development [16] have become the main constraints. As a result, both the exporting and transferee households could not obtain effective information in a timely manner, and the tourism industry in the villages also lost development opportunities [17]. In view of the dilemma of homestead circulation in rural tourism areas, many scholars have put forward relevant countermeasures and ways to revitalize the utilization, such as improving the right to use homesteads, optimizing the supply structure of rural tourism, establishing institutionalized homestead circulation [18], improving tourism service facilities, and optimizing tourism operation models [19].

In summary, it can be found that the current attention to the homestead circulation of rural tourism is low, and there are few academic studies, and there are still many problems in the homestead circulation of rural tourism in practice, and the path of revitalization and utilization is still unclear, so this study is of great significance for optimizing the homestead circulation of rural tourism areas.

2.3 Research on the homestead circulation market

On the whole, the current academic research on the homestead circulation market needs to be strengthened. The development of the homestead circulation market is closely related to institutional changes [20], and the standardized circulation of homestead is inseparable from the establishment of an orderly market, but the homestead circulation market has always existed in an invisible way, lacking management and guarantee, resulting in a series of homestead circulation problems. An open and orderly circulation market can strengthen the efficient circulation of homestead circulation information, avoid the property losses caused by farmers' poor ability to obtain market information to a certain extent, and effectively reduce disputes [21]. At present, Yiwu City has a well-developed domestic homestead circulation market, which has formed four markets: the homestead paid location selection market, the homestead area paid adjustment market, the homestead paid use market, and the land voucher market [22].

To sum up, it can be found that the homestead circulation market is still in its infancy in practice, and there is no standardized and orderly homestead circulation market in various places, which is unfavorable to the protection of the rights and interests of all parties involved in the homestead circulation, and it is necessary to establish a standardized homestead circulation market as soon as possible.

3 The dilemma of the homestead circulation market in rural tourism areas

3.1 The homestead circulation market is less developed

At present, the development degree of the homestead circulation market in rural tourism is low. Many circulation entities may have the willingness to transfer, but in fact do not choose to transfer out or transfer to the homestead, which may have the following reasons: First, the transferor does not have a reliable circulation platform to transfer the homestead, and the transferor cannot well understand the effective information of the other party and other circulation subjects, resulting in the transferor wanting to transfer out of the homestead but cannot find a suitable transfer-in party to transfer out, or the transfer-in party wants to transfer the homestead but cannot find a suitable transfer-out party to transfer out. Second, the local circulation policy publicity is not in place, and many circulation subjects can not understand the latest homestead circulation norms, and are worried that their own rights and interests will not be well protected after circulation, so they are unwilling to transfer out or transfer to homesteads.

3.2 The price of homestead circulation is relatively confusing

The price of homestead circulation is different from the general commodity price, and the circulation price of homestead land includes not only its economic value, but also its social security value, emotional value, ecological value, and cultural value [22]. Therefore, the circulation price of homestead land cannot only consider its economic value, but its circulation price is the result of a comprehensive evaluation of the above value. This may lead to a large difference in the price of the same homestead for different parties to the homestead transfer transaction. At the same time, the circulation price of homestead has not yet formed a unified standard, and many transfer-out households are not unwilling to transfer out of homestead, but because there is no good reference case when transferring out of homestead and a good homestead circulation platform has not been established, so many circulation subjects can not accurately assess the price of homestead, resulting in the circulation price of homestead is relatively chaotic.

4 Policy recommendations

4.1 Implement the registration of homestead ownership

The implementation of homestead ownership confirmation registration is an important measure to promote the steady development of the homestead circulation market. The basis of the circulation of homestead is the "separation of three rights" of homestead, and the registration and issuance of certificates is an important guarantee for the operation of "separation of three rights" of homestead. The implementation of homestead ownership confirmation registration can clarify farmers' homestead use rights, solve the problem of unclear homestead ownership, help farmers establish legal awareness, and effectively safeguard farmers' rights and interests. At the same time, the implementation of homestead ownership confirmation registration can provide a legal basis for the circulation of homesteads, and a clear property right relationship can promote the orderly circulation of homesteads, effectively solve the disputes in the circulation of homesteads, and make the homestead circulation market develop in a stable and orderly manner. In addition, the registration of homestead ownership is a stable guarantee for farmers' homestead rights and interests, which can enhance farmers' confidence in the circulation of homesteads, and farmers no longer worry about the long-term circulation of homesteads, improve farmers' stability expectations, and promote farmers to transfer out of homesteads. Finally, the registration of homestead ownership can enable local governments and village collectives to better manage homesteads, better serve the work of homestead circulation, and further promote the reform of the homestead circulation system.

4.2 Establish a reasonable homestead rent system

First, the determination of homestead rent should be based on a scientific evaluation system, and a set of evaluation standards that comprehensively consider factors such as area and location should be formulated according to the differences in different regions, so as to carry out a comprehensive value assessment. Second, the homestead rent system should be flexible and differentiated to adapt to the specific conditions of different regions. For example, the market value of homesteads in the suburbs of cities, areas with convenient transportation or rich tourism resources should be higher, and the rent standards can be appropriately reduced in remote suburbs and areas with inconvenient transportation, so as to increase farmers' willingness to transfer. Third, the level of homestead rent should be determined by the market, a reasonable homestead rent system is also inseparable from the role of the market, the government can set up a homestead circulation trading platform, so that the homestead transaction is carried out on the circulation platform, the independent formation of homestead rent level, in which the government can be through supervision, guidance and other means to ensure fair competition in the market, to prevent the occurrence of market failure. In addition, the government can also set up a rent subsidy mechanism to provide certain rent support to low-income people to ensure that they can participate fairly and share the fruits of the reform.

4.3 Increase policy support after the transfer of homesteads

Therefore, how to protect the legitimate rights and interests of the transferee and increase the income of the transferee is the key to promote the stable development of the homestead circulation market.

The transfer of the subject to the homestead is to use the homestead for the production and operation activities of the income, so the support of relevant policies is the key driving force for the transfer of the subject to the homestead, in order to better support the production and operation activities of the transfer of the main body, can provide support in terms of financial policies, circulation policies, etc. In terms of financial policy, the government can provide certain tax exemptions and exemptions to the main body of homestead transfer, and all groups who transfer homesteads for commercial activities can enjoy preferential tax policies, which can not only reduce the burden of the transfer-in party and encourage the transfer-in behavior of the transfer-in subject, but also improve the attractiveness of homestead circulation and promote the flow of more funds into the homestead circulation market. Secondly, the government can give certain circulation subsidies to individuals or enterprises that meet the subsidy conditions, so as to reduce the pressure on the circulation funds of the transferred subjects and improve their enthusiasm for circulation.

Authors: Wang Guanghao, Fei Luocheng, Tan Xinyi, School of Geography and Tourism, Anhui Normal University

Fund: National Natural Science Foundation of China "Research on the Formation Mechanism, Risk Measurement and Policy Design of Capital Circulation of Rural Homesteads" (72073001) Anhui Provincial Philosophy and Social Science Planning Project "Research on Micro Subject Behavior and Policy Design of Homestead Circulation in Huizhou Ancient Village Area" (AHSKQ2020D19)

About author:WANG Guanghao (1999—), male, from Lu'an, Anhui Province, master candidate, research direction: rural land system reform; *Fei Luocheng (1985—), male, from Dangtu, Anhui Province, associate professor, Ph.D., research direction: rural land management. Tan Xinyi (1998—), female, from Yixing, Jiangsu, master's degree candidate, research direction: homestead system reform.

Source: Journal of Rural Economy and Science and Technology