自我国实行城乡二元制结构时起，宅基地一直以来主要承担农村的社会保障功能，这直接导致了宅基地及农房的保障功能占据了绝对地位，但是效率功能严重不足。随着我国工业的迅速发展、城镇化进程的快速推进以及教育、医疗等资源不断地向城市集中集中，越来越多的农民从繁重的农耕作业中得以解放，通过务工、经商、升学等方式在城市中谋取发展，并落地生根。一方面，大量农民离开农村前往城市生活造成了农村空心化严重，宅基地、农房闲置率逐渐攀升，小产权房保有量巨大；另一方面，农民的收入来源对土地的依赖愈发削弱，近年来，国家正在构建城乡统筹的覆盖全民的医疗、养老保险等社会保险体系；同时，因为经济市场的发展和城市用地资源的逐渐紧张，以及困囿于大城市职业机会的限制使得很多城市工作者在闲暇之余有去乡村度假的憧憬，导致利用宅基地和闲置农房发展民宿、乡村旅游、康疗和养老等产业成为发展经济、实现乡村振兴的时代大趋势。

这些现实国情使得宅基地传统的保障功能弱化，对显化其效率功能的要求日趋激烈，值此之际，我国开始了自上而下的宅基地“三权分置”探索，以期通过将传统的宅基地所有权、使用权分置为所有权、资格权和使用权的制度设计，在坚守宅基地保障功能的前提下，探索宅基地和农房的入市流转，在保证居者有其屋的前提下盘活闲置宅基地和农房资源，发展乡村经济、增加农房收入、推动新商业模式的发展，最终实现乡村振兴。对于闲置农房的盘活制度设计，农房自由流转的口子在未来很长时间里不能也不会开，农房租赁将会是主要流转手段之一。但改革先行，立法缺失，合同、安全等管理不规范，担保物权实现困难，小产权房无法出租，租赁期限规定缺乏合理性等，导致实践中农房租赁问题不断，要想实现农房租赁市场的蓬勃发展仍有很长的一段路要走。

本文一共包括四部分。第一部分从理论角度对宅基地“三权分置”的概念和内涵进行厘清，包括新中国成立以来宅基地的发展历程，宅基地“三权分置”中所有权、资格权和使用权的概念、内涵探究；第二部分主要探讨宅基地“三权分置”下我国农房租赁市场的发展现状，从发展农房租赁市场能够盘活闲置农房、迎合经济市场发展需要、落实乡贤返乡助力基层治理来表明发展农房租赁市场的必要性，以及梳理政策探索过程中我国现有的农房租赁模式；第三部分通过梳理我国关于农房租赁的现行立法，指出农房租赁现存租赁存在专门立法、租赁合同管理不规范、广义的小产权房不可以对外出租、房屋租赁使用权办理抵押存在制度困境等方面存在法律问题；第四部分从目前农房租赁存在的问题出发，为完善农房租赁立法和管理机制设置建言献策，以期能够为农房租赁的制度改革提出可供参考的意见。

Since the implementation of the urban-rural dual structure in China, homestead has been mainly responsible for the rural social security function, which directly leads to the security function of homestead and rural housing occupying an absolute position, but the efficiency function is seriously insufficient. With the rapid development of China's industry, the rapid advancement of the urbanization process, and the continuous concentration of education, medical and other resources to the city, more and more farmers are liberated from the heavy farming operations, through the work, business, education and other ways to seek development in the city, and take root. On the one hand, a large number of farmers leave the countryside to live in the city, resulting in a serious hollowing out of the countryside, the idle rate of homestead and farm house gradually rises, and the number of small property houses is huge. On the other hand, farmers' income source is increasingly dependent on land. In recent years, social security such as medical care and pension insurance has been gradually popularized and tilted in rural areas. At the same time, due to the development of the economic market and the gradual tension of urban land resources, the use of residential land and idle rural housing to develop residential accommodation, rural tourism, health care and elderly care industries has become a major trend of The Times to develop the economy and achieve rural revitalization.

These national conditions make the traditional security function of homestead weakened, and the requirements for its efficiency function become increasingly fierce. On this occasion, China began a top-down exploration of the "separation of three rights" of homestead, hoping to divide the traditional ownership and use right of homestead into ownership, qualification right and use right system design, on the premise of adhering to the security function of homestead. Explore the circulation of residential land and rural housing into the market, make use of idle residential land and rural housing resources under the premise of ensuring that the homeowner has his own house, develop rural economy, increase rural housing income, promote the development of new business models, and finally realize rural revitalization. For the idle rural housing revitalization system design, the free circulation of rural housing can not be opened in the future for a long time, and rural housing leasing will be one of the main circulation means. However, the reform comes first, the lack of legislation, the non-standard management of contracts and security, the difficulty in realizing the real right of security, the inability of small property houses to be rented, and the lack of rationality in the lease term, etc., have led to continuous problems in the practice of rural housing leasing. There is still a long way to go to realize the vigorous development of the rural housing rental market.

This paper includes four parts altogether. The first part clarifies the concept and connotation of "three rights separation" of homestead from a theoretical perspective, including the development history of homestead since the founding of New China, and the concept and connotation of ownership, qualification and use right in "three rights separation" of homestead. The second part mainly discusses the development status of China's rural housing rental market under the "separation of three rights" of homestead land. It shows the necessity of developing the rural housing rental market by revitalizing idle rural housing, catering to the development needs of the economic market, and implementing the villainous return to help grassroots governance, as well as sorting out China's existing rural housing rental model in the process of policy exploration. The third part points out the existing legal problems of rural housing leasing by combing the current legislation of rural housing leasing in our country. The fourth part starts from the existing problems of rural housing leasing, and provides suggestions for improving the legislation and management mechanism of rural housing leasing, in order to put forward some suggestions for the system reform of rural housing leasing.