西部重点搞合作金融，东部重点搞商业银行，中部则两者兼顾，农村金融改革应该有一个顶层设计

Western important make financial cooperation，The eastern key make commercial bank，The central of both，The financial reform in the rural areas should have a top design

　　八问丽水农村金融改革之三本报记者

8 q lishui rural financial reform 3 our correspondent

　　王月金

WangYueJin

　　见习记者

Trainee reporters

　　谷力

GuLi

　　丽水农村金融改革通过建立信用体系平台，解决了银行和农户信息不对称的问题，而且林权抵押解决了银行贷款抵押问题，从信息对称和抵押物两方面解决了农村金融发展的根本问题，从而使得农民贷款便利，银行敢于放贷。在实践中，丽水金融改革也遇到一些难以逾越的瓶颈。

Lishui rural financial reform through the establishment of the credit system platform，Solve the bank and farmers information asymmetry problem，And solve the forest right mortgage bank loan mortgage problems，From the two aspects of the mortgaged property information symmetry and solve the rural financial development of the fundamental problems，Thus makes the loan is convenient，Bank lending to。In practice，Lishui financial reform met some also insuperable bottleneck。

　　抵押物问题 Pawn problem

　　“如果抵押物的问题不能给彻底解决掉，农民贷款难的问题始终还是存在的。”人民银行丽水市中心支行副行长王筱琴说：“在法律层面上，有些东西是值得研究的，比如说农房的问题，国家从社会稳定的角度来说，把农房作抵押，贷款出现风险了，总不能真把农民从房子里面赶出去吧？从这点来说，农房确实不适合做抵押物。但是中国农民手里面最大的资产，一个是森林资源，再一个就是房子。”

“If the problem cannot be mortgaged property to completely out of it，Farmers' difficulty in getting loans still exist。”The people's bank of lishui, vice governor of the central subbranch WangXiaoQin said：“Both in law，Some things are worth studying，For example NongFang problem，Countries from the point of view for social stability，The NongFang as a pledge，Loans appear risk，Always can't really put farmers from inside the house out it？From this point，NongFang don't really fit for the mortgaged property。But China's farmers hand inside the biggest assets，One is the forest resources，Another is a house。”

　　在她看来，森林不是所有地方都有的，只有像丽水这样森林覆盖率很高的地方，才可以做林权抵押。全国大部分的农民是没有这种资源的，但是房子这个资源是人人都有的。而法律层面上，集体土地上的房子不能做抵押，抵押无效。

In her eyes，The forest is not all place some，Only such as lishui forest coverage rate is very high place，Can do forest right mortgage。The majority of farmers did not have the resources，But the house this resources all have one。And the law level，The collective land house can't do mortgage，Mortgage invalid。

　　记者调查发现，丽水有些农民老家有套房子，进城里打工，在城里又买了一套房子，许多农民想把家里的那套房子拿去做抵押贷款，但现在法律不允许。“这是最大的瓶颈。这条路要是走得通的话，农民贷款难的问题就很好解决了。”丽水市一位不愿透露姓名的银行界人士对记者说。

A survey revealed that，Some farmers to their hometown lishui a house，Work into the city to，In the city and bought a house，Many farmers want to put the home of the house with the mortgage，But now the law does not allow。“This is the biggest bottleneck。The road if go through it，Farmers loans the difficult question is very good solve。”A lishui of anonymity, bankers say to the reporter。

　　在云和县凤凰山街道柘园村，记者看到一栋栋楼房错落有致地卧在山脚下，村支书雷贤坤对记者说：“如果这些楼房能抵押贷款就好了，这些村民的房子质量不比城里的差，目前我们村的村民贷款一般是用信用评级和林权抵押贷款，房屋抵押是不允许的。”

In the clouds and county phoenix mountain village streets zhe garden，The reporter sees going buildings strewn at random have send to lie down at the foot of the mountain，CunZhiShu LeiXianKun told reporters：“If these buildings can mortgage loan，These villagers house than the poor quality of the city，At present we village villagers the loan is usually use credit rating and forest right mortgage，Housing mortgage is not allowed。”

　　记者了解到，除了林权抵押贷款外，丽水各金融机构目前还创新推出茶园抵押贷款、石雕抵押贷款、香菇仓单质押贷款等方式，房屋抵押是不允许的。

The reporter understands，In addition to the forest right mortgage loans，Lishui all financial institutions are innovation launch tea garden mortgages、Stone carving mortgage loans、Mushrooms warehouse receipt pledge loan way, etc，Housing mortgage is not allowed。

　　北京市双强律师事务所律师郁有振对本报记者说，农村的房屋和宅基地是不可分离的，我国《土地法》规定，农村宅基地属“农民集体所有”，其法律意义是农民只有使用权而无处置权。《担保法》第37条第2项明确规定，农村的宅基地不能抵押。同时，《物权法》第184条第二款也明确禁止农村宅基地使用权进行抵押。既然农村的房屋和宅基地是不可分离的，抵押房屋若不一同转移宅基地，那就从根本上否认了房屋这一不动产的抵押特性。

Beijing double strong lawyer of yu have vibration to our correspondent said，And the houses of the rural land is not be separated，Our country《midway》provisions，Rural residence of“The farmer collective all”，Its legal significance is only use and no disposition farmers。《Security law》Article 37 a 2 explicitly，Rural homestead cannot mortgage。At the same time，《Property law》Article 184, paragraph 2 of the countryside homestead right of use also explicitly banned for mortgage。Since the housing and rural homestead are inseparable，Mortgage house if not transferred together homestead，That is fundamentally denied that the house of a real estate mortgage characteristics。

　　目前，在全国个别地区也出现农民用农房抵押贷款的事情，但只限于试验，一位不愿透露姓名的专家对记者说，“农房是农民手上最大的资源，如何把它利用起来，这才是关键。但是现在法律上说不允许，其实既然是改革，就该允许人家去试，东部地区和西部地区的差异性是很大的，东部地区经济较为发达的地方，可以在适当范围内允许农房抵押。而中国的法律是一刀切的，集体土地上的房子不能做抵押，那么农民又能拿什么去抵押？”

At present，In some areas in the country also appear in NongFang farmers mortgage things，But only test，One does not wish to be named, experts say to the reporter，“NongFang is the biggest resources on farmers，How to use it up，This is the key。But now the law say not allowed，In fact since is reform，Is this allows people to try，East and west of the difference is very big，The more developed eastern region of the place，At the right range allows NongFang mortgage。And the law of China is a "one size fits all，The collective land house can't do mortgage，Farmers then got what to go to mortgage？”

　　中国农业大学金融系教授臧日宏则对记者说，现在银行做农村房屋抵押，都是折价抵押。为什么农村房子只给贷出来50%？农村房子不值钱。如何来估价？这个问题现在也很突出，应该由银行和农户共同选一个机构来进行估价。

China agricultural university professor of finance society (afs ZangRi macro is told reporters，Now the bank do mortgage，Is the mortgage at a discount。Why rural house just to give loans out 50%？The house is not valuable。How to appraisal？The problem now is very outstanding，By Banks and farmers should be to choose an agency to price。

　　“在国内，农民一户养个三两头猪，抵押给银行，怎么监管？成本太高。”王筱琴表示，“在美国，农业现代化程度高，都是农场主，因为农场农庄的规模大，资金需求也大，规模化专业化生产，第三方监管可以介入。可以做生猪抵押贷款，可以有人专门负责帮助银行看护猪。”

“In the domestic，Farmers a three families having two pigs，Mortgaged to the bank，How to supervision？Cost is too high。”WangXiaoQin said，“In the United States，A high degree of agricultural modernization，Are farmers，Because of the large scale farm farms，Capital demand，Large-scale specialized production，The third party supervision can intervene。Can do the live pig mortgages，Can someone special responsible for helping Banks care pig。”

　　“抵押物的创新是多种多样的，实物资产、权利都可以作为抵押品。有些权利，理论上可以去做，政策上也允许去做，但是在实际操作中还没有，比如农村土地使用权、农村领域的一些专利技术。”中国农业大学金融系教授何广平在接受本报记者采访时表示，现在有些地方在搞试点，但没有全面推开，在操作上有一些难度，存在着一些困难：一是要素市场不完善；二是法律制度还存在着一些障碍；三是还有一些社会因素。“比如农民土地使用权作抵押，最后贷款还不上，土地使用权被处置的话，是个问题。因为现在还有很多农户是把土地作为最基本的生产资料，如果土地使用权被处置了，他们最基本的生存基础没了，对整个社会的稳定是不利的。”

“The innovation of the mortgaged property are diverse，Physical assets、Rights can be as collateral。Some rights，Theory to do，Policy also allowed to do，But in practice is not，Such as rural land use right、Rural areas of some patent technology。”China agricultural university professor colloids in accept finance society (afs our newspaper reporter to interview said，Now some places doing experiments，But no full implementation，There are some difficulty in operation，There are some difficulties：One is the essential factor market not perfect；2 it is legal system also exists some obstacles；3 is there are some social factors。“Such as farmers' land use rights as a pledge，Finally the loan is not，The land use right is disposed of words，Is a problem。For now there are many farmers is the land as the most basic production material，If the land use right is disposed of，They are the most basic survival foundation didn't，On the whole social stability is unfavorable。”

　　风险问题 Risk problem

　　目前来看，丽水金融改革中的风险得到了有效控制。丽水市市长王永康近日表示，丽水市金融运行的基本面是平稳的，大多数企业的资金链、担保链是安全的。但当前金融领域存在的风险不断加大，必须高度重视。他强调，要完善金融应急预案，健全风险预警体系，及时、果断、妥善处置各类突发性金融事件。

So far，Lishui in the reform of the financial risk effectively controlled。The mayor of lishui WangYongKang said recently，The fundamentals of financial operation of lishui is smooth，Most of the enterprise's capital chain、The chain is the guarantee security。But the current financial field increasing the risk，Must attach great importance to。He stressed that，To perfect the financial emergency plan，Sound risk early warning system，timely、decisive、Proper disposal of sudden financial events。

　　但农村的经济活动是一种弱质产业，主要体现在成本高、风险大。风险主要在于农民靠天吃饭，承受其他经济活动所无法比拟的自然风险。对此，服务于农村、中小企业和弱势群体的银行，面临着成本高、风险大的金融服务本质，这使其对农村金融市场敬而远之。

But the rural economic activity is a kind of a weak industry，Mainly reflects in high cost、Risk is big。The main risk is to rely on the farmers，Bear other economic activities could comprehend nature risk。this，Service in the rural、Small and medium-sized enterprises and the bank of vulnerable groups，Faced with high cost、Risky financial services essence，This made it on the rural financial market at a respectful distance。

　　“现在农户贷款仅占全国贷款余额的5%左右，这个比例是很低的，贷款的供不应求现象非常严重。不管怎么去设计现代农村金融制度，资金都不够，不能满足农村对于资金的需求。”中国农科院农业经济与发展研究所农村发展研究室主任夏英说：“从功能上来说，农业的供给、三农的需求，通过制度的设计以及不同主体在农村金融市场上的竞争而非垄断，能达到供需平衡，这就是其根本目的。

“Now farmers loans accounted for only about 5% of the loan balance，The proportion is very low，The supply of loan phenomenon is very severe。No matter how to design the modern rural financial system，Funds are not enough，Can not meet the needs of the rural to capital。”Chinese academy of agricultural economic and development institute rural development director of research XiaYing said：“From the function for，Agricultural supply、The needs of the agriculture, rural areas and farmers，Through the design of the system and the different main body in the rural financial market competition and the monopoly，Can reach the balance of supply and demand，This is the fundamental purpose。

　　夏英认为，在很长一段时间内，中国农村仍然需要不完全以营利为目标的政策性金融支持。在她看来。与大量直接投入到农村的财政资金相比，政策性金融模式相比具有更高的效率，因此，应该围绕农发行来打造更加强有力的政策性金融体系，实现对农村建设与农民生活的全面支持。

XiaYing think，In a very long period of time，China's rural still need not completely profit target policy and financial support。In her eyes。Directly into rural and large finance capital of compared，The policy financial model is higher than the efficiency，so，Should be to build a more powerful around economy.in view of the policy financial system，To achieve rural construction and the full support of farmers' life。

　　但目前国内很多地区的农村信用社纷纷向农商行转变，政策性金融支持面临弱化的趋势，在丽水龙泉农信社理事长办公室，记者就看到要求该信用社加快朝农商行转变的文件。中国社科院农村发展研究所研究员任常青提醒，不要对商业金融支持“三农”寄予期望过高，如果不能做到风险收益有效匹配，商业银行撤出农村领域是难以避免的。

But at present domestic in many parts of the rural credit cooperatives in succession to agriculture business transformation，The policy financial support face of the weakening trend，In lishui longquan of rural credit cooperatives office，The reporter saw has asked the credit cooperatives to speed up the agriculture of change in business documents。By the Chinese academy of social sciences researcher at the institute of rural development of evergreen remind，Don't to business and financial support“Agriculture, rural areas and farmers”Expected too much of the expected，If you can't do venture gains effective matching，Commercial Banks to withdraw from the rural areas is unavoidable。

　　不仅如此，也有业内人士向记者表示：“可能的后果是商业银行从农村吸收贷款后，资金没有用在对三农的支持放贷上，更多流向了城镇那些高收益的投资领域，这样一来，有可能农村金融体系成为了农村金融的抽水机。”

Not only that，Also have the professional to reporters：“Possible effects is the commercial Banks from the countryside after absorbing loans，Money put in agriculture, rural areas and farmers to support on lending，More into the town high yields the area of investment，so，May the rural financial system become the rural financial water pump。”

　　“对于我们来说，当然是政策越支持越好，这样我们在农村金融市场竞争中也有优势，但现在都说朝向农商行转。”龙泉农村信用联社理事长宋武龙对记者说，农商行对股东负责，转制成功后，农信社的经营理念难免要做出一些调整。

“For us,，Of course is the more the better policy support，So we in the rural financial market competition also have an advantage，But now all say toward the farming business to turn。”Rural credit association of longquan SongWuLong told reporters，Agriculture firm to shareholders，Transfers after the success，The principle of management of the rural credit cooperatives is inevitable to make some adjustments。

　　“农村金融风险还可能来自监管不到位。”任常青对记者说，像过去的农村合作基金会，出现过监管不到位、地方政府过度干预等问题。目前，有的县的银监局可能就两个人，人手短缺，监督起来比较困难，他们也不希望农村金融机构太多。

“The rural financial risk may also come from poor oversight。”As evergreen told reporters，Like the past rural cooperative foundation，Appeared the regulation is not in place、The local government problems such as excessive intervention。At present，Some county of the CBRC may be two people，shorthanded，It is difficult to supervision，They also do not want too many rural financial institutions。

　　此外，林权抵押有可能把风险转移到金融机构。郁有振说：“实际抵押的是林产品的收益权，按照我们法律规定，农村林权流转应在坚持家庭承包经营制度的基础上规范有序进行，在同等条件下，本集体经济组织成员享有优先权，通过家庭承包获得的林权流转需要征得发包方的同意；如果农民无力偿还贷款，银行在处置林权这个抵押物时会非常棘手，最终风险还是会转移到银行的。”

In addition，Forest right mortgage may change the risk transfer to financial institutions。Yu have vibration said：“The mortgage of the real is the earnings of the forest products，According to our laws，Rural forest right circulation should be on the household contract management system based on an orderly，In the same conditions，The collective economic organization members enjoy a right of priority，Through the family contracting the forest right circulation need to get the consent to agree；If farmers unable to repay the loan，Banks in the forest when the mortgaged property disposal is tricky，Eventually risk or will be transferred to the bank。”

　　体制问题 system

　　“农村信用体系建设一开始难到什么程度？市委开常委扩大会议，四大班子领导全到，会上书记拍板儿下来："我和市长各去两个村，其他所有的副厅级以上干部，必须一人一个村，都要下去。"在人民银行丽水市中心支行行长孔祖根看来，这就像以前的土改一样。“没有市委市政府的大力推动，农村信用体系建设搞不起来。”

“The rural credit system construction began a difficult and to what degree？Open enlarged meeting of the standing committee of municipal party committee，Four big team leadership to all，The meeting, secretary of the clappers son down："I and the mayor to two village，All of the other more than a pair hall class cadre，Must a man a village，Will go down。"The people's bank in lishui central subbranch President KongZuGen opinion，It is like the previous land reform。“No municipal government in the boost，Rural credit system construction make to do not get up。”

　　丽水市委书记卢子跃表示，央行把农村金融改革试点放在丽水，这是丽水的重大机遇，丽水成立了专门的领导小组，积极协调全面推进此次金融改革试点，希望能够建成一套更周到、更便捷、助农力度更大的现代农村金融服务体系，推进城乡统筹发展。

Lishui party secretary LuZiYue said，The central bank of rural financial reform pilot in lishui，This is a major opportunity to invasion，Lishui has established the special leading group，Actively promote the coordination of financial reform pilot，Hope to be able to build a more thoughtful、More convenient、The peasants strength more modern rural financial service system，Promote the balanced urban and rural development。

　　记者了解到，包括建立林权管理中心、森林资源收储中心、林权交易中心和森林资源调查评估机构，如果没有丽水市政府的大力支持，单靠金融机构是完不成的。但有专家提出质疑，这需要耗费当地政府大量的财力物力，丽水属于东部发达省份的不发达地区，还有这个财力，如果内陆偏远的地区，这个方式是否可行还未知。

The reporter understands，Including the establishment of forest property management center、Forest resources collection center、Forest right trade center and forest resources investigation appraisal institution，Without the strong support of the government of lishui，Only by financial institutions is to finish。But experts questioned，It takes a lot of local government resources，In the eastern provinces of lishui developed the underdeveloped areas，And this money，If remote areas，This method is feasible still unknown。

　　不仅落后地区，就是发达地区，如果当地政府在体制机制上不重视，不着力构建农村金融服务创新体系的“基础平台”，农村金融改革也会大打折扣，本报记者在浙江义乌采访时就遇到这个问题。当地人民银行支行有工作人员对记者说：“农村信用评级，我们的设想也很好，但推行起来难度很大，商业银行不会花钱去建立信用数据库的，即使建了，也是农村少数优质客户的数据库，也不会和别的机构分享，而政府在这方面财力不支持，统一的数据库建起来很难。”

Backward area not only，Is developed areas，If the local government in system mechanism not value，Don't focused on building the rural financial service innovation system“Foundation platform”，The rural financial reform will also sell at a discount greatly，Our correspondent in zhejiang yiwu interview I met the problem。The local people's bank branch have staff told reporters：“Rural credit rating，Our idea is very good also，But pushing up very difficult，Commercial Banks won't spend money to establish credit database，Even if built，Also is the countryside a few high quality customer database，Also won't and other agencies to share，And the government in this respect money does not support，Unified database built is difficult。”

　　而且，金融机构的管理体制对农村金融的发展也形成了制约。“比如农行，农行的贷款审批权不在县里，都在市里、省里。市里、省里如何能知道某个村的某位农民的具体情况？”任常青认为，小型的金融机构应该分类进行监管，不应该像监管大银行一样来要求。“小型的商业银行，只要是产权清晰的、治理结构比较好的、比较自律的，不会出现什么违规的情况。如果仅仅拿监管能力不足来说事儿，把金融市场摁得死死的，那这个市场永远也发展不起来。既然丽水农村金融改革是试点，就应该试着把民间资本明朗化、合法化，失败就失败了，应该允许失败。如何建立完善民间资本进入金融领域之后的管理制度与监管机制，也是这次试点重点讨论的问题。”

and，Financial institutions to the management system of rural financial development also formed the restriction。“Such as the agriculture bank，The agriculture bank loan examination and approval power not in the county，Are in the city、province。city、How can know a province in the village of the specific conditions of a farmer？”Evergreen think of，Small financial institutions should sort supervision，Should not be like big Banks to request supervision。“Small commercial bank，As long as it is clear property rights、Governance structure is good、More self-discipline，Won't appear what illegal。If only take regulatory ability for lack of it，The financial markets to press the log，The market will never rise。Since lishui is rural financial reform pilot，You should try to private capital focus、legalized，Failure would have failed，Should be allowed to fail。How to establish and improve the folk capital into the financial sector of the management system and after supervision mechanism，Is this pilot mainly discussed the problem。”

　　而夏英则认为，丽水只是一个地级市，其可能达到的效果是有限的。我们国家农村比城市大得多，资金需求量也很大，盘子很大，而光在这么小的一个地方搞试点，容易施展不开。在她看来，金融产品特别看重规模化，应该在更大范围内搞试点。“比如西部地区农民更穷，商业银行不会去那儿，那就搞合作金融；东部地区重点搞商业银行，中部地区则两个都搞，农村金融改革应该有一个整体的顶层设计、规划布局。”

And XiaYing is considered，Lishui is a locally administratered level，The effect can be reached is limited。Our country rural than the city，Capital demand is also big，Plate big，And the light in such a small place make pilot，Easy to cast away。In her eyes，Financial product special value scale，Should be in wider range make pilot。“Such as the western region more poor farmers，Commercial Banks not to go there，Get the financial cooperation；The eastern region key make commercial bank，The central region is two to all have，The financial reform in the rural areas should have a whole top design、layout。”