酝酿近一个月之后，广东金融改革的“第一幕”终于上演。8月14日，广东农村金融工作现场会在梅州召开，广东省省长朱小丹出席会议并亲自宣布，农村宅基地使用权和土地承包权抵押贷款试点，将在梅州和云浮两市展开。

Ferment nearly a month later,Guangdong financial reform"The first act of the"Finally put on.On August 14,,Guangdong rural financial work on the spot meeting held in meizhou,The governor of guangdong province ZhuXiaoDan attended the meeting and announced in person,Countryside homestead right of use and the land contract right mortgage loan pilot,Will be in meizhou and yunfu city expansion.

　　当日的会议强调，此项试点的基本思路是，在国家法律和政策的框架内，农户将宅基地使用权抵押给政府授权的机构，银行即向农户提供信贷，这一政府授权机构为此提供保证。

The meeting stressed that day,The pilot basic idea is,In national laws and policy framework,Farmers will homestead right of use to mortgage to government authorized institutions,Banks that provide credit to farmers,The agencies authorized by the government to provide guarantee.

　　梅州农村金改的依据，是《广东省建设珠江三角洲金融改革创新综合试验区总体方案》。金改方案提出，广东将在有条件的县试点农村宅基地使用权和土地承包经营权抵押工作，尽快使农村集体资产“由虚变实”。农民需要融资时，可以将宅基地使用权或土地承包经营权抵押贷款。

Meizhou rural gold change basis,is[The construction of guangdong province in the pearl river delta financial reform and innovation comprehensive test site overall scheme].Gold change is presented,Guangdong will be in conditional county pilot countryside homestead right of use and the right to the contracted management of land mortgage work,The rural collective assets as soon as possible"The virtual variable real".Farmers need financing,Can the land use right to the contracted management of land or mortgage.

　　参与了两次相关研讨会的中山大学法学院民法学教授张民安告诉时代周报记者，早在四年前广州计划试点时，就已开始了对农村土地用益物权、担保物权的调查研究。在他看来，这次的梅州金融改革实际上对现有法律提出了挑战，“如果不从法律层面上来进行实质性的改革，那么这个改革到最后就会以失败告终。”

Participate in two related seminar zhongshan university law school professor science of civil law ZhangMinAn told reporters times weekly,As early as in four years ago guangzhou plan when the pilot,Began to rural land usufructuary right/Real rights for security research.In his view,The meizhou financial reform in the existing law puts forward the challenge,"If not from the legal perspective for substantial reforms,So the reform to the end will be ended in failure."

　　

农村金改将面临法律障碍 Rural gold change will face legal barriers

　　时代周报：梅州这次农村金融改革中涉及到农村宅基地抵押贷款，你是如何看待这一概念的？

Times weekly:Meizhou the rural financial reform in rural homestead mortgage loans,How do you feel about this concept?

　　张民安：这次的梅州金融改革实际上是对现有法律提出了挑战，很多的改革内容都跟法律是有冲突的，如果不从法律层面上来进行实质性的改革，那么这个改革到最后就会以失败告终。

ZhangMinAn:The meizhou financial reform is actually put forward to the existing legal challenges,A lot of reform content with the law is a conflict,If not from the legal perspective for substantial reforms,So the reform to the end will be ended in failure.

　　时代周报：你觉得梅州此次的金改，最大的障碍来自于哪里？

Times weekly:Do you think the gold to meizhou,The biggest obstacles come from?

　　张民安：梅州的改革至少在法律层面上是有障碍的，而且这个障碍并不是一般规章制度的障碍，是国家层面大法的障碍。《物权法》对农村宅基地如何取得，如何使用，能否抵押，有明确规定。再一个就是《土地管理法》也有明确的规定，第三个就是《担保法》对哪些财产能够作为抵押都是有明确规定的。所以解决农村的宅基地问题，最大的障碍在于《物权法》、《土地管理法》、《担保法》这三个国家大法，这是属于民法的内容。

ZhangMinAn:Meizhou reform at least in the legal level is disabled,And this obstacle is not general rules and regulations of the disorder,Is the national level constitution of obstacles.[Property law]How to get to the base,How to use,Can mortgage,Have specific provision.Another is[Land administration law]Also have clear rules,The third is[Security law]To what property can be used as mortgage are defined.So solve the rural homestead question,The biggest obstacle is[Property law]/[Land administration law]/[Security law]The three countries method,This is belongs to the content of the civil law.

　　因此，一个地方政府如果要进行任何形式的改革，最底线就是无法突破国家大法，尤其是宅基地的改革，你不能突破《物权法》、《土地管理法》、《担保法》这些构成民法层面的基本大法。第一，总体上来讲，中国的民法在对待宅基地的态度上是非常保守的。就是农民宅基地的取得要通过上面所述的三个大法，申请—审批—获得这样一种严格的形式。第二，取得农民宅基地的方式也是高度管制，严格限制。一旦你取得宅基地的使用权，那宅基地只能作为住所来使用它，或者在宅基地旁边建一些附属物，例如猪圈、鸡栏等。第三，就是不允许农民的宅基地出卖、转让、抵押、担保。农民的宅基地可以转让给本村的村民，但即使是本村村民也是要取得拥有宅基地资格的。第四，农民的宅基地不能够从事生产或者经营。第五，农民的宅基地是不能抵押的。为什么现行的法律明确禁止农民把宅基地抵押给银行呢，一旦允许农民的宅基地作为抵押物，那就意味着农民的宅基地就会成为一个自由交易的财产，导致的结果可能是，农民都把宅基地拿去银行抵押贷款，资本是运转活了，但是由于村民可能会反复多次地将宅基地作为抵押物，这样使得集体土地的面积越来越小。

therefore,A local government if you want to make any form of reform,The bottom line is unable to break through national constitution,Especially the reform of the land,You can't break out of[Property law]/[Land administration law]/[Security law]These constitute the basic method of civil law level.The first,In general,China's civil law in dealing with the attitude of the land is very conservative.Is the farmer land acquisition to through the above three method,Apply for examination and approval -- -- get such a strict form.The second,Get farmers homestead way is also highly regulated,Strictly limited.Once you get the right to use house sites,The homestead only as a shelter to use it,Or in the next house sites built some appendage,For example sty/Chicken column of the.The third,Just don't allow farmers to sell the homestead/transfer/mortgage/guarantee.Of the farmer curtilage base can be transferred to manage the villagers,But even this village villagers also is to get qualified with homestead.The fourth,Farmers' land can not engage in production or business operation.The fifth,Farmers' homestead cannot be mortgaged.Why existing law expressly forbid the farmers land mortgaged to the bank,Once the allow of the farmer curtilage base as a pledge,That means farmers' land will become a free trading property,The result of may be,Farmers are the homestead and go to a bank mortgage loans,Capital is running live,But because of the villagers may repeatedly the homestead as a pledge,This makes the area of the collective land is becoming more and more small.

　　

三大法与土地集体所有权冲突 Three method and collective land ownership conflict

　　时代周报：你觉得中国现行对农村宅基地的法律体系是否合理吗？

Times weekly:Do you think China's current legal system of rural homestead is reasonable?

　　张民安：我国的《物权法》、《土地管理法》、《担保法》对于农村宅基地的管制是存在很大的问题，规范调整宅基地的三部大法，《物权法》《担保法》在民法性质上属于私法，私法调整私人之间的关系，政府是不能干预的，是由民事主体自己权衡利害关系来解决事情。现在最主要的问题是，农民的宅基地问题是由私法来调整还是由公法来解决，如果是民法上的问题，则一定要遵守民法上“意思自治”的原则，应当由民事主体自己来决定。既然这个土地是农民集体土地，该怎么使用，如何使用都是农民自己的事情。所以我说现在宅基地的问题实际上犯了一个严重的错误，把原本是私法上的问题公法化，管理色彩非常强，带有计划经济时代的烙印。违反了《物权法》、《担保法》这些私法性质的法律精神。

ZhangMinAn:China's[Property law]/[Land administration law]/[Security law]For the task of control is exist a lot of problems,Standard adjustment homestead three part method,[Property law][Security law]In the civil law belongs to private law in nature,Private law adjustment of the relationship between the private,The government is not the intervention,Is by the civil main body weigh their interests to solve things.Now the main question is,Farmers' land problem is to adjust by the law or the public law to solve,If it is civil law problems,It must comply with the civil law"autonomy"principle,Shall be made by the civil subject themselves to decide.Since the land is a farmer collective land,How to use,How to use are farmers own things.So I said now homestead, in fact, have made a serious mistake,Originally in private law is the problem of change law,Management of color is very strong,With the planned economy the branding of the ages.Violates the[Property law]/[Security law]These private law nature of the law spirit.

　　其次，对宅基地的高度管制、严格管理违反了宅基地本身的性质。按中国现行的《物权法》《土地管理法》规定，农民取得宅基地不是取得所有权，仅仅只是取得使用权，使用权是建立在集体组织享有所有权的基础之上。农民集体土地的所有权归农民，农民享有所有权就意味着他享有占有、使用、收益和处分的权利，这是民法上一个最基本的知识。占有，这些土地是我们集体成员的；使用，我使用它来种茶业，养鱼，做工厂，建厂房；收益，我可以把它出租；处分，我们可以把集体土地卖给别人。但是现在，《土地管理法》、《物权法》、《担保法》一方面认为农民对土地享有所有权，这个所有权就意味着农民可以把他的一部分分给组织成员作为宅基地，就意味着作为集体组织，他们村民可以处分这个土地，那你为什么又限制集体组织的成员来处分他的东西？

secondly,The height of the land to control/Strict management against the nature of the land itself.According to China's current[Property law][Land administration law]provisions,Farmers get homestead not title,Just get use,Use is based on collective organizations to enjoy the basis of ownership.A farmers' collective ownership of land to farmers,Farmers enjoy ownership means he is entitled to possess/use/Seek profits from and dispose of the right,This is a civil law on the most basic knowledge.possession,The land is our members of the collective;use,I use it to kind of tea industry,fish,Do factory,Built workshop;income,I can put it rent;sanctions,We can put the collective land sold to others.But now,[Land administration law]/[Property law]/[Security law]On the one hand that farmers to enjoy the ownership of the land,The ownership means farmers can put his part to the member in the organization as a homestead,Means that as a collective organization,They villagers can dispose of this land,Then why are you and limit the collective members to sanction his things?

　　时代周报：那么是否可以认为，上述三种大法本身就与“农民集体所有权”这个制度相冲突？

Times weekly:So if you can think,The above three kinds of method with itself"Farmers' collective ownership"The system phase conflict?

　　张民安：确实如此，所有权不管是集体的也罢，国家的也罢，个人的也罢，所有权天生的就有处分权。但是为什么又要限制农民把他的宅基地用来抵押呢？按照现在的法律，实际上已经违反了我们《物权法》上最基本的理论，就是剥夺了农民享有宅基地的所有权，它也剥夺了农民集体土地组织成员所享有的自由决定宅基地处分的权利。直接地说，农村集体土地所有权或农村宅基地所有权变得不完整。这就导致农村集体土地所有权跟国有土地所有权是不平等的。当一个主体对一个客体丧失处分权的时候，就已经背离了所有权的性质。

ZhangMinAn:indeed,Ownership whether collective or,National or,Personal or,Ownership born with disposition.But why and to limit the farmer took his homestead used to mortgage?According to the present law,In fact has violated the we[Property law]The most basic theory,Is deprived farmers enjoy the ownership of the land,It also deprived farmer collective land organization members enjoy the freedom to dispose of the right to land.Directly said,Rural collective land ownership or rural homestead ownership become incomplete.This will lead to the rural collective land ownership and state-owned land ownership is not equal.When a subject can have with an object of disciplinary loss when,Have deviated from the nature of the ownership.

　　

宅基地应进入流通市场 Homestead should go into circulation market

　　时代周报：如果农民的宅基地能否进行转让、抵押，这会引起一种什么样的效应？

Times weekly:If farmers homestead can I transfer/mortgage,This will cause a kind of what kind of effect?

　　张民安：中国改革开放之前尤其是工业化程度不高、城市发展也不发达的时候，大量的人就在农村呆着，到城里来没有地方工作，这个时候维持他的宅基地不让他进行交易、抵押、转让这，是有合理性的。但是今天改革开放以后，大量的农民不愿在农村耕田了，他觉得在农村耕田的收益赶不上在城里打工的收益，或者他觉得作为一个农民，他的社会地位、经济地位还赶不上在城市打工的社会地位和经济地位，这个时候农民的宅基地放在农民干什么用？在这种情况下，我们应该充分利用宅基地这个资源，让这个静态关系变成一个动态关系，让他按照自己的意志来处分这个宅基地，这并不影响国家和集体的利益。

ZhangMinAn:China's reform and opening up, especially before industrialization level is not high/Urban development is not developed time,A large number of people in rural stay,To the city to have no place to work,This time to maintain his homestead wouldn't let him traded/mortgage/Transfer this,Is the rationality.But today after the reform and opening up,Large Numbers of farmers in the rural areas to the plow,He felt in rural ploughing earnings miss work in the city of income,Or he felt as a farmer,His social position/Economic status also miss work in urban areas social status and economic status,At this time of the farmer curtilage base on farmers' what for?In this case,We should make full use of the land resources,Let the static relationship into a dynamic relationship,Let him according to his own will to dispose the homestead,This does not affect national and collective interests.

　　此外，不让农村的宅基地作为抵押物，这对土地资源也是一种浪费，没有任何好处。相反，如果你让宅基地进入了流通市场，农民拿宅基地去抵押，从银行获得一定的贷款，用他出来打工学到的技术，可以开商店，开工厂，而他们也可以成为小工厂主，小商人，把资源盘活了，对整个社会的经济效益好转都有影响。

In addition,Don't let the rural homestead as a pledge,The land resources is also a kind of waste,No good.instead,If you let the homestead went into circulation market,Farmers take homestead to mortgage,Access to certain from the bank loan,Work with him out to learn technology,Can open the shop,Open factory,And they also can become coolie miller,Small businessman,To activate the resources,On the whole social economic benefits to improve all have influence.

　　此外，一个商业社会需要很多小商人，小商人越多这个商业社会才稳定。农民的宅基地拿去抵押后，获得资本，然后拿着这个资本在城市成立各种服务业、餐饮业等，不仅解决了自己的生计，而且还上交税款，也提供就业岗位。还有一种潜在的可能就是这些小商人或许日后就发展成为大商人。所以，宅基地是完全可以进入流通市场的。

In addition,A commercial society needs a lot of small traders,The small businessman this business then social stability.Farmers take land after the mortgage,Get capital,Then take the capital in the city to establish various services/Catering industry, etc,Not only solved their livelihood,But also hand in taxes,Also provide jobs.There is a potential possibility is that these small businessman maybe in the future will become big businessman.so,Homestead is completely can enter the circulation market.

　　时代周报：如何才能让宅基地进入流通市场？在法律层面如何去除障碍呢？

Times weekly:How to let the homestead into the circulation market?In the legal level how to remove obstacles?

　　张民安：其实广东省总体的改革精神是值得赞扬的。中国现在进入工业社会和商业社会，宅基地流通到市场上并不会引起社会问题，也不会影响到农民的利益。最关键的是银行愿不愿意接受你拿宅基地作为抵押物，目前中国的土地很稀缺，所以银行现在有很大的积极性，愿意农民拿自己的房屋、宅基地作为抵押来贷款。但是银行对农村宅基地也需要有一套完善的机制去衡量，考虑接不接受宅基地的抵押，接受之后又该贷款多少？这些都是没有解决的问题。

ZhangMinAn:In fact guangdong general reform spirit is praiseworthy.China is now into the industrial society and commercial society,The land circulation in the market will not cause social problems,Also won't affect the interests of farmers.The key is that the Banks may not be willing to accept you take land as a pledge,At present China's land is scarce,So the bank now has a lot of enthusiasm,Willing to farmers take their houses/Homestead as collateral to loans.But the Banks to the countryside homestead also need to have a perfect mechanism to measure,Considering joint don't accept homestead mortgage,Accept the loan again, after how many?These are not solve the problem.

　　如果广东省要进行这种改革，在梅州试点让农民宅基地进入流通领域，这还得从法律上去除一些不适用现代经济发展的条文规定。问题是这个障碍该怎么去除呢？单从广东省地方力量肯定是不够的，所以最终这个改革成不成功取决于国家层面，国家要做的就是修改《物权法》、《土地管理法》、《担保法》，把转让宅基地的那些限制性内容删除掉，增加宅基地可以转让的内容。

If guangdong province to carry out this reform,In meizhou pilot to let farmers homestead into circulation field,This is from the law is not applicable to remove some of the modern economic development of the provisions of the regulations.The problem is this obstacle this how to get rid of?Single from guangdong province local power must be not enough,So eventually the reform into not success depends on the national level,Countries have to do is change[Property law]/[Land administration law]/[Security law],The land transfer the restrictive content deleted,Increase the contents of land may be transferred.

　　时代周报：这次梅州金改涉及到的核心问题除了宅基地使用权，还有土地承包权的转让，这从法律层面上讲是否会更难实行？

Times weekly:The meizhou gold change involves the core problem in addition to homestead right of use,And the transfer of the land contract right,This from the legal level of speaking whether will be more difficult to implement?

　　张民安：土地承包权跟宅基地在总体上是一个政策，凡是跟农民土地有关的，一直都是严格管理，不允许它像一般财产那样自由转让。农村土地承包的经营权是不能够转让的，但是中国现在有另外一种承包制可以转让，就是“四荒”土地—荒山、荒坡、荒滩、荒地。这个承包经营权，承包人可以是任何人。为什么会这么做？是因为政府认为耕地跟宅基地的性质是一样的，如果允许耕地转让、抵押，进入流通市场，假如农民以后还不清贷款，没有了耕地以后的经济来源来自哪里？这会影响社会稳定，而“四荒”土地跟农民的吃饭没有任何关系，即使你还不清贷款，但是你的生计是不成问题的。

ZhangMinAn:With the land contract right homestead in general is a policy,All related with farmers' land,Has always been strict management,Don't allow it like general property that free transfer.The rural land contracting right is not able to transfer,But China is now have another contract system can transfer,is"SiHuang"Land - barren hills/hillsides/Desolated beaches/wasteland.The right to the contracted management of this,The contractor may be anybody.Why do it?Because the government says cultivated land with the nature of the land is the same,If allowed to cultivated land transfer/mortgage,Into the circulation market,If farmers later I can't pay back the loan,Without the cultivated land after the economic source come from?This will affect the social stability,and"SiHuang"Land and farmers' eat without any relationship,Even if you can't pay back the loan,But your livelihood is no problem.

　　在计划经济时代，这种考虑是有利于维护社会稳定的，但是在市场经济的条件下，大量人口外流，如果还用过去的这套法律体系来维护社会稳定，确实有点落后，中国的法律体系是严重滞后于经济的发展。

In the era of planned economy,This consideration is conducive to maintaining social stability,But in a market economy conditions,Large population outflow,If still use the past the legal system to maintain social stability,Really a little behind,China's legal system is a serious lag behind the development of the economy.