農(nóng)村土地抵押法律問(wèn)題研究
發(fā)布時(shí)間：2018-09-03 17:07
【摘要】：三農(nóng)問(wèn)題的核心是土地問(wèn)題,而土地問(wèn)題的實(shí)質(zhì)是土地權(quán)利問(wèn)題,本文的研究對(duì)象為農(nóng)村土地抵押法律問(wèn)題。全文以私法的視角詮釋農(nóng)村土地抵押基本法律問(wèn)題,并綜合運(yùn)用歷史、比較、價(jià)值和實(shí)證的研究方法,依循明晰制度語(yǔ)境、考察實(shí)踐現(xiàn)狀、夯實(shí)制度根基和構(gòu)造具體制度的路徑展開(kāi)研究。本文除導(dǎo)論外,共分為五章,共計(jì)十九余萬(wàn)字。第一章農(nóng)村土地抵押的制度語(yǔ)境。我國(guó)古代農(nóng)村土地抵押的習(xí)慣法規(guī)則雜亂且不成體系,實(shí)踐中多以土地或田宅為抵押擔(dān)保,然其習(xí)慣法具有封閉性,并受限于傳統(tǒng)農(nóng)地生產(chǎn)經(jīng)營(yíng)方式;近代以降,固有習(xí)慣價(jià)值式微,抵押等擔(dān)保物權(quán)移植西方,抵押規(guī)則日益規(guī)范化和體系化,制定了諸多農(nóng)村金融法規(guī),且設(shè)置土地金融機(jī)構(gòu),但并未與近代金融組織的成長(zhǎng)相結(jié)合�，F(xiàn)代的土地承包經(jīng)營(yíng)權(quán)和農(nóng)民住房財(cái)產(chǎn)權(quán)抵押,在國(guó)家政策層面上已獲肯定,卻未有相應(yīng)的法律運(yùn)行機(jī)制與之相適應(yīng)�，F(xiàn)行立法中農(nóng)村土地抵押制度法律供給不足,且行使范圍過(guò)窄,城鄉(xiāng)土地使用權(quán)差別對(duì)待;不同類(lèi)型的農(nóng)村土地使用權(quán)具有不同的抵押能力;土地權(quán)利形態(tài)的多元化趨向明顯,不同的農(nóng)村土地使用權(quán)形態(tài)能否抵押取決于立法選擇。土地兼具自然屬性、經(jīng)濟(jì)屬性和社會(huì)屬性,其經(jīng)濟(jì)屬性彰顯私益性,社會(huì)屬性承受公益負(fù)擔(dān);實(shí)現(xiàn)土地資本化是農(nóng)村土地抵押的內(nèi)在動(dòng)因,與城市成熟的制度相較,民法的視域里尚欠缺適格的農(nóng)村土地抵押法律規(guī)范和制度安排。第二章農(nóng)村土地抵押的實(shí)證考察。選取安徽省12個(gè)地級(jí)市24個(gè)鄉(xiāng)鎮(zhèn)為樣本進(jìn)行實(shí)證調(diào)研,同時(shí)擷取國(guó)內(nèi)試點(diǎn)地區(qū)的實(shí)踐范例,以明晰土地抵押制度在農(nóng)村社會(huì)中運(yùn)作的實(shí)然狀態(tài),尋求建構(gòu)農(nóng)村土地抵押制度的可靠私法路徑。土地承包經(jīng)營(yíng)權(quán)抵押試點(diǎn)呈規(guī)模性擴(kuò)張態(tài)勢(shì),多以合作金融和政策性金融為主,表現(xiàn)為直接抵押、由第三方擔(dān)保抵押、組建合作社抵押、信托和土地證券化等諸多形式;絕大多數(shù)試點(diǎn)地區(qū)都對(duì)抵押率、抵押期限以及土地規(guī)模等設(shè)定了一定的條件。宅基地使用權(quán)抵押脫離不了房地關(guān)系的現(xiàn)實(shí)困境,“房地一體”原則限制宅基地使用權(quán)抵押,須以有限抵押的制度設(shè)計(jì)激發(fā)宅基地用益物權(quán)的經(jīng)濟(jì)效益。經(jīng)營(yíng)性集體建設(shè)用地使用權(quán)可以抵押,但公益性集體建設(shè)用地使用權(quán)一般不得抵押;集體建設(shè)用地使用權(quán)抵押常發(fā)生于再次土地流轉(zhuǎn)的情形,一般需經(jīng)集體土地所有權(quán)人同意;法律限制了集體建設(shè)用地使用權(quán)抵押的有效性、抵押價(jià)值不明顯,且抵押融資的金融服務(wù)欠缺。通過(guò)分梳與厘定各地區(qū)農(nóng)村土地抵押的制度模式、運(yùn)行效果和法律障礙,為其后的制度構(gòu)造提供樣本與現(xiàn)實(shí)素材。第三章農(nóng)村土地抵押的制度基礎(chǔ)。從基礎(chǔ)理論分析,根據(jù)大陸法系傳統(tǒng)和國(guó)外立法例,用益物權(quán)具備一定可處分性,權(quán)利亦可成為抵押權(quán)之客體;農(nóng)村土地權(quán)利抵押,實(shí)乃價(jià)值權(quán)的支配,其承載著擔(dān)保與融資雙項(xiàng)功能。農(nóng)村土地抵押的制度構(gòu)建以土地產(chǎn)權(quán)理論、資源配置優(yōu)化論和權(quán)利配置正義論等為理論基礎(chǔ),在價(jià)值目標(biāo)上以平等為基礎(chǔ)、以自由為追求、以秩序?yàn)楸Ｕ稀⑿蕛?yōu)先并兼顧公平,并恪守尊重農(nóng)民主體地位和保護(hù)農(nóng)民利益的權(quán)利本位理念。農(nóng)村集體土地權(quán)利改造的現(xiàn)實(shí)主義路徑是堅(jiān)持集體土地所有制,實(shí)行土地使用權(quán)的市場(chǎng)化和資本化。我國(guó)以集體土地所有權(quán)為基石的三層級(jí)結(jié)構(gòu)中,土地承包經(jīng)營(yíng)權(quán)、宅基地使用權(quán)和集體建設(shè)用地使用權(quán)的用益物權(quán)性質(zhì)及其可處分性,為土地抵押制度的構(gòu)建提供了制度基礎(chǔ)。農(nóng)村土地抵押的內(nèi)部結(jié)構(gòu)上理應(yīng)體現(xiàn)實(shí)質(zhì)正義,在確保債權(quán)實(shí)現(xiàn)的前提下,施以對(duì)抵押人的特殊保護(hù):抵押人的主體范圍具有開(kāi)放性,而抵押權(quán)人的主體范圍應(yīng)予以限制;為體現(xiàn)效率價(jià)值,應(yīng)取消須經(jīng)第三方“同意”或“審批”等前置程序,以便利于抵押人設(shè)置抵押權(quán);通過(guò)限定土地面積或抵押物的擔(dān)保價(jià)值、設(shè)置保險(xiǎn)、建立抵押風(fēng)險(xiǎn)基金等方式對(duì)抵押人予以保障性制度安排;抵押權(quán)實(shí)現(xiàn)時(shí),同等條件下應(yīng)賦予本農(nóng)民集體成員基于成員權(quán)的優(yōu)先回贖權(quán)。第四章農(nóng)村土地抵押的法律構(gòu)造�；诂F(xiàn)實(shí)國(guó)情和抵押權(quán)客體的特殊性,農(nóng)村土地權(quán)利抵押制度并不能被一般的抵押規(guī)則所涵括,其在抵押的主體、客體、設(shè)定、效力及實(shí)現(xiàn)方式等制度構(gòu)造的諸多方面具有特殊性。抵押人的主體范圍具有開(kāi)放性,農(nóng)民集體成員,及農(nóng)民集體以外的家庭農(nóng)場(chǎng)、農(nóng)民合作社、農(nóng)業(yè)企業(yè)等其他組織或個(gè)人,皆可能成為抵押人的主體;為防控農(nóng)村土地抵押的金融風(fēng)險(xiǎn)、保障農(nóng)民的基本生存權(quán)利和防止土地兼并,抵押權(quán)人的主體范圍應(yīng)逐步限定在專(zhuān)門(mén)的金融機(jī)構(gòu)——土地銀行。土地承包經(jīng)營(yíng)權(quán)抵押的客體為土地經(jīng)營(yíng)權(quán),經(jīng)營(yíng)權(quán)從承包經(jīng)營(yíng)權(quán)中分離獨(dú)立為新的權(quán)利類(lèi)型,土地經(jīng)營(yíng)權(quán)抵押不改變土地的所有權(quán)性質(zhì)、不改變土地的承包關(guān)系;土地承包經(jīng)營(yíng)權(quán)抵押與農(nóng)地收益權(quán)質(zhì)押相區(qū)別,后者之標(biāo)的是“債權(quán)性流轉(zhuǎn)收益”而非土地經(jīng)營(yíng)權(quán)本身。宅基地使用權(quán)抵押的客體為宅基地使用權(quán),但其主體范圍不應(yīng)限于農(nóng)民集體成員,其原始取得可按農(nóng)民集體成員資格分配宅基地用地指標(biāo),但因繼受而取得可實(shí)行有償有期使用制度。集體建設(shè)用地抵押的客體一般為經(jīng)營(yíng)性或存量的集體建設(shè)用地使用權(quán)。農(nóng)村土地抵押的法律框架內(nèi),可規(guī)定權(quán)利類(lèi)型及其取得、建立有償使用制度和期限制度、規(guī)范抵押方式等。土地承包經(jīng)營(yíng)權(quán)抵押的方式包括直接抵押、組建合作社抵押、由第三方擔(dān)保抵押、土地承包經(jīng)營(yíng)權(quán)股份化抵押。宅基地使用權(quán)實(shí)行有限抵押制度,即新增宅基地使用權(quán)具備完備的物權(quán)權(quán)能,允許在其上設(shè)定抵押,而對(duì)存量宅基地遵循“無(wú)償取得、有償使用、有限抵押”的原則,允許存量宅基地使用權(quán)在滿足一定條件時(shí)抵押。集體建設(shè)用地使用權(quán)抵押涵括所有權(quán)人抵押和使用權(quán)人抵押兩種形式。此外,土地承包經(jīng)營(yíng)權(quán)抵押的效力不能及于農(nóng)作物。宅基地使用權(quán)抵押,則地上的房屋隨之抵押;因房屋抵押權(quán)實(shí)現(xiàn)而導(dǎo)致房屋所有權(quán)與宅基地使用權(quán)主體不一致時(shí),可通過(guò)法律推定租賃合同的存在而予解決。抵押處置時(shí)應(yīng)賦予作為抵押人的農(nóng)民或其他農(nóng)民集體成員優(yōu)先回贖權(quán);為確保農(nóng)村土地抵押權(quán)的實(shí)現(xiàn),亦可通過(guò)創(chuàng)設(shè)農(nóng)村土地抵押風(fēng)險(xiǎn)基金、設(shè)置強(qiáng)制保險(xiǎn)、實(shí)行土地區(qū)分制度和政府風(fēng)險(xiǎn)補(bǔ)償制度等多種手段構(gòu)筑面向抵押人的多邊利益保障機(jī)制。第五章農(nóng)村土地抵押的制度配套。基于公共利益和土地社會(huì)保障功能之考量,應(yīng)從抵押主體、部分抵押、抵押用途、抵押方式、經(jīng)濟(jì)能力、土地規(guī)劃與用途管制等諸方面對(duì)農(nóng)村土地抵押權(quán)的行使予以合理限制。作為抵押人的農(nóng)民,須有穩(wěn)定的收入來(lái)源、財(cái)力證明或從事穩(wěn)定的非農(nóng)職業(yè),而抵押權(quán)人限定為專(zhuān)門(mén)的金融機(jī)構(gòu);實(shí)行部分抵押原則,對(duì)農(nóng)村土地面積和抵押物價(jià)值予以限制;抵押的貸款只能用于涉農(nóng)的生產(chǎn)、投資和開(kāi)發(fā)項(xiàng)目;農(nóng)村土地抵押必須嚴(yán)格遵守土地利用總體規(guī)劃和土地用途管制。健全農(nóng)村土地權(quán)利登記制度,農(nóng)村土地權(quán)利的取得與抵押權(quán)的設(shè)定實(shí)行登記生效主義。構(gòu)建有中國(guó)特色的土地銀行,作為以土地抵押貸款為主要業(yè)務(wù)的專(zhuān)門(mén)政策性金融機(jī)構(gòu),其資金籌措可通過(guò)財(cái)政出資入股和發(fā)行土地債券實(shí)現(xiàn)。此外,尚需構(gòu)筑農(nóng)村土地權(quán)利收儲(chǔ)與市場(chǎng)交易中心、建立農(nóng)村土地使用權(quán)的價(jià)值評(píng)估制度、完善農(nóng)村社會(huì)保障制度和財(cái)稅制度等相關(guān)配套作為抵押運(yùn)行的支撐。
[Abstract]:The core of the three rural issues is the land issue, and the essence of the land issue is the land rights issue. The research object of this paper is the legal issue of rural land mortgage. In addition to the introduction, this paper is divided into five chapters, a total of more than 190,000 words. Chapter 1: The institutional context of rural land mortgage. The law is closed and limited by the traditional mode of farmland production and management; since modern times, the inherent customary value has declined, mortgage and other security rights have been transplanted to the West, mortgage rules have become increasingly standardized and systematic, many rural financial regulations have been formulated, and land financial institutions have been set up, but not integrated with the growth of modern financial organizations. The right to land contractual management and the mortgage of peasants'housing property rights have been affirmed at the national policy level, but there is no corresponding legal operation mechanism to adapt to it. The same mortgage capacity; the diversification of land right forms is obvious, and whether different forms of rural land use right can be mortgaged depends on legislative choice. Motivation, compared with the mature urban system, there is still a lack of qualified legal norms and institutional arrangements for rural land mortgage in the perspective of civil law. Chapter 2: Empirical investigation of rural land mortgage. The system operates in the rural society and seeks a reliable private law path to construct the rural land mortgage system. Most of the experimental areas have set certain conditions for mortgage rate, mortgage term and land scale. Mortgage of the right to the use of homestead can not be separated from the real dilemma of the relationship between housing and land. The principle of "integration of housing and land" restricts the mortgage of the right to the use of homestead, and the system design of limited mortgage must stimulate the economy of the usufructuary right of homestead. Economic Benefits: The right to the use of collective construction land for profit may be mortgaged, but the right to the use of collective construction land for public welfare may not be mortgaged generally; the mortgage of the right to the use of collective construction land often occurs in the case of re-circulation of land, and generally requires the consent of the owner of collective land; the validity of the mortgage of the right to the use of collective construction land is limited by law to offset it. Chapter 3: The institutional basis of rural land mortgage. From the basic theory analysis, according to the tradition of continental law system and foreign countries Legislative example shows that usufructuary right is disposable and right can be the object of mortgage. Mortgage of rural land right is actually the control of value right, which bears the dual functions of guarantee and financing. The value goal is based on equality, pursued by freedom, guaranteed by order, given priority to efficiency and given consideration to fairness, and abided by the right-based concept of respecting the principal status of peasants and protecting the interests of peasants. In the three-tier structure based on collective land ownership, the nature and disposability of land contractual management right, homestead use right and collective construction land use right provide the institutional foundation for the construction of land mortgage system. The internal structure of rural land mortgage should embody substantive justice and ensure it. Under the premise of creditor's rights realization, special protection should be given to the mortgagor: the subject scope of the mortgagor is open, and the subject scope of the mortgagor should be limited; in order to embody the efficiency value, the pre-procedure such as "consent" or "examination and approval" by the third party should be cancelled, so as to facilitate the mortgagor to set up the mortgage; by limiting the land area or by limiting the mortgagee's subject scope Guarantee value of collateral, setting up insurance, setting up mortgage risk fund and so on should be guaranteed to the mortgagor. When the mortgage is realized, the peasant collective members should be given the priority of redemption based on membership under the same conditions. Chapter IV Legal structure of rural land mortgage. The mortgage system of rural land rights can not be included in the general mortgage rules. It has its particularity in the subject, object, setting, effect and way of realization of the mortgage. In order to prevent and control the financial risks of rural land mortgage, protect the basic survival rights of farmers and prevent land annexation, the main scope of the mortgagee should be gradually limited to a special financial institution - land bank. The mortgage of land management right does not change the nature of land ownership, nor does it change the contractual relationship of land; the mortgage of land contractual management right is different from the pledge of farmland income right, the latter is not the land management right itself. The object of mortgage of the right to use is the right to use the homestead, but its subject scope should not be limited to the peasant collective members. The original acquisition of mortgage of the right to use the homestead can distribute the land index according to the peasant collective membership, but the system of paid fixed-term use can be implemented if it is acquired through succession. Land use right. Within the legal framework of rural land mortgage, the types of rights and their acquisition can be stipulated, the system of paid use and term can be established, and the mode of mortgage can be standardized. Limited mortgage system is adopted for the right to use the newly added homestead, that is, the right to use the newly added homestead has complete property rights and allows mortgage to be set on it, while the principle of "free acquisition, paid use, limited mortgage" is followed for the existing homestead, allowing the right to use the existing homestead to mortgage when certain conditions are met. In addition, the validity of the mortgage of the land contractual management right can not be equal to that of the crops. If the mortgage of the right to use the homestead is realized, the house on the ground will be mortgaged accordingly; if the ownership of the house is inconsistent with the subject of the right to use the homestead, the lease contract can be presumed by law. In order to ensure the realization of the rural land mortgage right, we can also establish the risk fund of rural land mortgage, set up compulsory insurance, implement the land division system and the government risk compensation system and so on. Chapter 5: The system of rural land mortgage. Considering the public interest and the function of land social security, we should restrict the exercise of rural land mortgage from the aspects of mortgage subject, partial mortgage, mortgage use, mortgage mode, economic capacity, land planning and use control. Farmers who are mortgagors must have a stable source of income, prove their financial resources or engage in stable non-agricultural occupations, while the mortgagors are limited to specialized financial institutions; the principle of partial mortgage is applied to restrict the area of rural land and the value of mortgaged property; mortgaged loans can only be used for agricultural production, investment and development projects; and rural land mortgage. We must strictly abide by the general plan of land use and the control of land use.We must improve the registration system of rural land rights and implement the principle of registration effectiveness in the acquisition and mortgage of rural land rights.We should build a land bank with Chinese characteristics as a special policy-oriented financial institution with land mortgage as its main business. In addition, it is necessary to construct a rural land rights storage and market trading center, establish a rural land use right value evaluation system, improve the rural social security system and fiscal and taxation system as the support of mortgage operation.
【學(xué)位授予單位】：西南政法大學(xué)
【學(xué)位級(jí)別】：博士
【學(xué)位授予年份】：2015
【分類(lèi)號(hào)】：D923.2
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本文編號(hào)：2220629
[Abstract]:The core of the three rural issues is the land issue, and the essence of the land issue is the land rights issue. The research object of this paper is the legal issue of rural land mortgage. In addition to the introduction, this paper is divided into five chapters, a total of more than 190,000 words. Chapter 1: The institutional context of rural land mortgage. The law is closed and limited by the traditional mode of farmland production and management; since modern times, the inherent customary value has declined, mortgage and other security rights have been transplanted to the West, mortgage rules have become increasingly standardized and systematic, many rural financial regulations have been formulated, and land financial institutions have been set up, but not integrated with the growth of modern financial organizations. The right to land contractual management and the mortgage of peasants'housing property rights have been affirmed at the national policy level, but there is no corresponding legal operation mechanism to adapt to it. The same mortgage capacity; the diversification of land right forms is obvious, and whether different forms of rural land use right can be mortgaged depends on legislative choice. Motivation, compared with the mature urban system, there is still a lack of qualified legal norms and institutional arrangements for rural land mortgage in the perspective of civil law. Chapter 2: Empirical investigation of rural land mortgage. The system operates in the rural society and seeks a reliable private law path to construct the rural land mortgage system. Most of the experimental areas have set certain conditions for mortgage rate, mortgage term and land scale. Mortgage of the right to the use of homestead can not be separated from the real dilemma of the relationship between housing and land. The principle of "integration of housing and land" restricts the mortgage of the right to the use of homestead, and the system design of limited mortgage must stimulate the economy of the usufructuary right of homestead. Economic Benefits: The right to the use of collective construction land for profit may be mortgaged, but the right to the use of collective construction land for public welfare may not be mortgaged generally; the mortgage of the right to the use of collective construction land often occurs in the case of re-circulation of land, and generally requires the consent of the owner of collective land; the validity of the mortgage of the right to the use of collective construction land is limited by law to offset it. Chapter 3: The institutional basis of rural land mortgage. From the basic theory analysis, according to the tradition of continental law system and foreign countries Legislative example shows that usufructuary right is disposable and right can be the object of mortgage. Mortgage of rural land right is actually the control of value right, which bears the dual functions of guarantee and financing. The value goal is based on equality, pursued by freedom, guaranteed by order, given priority to efficiency and given consideration to fairness, and abided by the right-based concept of respecting the principal status of peasants and protecting the interests of peasants. In the three-tier structure based on collective land ownership, the nature and disposability of land contractual management right, homestead use right and collective construction land use right provide the institutional foundation for the construction of land mortgage system. The internal structure of rural land mortgage should embody substantive justice and ensure it. Under the premise of creditor's rights realization, special protection should be given to the mortgagor: the subject scope of the mortgagor is open, and the subject scope of the mortgagor should be limited; in order to embody the efficiency value, the pre-procedure such as "consent" or "examination and approval" by the third party should be cancelled, so as to facilitate the mortgagor to set up the mortgage; by limiting the land area or by limiting the mortgagee's subject scope Guarantee value of collateral, setting up insurance, setting up mortgage risk fund and so on should be guaranteed to the mortgagor. When the mortgage is realized, the peasant collective members should be given the priority of redemption based on membership under the same conditions. Chapter IV Legal structure of rural land mortgage. The mortgage system of rural land rights can not be included in the general mortgage rules. It has its particularity in the subject, object, setting, effect and way of realization of the mortgage. In order to prevent and control the financial risks of rural land mortgage, protect the basic survival rights of farmers and prevent land annexation, the main scope of the mortgagee should be gradually limited to a special financial institution - land bank. The mortgage of land management right does not change the nature of land ownership, nor does it change the contractual relationship of land; the mortgage of land contractual management right is different from the pledge of farmland income right, the latter is not the land management right itself. The object of mortgage of the right to use is the right to use the homestead, but its subject scope should not be limited to the peasant collective members. The original acquisition of mortgage of the right to use the homestead can distribute the land index according to the peasant collective membership, but the system of paid fixed-term use can be implemented if it is acquired through succession. Land use right. Within the legal framework of rural land mortgage, the types of rights and their acquisition can be stipulated, the system of paid use and term can be established, and the mode of mortgage can be standardized. Limited mortgage system is adopted for the right to use the newly added homestead, that is, the right to use the newly added homestead has complete property rights and allows mortgage to be set on it, while the principle of "free acquisition, paid use, limited mortgage" is followed for the existing homestead, allowing the right to use the existing homestead to mortgage when certain conditions are met. In addition, the validity of the mortgage of the land contractual management right can not be equal to that of the crops. If the mortgage of the right to use the homestead is realized, the house on the ground will be mortgaged accordingly; if the ownership of the house is inconsistent with the subject of the right to use the homestead, the lease contract can be presumed by law. In order to ensure the realization of the rural land mortgage right, we can also establish the risk fund of rural land mortgage, set up compulsory insurance, implement the land division system and the government risk compensation system and so on. Chapter 5: The system of rural land mortgage. Considering the public interest and the function of land social security, we should restrict the exercise of rural land mortgage from the aspects of mortgage subject, partial mortgage, mortgage use, mortgage mode, economic capacity, land planning and use control. Farmers who are mortgagors must have a stable source of income, prove their financial resources or engage in stable non-agricultural occupations, while the mortgagors are limited to specialized financial institutions; the principle of partial mortgage is applied to restrict the area of rural land and the value of mortgaged property; mortgaged loans can only be used for agricultural production, investment and development projects; and rural land mortgage. We must strictly abide by the general plan of land use and the control of land use.We must improve the registration system of rural land rights and implement the principle of registration effectiveness in the acquisition and mortgage of rural land rights.We should build a land bank with Chinese characteristics as a special policy-oriented financial institution with land mortgage as its main business. In addition, it is necessary to construct a rural land rights storage and market trading center, establish a rural land use right value evaluation system, improve the rural social security system and fiscal and taxation system as the support of mortgage operation.
【學(xué)位授予單位】：西南政法大學(xué)
【學(xué)位級(jí)別】：博士
【學(xué)位授予年份】：2015
【分類(lèi)號(hào)】：D923.2
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本文編號(hào)：2220629
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