农民住房财产权抵押贷款的意愿为什么不高?——来自改革试点地区武进的调查研究报告  

Why are farmers less willing to take mortgage loans on housing property rights?—An investigation report from Wujin,a pilot area of reform

作　　者：陈会广[1] 尹萍 赵雪程 林奕冉 姚志平 王文献 CHEN Huiguang;YIN Ping;ZHAO Xuecheng;LIN Yiran;YAO Zhiping;WANG Wenxian(Research Center of Rural Property Rights and Collective Economic Organization,Nanjing Agricultural University,Nanjing 210095,China;Rural Land System Reform Pilot Office of Changzhou Wujin District,Changzhou 213159,China)

机构地区：[1]南京农业大学农村产权与集体经济组织研究中心,江苏南京210095 [2]常州市武进区农村土地制度改革试点办公室,江苏常州213159

出　　处：《土地经济研究》2021年第1期24-57,共34页Journal of Land Economics

基　　金：江苏省社会科学基金重点项目(18GLA008);国家自然科学基金(71573131);自然资源部海岸带开发与保护重点实验室重点资助课题(2017CZEPK01);南京农业大学中央高校基本科研业务费人文社科基金专著出版项目(SKZZ2018002)——“农村宅基地制度改革的路径探索:武进样本”。

摘　　要：农民住房财产权抵押贷款试点是向农民还权赋能的改革,承担了扩大农民财产权能、激活僵化资产的使命。尽管在理论上农民住房财产权抵押贷款有助于激活农村金融市场,但从实践效果来看,这项改革试点并不如理论预期。从农民住房财产权抵押贷款政策出台和落实的前提角度而言,农户贷款意愿确实关乎改革持续推进的基础,而意愿为何不高并没有得到充分的解释。本研究通过对改革试点地区——武进区的普通农户、两权抵押的新型农业经营主体、商业银行、人民银行武进支行以及农村宅基地制度改革试点办公室等个人或机构的调研,试图对意愿为何不高的解释构建一个相对完整的拼图。研究发现:(1)金融机构作为抵押贷款业务的供给方,意愿不高、顾虑重重的原因在于目前法律、规范、操作等方面都不完善,他们对于农户的偿还能力、风险把控和抵押物的处置存在顾虑,希望政府在涉农贷款的政策支撑、市场培育、纠纷协调、风险托底方面提供制度支撑和业务流程规范;(2)现阶段并非所有农户都存在融资需求,且融资需求主要受微观层面的个体特征要素的影响,经济观念保守、抵御风险能力低、新房抵押无凭、旧房价值不高等也是农户贷款意愿不高的原因;(3)农民住房财产权抵押业务的运行仍然要依赖于区级财政提供的风险担保,不能够凭借制度支撑自主运行,依然处于需要扶持的初级阶段,与农民住房财产权抵押制度的常态化运行尚存距离。因此在后续的工作中要做到“主导在区、主抓在镇、主体在村、主动在民”,发挥政府主导作用,激发农户主体意识,提高金融机构服务意识,引导村民委员会做好“润滑剂”,注重内外结合,更好激活农村金融市场。With the development of rural economy and the increment of rural land,the property attribute of rural housing is gradually highlighted.Therefore,the pilot farmers housing property rights mortgage is a reform that empowers farmers and undertakes the mission of expanding farmers property rights and activating rigid assets.Although theoretically,the mortgage loans for farmers housing property rights can help activate the rural financial market,the practical effect of this reform is not as expected.By investigating individuals and institutions in Wujin District,the reform pilot area,we attempt to find out the reason why the willingness is not high.The research found that:(1)for financial institutions,they have many concerns as the suppliers of mortgage business due to the current imperfections in laws,norms and operations,and they also have concerns about farmers repayment ability,risk control and disposal of collaterals,and hope that the government will provide institutional support and business process norms in terms of policy support,market cultivation,dispute coordination and risk underpinning for agriculture-related loans;(2)at the current stage,not all farmers have financing needs,which are enormously influenced by individual characteristics at the micro level;in general,the conservative culture,low risk resistance,no property ownership certificate for mortgage,and low value of old house are also the reasons why farmers have no much intention borrowing;(3)the operation of the mortgage business of farmers housing property rights still depends on the risk guarantee provided by district-level finance,and cannot operate independently with institutional support;in other words,it is still in the primary stage of needing support and is still far from the normal operation.Therefore,in the follow-up work,we should take district-town-village collective-peasant multi-dimensional policy measures In addition to building up the leading role of the government,the initiatives of farmers should be stimulated and the service awa

关 键 词：农民住房财产权 住房财产权抵押 抵押贷款 改革试点 

分 类 号：F832.43[经济管理—金融学] F321.1F323.8