“三权分置”下宅基地抵押的实践进展与可行路径——以浙江德清、江西永丰为调研样本

Practical Progress and Feasible Path of Homestead Mortgage under the System of"Separation of Three Rights"-Taking Deqing County of Zhejiang Province and Yongfeng County of Jiangxi Province as Research Samples

试点实践表明,不论是东部发达地区的农村,还是中西部传统农区的农村,对于宅基地抵押均有现实需求。在“三权分置”下,宅基地抵押的担保工具由一元变为多元,包括单一宅基地使用权(无地上建筑物)抵押,“宅基地使用权+房屋所有权”抵押,和一定期限的“宅基地利用权+房屋使用权”抵押。农民房屋以及占用范围内的宅基地使用权可以一并抵押,也可以分别抵押,只不过在抵押权实现时,须房地一并变价。应建立委托管理、强制管理等多元的抵押权实现方式,柔性方式与强制方式相结合。借助“三权分置”丰富宅基地权利,扩大拍卖变卖中的买受人范围,并根据受让对象的不同身份实行有差别的处置规则。采用货币安置和实物安置等方式解决抵押农民居住问题,探索利用闲置农房作为临时性保障住房,防范制度风险。

The pilot practice has shown that both rural areas in developed eastern regions and traditional agricultural areas in central and western regions have a practical demand for homestead mortgage.The guarantee tools for homestead mortgage have changed from unitary to diversified under the"Separation of Three Rights",including a single homestead use right(without buildings on the ground)mortgage,a"homestead use right+house ownership"mortgage,and a certain period of"homestead use right+house use right"mortgage.The farmers'houses and the right to use the homestead within the occupied area can be mortgaged together or separately,except that when the mortgage right is realized,the real estate and land must be sold at the same time.We should establish multiple ways of realizing mortgage rights,such as entrusted management and mandatory management,and combine flexible and mandatory methods.It is advisable to enrich homestead rights through the"three rights division",expand the scope of buyers,and implement different disposal rules based on the different identities of the transferee.We should use monetary and physical resettlement methods to solve the housing problem of mortgage farmers,explore the use of idle agricultural houses as temporary guarantee housing,and prevent institutional risks.