【作者】 左平良；

【导师】 漆多俊；

【作者基本信息】 中南大学 ， 法学， 2014， 博士

【摘要】 摘要：基于权利与权力是金融发展的约束条件这一前提,中国农村金融的问题其实就是农民金融权利过于弱小与政府金融权力过于强大的问题。金融调节属于一种国家经济调节职能与权力,农村金融调节的法治化是保障农民金融权利与限制政府金融权力的一个重要方面。鉴于以往法学界对农村金融问题的研究存在重义务而轻权利、重监管而轻调节、重法制而轻法治以及研究方法上重个体思维而忽视整体思维等若干不足,从农村金融调节法治的视角出发,运用多学科和体系化的方法研究中国农村金融关系中的权利与权力配置问题有其理论与实践意义。农村金融泛指发生于农村地区的存贷款、保险、证券、信托等一切与货币流通和信用有关的经济活动,基于中国农村金融问题主要是农业金融、农村贫困地区的金融以及农户的金融问题,文中所指的农村金融更多的是一个与农业、农村贫困地区以及农户金融相联系的概念。金融调节是建立在金融市场自发调节基础上的,国家对金融市场进行规制、补充、引导的一种新的调节力量和机制。与金融监管侧重于对金融市场微观经营行为的监督与管理不同,金融调节属于一种宏观性的经济调节,其方式包括国家对金融市场进行规制、国家参与金融领域的直接投资与经营、国家对金融的宏观调控三种。金融法制是指金融法律制度,侧重于金融规范的法律表现形式,金融法制建设的主要目标在于制定完备的金融法律,使金融关系有法可依；而金融法治则强调金融法律的内在价值追求,金融法治建设的目标在于制定出符合正义、自由与平等原则,彰显民众金融权利与限制政府金融权力的金融法律,并使之能得到很好的实施。农村金融调节的一般正当性基础在于：农民基本金融权利具有人权属性,相应地,国家负有保护农民基本金融权利实现的调节义务；农村金融市场调节的失灵客观上要求国家对农村金融进行调节,而农村金融调节的独立与局限性又规定与限定了这种权力的作用空间。因此,应在坚持农村金融调节公平与法益平衡的基础上,通过法治来保障农村金融调节的正当行使。农村金融调节法治包括农村金融调节的实体法治与农村金融调节的程序法治两个方面。考察新中国建立以来的农村金融调节立法沿革,可以发现中国农村金融调节立法存在实质与形式两个方面的问题。从实质上讲,中国农村金融调节法治存在金融公平精神的缺失、相关制度缺乏保护农民金融权利的精神内核、农村金融调节与农村金融监管不分以及政府行政权力对农村金融的过度控制等问题。从形式上讲,中国农村金融调节法治存在农村金融调节规范的不独立、农村金融调节法律规范的缺失、农村非银行金融调节规范的缺失以及农村金融调节规范实施机制的缺失等问题。这两个方面的问题交错存在,而尤以实质性问题最为突出。中国农村金融调节法治问题的形成机制十分复杂。择其要者主要有：服务于不同形式的城市优先发展战略的需要,国家强制实行不公平的农村金融抑制政策；城乡二元体制的系统性作用及其惯性导致了农村金融抑制的累积与长期存在；农民金融立法参与权的缺失,不仅有碍于农民金融权利(益)的配置,而且难以阻却行政配置成为农民金融利益调节的主要手段；农村金融政策规范偏好下政府金融公权的扩张导致行政权力对农村金融的过度控制；以及农村金融调节正式规则与非正式规则的冲突,导致相关农村金融调节规则不能很好地实施等。这些原因相互作用,共同导致了中国农村金融法治的问题。推进中国农村金融调节法治,首先需要进行理念上的重构。中国农村金融调节立法应该坚持公平优先的理念,即在价值取向上坚持公平价值优先于效率、安全等其他价值的理念。因此,农村金融调节立法不仅应保障农民获得市场金融服务的平等机会,而且还应从国家终极义务承担者的角色出发保障贫困农民获得基本的金融服务。市场经济条件下农村金融关系的私人性质,以及中国农村金融市场发育滞后的现实,要求加强中国农村金融市场培育立法,以便建立有利于金融资源公平配置的微观机制。农村金融调节法既是确权(利)法,也是控权(力)法。为此,中国农村金融调节法治不仅需要国家制定出体系完备的农村金融调节性法律,而且需要构建农民基本金融权利体系,以及实现农村金融调节权的独立与内部平衡。中国农村金融调节法治的最终落脚点在于完善农村金融调节规范体系。这个体系应包括中国农村金融调节的基础性规则、基本规则与配套实施规则。其中,基础性规则是指在规则体系中具有基石或指导性作用的那些规则,包括农村金融基本法、农村金融市场规则、农村金融监管规则等；基本规则是指构成规则主要内容、规范主体基本权利与义务的那些规则,包括农村金融调节的总则性规定、农村金融市场规制基本规则、农村金融国家投资与经营基本规则、农村金融宏观调控基本规则等；配套实施规则主要是指有助于基本规则有效实施的那些规则,包括农村金融调节的操作性规定、农村金融调节的激励与约束规则等。由于中国农村金融调节政策的根深蒂固,中国农村金融调节规范体系的完善在很大程度上也是一个去政策化的过程。更多还原

【Abstract】 Abstract:Based on the premise that right and power are the constraint condition of financial development, the Chinese rural financial issue is exactly that the peasants’financial rights are too weak while the government’s financial power is too strong. Financial regulation is a new-type state economic regulation function and power. The rural financial regulation ruled by law is an important aspect for guaranteeing the peasants’financial rights and restricting the government’s financial power. Former research in law circle on the issue has several shortages as attaching importance to duty but overlooking right, attaching importance to supervision but overlooking regulation, attaching importance to legal institutions but overlooking rule of law, and attaching importance to individual logic but overlooking integrative thinking on the research methods. This dissertation studies the allocation of right and power in Chinese rural financial relationship by the methods of multi-discipline and systematism from the perspective of rule of law in rural financial regulation, which has its theoretical and practical significance.The rural finance makes a general reference to deposits and loans, insurance, bonds, trusts and all other economic activities relevant to currency circulation and credit in rural area. Based on the issue that the rural finance in China is mainly agricultural finance, finance in poor rural area and peasant household finance, the rural finance in this dissertation is more of the concept relevant to agriculture, poor rural area and peasant household finance. Financial regulation, based on the spontaneous adjustment of finance market, is a new regulation force and mechanism for the state to regulate, supplement and guide the finance market. Different from the financial supervision which focuses on supervision and management of micro business behavior of finance market, financial regulation is a macro economic regulation, which includes the state regulating the finance market, participating in direct investment and operation of financial field, and macro-controlling the finance. Financial law system refers to financial legal institutions, which focuses on legal expression of financial norms. The primary objective of the construction of financial law system is to lay down complete financial law for financial relationship being legislated. But the financial rule of law emphasizes the pursuit of inner value of financial law. The objective of the construction of financial rule of law is to lay down financial law which conforms to justice, freedom and equality principles and demonstrates the masses’financial rights and restricts the government’s financial power, and which could be implemented commendably.The general legitimate basis of the rule of law in rural financial regulation lies in the peasants’basic financial right is of human rights attribute. Hence, the country bears responsibility for the peasants’basic financial interests being protected. The failure of rural financial market regulation objectively requires the state to regulate rural finance, while the independence and limitation of rural financial regulation provides and restricts the interaction space of that power. For the legitimate exercise of rural financial regulation by the rule of law, the fairness of rural financial regulation and balance of legal interests are ought to be insisted. The rule of law in rural financial regulation includes substantive rule of law and procedural rule of law of rural financial regulation.Reviewing the legislative evolution of rural financial regulation since the foundation of new China, we can find two concerns of the essence and form of legislation in Chinese rural financial regulation. Essentially, rule of law in rural financial regulation has the following problems:spirit of financial fairness is absent; relevant systems lack the spiritual core for protecting the peasants’financial rights; the distinction of rural financial regulation and supervision blurs; governmental executive power over-controls the rural finance etc. Formally, the rural financial regulation norms are not independent; legal norms of the rural financial regulation are deficient; the norms of rural non-banking financial regulation are deficient; the executive mechanism of the norms of rural financial regulation is deficient etc. The problems of two aspects exist interlacedly, with the essential problems the most prominent.The formation mechanism of the issue of rule of law in the rural financial regulation of China is extremely complicated. The complexity is embodied in the following aspects:the country enforces unfair rural financial controlling policy for the need to serve different forms of city development strategy which are given priority; systematicness of urban and rural binary system leads to accumulation of rural financial repression and its long-standing; the absence of peasants’financial legislative participation right is not only unfavorable for allocation of peasants’financial rights and interests, but also difficult to prevent the administrative distribution from becoming the primary method of the peasants’financial interests regulation; the expanding of governmental financial public right under the preference of rural financial policy standards leads to the executive power over-controlling the rural finance; the conflict between the formal and informal rules in rural financial regulation leads to poor implementation of rules of relevant rural financial regulation. Those causes interact on each other, which leads to the issue of rule of law in Chinese rural finance jointly.The advance of rule of law in Chinese rural financial regulation needs reconstruction of concept firstly. Legislation of rural financial regulation in China should insist on fair concept, viz. persisting in fair value prior to efficiency and safety and other values. Hence, the rule of law in rural financial regulation is supposed to not only endow the peasants’fair opportunity of obtaining market financial service, but also guarantee poor peasants’basic financial service as the role of undertaker of the ultimate duty of the country. Private property of rural financial relationship under market economy and reality of development lag of rural financial market in China demands that the rural financial market cultivates legislation in China so as to establish micro mechanism beneficial to fair allocation of financial resources. Financial regulation law is law of rights and power-controlled law as well. Hence, the rule of law in Chinese rural financial regulation not only requires the country to lay down a complete system of rural financial regulation law, but also requires the country to construct the peasants’basic financial right system and fulfill the independence and internal balance of rural financial regulation right.The ultimate goal of the rule of law in rural financial regulation in China lies in the improvement of rural financial regulation system. The system is supposed to include basic rules, fundamental rules and supporting implementation rules of Chinese rural financial regulation. The basic rules refer to those which are of cornerstone or guiding function in the system including basic law of rural finance, market rules of rural finance, regulatory rules of rural finance etc. Fundamental rules refer to those which constitute the main content, the basic rights and obligations of standard subject including general principles of rural financial regulation, fundamental rules of rural financial market regulation, fundamental rules of state investment and management in rural finance, fundamental rules of rural financial macro-control. Supporting implementation rules refer to those which help to the effective implementation of the fundamental rules and which are of the function of operability and inducement and constraint including the operation provisions of rural financial regulation, and the inducement and constraint rules in rural financial regulation etc. Because the rural financial regulation policy is deep-rooted in China, the improvement of the system of rural financial regulation in China is also a process of abandoning policy gradually to a great extent.更多还原