房地产规划政策建议书翻译-中英对照
尽管目前对是否应放松容积率等规划管制争论激烈，但大多数学者都认为目前的土地规划缺乏前瞻性和科学性。例如，济南市2000年完成全市土地利用规划的修编并开始实施，2003年以后就出现问题，经济社会的快速发展与规划指标不协调，规划指标被建成区不断扩大所突破；实际利用区位往往与规划区位偏离，规划未充分考虑到土地利用的最佳区位；频繁调整的土地利用规划损害了其权威性。济南市2020年的规划指标预计到2010年将全部用完，所以不得不经常进行规划修编。前瞻性的规划应将城市规划边界划定在当前城市最优边界之外，并为未来发展留出足够空间，也有利于市场形成未来开发的稳定预期。
3.2 Plan policy
Although at present to whether should relax plan control arguments and so on the volume fraction to be intense, but the majority scholars all think present the land plan deficient foresightedness and the scientific nature.For example, Jinan in 2000 completes the whole city land utilization plan to repair arranges and starts to implement, in 2003 will later have the problem, the economic society fast development and the plan target is uncoordinated, the plan target is expanded unceasingly by the built-up district breaks through;Actual often with plans the position deviation using the position, plans fully has considered the land utilization the best position;The frequent adjustment land utilization plan has harmed its authority.Jinan 2020 plan target estimated completely will use up to 2010, therefore will be able not but to carry on the plan to repair frequently arranges.Foresightedness plan should delimit the urban planning boundary outside the current city most superior boundary, and will develop for the future keeps the enough space, also will be advantageous in the market forms the future to develop anticipated stably.
与供地计划一样，土地规划的编制应基于对未来发展理性的、科学的预测。应改变目前规划编制以人均指标为主，忽视经济规律和市场作用的倾向，需要对未来经济发展、人口增长特别是流动人口的增加等做出合理估计。同时，适当放宽目前对诸如规划边界、城市建筑高度、容积率等的过度限制，以促进城市的健康理性发展。
With supplies to plan is same, the land plan establishment will be supposed based on to develop rationally, the science forecast to the future.Should change at present to plan the establishment by the average per person target primarily, the neglect economic law and the market function tendency, will need to the future economy development, the population growth to be specially the transient population increase and so on makes the reasonable estimate.At the same time, relaxes suitably at present to such as plans the boundary, the city construction highly, the volume fraction and so on the excessively limit, promotes the city healthy rational development.
3.3 地价政策
目前中国的地价政策主要是对基准地价和标定地价的管理，包括基准地价和标定地价的评估、修编、公布和审核，以及协议出让最低价管制、招标拍卖标底或底价的确定和市场交易价格申报制度等。价格管制使得中国政府具有应用地价调控宏观经济的可能性，同时需要注意，由于政策是弥补市场失灵而不是取代市场机制，所以应尽量减少价格管制。例如，目前各地普遍采用的低价出让土地即“地价补贴”吸引投资的现象，根源在于地方政府实际上对土地拥有产权，以及地方政府发展地方经济和实现当地GDP增长的目标追求。如果将农地产权界定清晰，例如真正归属集体所有或农地农有，在农地转用时由农民与用地者直接讨价还价，即以市场机制来定价，则地方政府的低价供地行为将会受到约束，地方政府的投资冲动及其主导的城市扩张就会受到遏制。
3.3 soil-rent values policies
At present China's soil-rent value policy mainly is and demarcates the soil-rent value to the datum soil-rent value the management, and demarcates the soil-rent value including the datum soil-rent value the appraisal, repairs arranges, the announcement and the verification, as well as the agreement sells the floor price control, the tender auction minimum acceptable bid or the base price indeed decides with the market transaction declaration of value system and so on.The price control enables the Chinese government to have the application soil-rent value regulation macroscopic economy the possibility, simultaneously needs to pay attention, but because the policy is makes up the market to malfunction substitutes for the market mechanism, therefore should reduce the price control as far as possible.For example, each place generally uses at present the low price sells the land namely “the soil-rent value subsidy” the attraction investment phenomenon, the root lies in the local authority in fact to have the property right to the land, as well as the local authority develops the place economy and realizes the goal pursue which local GDP grows.If is clear the farmland property right limits, for example true ownership collective all or land to the tillers, diverts when the farmland with uses by the farmer to bargain back and forth directly, namely fixes a price by the market mechanism, then local authority's low price will supply the behavior to be able to receive the restraint, local authority's investment impulse the city which and its will lead to expand can receive the containment.
经济学原理表明，不论是限定最高价还是限定最低价，除了增加高昂的监管成本外，还会带来价格机制的扭曲，造成经济效率损失。要求政府管制房价，一是未搞清楚政府与市场的关系（前者只是对后者的补充）；二是高估了政府的能力（由于房地产的多样性和异质性，政府不可能针对每套住宅定价，所以采用“限价房”、“限地价”等政策不仅无法实现调控房价和住房保障的目标，而且扭曲了资源的定价机制，不利于资源稀缺程度的显化，从而降低了资源的利用效率）。
The economic principle indicated, no matter is defined the maximum valence or defines the floor price, besides increase soaring supervising and managing cost, but also can bring the price mechanism the distortion, causes the economic efficiency losses.The request government regulation house price, one has not made clear the government and the market relations (former only is to latter supplement);Two, has overestimated government's ability (as a result of real estate multiplicity and non-uniformity, government not impossible to aim at each set of housing fixed price, not only therefore use “limits the price room”, “limits soil-rent value” and so on policies to be unable to realize regulative house price and housing safeguard goal, moreover twisted resources fixed price mechanism, does not favor resources scarce degree to reveal, thus reduced resources use efficiency).
3.4 土地税收政策
国外非常重视土地税收制度。一般地，财产税或不动产税占地方财政收入的30%以上，并且主要用于地方公共产品的供给。一些学者认为，税制改革是土地政策的根本；为对付地价上涨，可增加短期转让所得税，但是这种措施是否能够抑制投机仍是疑问，相反由于减少了土地的有效供给，结果可能会适得其反。
3.4 lands tax policy
Overseas takes the land tax revenue system extremely.Generally, the property tax or the personal property tax does not account for the local finance income above 30%, and mainly uses in the place public product supplies.Some scholars believed that, the tax system reform is the agrarian policy basis;In order to cope with the soil-rent value rise, may increase the short-term transfer income tax, but this measure whether could suppress congenially was still the question, because on the contrary reduced the land effective supplies, the result possibly could work just the opposite.
目前中国的不动产税制总体上存在“重流转课税，轻保有课税”的倾向。目前所征收的房产税和城镇土地使用税，二者合并相当于国外的不动产税，然而目前这两种税对城镇普通住房免征，并且城镇土地使用税是按面积而非地价征收。这一适应原计划经济的不动产税制，使得政府难以将土地税收政策作为宏观调控的主要政策工具。开征物业税，作为地方政府主要税收来源，部分取代目前的地方财政以土地出让金和银行贷款为主的状况，是不动产税制改革的一个基本方向。此外，对于已确认的投机较严重的地区，可考虑应用“托宾税”政策[1]增加投机的交易成本，以抑制投机。
At present in China's real estate tax system overall exists “pasts again the assessment, holds the assessment lightly” tendency. At present levies property tax and the cities land use tax, the two merge is equal to the overseas not personal property tax, however present these two kind of taxes to cities ordinary housing exemption, but and the cities land use tax is the non- soil-rent value levies according to the area. This adapts the original planned economy real estate tax system, causes the government to take with difficulty the land tax policy the macroeconomic regulation and control the underlying policy tool. Begins levying taxes the property tax, originates as the local authority main tax revenue, the part substitutes present the local finance by the land fees from sales and the bank loan primarily condition, is a real estate tax system reform basic direction. In addition, regarding already the congenial serious area which confirmed, may consider the application “the Tobin tax” the policy [2][①[3]] Increases the congenial transaction cost, suppresses congenially.
3.5 土地制度改革措施
随着土地制度改革的深化，土地使用者与国家、地方政府和中央政府的权利及责任进一步明确，土地产权界定逐渐清晰。而清晰的产权是市场交易的前提，通过交易成本的降低提高经济效率。城镇土地使用制度改革的核心是土地出让制度的改革，经历了从划拨，协议出让，经营性用地招拍挂，到目前的工业用地和基础设施用地逐步实行招拍挂的过程。随着土地制度改革的深入，土地一级市场逐步完善，竞争性加强，效率明显提高。这种制度变迁所带来的诸如土地有效供给的增加以及市场效率的提高，是处于转轨时期的中国特别需要长期坚持的一个方向。
3.5 land systems reform measure
Along with the land system reform deepening, the land user and national, the local authority and central authorities' right and the responsibility further are clear about, the land property right limits is clear gradually.But the clear property right is the market transaction premise, reduces through the transaction cost enhances the economic efficiency.The cities land use system reform core is the land sells the system the reform, experienced from transferred, the agreement sold, 经营性 used a move of racket to hang, 用地 and the infrastructure uses to the present industry to implement gradually incurs the process which the racket hung.Along with land system reform thorough, land level of markets consummate gradually, competitiveness strengthens, efficiency distinct enhancement.This system vicissitude brings such as the land effective supplies increase as well as the market efficiency enhancement, is in a direction which the switcher time China needs to persist for a long time specially.
可采用同样的逻辑改革土地二级市场制度，增加土地有效供应。据国土部公布的存量土地专项调查数据，到2004年底，全国城镇规划范围内共有闲置土地107.93万亩，空闲土地82.24万亩，批而未供土地203.44万亩，三类土地总量为395.61万亩，相当于现有城镇建设用地总量的7.8%。如此大量的存量用地如果不能形成有效供给，将是土地资源的极大浪费。而目前推行的土地储备制度，由于加强了对二级市场的管制，不利于有效供给的形成。从产权学派的观点看，如果初始的产权界定不完善（如双轨制下的协议供地甚至划拨供地与招拍挂供地并存），那么通过二级市场土地产权的交易，也能达到提高资源配置效率的目的。
May use the similar logical reform land two levels of markets systems, the increase land effective supply; According to the national territory department announcement storage quantity land special investigation data, to 2004 year's end, in the national cities planning area altogether has leaves unused the land 1,079,300 Chinese acres, but the idle land 822,400 Chinese acres, approve not for the land 2,034,400 Chinese acres, three kind of lands total quantity are 3,956,100 Chinese acres, is equal uses the total quantity in the existing cities construction 7.8%.The so massive storage quantities use if cannot form the effective supplies, will be the land resource enormous waste.But at present carries out land reserve system, because strengthened to two levels of markets controls, does not favor the effective supplies the formation.Looked from the property right school of thought viewpoint, if the initial property right limits imperfect (for example under two-track system agreement supplies even to transfer for and a move of racket hangs for coexists), then through two levels of markets lands property right transaction, also can achieve enhances the resources disposition efficiency the goal.
3.6 土地行政手段
首先，应辩证地看待宏观调控中的行政手段。在当前经济手段不很有效的现实下，行政手段可能有效地防止了出现更大的产能过剩，以及可能出现的经济危机，是一种务实的做法。其次，从短期期来看，行政手段可能是有效和务实的，但从长期来看，比价格管制更加直接严厉的行政手段是无效的。主要原因在于，所谓“上有政策下有对策”，行政手段的成本（包括监管成本）非常高，有时可能高至使该项政策无法执行。
3.6 lands administrations method
First, should regard in the macroeconomic regulation and control dialectically the administrative method.Under the current economical method not very effective reality, the administrative method effectively had possibly prevented appears in a big way produces can be surplus, possibly as well as appears the economic crisis, is one practical procedure.Next, from short successive looked that, the administrative method possibly is effective and practical, but from looked for a long time, even more is more direct than the price control the severe administrative method is invalid.The main reason lies in, so-called “on has under the policy to have the countermeasure”, administrative method cost (including supervising and managing cost) extremely high, sometimes possible from Gao Zhishi this policy to be unable to carry out.
行政手段的成本还表现为，在调控和抑制部分地区、部分行业或部分项目的同时，可能给其他优质项目带来损失。例如，防范“过热”的一些政策也许对于上海等城市适用，并有利于降低风险，但是对于房地产市场刚起步不久的二三线城市就不适合。类似的诸如提高房地产交易税，可能对抑制投机性需求并无显著影响，却抑制了真实需求。
The administrative method cost also performance is, during the regulation and the suppression partial areas, the partial professions or partial projects, possibly gives other high quality projects to bring the loss.For example, guard “heat” perhaps some policies regarding cities and so on Shanghai are suitable, and is advantageous in reduces the risk, but just started regarding the real estate market the soon 23 cities not to suit.Similar such as enhances the real estate transaction tax, possibly to suppresses the speculative demand and affects not remarkably, has suppressed the real demand actually.
总之，任何一项政策既有收益又有成本，有效的政策至少应收益大于成本。与行政手段相比，经济手段的成本低，这是因为经济手段体现了一种长期以来不断发展完善形成的，并且有法律保障的制度，也即通常所说的“长效机制”。这种明确的规则，有利于政府和微观市场主体建立合理而稳定的预期，减少风险和不确定性，从而保证市场效率和宏观经济稳定。
In brief, any policy both has the income and to have the cost, the effective policy should the income be bigger than the cost at least.Compares with the administrative method, the economical method cost is low, this is because the economical method manifested one kind unceasingly to develop since long ago consummates forms, and had the system which the law safeguarded, also namely usually said “persistent effect mechanism”.This kind of explicit rule, is advantageous to the government and the microscopic market main body establishment reasonable and stable anticipated, reduces the risk and not determinism, thus guaranteed the market efficiency and the macroscopic economy are stable.
[1] 托宾税是诺贝尔奖得主托宾（James Tobin）针对国际金融市场的投机活动提出的，认为应对外汇交易征收比如0.1%或0.5%的交易税。
[2][①[2]] The Tobin tax is Nobel prize new owner Tobin (James Tobin) proposes in view of the international money market congenial activity, thought should levy for instance 0.1% or 0.5% transaction tax to the foreign currency trading.
2012.11.16