房地產(chǎn)規(guī)劃政策建議書翻譯-中英對照

盡管目前對是否應放松容積率等規(guī)劃管制爭論激烈，但大多數(shù)學者都認為目前的土地規(guī)劃缺乏前瞻性和科學性。例如，濟南市2000年完成全市土地利用規(guī)劃的修編并開始實施，2003年以后就出現(xiàn)問題，經(jīng)濟社會的快速發(fā)展與規(guī)劃指標不協(xié)調(diào)，規(guī)劃指標被建成區(qū)不斷擴大所突破；實際利用區(qū)位往往與規(guī)劃區(qū)位偏離，規(guī)劃未充分考慮到土地利用的最佳區(qū)位；頻繁調(diào)整的土地利用規(guī)劃損害了其權威性。濟南市2020年的規(guī)劃指標預計到2010年將全部用完，所以不得不經(jīng)常進行規(guī)劃修編。前瞻性的規(guī)劃應將城市規(guī)劃邊界劃定在當前城市最優(yōu)邊界之外，并為未來發(fā)展留出足夠空間，也有利于市場形成未來開發(fā)的穩(wěn)定預期。

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.

與供地計劃一樣，土地規(guī)劃的編制應基于對未來發(fā)展理性的、科學的預測。應改變目前規(guī)劃編制以人均指標為主，忽視經(jīng)濟規(guī)律和市場作用的傾向，需要對未來經(jīng)濟發(fā)展、人口增長特別是流動人口的增加等做出合理估計。同時，適當放寬目前對諸如規(guī)劃邊界、城市建筑高度、容積率等的過度限制，以促進城市的健康理性發(fā)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 地價政策

目前中國的地價政策主要是對基準地價和標定地價的管理，包括基準地價和標定地價的評估、修編、公布和審核，以及協(xié)議出讓最低價管制、招標拍賣標底或底價的確定和市場交易價格申報制度等。價格管制使得中國政府具有應用地價調(diào)控宏觀經(jīng)濟的可能性，同時需要注意，由于政策是彌補市場失靈而不是取代市場機制，所以應盡量減少價格管制。例如，目前各地普遍采用的低價出讓土地即“地價補貼”吸引投資的現(xiàn)象，根源在于地方政府實際上對土地擁有產(chǎn)權，以及地方政府發(fā)展地方經(jīng)濟和實現(xiàn)當?shù)谿DP增長的目標追求。如果將農(nóng)地產(chǎn)權界定清晰，例如真正歸屬集體所有或農(nóng)地農(nóng)有，在農(nóng)地轉(zhuǎn)用時由農(nóng)民與用地者直接討價還價，即以市場機制來定價，則地方政府的低價供地行為將會受到約束，地方政府的投資沖動及其主導的城市擴張就會受到遏制。

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.

經(jīng)濟學原理表明，不論是限定最高價還是限定最低價，除了增加高昂的監(jiān)管成本外，還會帶來價格機制的扭曲，造成經(jīng)濟效率損失。要求政府管制房價，一是未搞清楚政府與市場的關系（前者只是對后者的補充）；二是高估了政府的能力（由于房地產(chǎn)的多樣性和異質(zhì)性，政府不可能針對每套住宅定價，所以采用“限價房”、“限地價”等政策不僅無法實現(xiàn)調(diào)控房價和住房保障的目標，而且扭曲了資源的定價機制，不利于資源稀缺程度的顯化，從而降低了資源的利用效率）。

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 土地稅收政策

國外非常重視土地稅收制度。一般地，財產(chǎn)稅或不動產(chǎn)稅占地方財政收入的30%以上，并且主要用于地方公共產(chǎn)品的供給。一些學者認為，稅制改革是土地政策的根本；為對付地價上漲，可增加短期轉(zhuǎn)讓所得稅，但是這種措施是否能夠抑制投機仍是疑問，相反由于減少了土地的有效供給，結果可能會適得其反。

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.

目前中國的不動產(chǎn)稅制總體上存在“重流轉(zhuǎn)課稅，輕保有課稅”的傾向。目前所征收的房產(chǎn)稅和城鎮(zhèn)土地使用稅，二者合并相當于國外的不動產(chǎn)稅，然而目前這兩種稅對城鎮(zhèn)普通住房免征，并且城鎮(zhèn)土地使用稅是按面積而非地價征收。這一適應原計劃經(jīng)濟的不動產(chǎn)稅制，使得政府難以將土地稅收政策作為宏觀調(diào)控的主要政策工具。開征物業(yè)稅，作為地方政府主要稅收來源，部分取代目前的地方財政以土地出讓金和銀行貸款為主的狀況，是不動產(chǎn)稅制改革的一個基本方向。此外，對于已確認的投機較嚴重的地區(qū)，可考慮應用“托賓稅”政策[1]增加投機的交易成本，以抑制投機。

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

隨著土地制度改革的深化，土地使用者與國家、地方政府和中央政府的權利及責任進一步明確，土地產(chǎn)權界定逐漸清晰。而清晰的產(chǎn)權是市場交易的前提，通過交易成本的降低提高經(jīng)濟效率。城鎮(zhèn)土地使用制度改革的核心是土地出讓制度的改革，經(jīng)歷了從劃撥，協(xié)議出讓，經(jīng)營性用地招拍掛，到目前的工業(yè)用地和基礎設施用地逐步實行招拍掛的過程。隨著土地制度改革的深入，土地一級市場逐步完善，競爭性加強，效率明顯提高。這種制度變遷所帶來的諸如土地有效供給的增加以及市場效率的提高，是處于轉(zhuǎn)軌時期的中國特別需要長期堅持的一個方向。

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, 經(jīng)營性 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.

可采用同樣的邏輯改革土地二級市場制度，增加土地有效供應。據(jù)國土部公布的存量土地專項調(diào)查數(shù)據(jù)，到2004年底，全國城鎮(zhèn)規(guī)劃范圍內(nèi)共有閑置土地107.93萬畝，空閑土地82.24萬畝，批而未供土地203.44萬畝，三類土地總量為395.61萬畝，相當于現(xiàn)有城鎮(zhèn)建設用地總量的7.8%。如此大量的存量用地如果不能形成有效供給，將是土地資源的極大浪費。而目前推行的土地儲備制度，由于加強了對二級市場的管制，不利于有效供給的形成。從產(chǎn)權學派的觀點看，如果初始的產(chǎn)權界定不完善（如雙軌制下的協(xié)議供地甚至劃撥供地與招拍掛供地并存），那么通過二級市場土地產(chǎn)權的交易，也能達到提高資源配置效率的目的。

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，應辯證地看待宏觀調(diào)控中的行政手段。在當前經(jīng)濟手段不很有效的現(xiàn)實下，行政手段可能有效地防止了出現(xiàn)更大的產(chǎn)能過剩，以及可能出現(xiàn)的經(jīng)濟危機，是一種務實的做法。其次，從短期期來看，行政手段可能是有效和務實的，但從長期來看，比價格管制更加直接嚴厲的行政手段是無效的。主要原因在于，所謂“上有政策下有對策”，行政手段的成本（包括監(jiān)管成本）非常高，有時可能高至使該項政策無法執(zhí)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.

行政手段的成本還表現(xiàn)為，在調(diào)控和抑制部分地區(qū)、部分行業(yè)或部分項目的同時，可能給其他優(yōu)質(zhì)項目帶來損失。例如，防范“過熱”的一些政策也許對于上海等城市適用，并有利于降低風險，但是對于房地產(chǎn)市場剛起步不久的二三線城市就不適合。類似的諸如提高房地產(chǎn)交易稅，可能對抑制投機性需求并無顯著影響，卻抑制了真實需求。

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.

總之，任何一項政策既有收益又有成本，有效的政策至少應收益大于成本。與行政手段相比，經(jīng)濟手段的成本低，這是因為經(jīng)濟手段體現(xiàn)了一種長期以來不斷發(fā)展完善形成的，并且有法律保障的制度，也即通常所說的“長效機制”。這種明確的規(guī)則，有利于政府和微觀市場主體建立合理而穩(wěn)定的預期，減少風險和不確定性，從而保證市場效率和宏觀經(jīng)濟穩(wěn)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.

 

 

 

 

武漢翻譯公司

2012.11.16