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The author:(作者)qqpublished in(发表于) 2013/11/26 9:00:49 Expert interpretation of economic reform： local fiscal reform winners
Wu Jinglian and Gu Shengzu, Gao Peiyong, week release, Gao Minghua and other leading experts –
In the interpretation of the decisions of the task of economic reform
The China economic weekly reporter reported Beijing Yao Dongqin Houjun |
Last week, both party and Government conferences, expert seminars, is a sort of, the focus is driven by a more than 21,000-word report--the CPC Central Committee on several major issues of comprehensive reform decision (hereinafter the decision).
The decision in the closing 18 adopted at the third plenary session of the November 12, released on November 15. In this paper, new Central collective leadership put forward 60 specific tasks for reform, covering economic, political, cultural, social, and ecological civilization and construction of national defense and the army, the party system, and many other reforms, spelled out "by 2020, the decisive results on reform in important fields and crucial links" timetable.
In the long run, the decision over the next 7 years in all departments, work center of gravity.
Since the third plenary session of its introduction at the third plenum of the many important policy, reflect the policy agenda of the new Central collective leadership. However, 18 and 6 times since the third plenary session of the third plenary session plenary session is different.
"Despite the previous plenary session focusing on reforms, but the theme is only one aspect of the reform, and this position deepen reform in plenary. "Participation in the work of the drafting group of the decision of the central financial and economic leading Group Office Deputy Director Yang Weimin said in an interview with Xinhua News Agency, 18 comprehensive reform theme for the third plenary session, commensurate with the current reform situation, storming the reform period and the Sham Shui Po District, only by adhering to the comprehensive reform in order to continue to deepen the reform.
However, 18 plenary session topic is to deepen reform, but still chose a "locomotive", emphasizing the traction of the reform of the economic system reform in other areas. In the decision of the 15 areas identified in the task of reforming, 6 are economic, one closely related to the economic system of ecological civilization, accounted for nearly half of all reform tasks.
Wrote in the decision that "economic restructuring is the focus of comprehensive reform, the core issue is to deal with the relationship between Government and market, the market plays a decisive role in the allocation of resources, and give better play to the role of Government. ”
"It will market in the allocation of resources in the past ' basic role ', the words ' decisive role ', change of two words, is of great significance, is the decision the biggest bright spot and major theoretical innovations, is the connotation of socialist market economy in our country ' quality ' enhance and deepen economic restructuring and reform in other fields in the future the basic guidelines. "Yang Weimin said.
Economist Wu Jinglian said that "the market plays a decisive role in the allocation of resources, which answered most recently a great deal of controversy for more than 10 years, is that we reform to move forward, to which direction? The market direction, is to strengthen economic, social control by the Government in this direction? Was confirmed by the third plenum of the market, and it refers to a very high position. ”
Zhou Fang, Vice President of China's enterprise reform and Development Association in an interview with the China economic weekly, also said the difference between the two words, citing an economic reform, took a major step forward in the market direction. "On the road to market economy, if, in the past, ' basic ', is still a bit ' still holds partly concealed Biwa ', then this one is truly recognized the role of the market. "Weekly release said.
Foreign financial institutions are also highly attention to the decision issued. Zhu Haibin told the China economic weekly, Chief China Economist at JPMorgan, said that "from an economic point of view, priority areas of reform are more or less in line with our expectations, including administrative reform, financial reform, financial reform, land reform and resource price reform. However, there are some surprises worth paying attention to. First, the report stressed that the market in the allocation of resources should be ' decisive '. Secondly, the report includes many of the more progressive reform measures, if successfully implemented, will contribute to the long-term balance of China's sustainable development. In addition, the plenary also announced the establishment of a comprehensive reform leading group and the National Security Council, most likely, this new leadership will strengthen the ability to promote the implementation of the reforms. ”
6 tasks of economic reform, involving the construction of State-owned enterprise reform, the single market and the transformation of government functions, fiscal reforms, such as activation elements of rural assets are currently hot spots and focus of the reform, there is also difficulty. Market-oriented ways to play a role in these changes? Reform would give the economy for some time to come, affect social development? What policy mix is expected to introduce next? Interpretation of the China economic weekly invites leading experts one by one.
Dividends of State-owned enterprises more used to safeguard and improve people's livelihood
Sections of the decision involved in reforming State-owned enterprises, quite striking is, "increase the proportion of State-owned capital gains paid public finance 2020 referred to 30%, more used to safeguard and improve people's livelihood. ”
Weekly release, which contains two positive elements. First, the pay increase the proportion pie. The past, the SASAC supervision of enterprises by type of enterprise turn over ratio for 5%~15%, tobacco enterprises turned over 20% (withholding of SASAC, paid the Ministry of finance, the State Treasury). Second, cake or beneficiaries of the changes. The past, the money collected on State-owned assets supervision, most used to solve enterprises historical burdens, reforming the cost payment, equity investment, support, said using money from enterprises to enterprises, public contribution to the welfare of the nation is very small, now proposes to put the cake more to people's livelihood.
"What is the goal of reforming State-owned enterprises reform? Value preservation and value added of State-owned assets, achieve maximum state capital, is not a final goal, the ultimate goal should be to maximize national welfare. "Corporate governance and Enterprise Development Research Center at Beijing Normal University said Gao Minghua, Director of the China economic weekly.
Gao Minghua has been engaged in the research of State-owned enterprise reform. He said that remark in the decision made him feel "inspired". The decision made, and to accurately define the different function of State-owned enterprises and public enterprises, State-owned enterprises into categories of natural monopoly industries, competitive industries. "How to operate in the future in each category, there is expected to be the implementation details. "Gao Minghua said.
Gao Minghua said, best in class industry can also be divided into a kind of scarce resources, adopt rational pricing mechanism to prevent the excessive exploitation of resources.
"The decision was made to establish a system of professional managers, the system in a competitive industry, no problem, also suitable for the industry to be practice for public welfare. Because the Manager's expertise also lies in maximizing profit. In developed countries, the public tend to be the leaders of State-owned enterprises carried out by reference to civil service evaluation, motivation through promotions to them. "Gao Minghua said.
Perfecting management system of State-owned assets, and the focus of the reform of State-owned assets. The decision states that, based on capital to strengthen State-owned assets supervision, reform of State-owned capital management authorized institutions, the formation of a number of State-owned capital operation companies, support conditional on restructuring of State-owned enterprises into State-owned investment company.
"In the past, SASAC is to oversee investor duty and unity. An analogy, in the areas of State-owned assets, develop rules of the game, referee and Manager are the same person, State-owned companies are players. The future will pass reforms to untangle the SASAC's responsibilities. "Week release said that overall, the decision to marketization of SOE reform-oriented direction.
Building a open to all subjects
Market
The decision made, and establish a unified, open, competitive and orderly market system, is to make the market plays a decisive role in the allocation of resources is based. Must speed up the formation of the company operate independently, fair competition, consumer consumers freedom of choice, autonomy, equal exchange of the free movement of goods and factors, the modern market system and strive to remove market barriers and improve resource allocation efficiency and fairness.
Wu Jinglian said, from market itself see, currently of market system has three a main disadvantages: first, in bar split of situation zhixia, makes market debris of; second, because exists with many hamper competition of monopoly acts, and administrative intervention acts, and industry protection acts, makes market lost has competitive; third, market development not balance, merchandise market of development degree good some, but still not completely, and not full, elements market development degree is is low.
"A unified and open means to eliminate fragmentation, is an integrated market, is open to all market players. Orderly competition, that is to be excluded from monopoly, trade protection, local protection. "Wu Jinglian said that establishing such a market system, requires a multifaceted reform is a comprehensive project.
Vice Chairman of the Central Committee Gu Shengzu were concerned about equality of market players. "It (the decision made) both the public-owned economy and the non-State-owned economy is an important foundation for economic and social development, and market equality not only emphasized the vitality of the State-owned economy, power, influence, also made non-public-owned economy, which is an important characteristic of modern market system. Perfecting the financial system in particular, raised the issue of private small and medium banks, this is a big breakthrough. "Gu Shengzu said.
Appraisal theory of achievement not only GDP
"Speed up the transformation of governmental functions" chapter, the decision is as follows: improve evaluation of development results, correct simply to assessing achievements in favour of economic growth, increased resource consumption, environmental damage, eco-efficiency, excess capacity, technological innovation, safety and added debt indicators such as weight, greater emphasis on employment, income, social security, health status of the population.
"This means that future evaluation theory of achievement not only GDP, but with a more comprehensive set of indicators to assess. "Peking University political development and Government Management Institute Director Wang puqu on China economic weekly under said, government functions shift, just decentralization, while also to reform Government run of inner mechanism, and structure," through performance examination to constraint Government of acts, past, GDP is main indicators, now, shift government functions, requires full correctly exercise government functions, performance examination of way also must corresponding change. "Wang puqu said.
And the transformation of government functions are closely linked, the decision also offered to promote the Government to purchase services, "where transactional management services, in principle, to introduce a competition mechanism, purchased through the contract, delegates, to community. ”
On September 30, the State Council issued the guidance on Government purchases of service to the community, which, education, employment, social protection, health, housing, culture, sports, and services for persons with disabilities, and other basic public services, to gradually increase the intensity of Government purchases of service to the community.
"The decision refers to ' transactional management services, a wide range, there is no authority to determine. Around the policy varies, and some where to buy the services of a wide range. For example, the Guangdong Provincial Government to procure services range from social organizations, in addition to social and public services and management matters, including government services required to perform their duties, such as making consultation. "According to Wang puqu said, recently, at the Treasury on" Government purchases of public services to the community "workshop, sources say, about" transactional management service "scope is the next step to regulate the content of the Ministry.
Place or become a fiscal reform's biggest winners
"The plenary, finances are the foundations and pillars of governance, identifying tax system as an important part of national systems will be the next focus of reform. "Yang Weimin said that after nearly 20 years of tax reform, gradually exposed some deep questions of financial and taxation systems, such as scarce resources tax protection, taxation cannot give better play to adjust income gap, lack of sources of financing for land is the only way ... ... To crack the problem, you need to design the system reform of finance and taxation, and establish a scientific and financial and taxation systems.
At the press conference of the information Office of the State Council held on November 19, Vice Minister of Finance Wang Baoan said, the next step to implement fiscal reforms to deal with the following: deal with current issues and long-term development relationship central-local relationship; top level design and innovation; deal with reform and development of relations, breakthrough; deal with tax reform and other areas, synergy advance.
Since the tax reform, financial power, largescale match problem is becoming increasingly apparent, local authority and financial. Central and local financial power, largescale face readjustment.
The decision made clear that to establish a modern financial system, its central and local initiative. Central University of finance and Dean of Finance Wang Yongjun, said this tax reform will be more power back to local governments, right in business, if the smooth implementation of reforms, is going to be the biggest winner.
How to achieve the decision made in the "authority to act and adapt expenditure responsibility"? "Central to get the authority to act is one way of addressing, but it can also be delegated expenditure responsibilities. Event cover the entire nation, as little as possible to the place. Has received authority to consider, but also decentralizing expenditure responsibility of content is adjusted to each other, and ultimately there is a match. Decentralizing expenditure responsibility and may be a central through transfer payments, to delegate the authority to place; you can also put some purse strings that can't be directly left, while expenditure responsibilities also remain in place. "The President of the Chinese Academy of Social Sciences Institute of financial strategy Gao Peiyong said in a media interview.
(Correspondent Jia Xue also contributed to this article)
(Edit: SN091)November 26, 2013 China economic weekly(专家解读经济改革任务：地方或成财税改革赢家|改革|三中全会|任务_新闻资讯
吴敬琏、辜胜阻、高培勇、周放生、高明华等权威专家——
解读 《决定》 中的经济改革任务
《中国经济周刊》 记者 姚冬琴 侯隽｜北京报道
过去的一周，无论是党政会议、专家研讨，还是街谈巷议，焦点都离不开一份2.1万多字的报告——《中共中央关于全面深化改革若干重大问题的决定 》(下称《决定》)。
《决定》在11月12日闭幕的十八届三中全会上通过，11月15日公布。在这份文件中，新一届中央领导集体提出了60项改革具体任务，涵盖经济、政治、文化、社会、生态文明，以及国防和军队、党的建设制度等多方面改革，且明确提出了“到2020年，在重要领域和关键环节改革上取得决定性成果”的时间表。
从长远看，《决定》在未来7年时间里都将是各部门、各地方工作的重心。
自十一届三中全会以来，很多重大政策都在三中全会出台，体现新一届中央领导集体的施政纲领。但是，十八届三中全会与十一届三中全会以来的6次三中全会都不同。
“尽管前几次三中全会也都聚焦改革，但主题仅是某一方面的改革，而这次全会定位全面深化改革。”参与《决定》起草组工作的中央财经领导小组办公室副主任杨伟民在接受新华社采访时表示，十八届三中全会之所以把主题定为全面深化改革，与当前改革形势相适应，在改革攻坚期和深水区，只有坚持全面改革，才能继续深化改革。
不过，十八届三中全会主题虽然是全面深化改革，但仍然选择了一个“火车头”，强调发挥经济体制改革对其他领域改革的牵引作用。在《决定》确定的15个方面改革任务中，6个是经济，1个是与经济密切相关的生态文明体制，占了所有改革任务的近一半。
《决定》中写道，“经济体制改革是全面深化改革的重点，核心问题是处理好政府和市场的关系，使市场在资源配置中起决定性作用和更好发挥政府作用。”
“公报将过去的市场在资源配置中起‘基础性作用’改为‘决定性作用’，两字之变，意义十分重大，是《决定》最大的亮点和重大理论创新，是对我国社会主义市场经济内涵‘质’的提升，也是未来深化经济体制改革及其他领域改革的基本方针。”杨伟民说。
经济学家吴敬琏表示，“要使市场在资源配置中起决定性作用，这就回答了特别是最近十多年来一个很大的争论，就是我们改革要往前走，向哪一个方向走？向市场化方向走，还是向强化政府对于经济、对于社会的管控这个方向走？ 三中全会肯定了市场，而且把它提到了一个很高的地位 。”
中国企业改革与发展研究会副会长周放生在接受《中国经济周刊》采访时也表示，两字之差，标志着经济体制改革，朝着市场化的方向走了一大步。“在走市场经济道路上，如果说，过去提‘基础性’作用，还是有点‘犹抱琵琶半遮面’，那么，这一次是市场的作用真正得到承认。”周放生说。
外资金融机构也对《决定》出台高度关注。摩根大通中国首席经济学家朱海斌对《中国经济周刊》表示，“从经济方面来看，优先考虑的改革领域或多或少与我们的预期相符，其中包括行政改革、金融改革、财政改革、土地改革和资源价格改革。但是，仍有一些意外惊喜值得关注。首先，报告强调市场应该在资源配置中起‘决定性’作用。其次，报告包括很多详细的积极改革措施，如若得到成功执行，将推动中国实现长期均衡的可持续发展。另外，三中全会还宣布成立全面深化改革领导小组和国家安全委员会，这很可能将会强化新一届领导推动各项改革的执行能力。”
在 6个经济改革任务中，涉及国有企业改革、建设统一市场、转变政府职能、财税体制改革、激活农村资产要素等，均是当前改革的热点和焦点，也不乏难点。市场化导向如何在这些改革中发挥作用？改革将给未来一段时间的经济、社会发展带来哪些影响？下一步哪些配套政策有望出台？《中国经济周刊》邀请权威专家一一解读。
国企红利更多用于保障和改善民生
《决定》中涉及国企改革的章节，颇为引人注目的一条是，“提高国有资本收益上缴公共财政比例，2020年提到30%，更多用于保障和改善民生。”
在周放生看来，这当中包含两项有积极意义的内容。第一，上缴比例提高，蛋糕变大了。过去，国资委监管的央企按企业类别上缴比例为5%～15%，烟草类央企上缴20%(不缴国资委，缴财政部，入国库)。第二，蛋糕的受益者有变化。过去，国资委收的这笔钱，大部分用于解决央企历史包袱、改革成本支付、资本金投入、重点扶持等，可以说把来自央企的钱又用回央企去了，对全民的公共福利贡献很小，现在提出要把这个蛋糕更多地分给民生。
“国企改革改革的目标是什么？实现国有资产保值、增值，实现国有资本最大化，不是最终目标，最终目标应当是国民福利最大化。”北京师范大学公司治理与企业发展研究中心主任高明华对《中国经济周刊》说。
高明华多年来一直在从事国有企业分类改革的研究。他说，《决定》中的有关提法让他感到“振奋”。《决定》提出，要准确界定不同国有企业功能，并把国有企业分为公益性企业、自然垄断行业、竞争性行业三类。“每一类将来怎么来经营，预计还会有实施细则。”高明华说。
高明华同时表示，稀缺资源类行业最好也能单独分为一类，采取合理的定价机制，以防资源的过度开发利用。
“《决定》还提出要建立职业经理人制度，这一制度在竞争性行业没问题，在公益性行业还适不适合就有待实践。因为经理人的专长还是在于利润最大化。在发达国家，公益类国企的领导人往往是参照公务员来进行评价，对他们的激励是通过职务晋升。”高明华说。
完善国有资产管理体制，也是国资改革的重点。《决定》指出，以管资本为主加强国有资产监管，改革国有资本授权经营体制，组建若干国有资本运营公司，支持有条件的国有企业改组为国有资本投资公司。
“过去，国资委是监督和出资人职责合一。打个比方，在国资领域，制定游戏规则者、裁判和领队是同一个人，国企是球员。未来，将通过改革来理清国资委的职责。”周放生说，总体来看，《决定》将国企改革导向了市场化方向。
建设一个对所有主体开放的
市场
《决定》提出，建设统一开放、竞争有序的市场体系，是使市场在资源配置中起决定性作用的基础。必须加快形成企业自主经营、公平竞争，消费者自由选择、自主消费，商品和要素自由流动、平等交换的现代市场体系，着力清除市场壁垒，提高资源配置效率和公平性。
吴敬琏表示，从市场本身来看，目前的市场经济体系有三个主要缺点：第一，在条块分割的情况之下，使得市场碎片化；第二，因为存在着许多妨碍竞争的垄断行为、行政干预行为、行业保护行为，使得市场失去了竞争性；第三，市场发展不平衡，商品市场的发展程度好一些，但仍不完全、不充分，要素市场发育程度则很低。
“统一开放，意味着要消除条块分割，是一体化市场，是对所有市场主体开放。竞争有序，也就是说要排除垄断行为、行业保护、地方保护等。”吴敬琏说，要建立这样一个市场体系，需要进行很多方面改革，是一个综合性大工程。
民建中央副主席辜胜阻则关注市场主体的平等地位。“这一次(《决定》提出)无论是公有制经济还是非公有制经济都是经济社会发展的重要基础，市场平等地位不仅强调国有经济的活力、控制力、影响力，也提出非公有制经济，这是现代市场体制重要的特点。特别是完善金融体制，提出建立民营中小银行，这是很大的突破。”辜胜阻说。
考核政绩不再唯GDP论
在“加快转变政府职能”章节，《决定》有如下表述：完善发展成果考核评价体系，纠正单纯以经济增长速度评定政绩的偏向，加大资源消耗、环境损害、生态效益、产能过剩、科技创新、安全生产、新增债务等指标的权重，更加重视劳动就业、居民收入、社会保障、人民健康状况。
“这意味着今后考核政绩不再唯GDP论，而是以更全面的指标来考核。”北京大学政治发展与政府管理研究所所长王浦劬对《中国经济周刊》说，政府职能转变，不仅仅是简政放权，同时也要改革政府运行的内在机制、结构，“通过绩效考核来约束政府的行为，过去，GDP是主要指标，现在，转变政府职能，要求全面正确行使政府职能，绩效考核的方式也必须相应改变。”王浦劬说。
与转变政府职能紧密相连，《决定》还提出要推广政府购买服务，“凡属事务性管理服务，原则上都要引入竞争机制，通过合同、委托等方式向社会购买。”
9月30日，国务院出台了《关于政府向社会力量购买服务的指导意见》，其中提出，教育、就业、社保、医疗卫生、住房保障、文化体育及残疾人服务等基本公共服务领域，要逐步加大政府向社会力量购买服务的力度。
“《决定》提到的‘事务性管理服务’，范围相当广泛，目前还没有权威性确定。各地制定的政策也不尽相同，有的地方购买服务的范围较广。比如，广东省提出政府向社会组织购买服务的范围，除了社会公共服务与管理事项，还包括政府履行职责所需要的服务事项，比如决策咨询等。”据王浦劬透露，日前，在财政部关于“政府向社会力量购买公共服务”的研讨会上，有消息称，关于“事务性管理服务”的范围，是财政部下一步要规范的内容。
地方或成为财税改革的最大赢家
“全会提出，财政是国家治理的基础和重要支柱，点明财税体制作为国家体系重要组成部分将成为下一步改革的重点。”杨伟民说，历经近20年分税制改革，财税体制的一些深层次问题逐渐暴露，如稀缺资源缺乏税制保护、税制不能更好发挥调节收入差距作用、地方缺乏税源只能靠卖地方式筹资……要破解这些问题，需要对财税体制改革进行总体设计，建立科学的财税体制。
在国务院新闻办公室11月19日召开的新闻发布会上，财政部副部长王保安介绍称，下一步落实财税改革要处理好以下关系：处理好当前问题和长远发展关系；中央地方关系；顶层设计和地方创新问题；处理好改革和发展关系，实现重点突破；处理好财税改革和其他领域的关系，实现协同推进。
分税制改革以来，地方财权、事权不匹配的问题日益明显，地方事权过多而财力不足。中央与地方的财权、事权面临重新调整。
《决定》明确指出，要建立现代财政制度，发挥中央和地方两个积极性。中央财经大学财经研究院院长王雍君表示，这次财税改革将更多地还权于地方政府，还权于企业，如果改革顺利，地方将会成为最大的赢家。
怎么实现《决定》中提出的“事权和支出责任相适应”？“中央上收事权是解决的一个办法，但也可以是下放支出责任。覆盖全国人民的大事，尽量少交给地方完成。有上收事权的考虑，但也有下放支出责任的内容，是相互调整，最终实现两者相匹配。下放支出责任，可以是中央通过转移支付，将一些事权委托给地方；也可以把一些收不了的财权，直接留给地方，同时把支出责任也留在地方。”中国社科院财经战略研究院院长高培勇在接受媒体采访时表示。
(本刊记者贾雪对本文亦有贡献)
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