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The author:(作者)hpmailerpublished in(发表于) 2013/11/28 8:25:20 Expert： vested interests in reform leading group from system constraints
Our reporter
Special correspondent Xu Zexia Beijing
Large adjustments over the transformation of government functions is only just beginning.
18, adopted at the third plenary session of the CPC Central Committee on several major issues of comprehensive reform decision (hereinafter the decision) clearly stated that to make market plays a decisive role in the allocation of resources, "decisive" replaces a "foundational" wording.
Has been involved in drafting the third plenary Chen Dongqi, Deputy Director of macro-economic Research Institute of the NDRC told 21st century business Herald said in an exclusive interview with Xinhua, proposed to set up the third plenary of the Central leading group for the reform, which ensures that the authority and the primacy of the reform will be on sectoral interests, vested interests have a restriction in the system.
When reading the above influence the decision to local institutions, he said, provincial investment attraction, and bodies should be eliminated or the progressive reduction of the project.
"If the Government does not withdraw from profitability, competitive program, not obsessed with public provision of essential services, GDP only on the condition that it will not change. Now on the GDP only behavior is not just a matter of business, more important is the Government's actions, in particular the behavior of local governments. "He said.
Reform of market direction
"The setting of the Central leading group for the reform of this institution means reforming not only authority, means that sector will benefit, vested interests have a restriction in the system, and must obey the Supreme authority of the reform of the policy-making organs. ”
Of the 21st century: 18 by the third plenary session of the CPC Central Committee on several major issues of comprehensive reform decisions, how to comment on its significance?
Chen Dongqi: it is a landmark. Its core is to ensure that the reform of the market direction, either in thought or in organizations. Concluded for more than 30 years of market-oriented reforms on the basis of the above-mentioned decision of the market in the allocation of resources, "basic" replaced by "decisive" role in these three words extremely high gold content.
Saying that in a socialist market economy market for resource allocation in the past play an essential role, which is relative to the previously planned progress, but not enough. "Decisive" role in this formulation, constraints on the Government. For example, the prices determined by the market, the competition determined by market forces, market by market, what to do and how to do by the market, it is to adequately control the Government's hand, too long shorten the hand of the Government, extended this invisible hand of the market.
This plenary session emphasized the reform's authority. 890 's Commission for restructuring economic system, balance specializes in reform, reform, reform measures to promote, was later incorporated into the national development and Reform Commission, the Commission will have two main functions of development and reform, and advancing the implementation of reforms was actually negative, because it was not easy to come up with a more objective and authoritative reform programme.
So this proposal to set up a central leading group for the reform of the third plenary, this ensures that the authority and the primacy of the reform, which requires individual departments cannot be defected, and cannot play their own thinking, between their own vested interests should not affect the country's overall reform. Central leading group for the reform of this setting not only means that the reform of the institutions of authority, means that sector will benefit, vested interests have a restriction in the system, and must obey the Supreme authority of the reform of the policy-making organs.
Of the 21st century: let the market play a decisive role in the allocation of resources, which some market?
Chen Dongqi: most closely associated with consumption, such as home appliances, tourism, garment industries had been left entirely to the market, which is the result of decades especially the 80 's reforms, home appliance products are very popular at that time, and konggou, mining booking. In fact, there are two approaches to, and one line of thought was to power recycle, the result must be goods shortages, price hikes, and other on the market, of competition. See is what you get, spontaneous configuration of market resources, household electrical appliance enterprises mushroomed out, you implement your own survival of the fittest, Haier, Hisense, gree, midea, the brand is also famous in the international arena, which is the outcome of industry reform, institutional reform.
After this step, we now want to further open the market factor, factor. Labour market, for example a few years ago, we said we had to let go, but didn't let go, still unable to enter the labour force relatively higher degree of monopoly industries, such as migrant workers to the city to enter the telecommunications companies, power grids or railway.
What are the factors of production of the next marketing? Now a high threshold in the financial industry, enterprises of private capital is not easy, we only started this year in Wenzhou the reforms. Land is now the rural collective land tenure, urban construction land use rights haven't let go of, subject of collective land in rural areas do not have access to a fair return, share the results of the reform. In addition, the allocation of resources should also be a market to do it. Oil anyone? Government pricing, good intentions, but the actual effects, and bear the costs and risks need to be balanced.
We are not talking about finance, land, oil, these price changes can be met at one go, it had to investigate, how to transition from the current system to a market system? This will be a process, to consciously control the risk, reducing volatility.
Investment institutions should be eliminated or streamlined
"If the Government does not withdraw from profitability, competitive program, not obsessed with public provision of essential services, GDP only on the condition that it will not change. Now GDP but more largely on the Government's actions, in particular the behavior of local governments. ”
Of the 21st century: the new formulation of macro control, and national planning is oriented mainly play the role of fiscal policy, monetary policy. Land in a future regulatory, industrial policy is not to downplay it?
Chen Dongqi: Judging from the macro-control system in developed country markets, total is regulated by adjusting fiscal and monetary policies to achieve the goal of macroeconomic balance. This is the major content of Chinese Government's macro-economic control in the future, is in the market operation regulation in place, the allocation of resources to the hand strong premise.
But in China, after all, still in the course of reform, something the Government had to adjust. Such as oil prices, might have two barrels of oil, the price is very high, because at this stage it was decided by the supply, the industry did not establish a bilateral consultation mechanism.
Land regulation is involved in macro-control system. I personally think the land to the planning, it is a macro-control set before. Of course, the past few years the land control into the macro-control system, but strictly speaking, this is an area increased to allow the market to increase, Governments play a guiding role in this part may be, but do not interfere too much, should the rule well, grass-roots system work well.
Macro regulation and control to ensure that the two parts, part specification, which is consistent with total control on international; part of our features section, featured, partly also to gradually narrow, seize the main part. This is the norm, a standard part of macro-economic control and special and characteristic combination of the parts of the regulation, but less and less special and characteristic part of the macro-control, gradually approaching the standard of macro-control of the specification.
Of the 21st century: industrial policies that would later drop out?
Chen Dongqi: no exit. Our total control is implemented through fiscal policy, but not every industry, every project should be decided by the Government. Some countries, such as Japan, also has some directionality of industrial policy.
China's direction industry is needed. Because of uneven development, China is so big, the industry very much, in this case, to have a certain direction of regulatory policy. But these industrial policies should only be directional, gradually moved closer to the basket of strategic orientation, and industrial policy. United States industry strategic planning.
Of the 21st century: in the past our system is based on GDP, now proposes to rectify GDP system, specifically how to do it?
Chen Dongqi: correction on GDP, converted from quantity type to quality type there are two main points:
First, a reform to the system of local government, to get it back to public service. Policies should be public policy, rather than engage in profit-making policies, profit-making projects. If the Government does not withdraw from profitability, competitive program, not obsessed with public provision of essential services, GDP only on the condition that it will not change. Now on the GDP only behavior is not just a matter of business, more important is the Government's actions, in particular the behavior of local governments.
Second, personally to promote political restructuring. View from the angle of economy itself is full of competition and market-oriented operation, each province attracting investment, ad agencies can not, or to gradually reduce, reducing agencies, streamlining functions, improving efficiency. This involves the reform of government administration, the Government should concentrate on public service of this one.
It is not "economic development as the central task," basic policy has changed? I think this is not the case.
"Taking economic construction as the Center" does not mean that local Government has to capture the economic, "taking economic construction as the Center" is not directly involved in the investment, grab the interest in competitive fields, raise the level of public services that the Government was taking economic construction as the Center. Would like to see is that "taking economic construction as the Center," is the main body of the enterprise is the market, not the Government. Government is to provide economic development services, including increased marketing so much easier for investment to provide convenient, low level protection for vulnerable groups.
Of the 21st century: the plenary session on "negative lists" area outside, private capital can enter, but the old "36 old" and "new article 36" finally did not fall.
Chen Dongqi: original is a list from a positive perspective, this negative list was as long as don't undermine national security, provided that they do not undermine the fairness in market, as long as it doesn't sacrifice for the benefit of others, namely premise of bottom line management, except for those of you have done. This concept is related to the rule of law, you can't do it, I don't want you to do, you can't do it is against the law to do it.
Current negative list is the bottom line, give him a bottom line for persons entering market boundaries: you must not undermine national security, not persecuting the public interests of the people. This is important to free trade zone, Shanghai, although there are innovative, but it is widespread in the world, why don't Governments do not. Positive batch of projects of the Government, not by bad management, steel projects, chemistry projects, automotive items, this was planned. But negative management, strictly speaking is completely emerged from the planned economy, is a management model that combines market and the rule of law.
Of the 21st century: does this mean that after steel projects do not require approval?
Chen Dongqi: don't go. Threshold for Government involved in environmental protection, resource-intensive technical standards, in particular the perimeter to set the threshold of good, good keep up the tube, this is called a systematic management. Either the items or projects, Mayor, Governor or the grass roots projects, on the on the, not on the up, who do not ask name was.
List of government investment, industrial structure all adjustment according to 18 the spirit of the third plenary session, which is important content of transforming government functions. After weakening investment approval, this is not a problem of a particular sector, all units should be based on a negative list of competitive resources and approval system for modification.
Real estate market in rural areas will also be
"The collective construction land use right can be in circulation, and convergence and the flow of State-owned land, which is the goal of the third step. Prior to the third step, the first step needs to be right, and the second step is to build the mechanism for transfer of the right. ”
Of the 21st century: a proposed rural land leasing market, with all State-owned land price with the same rights, understanding market varies greatly.
Chen Dongqi: this is a direction in which direction of the agrarian reform in the next decade. Collective land rights, not ownership, refers to the collective construction land use right can be in circulation, and converge and flow of State-owned land, which is the goal of the third step.
Prior to the third step, there are two steps.
First step needs to be right. To find out the background, right, certification, it is called a clear property. Now, rural land has been allocated farmland, forest land, the right to Homestead, unassigned to do right.
Right after, the next step is to secure tenure, land transfer mechanism is used for building, there are a few principles--principles of voluntary principles, freedoms, principles of balance. First is voluntary, this thing is mine, and I don't want to sell, you want me not to sell, this is the basic principles of marketing. The second is the principle of freedom, I can sell, but may be sold as a whole, part of the sell, share, rent, gift, stock management, select the forms you should diversify.
These possible and State practice, is about to do at the moment is indeed right, certification, and accreditation.
Of the 21st century: the last housing can be built is collective ownership of land, sold in the market?
Chen Dongqi: the last rural real estate market with the city's real estate market should be consistent and uniform.????Unified urban and rural areas is important, integration of urban and rural development is important, there are three specific integration of urban and rural integration--a population labour force; the second is the integration of urban and rural infrastructure, including transportation, telecommunications and environmental infrastructure integration; third, market integration, commodity market integration is now more or less the next element there is a process of market integration. I'm talking about the three stages of land reform from the target, you've built a House on the ground, the House is yours, can sell or not to sell, but it's not. Rural real estate market are also in the future, farmers will also have real estate gains.
(Edit: SN091)November 28, 2013 21st century business Herald(专家：改革领导小组将从制度上制约既得利益|市场|政府|改革_新闻资讯
本报记者 定军
特约记者 胥泽霞 北京报道
一场围绕政府职能转变的大调整才刚刚开始。
十八届三中全会通过的《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》)明确表示，要让市场在资源配置中起决定性作用，“决定性”取代了过去“基础性”的文字表述。
曾经多次参与到三中全会文件起草的国家发改委宏观经济研究院副院长陈东琪在接受21世纪经济报道记者专访时表示，三中全会提出成立中央改革领导小组，这确保了改革的权威性和至高无上性，将会对部门利益、既得利益会产生制度上的制约。
在解读上述《决定》对地方机构影响时，他表示，各省的招商引资、搞项目的机构应该取消或者逐步减少。
“如果政府不从盈利性、竞争性项目中退出来，不是一门心思搞公共的基本服务提供的话，那GDP唯上的状况就不会改变。现在GDP唯上的行为不只是企业的问题，更主要是政府的行为，特别是地方政府的行为。”他说。
改革的市场化方向
“中央改革领导小组这个机构的设置不仅意味着改革的权威性，更意味着将会对部门利益、既得利益会产生制度上的制约，各领域必须服从最高权威决策机构的改革思路。”
《21世纪》：十八届三中全会通过了《中共中央关于全面深化改革若干重大问题的决定》，如何评述其意义？
陈东琪：它具有划时代意义。其核心意义在于保证了改革的市场化方向，无论是在思路上还是在组织上。在总结三十多年来市场化改革的基础上，上述《决定》把市场在配置资源当中的“基础性”作用改为“决定性”作用，这三个字含金量极高。
过去说在社会主义市场经济当中市场对于资源配置起基础作用，这是相对于以前的计划经济是进步，但还不够。“决定性”作用这一提法，对政府有约束。比如，价格由市场决定、竞争由市场决定、市场主体由市场决定，做什么怎么做由市场决定，这是要适当地控制政府的手，把政府过长的手缩短，延长市场这只看不见的手。
这次三中全会强调了改革的权威性。八九十年代有体改委，专门研究改革思路、改革协调平衡、改革措施推进等，后来并入到发改委，发改委就有了发展与改革两大职能，这对改革的实施推进实际上是不利的，因为不容易提出一个更客观的更具权威性的改革方案。
所以这次三中全会提出成立中央改革领导小组，这确保了改革的权威性和至高无上性，这就要求各个部门不能开小差，不能打自己的小算盘，部门之间自己的既得利益不能影响国家的整体改革。中央改革领导小组这个机构的设置不仅意味着改革的权威性，更意味着将会对部门利益、既得利益会产生制度上的制约，各领域必须服从最高权威决策机构的改革思路。
《21世纪》：让市场在资源配置中发挥决定性作用，到底哪一些归市场？
陈东琪：与消费联系最紧密的，像家电、旅游、服装这些行业就已经完全交给了市场，这是前几十年特别是八十年代改革的成果，当时家电产品很紧俏，也搞控购、发采订票。实际上，当时也有两种思路，一种思路是要权力回收，其结果必然是家电商品短缺，价格暴涨；另一个则是交给市场，实现竞争。看得到的是，让市场自发配置资源后，家电企业如雨后春笋般冒出来，行业自己实现优胜劣汰，海尔、海信、格力、美的这些品牌在国际上也是有名的，这就是产业改革、体制改革的成果。
经过这一步，我们现在希望再进一步开放市场要素、生产要素。比如说前些年我们的劳动力市场说要放开，但也没全放开，一般的劳动力仍然无法进入垄断程度相对高的行业，比如农民工到城里来进不了电信公司、电网或者铁路。
下一个要市场化的生产要素是什么？现在金融行业门槛很高，企业民营资本进去不容易，我们今年才开始启动温州金改。土地也是，现在农村集体土地使用权、城市建设用地的使用权都没放开，农村集体土地的主体得不到公平的回报，就分享不到改革的成果。另外，生活性资源的配置也应该是市场来完成。比如说油价该有谁来定？政府来定价，出发点是好的，但实际效果和承担的成本和风险需要权衡考虑。
我们不是说金融、土地、原油，这些价格改革可以一步到位，这还得经过研究，怎么样从现行体制过渡到市场化体制？这会有一个过程，要有意识地控制风险、减少各种动荡。
各地招商机构应取消或精简
“如果政府不从盈利性、竞争性项目中退出来，不是一门心思搞公共的基本服务提供的话，那GDP唯上的状况就不会改变。现在GDP唯上更主要是政府的行为，特别是地方政府的行为。”
《21世纪》：现在宏观调控新的提法，是以国家规划为导向，主要发挥财政政策、货币政策的作用。以后的宏调中土地、产业政策是不是会淡化？
陈东琪：从发达国家市场体系的宏观调控来看，就是总量调控，通过调整财政、货币政策来实现宏观经济平衡的目标。这是中国政府今后宏观调控的主要内容，是在市场这只手运行调节到位、配置资源能力很强的前提下。
但在中国，毕竟还在改革过程中，有些东西政府还得调。比如油价，可能两桶油就会把价格搞得很高，因为现阶段这是由供给决定，行业没有建立一个双边协商机制。
至于土地调控是不是介入宏观调控体系。我个人认为土地要有规划，这是一个宏观调控前设置的东西。当然，这几年土地调控也进入宏观调控体系，但严格来讲，这一块更多地需要让市场去调，政府在这一部分可能会起引导作用，但也不能干预太多，应该得把规则做好，把制度性的基层性工作做好。
所以宏观调控要保证两部分，一部分是规范部分，这跟国际上的总量调控是一致的；一部分是我们的特色部分，特色部分也要逐步地缩小范围，抓住主要的部分。这是规范、标准部分的宏观调控和特殊、特色部分的调控的结合，但是特殊、特色部分的宏观调控要越来越少，逐步接近标准的规范的宏观调控。
《21世纪》：那产业政策以后是否会退出？
陈东琪：不是退出。我们的总量控制还是要通过财政政策来实施，但不是说每个产业、每个项目都要由政府来决定。有一些国家如日本，也有一些方向性的产业政策。
中国一些方向性的产业引导还是需要的。因为发展不平衡，中国那么大，产业层次非常多，这种情况下，要有一定的方向性的产业调控政策。但这些产业政策应该只是方向性的，逐步靠拢到战略性、方向性产业政策的篮子里去。比如美国就有产业的战略规划。
《21世纪》：过去我们的体制是以GDP唯上，现在提出要纠正GDP唯上的制度，具体如何做？
陈东琪：纠正GDP唯上、由数量型转变为质量型主要有两点：
第一，对地方政府的体制要有一个改革创新，让它回到公共服务事业层面。政策应该是公共性的政策，而不是搞盈利性政策、盈利性项目。如果政府不从盈利性、竞争性项目中退出来，不是一门心思搞公共的基本服务提供的话，那GDP唯上的状况就不会改变。现在GDP唯上的行为不只是企业的问题，更主要是政府的行为，特别是地方政府的行为。
第二，个人认为要推进政治体制改革。个人认为从经济本身的充分竞争、市场化运作的角度来讲，各个省的招商引资、搞项目的机构可以不要了或者逐步减少，减少机构、精简职能、提高效能。这涉及到政府行政体制改革，政府要集中力量到公共服务这一块。
那是不是“以经济建设为中心”的基本方针有一点变化？我认为并非如此。
“以经济建设为中心”不等于地方政府都去抓经济，“以经济建设为中心”不是直接参与投资、在竞争性领域抢利益，政府提高公共服务水平这也是以经济建设为中心。要看清楚的是，“以经济建设为中心”的主体是企业是市场，不是政府。政府是为经济建设提供服务，包括提高市场便利程度，为投资提供便捷，为低层的弱势群体提供保障。
《21世纪》：这次三中全会提出“负面清单”之外领域，民资都可以进入，但过去的“旧36条”、“新36条”最后都没有落地。
陈东琪：原先是从正面清单角度讲，这次讲的负面清单是指只要不破坏国家安全，只要不破坏市场公平性，只要不牺牲他人的利益，即底线管理的前提下，除了这些以外的都能做。这个概念跟法治相关，你不能做的我不要你做，不能做的你去做这就是犯法。
目前负面清单是个底线，对进入市场的人来讲给他一个底线边界：你不能破坏国家安全、不能迫害民众的公共利益。这对上海自贸区很重要，虽然说是创新，但是其实在世界上很普遍，要不政府管不过来。原来政府正面批项目，不是按照负面管理来的，批钢铁项目、化工项目、汽车项目，这都是计划经济性质的。但是负面管理，严格地讲是彻底从计划经济中走出来，是市场和法治结合起来的管理模式。
《21世纪》：这是不是意味着以后钢铁项目不需要审批？
陈东琪：不去批。以后政府搞环保门槛，搞资源消耗技术标准，特别是外围性的门槛要设定好，把该管好的管好就行了，这叫制度化管理。不管是省长项目还是市长项目还是草根项目，该上的上，不能上的不上，不问姓谁名谁。
原来政府的投资目录、产业结构需要全部按照十八届三中全会精神进行调整，这也是转变政府职能的重要内容之一。以后投资审批功能弱化，这不是某一个部门的问题，所有涉及竞争性资源审批的单位都应该按照负面清单制度进行修改。
农村也将有房地产市场
“集体建设用地的使用权可以流通，且和国有土地流通衔接，这是第三步的目标。在第三步之前，第一步先要确权，第二步是要对使用权流转机制进行建设。”
《21世纪》：现在提出农村集体土地租赁入市，与所有国有土地同价同权，市场的理解差异很大。
陈东琪：这是一个方向，下一个十年土地改革的方向。集体土地的权利，不是指所有权，是指集体建设用地的使用权可以流通，而且和国有土地流通衔接，这是第三步的目标。
在第三步之前，还有两步。
第一步先要确权。摸清底子，确权，发证，这叫做明晰产权主体。现在农村的土地，已分配的耕地、林地、宅基地等要确权，未分配的也要确权。
确权之后，第二步是要对使用权、用地权流转机制进行建设，有几个原则——自愿原则、自由原则、平衡原则。首先是自愿，这个东西是我的，我不愿意卖，你要我不卖，这是市场的基本原则。第二个是自由原则，我可能卖，但是可能是整体卖、部分卖、参股形式、出租、赠与、合股经营，选择形式应该多样化。
做好了这些才有可能和国有制接轨，眼下马上要做的是确权、认证和办证。
《21世纪》：最后是不是集体所有制的土地可以建商品房，在市场上出售？
陈东琪：最后农村的房地产市场跟城市的房地产市场应该是一致的、统一的。城乡统一很重要，城乡一体化发展很重要，具体有三个一体化内容——一是人口劳动力的城乡一体化；二是城乡基础设施一体化，包括交通、电信、生态环境等基础设施要一体化；三是市场一体化，商品市场的一体化现在已经差不多，下一步要素市场一体化还有一个过程。 刚才我讲的土地改革的三个阶段，从目标来讲，你在自己的地上盖了一所房子，那个房子是你的，可以卖也可以不卖，但是现在还不是。以后农村也会有房地产市场，农民也会有房地产收益。
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