【作者】 王成艳；

【导师】 靳相木； 杨学成；

【作者基本信息】 山东农业大学 ， 农业经济管理， 2007， 博士

【摘要】 上个世纪90年代中期以来,中国工业化、城市化进程相继加快,经济社会进入快速发展阶段。而在投资成为经济社会发展主要拉动力的条件下,经济的快速增长不可避免地诱发投资过度扩张而导致国民经济总量增长过快及结构性失衡。这一时期的宏观调控既要实现社会总供求均衡,也要促进国民经济产业结构及区域结构的调整优化,以促进国民经济的健康可持续发展,推动我国经济社会的全面进步。进入新世纪以来,面对复杂的宏观调控形势,中央政府积极运用土地政策参与宏观经济调控,使之成为继财政政策、货币政策之后的第三大调控政策。而目前关于土地政策参与宏观调控这一议题的研究,无论是研究的整体层次,还是研究的具体内容上,都存在明显不足与空白之处。加强本议题的研究对于丰富宏观调控理论,指导我国宏观调控实践,无疑具有重要意义。本文在对当前关于土地政策参与宏观调控议题既有研究文献进行综述并予以简要评析的基础上,以我国经济社会转型为背景,运用比较分析法、类推法、博弈分析等研究方法,沿着总论--分论的基本逻辑思路,首先从生产力构成要素及经济社会制度(生产关系)两个层面,揭示了土地政策参与宏观调控的基本依据,在此基础上,进而分析讨论了土地政策调控宏观经济的作用传导渠道及其传导机制;接下来,从实践与操作层面,阐述了土地政策参与宏观调控的目标、原则及调控手段体系,从而相对完整的构成了本项研究的总论部分;在总论的基础上,结合2003年以来的宏观调控实践,对土地政策参与宏观调控的三大领域----国民经济总量、产业结构以及区域协调发展,调控依据、调控机制、调控绩效等分别予以论述,并提出了相关的政策建议,构成了本项研究的分论部分;最后,还力争站在历史高度前瞻土地政策宏观调控作用的发展趋势。本文主要研究结论如下:(1)运用土地政策参与宏观调控,通过紧缩或松动“地根”,配合“银根”政策,及时为经济发展“踩油门”、“点刹车”,是当代中国宏观调控所独有的。当前我国正处于工业化、城市化快速推进,实现农业社会向工业社会转型发展的关键时期,在这一时期,土地成为推动经济社会发展的重要杠杆,这为土地政策参与宏观调控提供了可能性。而中国的经济体制转型尚未完成,生产要素特别是公有制度下土地资源的配置机制超越了行政划拨主导,却又未完全走向市场化,国家对土地资源的配置还拥有绝对的控制权,这为土地政策参与宏观调控创造了可行性。(2)转型时期,中国经济面临着加快发展、赶超世界先进的历史任务,因此,土地政策参与宏观调控的首要任务就是要实现国民经济的健康协调、平稳快速发展。为此,土地政策不仅要通过控制土地供应总量调控投资总量从而保持合理的经济增长速度,更要通过控制土地供应的产业结构与区域布局,实现对国民经济产业结构与区域结构的调控,促进经济健康、协调发展。土地政策参与宏观调控还能推动经济增长方式的转变,促进经济可持续发展。(3)严格土地行政审批,加强土地供给管理,是土地政策参与宏观调控的最基本政策手段。在土地资源配置尚未完成市场化的条件下,加强土地审批管理仍是土地政策参与宏观调控的主要手段。严格行政审批既可有效控制建设用地总量扩张速度,调节产业用地结构,促进经济的平稳增长及产业结构调整。同时,以主体功能区划分为指导,调整优化土地利用空间布局,能有效地促进我国区域协调发展。要适应市场化改革不断深入发展的要求,加快土地用途管制制度实施机制(土地规划)的市场取向改革,更有效地发挥土地用途管制制度对土地供给的管理作用。此外,还要积极完善土地税制,调节土地需求,从根本上抑制投资需求的过度扩张。(4)土地配给渠道与土地价格渠道是兼具“行政性”和“市场性”的土地政策宏观调控作用传导的两条基本路径。土地配给渠道主要通过新增建设用地计划指标的层层分解,实现国家对建设用地总量、产业结构及区域布局的控制,进而对国民经济总量、产业结构及区域协调发展实施调控。随着我国土地市场机制的不断发展,土地价格渠道对于土地政策调控作用的传导也发挥着重要作用。紧缩土地供应导致土地价格上涨,不仅有效地控制土地相关投资活动,还有利于盘活闲置土地,提高建设用地利用效率,从而保障国民经济的平稳运行,促进经济增长方式的集约化转变。转型时期,要加强两种机制的协调配合,充分发挥土地政策的宏观调控作用。(5)积极培育土地市场是土地政策有效参与宏观调控的制度基础。国家宏观调控要建立在市场机制充分发挥作用的基础之上,土地政策参与宏观调控亦是如此。转型时期拉动投资过快增长的一个重要力量就是廉价生产要素。通过构建完善的土地价格形成机制,使价格能客观真实而灵敏地反映土地供求状况,及时有效约束和引导土地需求,因而合理引导投资,并促进土地的集约与节约利用,推动经济增长方式的转变。要以土地政策参与宏观调控为契机加快土地市场化改革,实现以调控促改革,以改革促发展。(6)加强土地政策与产业政策、货币政策等调控政策的协调配合,是治理转型时期宏观经济的经济周期性失衡与体制性失衡的有效措施。2003年以来的宏观调控实践与效果表明了土地政策参与宏观调控的有效性。然而,一方面,无论是宏观调控的广度、深度,还是调控政策的适应性,财政政策、货币政策都将是我国宏观调控中的主要调控政策,而且随着我国市场经济体制的不断完善,财政政策、货币政策在宏观调控中将发挥着越来越重要的作用;另一方面,土地政策参与宏观调控的局限性也决定了其在宏观调控政策体系中的非主导地位。因此,要合理定位土地政策在宏观调控中的“参与”地位。要加强土地政策与财政政策、货币政策协调配合,共同抑制投资的过度膨胀,调控宏观经济运行。同时,要注意两类调控政策的同向性,即紧缩性的土地政策要与紧缩性的货币政策、财政政策配合,以发挥更大的调控威力。(7)随着经济体制转型的成功,以行政审批为特色的计划体制将完全退出历史舞台,土地要素供求将走向市场化,届时,土地政策作为宏观调控的政策工具的历史任务将走向终结。然而,这并不意味着土地政策宏观调控功能的结束。随着以土地行政审批为特征、兼具“行政性”与“市场性”的土地政策转变为严格土地用途管制下完全“市场性”土地政策,土地政策在宏观调控中的表现形式、作用方式及作用强度等都必将发生重大变化。更多还原

【Abstract】 Since the mid-1990s of the Last century, China’s industrialization and urbanization process have accelerated and entered into a rapid socio- economic development stage. Under the condition that investment has become the main engine, the rapid economic growth inevitably evoks excessive expansion of investment that leads to the national economy growing too fast and structural imbalance. The macroeconomic regulation and control in this period is to achieve the balance of total social supply and demand, also to adjust and optimizw regional industry structure, to promote the healthy and sustainable development of national economy. Since entry into the new century, facing with a complex macro-ceonomy situation, central government actively make use of the land policy to regulate and control the macro-economy, so that it has been serving as another macro-control policy except fiscal policy and monetary policy. On the study of land policy to regulate and control the macro-economy, there are obvious deficiency and blank space either the overall research level or the specific content. It is undoubtedly of great significance to strengthen the study of this topic to rich macroeconomic adjustment and control theory, and to guide the macroeconomic regulation and control of China.Based on the study of land policy serving for regulating and controlling the macro-economy, and against the background of transformation of China, using comparative analysis, analogy, game analysis and others, along the basic logic from general to sub, this paper reveals the fundamental basis of land policy to regulate and control macro-economy from the productivity elements and social system, and then discusses the conduction channels and its mechanism firstly. Next, it expounds the objectives, principles and means of the land policy to regulate and control macro-economy from the practice and operation. All these are the general part of the study. On the basis of the overall conclusion and practice of macroeconomic regulation and control since 2003, this paper separately discusses the basis, mechanism, performance and also brings forward Countermeasures in the three major fields, which is the total national economy, industrial structure and coordinated regional development. These are the sub-part of the study. Finally, it is also looks forward to the trend of land policy to regulate and control the macro-economy from the view of history. The main conclusions of this study are as follows:To begin with, Land use policy serving as an important tool to regulate and control macro-economy, is just a particular phenomenon happening in China in transitional period. At present, China is in a critical period to promote rapid industrialization and urbanization, to achieve the transformation, in which the agricultural society will be substituted by industrial society. During this period, the land has being become one of the most competitive factors that Chinese government can bring into play to promote economy and society development, and this also provides the possibility for land policy to sevre for regulating and controlling Chinese macro-economy. While China’s economic system is undergoing transformation, that is, planned economy is being replaced by market-oriented economy, but not yet completed. So the production factors, especially for land resources in public ownership system, which allocation mechanism has been beyond the dominant administrative allocation, but not entirely on the market. The state still has the absolute controlling right for the allocation of land resources, and this creates the feasibility for the land policy to sevre for regulating and controlling Chinese macro-economy.Second, during the transitional period, Chinese economy is facing the historical task to accelerate development and catch up with and surpass the advanced world level, therefore, the most important task of land policy in the macroeconomic regulation and control is to achieve coordinating, healthy, stable and rapid development of the national economy. To this end, the land policy should not only, through controlling land supply, regualte the total investment volume to maintain a reasonable rate of economy growth, but also, through controlling the industrial structure and regional distribution of land supply, realize the adjustment of the industrial and regional economic structure, so as to promote economic healthy, coordinating development. The land policy sevring for macroeconomic regulation and control can also promote changing economic growth mode and promote economic sustainable development.Third, strict land administrative approval examination and improving land supply management are the basic tools for the land policy to regulate and control the macro-economy. Because the market-oriented reform of land resources allocation has not yet completed, tightening up land administration is still the effective means for the land policy to regulate and control the macro-economy. Aadministrative approval can effectively control the overall expansion speed of land for construction, condition industry sites and promote steady economic growth and industry restructuring, while guided by division of the main body functional area, it can readjust and optimize the spatial distribution of land resource and promote coordinated regional development in China. It is necessary to accelerate the reform on implementation mechanism of the land use regulation to adapt to the market-oriented reform, so as to regulate land supply more effciently. In addition, we should also actively carry out the land tax reform to adjust the demand for land and curb excessive demand for investment fundamentally.Forth, Land ration and the land price are two basic approaches for the land policy, which is "administrative" and "market-oriented", to regulate and control macro-economy. Land ration, mainly through allocation the planned targets, achieve the control to the national volume of construction sites, industrial structure and regional distribution, and then achieve the control to the total national economy, industrial development and regional development. With the development of land market, land price plays an important role for land ploicy to regulate and control the macro-economy. Price increase, as a result of tightening land supply, can not only effectively control land-related investment, but also help revitalize the idle land and improve the utilization efficiency of constructional land, so as to ensure the national economy to run smoothly and promote economic growth intensively. During the transitional period, it is necessary to strengthen coordination and cooperation of the two mechanisms, and bring into full play the role of regulating and controlling the macro-economy for the land policy.Fifith, land market is the system infrastructure for the land policy to regulate and control the macro-economy. The macroeconomic regulation and control should be based on the market mechanism, so is land policy. During the transitional period, one of the important forces that pull the excessive growth of investment is the low-cost production elements. By constructing a perfect market mechanism, prices can objectively, truely and sensitively reflect land supply and demand conditions, timely and effectively guide the demand for land, thus reasonably guide investment, promote the intensive land use and conservation, and promote the change of economic growth mode. For China shoud take the land policy serving for regulating and controlling the macro-economy as an opportunity to accelerate the reform of land market, and then promote reform by regulation and control, promote development by reform.Sixth, coordination between the land policy and other control policies, such as industrial policy and monetary policy, is the effective measure to govern macroeconomic imbalance in transitional period. The results have suggested the effectiveness of the land policy to regulate and control the macro-economy since 2003. However, on the one hand, with the development of market-oriented economy, comparing with the land policy, fiscal policy and monetary policy will be the major regulating policies, and will play more and more important role in regualtion and control. On the other hand, the limitations of the land policy to regulate the macro-economy also decide its non-dominance in macro-regulating policy system. Therefore, a reasonable position to land policy as regulating policy, that is participation status, should be set. It is necessary to ensure coordination between the land policy and fiscal policy and monetary policy to regulate investment and control the macro-economy. Meanwhile, austerity land policy should coordinate with tight monetary policy and fiscal policy to play a greater regulating power.And the last, with the success of market-oriented reform, the planned economy to the characteristics of the administrative examination and approval will fade gradually, and land market will improve in years, by that time, the land policy as an important tool to regulate and control the macro-economy will fade away. However, this does not mean that macro-control function of the land policy will be end. The manifestations, mode of action and intensity of land policy to regualte and control the macro-economy will undergo significant changes, along with reform of land policy from the one that is administrative examination and approval and "administrative" and "market-oriented" to another one under strict land use regulation in complete market.更多还原