房地产调控：从行政控制到利益协调——目标替代的非正式规则与房地产调控模式转型

Real Estate Regulations:From Administrative Control to Interest Adjustment——Goal Displacement by Informal Rules and Transformation of Real Estate Regulation Model

2004年以来,针对房地产价格的过快上涨,中央政府出台了包括土地、财政税收、信贷、保障性住房和规范交易行为等方面的调控政策。但是,针对这些调控政策,地方政府采取了各种目标替代的非正式规则,导致房地产调控目标难以实现。地方政府目标替代的非正式规则的原因在于目前房地产调控的制度环境形成的政治、经济利益诱因。因此,要提高房地产调控绩效,必须实现房地产调控模式的转型,从行政性和组织性色彩浓厚的调控,走向以利益调节为核心的调控。为此,在加强监管和惩戒,强化行政控制的同时,还必须完善相关的房地产业政策,对包括财税体制(如以物业税替代土地财政等)、地方政府政绩评价体制、土地管理制度在内的相关制度体制进行改革。

Facing speculative rise in property prices since 2004, the Central Government has promulgated regulative policies concerning land, finance, taxation, credit, welfare housing and real estate transactions, among many others. However, local governments have used all kinds of informal rules to have goal displacement which targets at these regulative policies enacted from the Center, and leads to policy failure. The roots of using informal rules to have goal displacement lie in the imbedded political and economical incentives caused by the current institutional settings of real estate regulations. Hence, the real estate regulations must be transformed from an organizational and administrative one to an interest-and beneficial-oriented one. These measures include improved policies of real estate sector, reformed financial policies, performance criteria and evaluations towards the local governments, and improved administrative regulations such as using penalties in land management system.