解决城市低收入家庭住房困难问题的对策与思考
摘要
住房问题是重要的民生问题。20多年来,我国住房制度改革不断深化,城市住宅建设持续快速发展,城市居民住房条件总体上有了较大改善。但也要看到,城市廉租住房制度建设相对滞后,经济适用住房制度不够完善,政策措施还不配套,部分城市低收入家庭住房还比较困难。为切实加大解决城市低收入家庭住房困难工作力度,各地在中央政策的指引下,进行了很多有益的探索。本文系统分析国内住房保障制度存在的问题和原因,借鉴了发达国家的成功经验,以吉林省城市棚户区改造的成功经验为例证,说明解决城市低收入家庭住房困难问题不仅是维护群众利益的重要工作和住房制度改革的重要内容,也是政府公共服务的一项重要职责,政府应处于主导地位,是组织者、实施者,只有加快建立健全以廉租住房和经济适用住房制度为重点、多渠道解决城市低收入家庭住房困难的政策体系,才是有效解决途径。
Housing problem is one of the important issues of people’s livelihood. As a kind of special commodity, it not only has interchangeability, but also has social security characteristic as a basic material of people’s livelihood. In this article, taking the successes of Jilin Province and Liaoning Province in reconstruction of urban shanty areas as the cases, and some favorable measures and methods adopted by other countries in establishment and perfection of housing guarantee system, I attempt to expound that solving the difficulties in housing of low-income households in urban areas is the duty of government at all levels, and the real estate developers shall not become the leading role in housing guarantee system. In addition, I expound the leading position of government in accelerating the establishment of a perfect policy system, which emphasizes in low-rent housing system and economical and suitable housing, and solves the difficulties in housing of low-income household in urban areas. It is the effective solution to regard the solving of housing difficulties of low-income households as a long-term policy, and an important work to protect the masses’interest and important content of reform of housing system, as well as an important duty of government in public service.
This article consists of four parts:
I. Foreword
The housing problem of low-income group, which is the outcome of continuous development of urbanization and industrialization, is one of the social issues in modern city, and an important problem that every country in the world would face in development. More developed the economy is, more rapidly the housing price increases. When low-income household cannot afford a house, the deficiency of effective housing demand will inevitably happens. Carrying out housing guarantee is not only necessary for basic living demand of low-income people, but also for them to support the family and foster children. The government is responsible to solve the housing demand of low-income group by proper intervention, which will not only show the authority of government, but also increase social cohesion. It has great significance in constructing socialist harmonious society and guaranteeing the stability of society, and accelerating the economic development and social progress.
II. The development process and main problems of housing guarantee system in our country
(I) The development history of housing guarantee work in our country
In the early period after founding of PRC, housing was completely a kind of welfare in cities and towns, under the system of socialist planning economy. The system was carried out as low wages, low rent plus subsidy and rationing of real articles. During the late period, housing was seriously deficient due to ill management, rapid increase of population and insufficient investment in housing construction. Under this background, the state began to reform the housing system in cities and towns and tried for establishing new housing guarantee system which would be more equal and efficient. In 1087-1991, the policies of increasing rent for capital accumulation and“three-three system of house-selling”were carried out. In 1991-1993, the housing reform was pushed forward completely. In 1993-1998, it was the key stage of housing reform. In 1998-2003, new housing system was preliminarily established. In 2003-2007, it was the period to regulate real estate market and establish housing guarantee system. From 2007 to now, the housing guarantee system was strengthened. For it was a relatively short time since the housing guarantee was put forward, a complete housing guarantee system has not been formed yet, and it is inevitable that some existing systems have inherent defects.
(II) Analysis of main problems and reasons at present
The construction progress of housing guarantee system relatively lags: first, the construction of low-rent housing system is still in its starting stage. Second, the construction of economical and suitable housing system deviates largely from the initial intention of policy. Third, the guarantee function is weakened by the defects exist in the public accumulation fund system of housing. Fourth, the number of low-income groups is too large to guarantee them all. Reasons for abovementioned problems: first, the system is not perfect and the applicable objects are not clearly defined. Second, attention paid to the problems is not enough, and the policy is not carried out to the detail. Third, the level of national economy is low and financial support is insufficient.
III. Main measures that government adopts to solve the difficulties in housing of low-income households in developed countries(regions) and enlightenments
At present, housing supply system, which solves the housing problems of low-income households well, with both market operation mechanism and social security mechanism, are adopted in America, England, Japan, Singapore, Hong Kong and other countries and regions. The housing problems of high-income households are solved by market operation mechanism. For housing guarantee of low-income households, according to the patterns of government intervention, can be summarized into three modes of housing system: first, the government invests in construction of large quantities of low-rent public housing for low-income households. Second, the government provides financial subsidy to house-building units to correspondingly restrict the selling and renting prices of houses. Third, the government restricts the renting price of private house. Practice in many countries proves that the construction of housing guarantee system can not be done in a short time but is a long-term national policy.
IV. Correct choices for solving housing difficulties of low-income households in urban areas of our country– housing guarantee system Taking reconstruction of urban shanty areas in Jilin Province as an example, to explain that government is the subject of responsibility, and organizer and doer in solving difficulties in housing of low-income households in urban areas, and the common people trust government and support reconstruction of shanty areas. The success of shanty areas reconstruction shows that it is the most direct and effective pattern in solving housing difficulties of low-income households only when government is in leading position. Meanwhile, to explain that it is the only way and a long-term plan to solve housing difficulties by establishing housing guarantee system, in using successful experiences from abroad for reference. (I) Government is the subject of responsibility and organizer and doer in carrying out housing guarantee system. (II) Main approaches for solving difficulties in housing of low-income households. 1. Establishing perfect provision system of low-rent housing. 2. Go on perfecting the economical and suitable housing system. 3. Standardizing system of public accumulation fund. 4. The government providing preferential policies. (III) Establishing laws and regulations in accordance with national conditions for housing guarantee, establishing special housing guarantee institutions and building long-acting operation mechanism for housing guarantee. 1. Strengthening legislation and perfecting guarantee mechanism. 2. Strengthening the management and implementation of housing guarantee system.
Housing problem is one of the important issues of people’s livelihood. As a kind of special commodity, it not only has interchangeability, but also has social security characteristic as a basic material of people’s livelihood. In this article, taking the successes of Jilin Province and Liaoning Province in reconstruction of urban shanty areas as the cases, and some favorable measures and methods adopted by other countries in establishment and perfection of housing guarantee system, I attempt to expound that solving the difficulties in housing of low-income households in urban areas is the duty of government at all levels, and the real estate developers shall not become the leading role in housing guarantee system. In addition, I expound the leading position of government in accelerating the establishment of a perfect policy system, which emphasizes in low-rent housing system and economical and suitable housing, and solves the difficulties in housing of low-income household in urban areas. It is the effective solution to regard the solving of housing difficulties of low-income households as a long-term policy, and an important work to protect the masses’interest and important content of reform of housing system, as well as an important duty of government in public service.
This article consists of four parts:
I. Foreword
The housing problem of low-income group, which is the outcome of continuous development of urbanization and industrialization, is one of the social issues in modern city, and an important problem that every country in the world would face in development. More developed the economy is, more rapidly the housing price increases. When low-income household cannot afford a house, the deficiency of effective housing demand will inevitably happens. Carrying out housing guarantee is not only necessary for basic living demand of low-income people, but also for them to support the family and foster children. The government is responsible to solve the housing demand of low-income group by proper intervention, which will not only show the authority of government, but also increase social cohesion. It has great significance in constructing socialist harmonious society and guaranteeing the stability of society, and accelerating the economic development and social progress.
II. The development process and main problems of housing guarantee system in our country
(I) The development history of housing guarantee work in our country
In the early period after founding of PRC, housing was completely a kind of welfare in cities and towns, under the system of socialist planning economy. The system was carried out as low wages, low rent plus subsidy and rationing of real articles. During the late period, housing was seriously deficient due to ill management, rapid increase of population and insufficient investment in housing construction. Under this background, the state began to reform the housing system in cities and towns and tried for establishing new housing guarantee system which would be more equal and efficient. In 1087-1991, the policies of increasing rent for capital accumulation and“three-three system of house-selling”were carried out. In 1991-1993, the housing reform was pushed forward completely. In 1993-1998, it was the key stage of housing reform. In 1998-2003, new housing system was preliminarily established. In 2003-2007, it was the period to regulate real estate market and establish housing guarantee system. From 2007 to now, the housing guarantee system was strengthened. For it was a relatively short time since the housing guarantee was put forward, a complete housing guarantee system has not been formed yet, and it is inevitable that some existing systems have inherent defects.
(II) Analysis of main problems and reasons at present
The construction progress of housing guarantee system relatively lags: first, the construction of low-rent housing system is still in its starting stage. Second, the construction of economical and suitable housing system deviates largely from the initial intention of policy. Third, the guarantee function is weakened by the defects exist in the public accumulation fund system of housing. Fourth, the number of low-income groups is too large to guarantee them all. Reasons for abovementioned problems: first, the system is not perfect and the applicable objects are not clearly defined. Second, attention paid to the problems is not enough, and the policy is not carried out to the detail. Third, the level of national economy is low and financial support is insufficient.
III. Main measures that government adopts to solve the difficulties in housing of low-income households in developed countries(regions) and enlightenments
At present, housing supply system, which solves the housing problems of low-income households well, with both market operation mechanism and social security mechanism, are adopted in America, England, Japan, Singapore, Hong Kong and other countries and regions. The housing problems of high-income households are solved by market operation mechanism. For housing guarantee of low-income households, according to the patterns of government intervention, can be summarized into three modes of housing system: first, the government invests in construction of large quantities of low-rent public housing for low-income households. Second, the government provides financial subsidy to house-building units to correspondingly restrict the selling and renting prices of houses. Third, the government restricts the renting price of private house. Practice in many countries proves that the construction of housing guarantee system can not be done in a short time but is a long-term national policy.
IV. Correct choices for solving housing difficulties of low-income households in urban areas of our country– housing guarantee system Taking reconstruction of urban shanty areas in Jilin Province as an example, to explain that government is the subject of responsibility, and organizer and doer in solving difficulties in housing of low-income households in urban areas, and the common people trust government and support reconstruction of shanty areas. The success of shanty areas reconstruction shows that it is the most direct and effective pattern in solving housing difficulties of low-income households only when government is in leading position. Meanwhile, to explain that it is the only way and a long-term plan to solve housing difficulties by establishing housing guarantee system, in using successful experiences from abroad for reference. (I) Government is the subject of responsibility and organizer and doer in carrying out housing guarantee system. (II) Main approaches for solving difficulties in housing of low-income households. 1. Establishing perfect provision system of low-rent housing. 2. Go on perfecting the economical and suitable housing system. 3. Standardizing system of public accumulation fund. 4. The government providing preferential policies. (III) Establishing laws and regulations in accordance with national conditions for housing guarantee, establishing special housing guarantee institutions and building long-acting operation mechanism for housing guarantee. 1. Strengthening legislation and perfecting guarantee mechanism. 2. Strengthening the management and implementation of housing guarantee system.
引文
[1]中华人民共和国建设部、财政部、民政部、国土资源部和国家税务总局:《城镇最低收入家庭廉租住房管理办法》,2004
[2]刘颖:《城市贫困群体住房保障政策的经济效应论证》,《经济体制改革》,2004(5)
[3]余鹏,盛荣:《浅谈经济适用房的供给对象定位及供给模式创新》.《中国农业大学学报》,2002,(03):52-54.
[4]单良:《改“补砖头”为“补人头”经济适用房补贴制度创新建议》,《中国房地产金融》,2005,(05):16-17.
[5]周立群,黄征学:《经济适用房的经济学分析》,《云南财贸学院学报》,2003,(01):41-43.
[6]王君,温彦军:《加紧构建住房保障体系,加快建设和谐社会进程:,《山西高等学校社会科学学报》,2006,(03):41.
[7]常华堂,张大勇:《社会政策视角下城市弱势群体住房保障问题探析》,《中国农业大学学报》,2006,(02):45.
[8]刘正山:《从制度缺陷与监管缺位入手———住房公积金屡遭挪用的原因及对策》,《中国房地信息》,2006,(02):58.
[9]尹宗明:《决策、运作、监督三位一体实现住房公积金高效运作》,《中国房地产》,2005,(08):74-75.
[10]黄锐:《浅谈住房公积金体系的建立》,《中国房地信息》,2006,(02):64-65.
[11]包林海:《住房公积金与养老的基点政策建议》,《北京房地产》,2004,(09):41.
[12]张海平:《国外住房保障 “有法可依”是硬道理》,《中国房地信息》,2003,(07):54.
[13]常华堂,张大勇:《社会政策视角下城市弱势群体住房保障问题探析》,《中国农业大学学报》,2006,(02):69.
[14]尚教蔚:《我国住房保障制度存在的问题》,《城乡建设》,2006,(03):24.
[15]安秀梅:《对我国住房公积金制度管理思考》,资料来源:房地产门户-搜房网.
[16]钱瑛瑛:《中国住房保障政策研究》,《中国房地产》,2003,(08):60.
[17]奥沙利文:《城市经济学》,北京,中信出版社,2002.353-355.
[18]王君,温彦军:《加紧构建住房保障体系,加快建设和谐社会进程》,《山西高等学校社会科学学报》,2006,(03):42.
[19]陈伯庚, 顾志敏, 陆开和:《城镇住房制度改革的理论与实践》,上海:上海人民出版社, 2003.
[20]朱仁显: 《公共事业管理概论》,中国人民大学出版社, 2003.
[21]包宗华:《发达国家住房管理制度》,时事出版社, 2001.
[22]李忠富, 关 柯, 曹学昌:《现代住宅管理》,中国建筑工业出版社, 2002.
[23]田东海:《住房政策:国际经验借鉴和中国现实选择》,清华大学出版社, 1998.
[24]欧阳东:《让穷人有房住—— 城镇最低收入家庭住房保障探析》.
[25] 国务院《关于解决城市低收入家庭住房困难的若干意见》(国发〔2007〕24 号)
[2]刘颖:《城市贫困群体住房保障政策的经济效应论证》,《经济体制改革》,2004(5)
[3]余鹏,盛荣:《浅谈经济适用房的供给对象定位及供给模式创新》.《中国农业大学学报》,2002,(03):52-54.
[4]单良:《改“补砖头”为“补人头”经济适用房补贴制度创新建议》,《中国房地产金融》,2005,(05):16-17.
[5]周立群,黄征学:《经济适用房的经济学分析》,《云南财贸学院学报》,2003,(01):41-43.
[6]王君,温彦军:《加紧构建住房保障体系,加快建设和谐社会进程:,《山西高等学校社会科学学报》,2006,(03):41.
[7]常华堂,张大勇:《社会政策视角下城市弱势群体住房保障问题探析》,《中国农业大学学报》,2006,(02):45.
[8]刘正山:《从制度缺陷与监管缺位入手———住房公积金屡遭挪用的原因及对策》,《中国房地信息》,2006,(02):58.
[9]尹宗明:《决策、运作、监督三位一体实现住房公积金高效运作》,《中国房地产》,2005,(08):74-75.
[10]黄锐:《浅谈住房公积金体系的建立》,《中国房地信息》,2006,(02):64-65.
[11]包林海:《住房公积金与养老的基点政策建议》,《北京房地产》,2004,(09):41.
[12]张海平:《国外住房保障 “有法可依”是硬道理》,《中国房地信息》,2003,(07):54.
[13]常华堂,张大勇:《社会政策视角下城市弱势群体住房保障问题探析》,《中国农业大学学报》,2006,(02):69.
[14]尚教蔚:《我国住房保障制度存在的问题》,《城乡建设》,2006,(03):24.
[15]安秀梅:《对我国住房公积金制度管理思考》,资料来源:房地产门户-搜房网.
[16]钱瑛瑛:《中国住房保障政策研究》,《中国房地产》,2003,(08):60.
[17]奥沙利文:《城市经济学》,北京,中信出版社,2002.353-355.
[18]王君,温彦军:《加紧构建住房保障体系,加快建设和谐社会进程》,《山西高等学校社会科学学报》,2006,(03):42.
[19]陈伯庚, 顾志敏, 陆开和:《城镇住房制度改革的理论与实践》,上海:上海人民出版社, 2003.
[20]朱仁显: 《公共事业管理概论》,中国人民大学出版社, 2003.
[21]包宗华:《发达国家住房管理制度》,时事出版社, 2001.
[22]李忠富, 关 柯, 曹学昌:《现代住宅管理》,中国建筑工业出版社, 2002.
[23]田东海:《住房政策:国际经验借鉴和中国现实选择》,清华大学出版社, 1998.
[24]欧阳东:《让穷人有房住—— 城镇最低收入家庭住房保障探析》.
[25] 国务院《关于解决城市低收入家庭住房困难的若干意见》(国发〔2007〕24 号)