住房政策

大眾化還是剩余化：3600萬套后的中國住房制度

【摘要】  中國從20世紀70年代末開始住房市場化改革，在短短三十年內，從國家實物提供為主的普惠型福利制度轉變為市場提供為主的剩余型福利制度。但是2007年以來政府加大住房保障力度的諸種舉措，使不少學者認為，中國的住房制度發生了從剩余化模式（residual model）向大眾化模式（mass model）方向的轉變。本文對“十二五”時期最重要的一項保障房政策，即開工建設3600萬套保障房（簡稱“3600萬套”）的出臺背景及實施情況進行了分析。該政策首先被作為抑制房價過快增長的手段出臺，并且在執行過程中，其主體形式被置換為包含級差地租收益的棚改，然后又千方百計地為去庫存服務。這些都顯示，經濟仍然在民生之先。“雙重運動”下的和諧社會建設的努力未能抵御商品化/剩余化的強勢邏輯。結果，中國仍然是剩余型福利制度，社會住房模式也未更加大眾化。

【關鍵詞】  保障房  “3600萬套”  大眾化模式  剩余化模式  福利制度

Abstract  Within a short span of 30 years, China's housing market reform, which started from the late 1970s, has successfully turned housing provision in China from a state-based universal benefits system to a market-based residual welfare system. However, since 2007,with various low-income housing polices initiated and massive scale of public housing provision planned, scholars tend to believe that housing provision in China is moving from a more residualized model towards a mass model. This paper therefore examines the “36 million units” policy（i.e. the construction of 36 million units of public housing during 2011—2015, a major affordable housing policy of the 12^th Five-year plan）. It has found that “36 million units” policy was proposed not as a pure welfare measure, but instead as a means to curb excessive housing prices growth. During its implementation, shantytown renovation, which involves land value recapture, has replaced public rental housing to become the main body of “36 million units”. By the end of the 12^th Five-year, the policy started to make its way for helping consume the unsold commodity housing stock. All these evidences show, that in China, economic priority is still over people's livelihood. This is largely because the central government continued to fluctuate between economy objectives and social-politics goals, and the local government, under various restraints, is still lacking the commitment to provide affordable housing. The so-called “harmonious society” ideal under “double movement” therefore failed to offset the imperative of commodification/residualizing for surplus extraction. In the end, housing provision in China is still residualized, in terms of its welfare provision model as well as its social housing model.

Key　words  Social Housing, Affordable Housing, “36 Million Units”,Mass Model, Residual Model,Welfare System