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中国从20世纪70年代末开始住房市场化改革,在短短三十年内,从国家实物提供为主的普惠型福利制度转变为市场提供为主的剩余型福利制度。但是2007年以来政府加大住房保障力度的诸种举措,使不少学者认为,中国的住房制度发生了从剩余化模式(residual model)向大众化模式(mass model)方向的转变。本文对“十二五”时期最重要的一项保障房政策,即开工建设3600万套保障房(简称“3600万套”)的出台背景及实施情况进行了分析。该政策首先被作为抑制房价过快增长的手段出台,并且在执行过程中,其主体形式被置换为包含级差地租收益的棚改,然后又千方百计地为去库存服务。这些都显示,经济仍然在民生之先。“双重运动”下的和谐社会建设的努力未能抵御商品化/剩余化的强势逻辑。结果,中国仍然是剩余型福利制度,社会住房模式也未更加大众化。
Since the late 1970s, China began to reform its housing market. Within a short period of 30 years, the system of universal benefits, mainly provided by the state, has been transformed into a surplus-based welfare system based on market supply. However, various measures taken by the government to increase housing security since 2007 have led many scholars to think that the housing system in China has undergone a shift from the residual model to the mass model. This paper analyzes the background and implementation of the most important policy for affordable housing during the “12th Five-Year Plan” period, that is, the promulgation and implementation of 36 million affordable housing projects (“36 million”). The policy was first introduced as a means of curbing the excessive growth of housing prices. In the process of implementation, its main form was replaced by a reform that included differential rent receipts, and then tried every means to go for inventory. All this shows that the economy is still ahead of people’s livelihood. The efforts to build a harmonious society under the “Double Campaign” have failed to withstand the strong logic of commodification / surplus. As a result, China is still a surplus-type welfare system and the social housing model has not become more popular.