城镇住房制度变迁中利益分配的研究
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摘要
城镇住房问题是一个重大的社会经济问题。改革开放以来，通过优惠出售公有住房、提高公房租金、住房分配货币化等一系列措施对计划经济体制下形成的“住房实物分配、低租金使用”的旧的住房制度进行了重大改革。城镇住房制度改革的过程，既是住房商品化的过程，也是住房利益调整的过程。
经过20多年的实践，住房制度改革取得了实质性的突破，政策措施日趋合理，利益分配日显公平，但尚存在不尽完善及有待调整的诸多问题。本文试图通过实证分析与比较，对现行政策给予客观评价，研究对策，提出建议。
首先，本文对城镇住房制度改革的历史变迁过程进行了概述。通过对改革各历史阶段特征、做法及结果的描述，发现改革进程中出现的利益分配显失公平的问题及改革面临的难点，并对住房分配货币化的现行政策进行了阐述。
其次，本文就改革各阶段——住房实物分配、出售公房、提高公房租金以及住房分配货币化过程中出现的，体现在财富与收入两方面的利益分配不公、差距悬殊问题产生的原因和历史背景进行实证分析与比较，得出这样一个结论：就房改本身而言，它是不断趋向于公平的：提高公房租金的改革比继续过去更低的租金要公平一些；出售公房比实物分配、低租金使用要公平一些；住房分配货币化（明贴）比出售公房（暗贴）要公平一些。
第三，基于上述分析，本文就完善住房分配货币化政策，使利益分配趋于合理提出对策与建议：一是要完善现行住房公积金制度；二是要对现行经济适用住房政策进行改进；三是要切实搞好企业职工住房分配货币化改革；同时要坚持增量住房的分配改革，坚决堵住新建住房进入存量再分配的源头；对存量住房再次进入市场交易的要进行适当利益调整；转变政府职能，建立和完善住房保障体系。
The problem of housing is of vital importance in the realm of social economy. Since China's policy of open and reform starts, a series of important changes such as selling public houses to the residents at a comparatively favorable price or increasing the price to the rent houses and/or allocating houses to the people all conducted through money, have been made to the outmoded policies known as " houses allocated to the owners as giving or rent to the people at a very low pay". So the process of reforming the housing system in China's urban and rural areas is known as the process of commercializing the way of housing and also the process to adjust the profits through housing.
Over 20 years of practice, positive consequences have been registered in housing reform with policies and principles rationalized and profit-distribution justified though some other problems remained unsettled or need to be perfect through further adjustment. This study puts forward proposals, outlines author's logical assessments to the existing policies and the way to deal with relative researches concerned through approved analyses and comparisons.
Firstly, this study reiterates the historical process of policy change towards housing reform in China's towns and cities. Commenting various descriptions of features, concrete steps and different results in housing reform at each of its historical stages, the article shows the unfairness of profit-distribution existed in the whole progress of housing reform with many difficulties confronted. It also tells something about the present policy called monetization for houses allocation.
Secondly, the article gives facts to analyse and compare these key questions that cause, exist and lead to the remarkable unfairness in profit-distribution among two aspects namely property and income while practising those policies of allocating houses to the people as giving, increasing the price of public houses, enlarging the fees for rental houses and allocating houses through the way of monetization. It comes to the conclusion that so far as housing reform is concerned, house allocation becomes fair through a way of graduation. That is to say increasing the rental fees for public houses is far better than the previous low rental pay; selling public houses to the people is fair and better than allocating them to the people as giving or renting them to the dwellers at a very low pay; allocating houses to the people through the way of monetization (as is called "open financial aid") is fair and better than selling public houses to the owners (as is called "hidden fiancial aid").
Thirdly, based on the above-mentioned analyses, this article depicts further about the
perfection of commercialization for housing, a more reasonable way for profit-distribution with realistic steps and proposals included: It emphasizes that (1) the existing system called public accumulation funds for housing should be improved; (2) the present policy for economic housing should be perfect as required; (3) efforts should be exerted to reform the housing system for all personnel in the enterprises through the way of monetization. At the same time, the author suggests to stop re-distributing all the newly-built houses to the dwellers so as to prevent the newly-built houses from being allocated again in the previous way. How would these ready-built houses in store be put into transaction market again? That depends upon profit-adjustment. It also requires that governments should change their relative functions thus setting up a perfect and secured housing system.
经过20多年的实践，住房制度改革取得了实质性的突破，政策措施日趋合理，利益分配日显公平，但尚存在不尽完善及有待调整的诸多问题。本文试图通过实证分析与比较，对现行政策给予客观评价，研究对策，提出建议。
首先，本文对城镇住房制度改革的历史变迁过程进行了概述。通过对改革各历史阶段特征、做法及结果的描述，发现改革进程中出现的利益分配显失公平的问题及改革面临的难点，并对住房分配货币化的现行政策进行了阐述。
其次，本文就改革各阶段——住房实物分配、出售公房、提高公房租金以及住房分配货币化过程中出现的，体现在财富与收入两方面的利益分配不公、差距悬殊问题产生的原因和历史背景进行实证分析与比较，得出这样一个结论：就房改本身而言，它是不断趋向于公平的：提高公房租金的改革比继续过去更低的租金要公平一些；出售公房比实物分配、低租金使用要公平一些；住房分配货币化（明贴）比出售公房（暗贴）要公平一些。
第三，基于上述分析，本文就完善住房分配货币化政策，使利益分配趋于合理提出对策与建议：一是要完善现行住房公积金制度；二是要对现行经济适用住房政策进行改进；三是要切实搞好企业职工住房分配货币化改革；同时要坚持增量住房的分配改革，坚决堵住新建住房进入存量再分配的源头；对存量住房再次进入市场交易的要进行适当利益调整；转变政府职能，建立和完善住房保障体系。
The problem of housing is of vital importance in the realm of social economy. Since China's policy of open and reform starts, a series of important changes such as selling public houses to the residents at a comparatively favorable price or increasing the price to the rent houses and/or allocating houses to the people all conducted through money, have been made to the outmoded policies known as " houses allocated to the owners as giving or rent to the people at a very low pay". So the process of reforming the housing system in China's urban and rural areas is known as the process of commercializing the way of housing and also the process to adjust the profits through housing.
Over 20 years of practice, positive consequences have been registered in housing reform with policies and principles rationalized and profit-distribution justified though some other problems remained unsettled or need to be perfect through further adjustment. This study puts forward proposals, outlines author's logical assessments to the existing policies and the way to deal with relative researches concerned through approved analyses and comparisons.
Firstly, this study reiterates the historical process of policy change towards housing reform in China's towns and cities. Commenting various descriptions of features, concrete steps and different results in housing reform at each of its historical stages, the article shows the unfairness of profit-distribution existed in the whole progress of housing reform with many difficulties confronted. It also tells something about the present policy called monetization for houses allocation.
Secondly, the article gives facts to analyse and compare these key questions that cause, exist and lead to the remarkable unfairness in profit-distribution among two aspects namely property and income while practising those policies of allocating houses to the people as giving, increasing the price of public houses, enlarging the fees for rental houses and allocating houses through the way of monetization. It comes to the conclusion that so far as housing reform is concerned, house allocation becomes fair through a way of graduation. That is to say increasing the rental fees for public houses is far better than the previous low rental pay; selling public houses to the people is fair and better than allocating them to the people as giving or renting them to the dwellers at a very low pay; allocating houses to the people through the way of monetization (as is called "open financial aid") is fair and better than selling public houses to the owners (as is called "hidden fiancial aid").
Thirdly, based on the above-mentioned analyses, this article depicts further about the
perfection of commercialization for housing, a more reasonable way for profit-distribution with realistic steps and proposals included: It emphasizes that (1) the existing system called public accumulation funds for housing should be improved; (2) the present policy for economic housing should be perfect as required; (3) efforts should be exerted to reform the housing system for all personnel in the enterprises through the way of monetization. At the same time, the author suggests to stop re-distributing all the newly-built houses to the dwellers so as to prevent the newly-built houses from being allocated again in the previous way. How would these ready-built houses in store be put into transaction market again? That depends upon profit-adjustment. It also requires that governments should change their relative functions thus setting up a perfect and secured housing system.
引文
[1] 国务院文件：国发[1998]23号，“关于进一步深化城镇住房制度改革，加快住房制度的通知”，1998年7月
[2] “邓小平同志关于住宅问题的重要讲话”，1980年4月2日，原载《中国建筑年鉴》1984-1985年卷
[3] 中共中央、国务院批转《全国基本建设工作会议汇报提纲》，1980年6月
[4] 顾观成、唐国芳主编 《住房问题与住房制度改革》，中国企业文化研究院，1989年12月
[5] 国函字[1982]60号文批准国家建委、国家城建总局《关于城市公房出售试点工作座谈会情况的报告》，1982年4月
[6] 刘天成著 《我国住宅商品化的探索及其实践》，载中国基本建设经济研究会、中国城乡建设经济研究所《城镇住宅理论与实践问题论文集》，1983年9月
[7] 国务院文件：国发[1994]43号，“国务院关于深化住房制度改革的决定”，1994年7月
[8] 中国房地产及住宅研究会编 《前进中的中国房改》，中国建筑工业出版社，1995年5月
[9] 《国务院住房制度改革领导小组关于全国城镇分期分批推行住房制度改革的实施方案》，1988年2月
[10] 侯淅民著 《“九五”期间房改的策略问题》，载房改参阅资料1995年第5期
[11] 侯淅民著 《对我国住房分配状况演变的初步分析》，载《北京房地产》1995年第8期
[12] 《我国城镇住房改革问题研究》课题组 《我国城镇住房货币化分配问题研究》，1998
[13] 邵四华、李育华、张莉莉著 《天津市政策性住房资金管理现状、趋势与对策》，载《中国房地产金融》2002年第9期
[14] 林增杰、吕萍、余翔著 《公房入市政策研究》，中国人民大学出版社，1999年9月
[15] 傅家荣著 《住房公积金使用中的问题及对策》，载《城市开发》1999年第1期
[16] 胡彬著 《制度变迁中的中国房地产业——理论分析与政策评价》，上海财经大学出版社，2002年3月
[17] 顾云昌、邵新莉著 《经济适用住房的两种发展思路》，载《中国房地产研究》，2001年第3期
[18] 张其光著 《发展住房公积金制度的意义和策略》，载《中国房地产金融》2000年第6期
[19] 张世俊著 《贵州省住房公积金运行的调查与研究》，载《中国房地产金融》2001年第9期
[20] 杨圣明、张少龙著 《中国城镇住房制度改革》，载《20世纪经济改革回顾与展望》，中国计划经济出版社，1998
[21] 蔡德容著 《中国城镇住房——理论、实践与改革思路》，中国统计出版社，1991
[22] 厉以宁著 《当前的住房市场》，载《城市开发》1999年第7期
[23] 蔡育天、张鸿铭等著 《房地产发展》，上海社会科学院出版社，1999年9月
[24] 印坤华著 《关于经济适用住房政策的经济学思考与理论再探索》，载《理性思考与政策探索—
—房地产经济论文集》，上海财经大学出版社，2000年11月
[25] 汪体民著 《关于住房分配货币化的几个实际问题》，载《中国房地产信息》1999年第3期
[26] 戴维?D?史密斯著 《城市化住宅及其发展过程》，天津社会科学院出版社
[27] Terrence M Clanreetie and G stacy sir man Real Estate Finance second edition prentice-Hall,Inc,1998.
[28] Guide To choosing your Mortgage, Dearborn Financial Publishing，Inc,1996.
[29] D.L. Gorgon and M.C.“Buzz”Chambers California Mortgage Loan Brokering ＆ Lending Prentice-Hall, Inc, 1998.
[30] Frank J.Fabozzi and Franco Modigliani Capital Manket: Institutions and Instruments.
[31] Alonso,W., Location and Land Use Harvard University Press 1964.
[32] Denise D., and Willian C.W., Urban Economics and Real Estate Markets, Prentice-Hall,Ine.,New Tersey,1996
[33] John M.Clapp, Dynamics of Office Markets: Empirical Findings and research Issues, The urban Institute Press, New York, 1993.
[34] Kenneth T.R., and Lawrence B.S., The Price-Adjustment Process for Rental Housing and the Natural Vacancy Rate, The American Economic Review, Vol.73, No.4,1983.
[35] William C.W., Vacancy, Search, and Price in a Housing Matching Model, Journal of Political Economy, Vol.98,No.6,1990.
[36] James D.S., and C.F., Sirmans, and John B.Corgel, Price Adjustment Process for Rental Office Space, Journal of Urban, Economics 22, 1987.
[37] William C.W., and Raymond G.T., Office Rend Indices and Their Behavior over Time, Journal of Urban Economics 35,1994.
[38] Thedore D.S., The Duration of Rental Housing Vacancies, Journal of Urban Economics,36, 1994.
[39] Masaaki Komai,Vacancy and the price Adjustment Mechanism for Housing Market in Japen,2001.
[40] chin-Oh Chang,and Chung-Hsien Yang,The second Homes in Taiwan,2001.
[41] Jurgen Rosemann,and Hao Hu,Participation of Foreign Investment in Asian Housing Market,2001.
[2] “邓小平同志关于住宅问题的重要讲话”，1980年4月2日，原载《中国建筑年鉴》1984-1985年卷
[3] 中共中央、国务院批转《全国基本建设工作会议汇报提纲》，1980年6月
[4] 顾观成、唐国芳主编 《住房问题与住房制度改革》，中国企业文化研究院，1989年12月
[5] 国函字[1982]60号文批准国家建委、国家城建总局《关于城市公房出售试点工作座谈会情况的报告》，1982年4月
[6] 刘天成著 《我国住宅商品化的探索及其实践》，载中国基本建设经济研究会、中国城乡建设经济研究所《城镇住宅理论与实践问题论文集》，1983年9月
[7] 国务院文件：国发[1994]43号，“国务院关于深化住房制度改革的决定”，1994年7月
[8] 中国房地产及住宅研究会编 《前进中的中国房改》，中国建筑工业出版社，1995年5月
[9] 《国务院住房制度改革领导小组关于全国城镇分期分批推行住房制度改革的实施方案》，1988年2月
[10] 侯淅民著 《“九五”期间房改的策略问题》，载房改参阅资料1995年第5期
[11] 侯淅民著 《对我国住房分配状况演变的初步分析》，载《北京房地产》1995年第8期
[12] 《我国城镇住房改革问题研究》课题组 《我国城镇住房货币化分配问题研究》，1998
[13] 邵四华、李育华、张莉莉著 《天津市政策性住房资金管理现状、趋势与对策》，载《中国房地产金融》2002年第9期
[14] 林增杰、吕萍、余翔著 《公房入市政策研究》，中国人民大学出版社，1999年9月
[15] 傅家荣著 《住房公积金使用中的问题及对策》，载《城市开发》1999年第1期
[16] 胡彬著 《制度变迁中的中国房地产业——理论分析与政策评价》，上海财经大学出版社，2002年3月
[17] 顾云昌、邵新莉著 《经济适用住房的两种发展思路》，载《中国房地产研究》，2001年第3期
[18] 张其光著 《发展住房公积金制度的意义和策略》，载《中国房地产金融》2000年第6期
[19] 张世俊著 《贵州省住房公积金运行的调查与研究》，载《中国房地产金融》2001年第9期
[20] 杨圣明、张少龙著 《中国城镇住房制度改革》，载《20世纪经济改革回顾与展望》，中国计划经济出版社，1998
[21] 蔡德容著 《中国城镇住房——理论、实践与改革思路》，中国统计出版社，1991
[22] 厉以宁著 《当前的住房市场》，载《城市开发》1999年第7期
[23] 蔡育天、张鸿铭等著 《房地产发展》，上海社会科学院出版社，1999年9月
[24] 印坤华著 《关于经济适用住房政策的经济学思考与理论再探索》，载《理性思考与政策探索—
—房地产经济论文集》，上海财经大学出版社，2000年11月
[25] 汪体民著 《关于住房分配货币化的几个实际问题》，载《中国房地产信息》1999年第3期
[26] 戴维?D?史密斯著 《城市化住宅及其发展过程》，天津社会科学院出版社
[27] Terrence M Clanreetie and G stacy sir man Real Estate Finance second edition prentice-Hall,Inc,1998.
[28] Guide To choosing your Mortgage, Dearborn Financial Publishing，Inc,1996.
[29] D.L. Gorgon and M.C.“Buzz”Chambers California Mortgage Loan Brokering ＆ Lending Prentice-Hall, Inc, 1998.
[30] Frank J.Fabozzi and Franco Modigliani Capital Manket: Institutions and Instruments.
[31] Alonso,W., Location and Land Use Harvard University Press 1964.
[32] Denise D., and Willian C.W., Urban Economics and Real Estate Markets, Prentice-Hall,Ine.,New Tersey,1996
[33] John M.Clapp, Dynamics of Office Markets: Empirical Findings and research Issues, The urban Institute Press, New York, 1993.
[34] Kenneth T.R., and Lawrence B.S., The Price-Adjustment Process for Rental Housing and the Natural Vacancy Rate, The American Economic Review, Vol.73, No.4,1983.
[35] William C.W., Vacancy, Search, and Price in a Housing Matching Model, Journal of Political Economy, Vol.98,No.6,1990.
[36] James D.S., and C.F., Sirmans, and John B.Corgel, Price Adjustment Process for Rental Office Space, Journal of Urban, Economics 22, 1987.
[37] William C.W., and Raymond G.T., Office Rend Indices and Their Behavior over Time, Journal of Urban Economics 35,1994.
[38] Thedore D.S., The Duration of Rental Housing Vacancies, Journal of Urban Economics,36, 1994.
[39] Masaaki Komai,Vacancy and the price Adjustment Mechanism for Housing Market in Japen,2001.
[40] chin-Oh Chang,and Chung-Hsien Yang,The second Homes in Taiwan,2001.
[41] Jurgen Rosemann,and Hao Hu,Participation of Foreign Investment in Asian Housing Market,2001.