本文選題：俄羅斯 + 住房保障　； 參考：《中央財(cái)經(jīng)大學(xué)》2016年博士論文

【摘要】：基于公有化的住房保障模式難以滿足廣大民眾的住房需求,從二十世紀(jì)八十年代起,蘇聯(lián)政府便將市場(chǎng)化確定為住房制度改革的基本方向。蘇聯(lián)解體后,俄羅斯更是進(jìn)一步摒棄了無(wú)償供給的住房保障制度,開(kāi)始實(shí)行大規(guī)模的住房私有化。為將私有化改革成果惠及所有居民,俄羅斯聯(lián)邦議會(huì)于1991年頒布了《住房私有化法》,明確規(guī)定每個(gè)俄羅斯公民均享有免費(fèi)獲得私有化住房的權(quán)利,當(dāng)然,這種權(quán)利每個(gè)公民只能享有一次。然而遺憾的是,俄羅斯雖以立法的形式對(duì)公民的住房權(quán)予以了保障,但這一法律規(guī)范實(shí)施的效果卻并不理想。住房私有化不僅加劇了俄羅斯低收入群體的住房困難,更進(jìn)一步加重了俄普通民眾的住房負(fù)擔(dān)。究其原因在于:住房私有化改革使俄羅斯政府投資住房建設(shè)和住房公用服務(wù)事業(yè)的意愿顯著下降,而獨(dú)立后前所未有的財(cái)政困境則更進(jìn)一步削弱了俄羅斯政府對(duì)住房建設(shè)的投資能力。在這兩方面因素的共同作用下,二十世紀(jì)九十年代上半期,俄羅斯在住房保障領(lǐng)域的財(cái)政投入大幅度下降,使俄羅斯新增的可私有化住房建設(shè)規(guī)模急劇萎縮。在這種情況下,俄羅斯居民等待私有化住房的排隊(duì)時(shí)間被大大延長(zhǎng)。對(duì)于那些在蘇聯(lián)時(shí)期尚未分得福利住房,只能依靠政府提供的私有化住房改善居住條件的低收入群體來(lái)說(shuō),其住房問(wèn)題的解決成為了生活中的一大難題。與此同時(shí),俄羅斯獨(dú)立初期嚴(yán)重的通貨膨脹使市場(chǎng)上商品房的價(jià)格一路飆升,遠(yuǎn)超出普通居民的承受能力,這又使得普通民眾借助于購(gòu)買商品房改善住房條件的愿望成為泡影。住房公用事業(yè)改革方向選擇的錯(cuò)位則進(jìn)一步加重了俄羅斯居民的住房困難。對(duì)于住房公用事業(yè)投入,俄羅斯選擇的改革道路是大幅度減少政府補(bǔ)貼,強(qiáng)化居民在該領(lǐng)域的支出責(zé)任。由此,無(wú)論住房是否已經(jīng)私有化,俄羅斯居民都需支付高昂的住房維修、養(yǎng)護(hù)及其他相關(guān)費(fèi)用�？梢�(jiàn),在住房私有化改革進(jìn)程中,俄羅斯絕大多數(shù)居民的居住條件并未得到改善,他們也未能享受任何實(shí)際益處,這使住房保障問(wèn)題成為俄羅斯社會(huì)矛盾最為集中的領(lǐng)域。在此背景下,俄羅斯政府不斷反思其改革方向、改革道路和改革理論。鑒于過(guò)度私有化和市場(chǎng)化帶來(lái)的諸多弊端,俄羅斯政府及專家學(xué)者一致認(rèn)為,政府在住房領(lǐng)域應(yīng)擔(dān)負(fù)起制定經(jīng)濟(jì)活動(dòng)規(guī)則、形成經(jīng)濟(jì)組織結(jié)構(gòu)體系、監(jiān)督市場(chǎng)主體經(jīng)營(yíng)活動(dòng)、制定相關(guān)社會(huì)經(jīng)濟(jì)和保障政策等方面的職責(zé)。據(jù)此,俄羅斯將政府在住房保障領(lǐng)域的基本任務(wù)確定為:(1)形成法律框架和監(jiān)管機(jī)制。通過(guò)立法協(xié)調(diào)和規(guī)范住房領(lǐng)域國(guó)家政權(quán)機(jī)關(guān)的職能和權(quán)限;(2)確保住房制度改革與其他領(lǐng)域的社會(huì)改革相協(xié)調(diào);(3)協(xié)調(diào)住房領(lǐng)域私人企業(yè)的發(fā)展,通過(guò)稅收優(yōu)惠系統(tǒng),最大限度地吸引私人投資參與保障性住房建設(shè)和住房公用服務(wù)的供給。自此,俄羅斯逐步構(gòu)建起以“公共財(cái)政”理論為基礎(chǔ)、以完善的法律體系為支撐、以多樣化財(cái)政支持為動(dòng)力的住房財(cái)政保障機(jī)制。住房財(cái)政保障模式、保障道路及保障理論的重新確立,不僅極大地促進(jìn)了俄住房保障市場(chǎng)的發(fā)展,也較好地改善了其居民的住房條件,同時(shí)也使俄羅斯的住房保障體系日漸完善。改革開(kāi)放以來(lái),中國(guó)住房保障制度改革也一直處于改革的中心,雖取得了一定的成效,但同時(shí)也隱藏著諸多的矛盾和問(wèn)題。近年來(lái),隨著房?jī)r(jià)的不斷攀升與居民收入增長(zhǎng)放緩之間的矛盾逐漸加深,現(xiàn)行住房保障制度的弊端也日益顯現(xiàn)。住房困難,特別是低收入階層的住房困難成為我國(guó)較為突出的社會(huì)問(wèn)題。由此,系統(tǒng)地探討俄羅斯住房保障制度改革,深入分析改革的得失,借鑒其經(jīng)驗(yàn),汲取其教訓(xùn),將對(duì)我國(guó)住房保障制度改革的發(fā)展與完善具有重要意義。本文以財(cái)政的保障方式和支持作用為切入點(diǎn)研究俄羅斯住房保障制度改革,致力于解決以下幾個(gè)問(wèn)題:其一,俄羅斯緣何進(jìn)行住房財(cái)政保障制度改革?其二,俄羅斯如何構(gòu)建住房財(cái)政保障制度改革的法律基礎(chǔ)?其三,在住房財(cái)政保障制度改革進(jìn)程中俄羅斯是如何對(duì)政府的職能和作用進(jìn)行界定的?其四,俄羅斯住房財(cái)政保障制度的運(yùn)行機(jī)理是什么,其手段和方法有哪些?其五,俄羅斯對(duì)住房財(cái)政保障制度的未來(lái)改革道路是如何考慮的?圍繞上述問(wèn)題,本文開(kāi)展了系統(tǒng)研究:一、對(duì)俄羅斯開(kāi)啟住房保障財(cái)政制度改革原因的探尋。在俄羅斯獨(dú)立伊始,實(shí)施住房保障制度改革是源于公有化住房保障模式的弊端,例如公有住房短缺、居民住房福利依賴嚴(yán)重、住房分配不均、輪候等待時(shí)間漫長(zhǎng)等。為此,俄羅斯開(kāi)始了大規(guī)模的住房私有化改革。然而,基于政府職能定位的錯(cuò)位、改革道路選擇的失當(dāng),使俄羅斯的住房私有化改革未能取得預(yù)期的改革成效。二、對(duì)俄羅斯住房保障體系法律支撐框架的研究。憲法是國(guó)家的根本大法,是一切法律和法典的淵源。俄羅斯在獨(dú)立后的第一部憲法中就將保障公民的住房權(quán)列為政府應(yīng)履行的基本義務(wù),明確要求政府對(duì)住房保障領(lǐng)域予以政策和資金的充分支持與傾斜。為確保憲法規(guī)定的住房保障義務(wù)的順利實(shí)現(xiàn),俄羅斯還在憲法的框架下出臺(tái)了一整套法律法規(guī),對(duì)居民的住房權(quán)予以保障。該體系既包含了《憲法》對(duì)居民住房權(quán)的基本保障,又包括《住房法》對(duì)各級(jí)政府住房保障職責(zé)與權(quán)限的明確劃分,還涵蓋了《聯(lián)邦住房專項(xiàng)規(guī)劃》以及各地方政府制定的地區(qū)級(jí)住房發(fā)展規(guī)劃等,這些法律法規(guī)為俄羅斯住房保障體系的構(gòu)建提供了良好的制度基礎(chǔ)。三、對(duì)俄羅斯住房財(cái)政保障制度構(gòu)建過(guò)程中政府職能作用的剖析。在向市場(chǎng)化轉(zhuǎn)軌初期,俄羅斯遵循以貨幣主義為核心的新自由主義經(jīng)濟(jì)學(xué)說(shuō),對(duì)自由市場(chǎng)的自發(fā)性資源配置功能深信不疑,力圖將政府在經(jīng)濟(jì)發(fā)展中的作用控制在盡可能小的范圍,由此引發(fā)了一系列的不良后果,如大蕭條和令人失望的經(jīng)濟(jì)增長(zhǎng)速度。因此,不少俄羅斯經(jīng)濟(jì)學(xué)家和政治家都認(rèn)為,如果任由自由市場(chǎng)的盲目力量來(lái)主宰住房部門的發(fā)展,不僅會(huì)為低收入群體獲得保障性住房造成阻礙,也會(huì)使得由收入分配不均帶來(lái)的社會(huì)分化和不公平現(xiàn)象在住房保障領(lǐng)域更加嚴(yán)峻。由此,在住房財(cái)政保障制度改革過(guò)程中,俄羅斯將政府的職能作用定位于:通過(guò)相關(guān)法律法規(guī)和價(jià)格體系對(duì)住房市場(chǎng)加以調(diào)控,通過(guò)預(yù)算撥款、貸款和預(yù)算投資履行財(cái)政對(duì)住房和公共事業(yè)的保障職能;通過(guò)稅收、財(cái)政監(jiān)督和住房配置實(shí)現(xiàn)其調(diào)節(jié)與管理職能。四、對(duì)俄羅斯住房財(cái)政保障機(jī)制運(yùn)行機(jī)理和作用方式的探討。住房保障是俄羅斯財(cái)政預(yù)算的優(yōu)先發(fā)展方向,俄羅斯政府通過(guò)制定住房規(guī)劃以及直接為其劃撥預(yù)算資金來(lái)促進(jìn)住房部門的發(fā)展,從而實(shí)現(xiàn)國(guó)家的住房政策目標(biāo)。目前,俄羅斯已形成了由社會(huì)住房、私人和合作建房、專用住房、租賃房和經(jīng)濟(jì)型住房等組成的多層次住房保障供給體系。基于各類住房的不同特征,俄羅斯還為每類住房設(shè)定了不同的預(yù)算保障模式。此外,俄羅斯政府還通過(guò)多樣化按揭產(chǎn)品的推出,向社會(huì)各收入階層提供符合其實(shí)際需求的住房按揭模式。五、對(duì)俄羅斯住房財(cái)政保障機(jī)制多元化發(fā)展方向的研究。為深化住房財(cái)政保障制度改革,促進(jìn)其保障機(jī)制的有效運(yùn)行,俄羅斯還積極引入新的財(cái)政投入模式,一方面大力鼓勵(lì)住房領(lǐng)域的公私合作(PPP),使特許協(xié)議、生命周期合同和特殊目的企業(yè)成為政府住房保障建設(shè)融資多元化的有效手段;另一方面,為充分發(fā)揮市場(chǎng)機(jī)制的有效作用,俄羅斯政府還積極支持住房金融產(chǎn)品的創(chuàng)新。通過(guò)上述五方面的研究,本文得出如下結(jié)論:(1)俄羅斯以憲法為框架逐步構(gòu)建起一整套完善的法律法規(guī)體系,為其住房財(cái)政保障制度的建立與發(fā)展提供了堅(jiān)實(shí)的法律基石;(2)通過(guò)明確政府職能,完善財(cái)政保障機(jī)制,將住房保障列為國(guó)家規(guī)劃的優(yōu)先發(fā)展方向,為俄羅斯住房和公用事業(yè)的發(fā)展提供了較為充足與有效的資金支持與制度支撐;(3)通過(guò)改革財(cái)政投入方式,拓寬資金來(lái)源,創(chuàng)新金融工具,俄羅斯較好地解決了住房建設(shè)融資難的問(wèn)題。本文的創(chuàng)新之處體現(xiàn)在:(1)研究視角創(chuàng)新。以住房保障制度中的財(cái)政支持作用為研究基點(diǎn),從政府財(cái)政職能角度出發(fā),通過(guò)對(duì)多種財(cái)政支持和保障手段的對(duì)比分析,明確提出不同類型保障住房建設(shè)的預(yù)算支持模式。(2)研究方法創(chuàng)新。在俄羅斯現(xiàn)行住房建設(shè)評(píng)估指標(biāo)的基礎(chǔ)上,結(jié)合國(guó)際上公認(rèn)的住房保障評(píng)估指標(biāo),構(gòu)建起由綜合指標(biāo)、國(guó)家住房義務(wù)的完成指標(biāo)、住房按揭信貸發(fā)展指標(biāo)、住房建設(shè)指標(biāo)和住房公用事業(yè)發(fā)展指標(biāo)等五大基本指標(biāo)組成的住房財(cái)政保障機(jī)制運(yùn)行結(jié)果的評(píng)估指標(biāo)體系。利用該評(píng)估指標(biāo)體系,不僅可對(duì)俄羅斯住房財(cái)政保障機(jī)制運(yùn)作的具體成效進(jìn)行全面的評(píng)估,也可部分適用于對(duì)中國(guó)住房財(cái)政保障制度運(yùn)行結(jié)果的評(píng)估。(3)研究?jī)?nèi)容的創(chuàng)新。本文不僅探討了俄羅斯多樣化的住房財(cái)政保障方式,還對(duì)俄羅斯政府與私人部門在住房保障領(lǐng)域的合作機(jī)制進(jìn)行了分析。俄羅斯住房保障領(lǐng)域公私合作的實(shí)踐發(fā)展,可對(duì)我國(guó)深化住房保障制度改革,尤其是保障房建設(shè)融資難問(wèn)題的解決帶來(lái)一定的思考。本文的不足之處在于:住房保障是涉及政治、經(jīng)濟(jì)和社會(huì)等領(lǐng)域的復(fù)雜問(wèn)題,因此如何對(duì)俄羅斯住房財(cái)政保障政策效果進(jìn)行準(zhǔn)確而全面的判斷和把握,以及住房財(cái)政保障制度改革取得的成效是否可借鑒到我國(guó)的住房保障制度改革之中,都是本文寫作的難點(diǎn),也是未來(lái)本文深化與完善的主要方向。
[Abstract]:Based on the public housing security model, it is difficult to meet the housing needs of the masses. Since 1980s, the Soviet government has determined the market-oriented reform as the basic direction of the housing system reform. After the disintegration of the Soviet Union, Russia has further abandoned the housing security system of free supply and began to carry out large-scale housing privatization. In order to benefit all the residents of the privatization reform, the parliament of Russian Federation promulgated the housing privatization act in 1991, which clearly stipulates that every Russian citizen has the right to obtain free housing for free. Of course, the right is only once for every citizen. However, it is regrettable that Russia has a legislative form for citizens. Housing rights have been guaranteed, but the effect of this legal norm is not ideal. Housing privatization not only aggravates the housing difficulties of low income groups in Russia, but further aggravates the housing burden of the Russian ordinary people. The reason is that the housing privatization reform makes the government investment housing construction and housing public service. The willingness of the industry to decline significantly, and the unprecedented financial distress after independence further weakened the investment capacity of the Russian government for housing construction. Under the joint effect of these two factors, the Russian financial investment in housing security decreased substantially in the first half of 1990s, allowing the new Russian private sector to be privatized. In this case, the queuing time of Russian residents waiting for privatized housing has been greatly extended. For those low-income groups who have not yet separated welfare homes in the Soviet period and only rely on the privatized housing provided by the government to improve their living conditions, the settlement of the housing problem has become a living problem. At the same time, the serious inflation in the early days of the Russian independence made the price of commodity houses in the market soar, far beyond the capacity of ordinary residents, which made the ordinary people's desire to improve housing conditions by buying commercial housing. The housing difficulties of Russian residents have been weighed down. For housing utilities, the road to reform in Russia is to substantially reduce government subsidies and to strengthen residents' expenditure responsibilities in this field. Thus, regardless of whether housing has been privatized, Russian residents need to pay high housing maintenance, maintenance and other related costs. In the process of housing privatization reform, the living conditions of the vast majority of the residents in Russia have not been improved and they have not been able to enjoy any practical benefits. This makes the problem of housing security the most concentrated field in Russian social contradictions. In this context, the Russian government is constantly reflecting on its reform direction, the reform of the road and the theory of reform. The Russian government and experts and scholars agree that the government should take up the rules of economic activities, form the structural system of economic organization, supervise the operation of the main body of the market and formulate the relevant social economy and safeguard policies in the housing field. The basic tasks in the housing security field are as follows: (1) forming a legal framework and regulatory mechanism. Through legislation to coordinate and regulate the functions and powers of the state authority in the field of housing; (2) to ensure that the housing system reform is coordinated with the social reforms in other fields; (3) to coordinate the development of private enterprises in the field of housing, through the tax preferential system, the largest By attracting private investment to participate in the construction of affordable housing and the supply of housing public services, Russia has gradually built up a housing financial guarantee mechanism based on the theory of public finance, supported by a perfect legal system and diversified financial support. The model of housing financial security, the guarantee of road and security. The reestablishment of the theory has not only greatly promoted the development of the housing security market in Russia, but also improved the housing conditions of its residents. At the same time, it also made the housing security system of Russia perfect. Since the reform and opening up, the reform of China's housing security system has been in the center of reform, although it has achieved certain results, but it is also implicit. There are many contradictions and problems. In recent years, the contradiction between the rising house price and the slowdown of residents' income growth has gradually deepened, and the disadvantages of the existing housing security system are becoming increasingly apparent. The housing difficulties, especially the housing difficulties of the low-income class, have become a more prominent social problem in our country. The reform of the housing security system, the in-depth analysis of the gains and losses of the reform, drawing on its experience and drawing lessons from it, will be of great significance to the development and improvement of the reform of the housing security system in China. This article studies the reform of the Russian housing security system with the financial guarantee mode and supporting role, and is committed to solving the following problems: first, Russia What is the reason for the reform of the housing financial security system? Secondly, how does Russia build the legal basis for the reform of the housing financial security system? Thirdly, how does Russia define the function and function of the government in the process of the reform of the housing financial security system, and the fourth, what is the operating mechanism of the housing financial security system in Russia, What are the means and methods? What is the way for the future reform of the housing financial security system in Russia? Around the above problems, this paper has carried out a systematic study: first, the exploration of the reasons for the reform of the financial system of housing security in Russia. At the beginning of the independence of Russia, the reform of the housing security system was derived from public housing. The drawbacks of the housing security model, such as the shortage of public housing, the serious dependence on the housing welfare, the uneven distribution of housing, the long waiting time, etc., have started a large-scale reform of the housing privatization. However, the misposition of the government function orientation and the misconduct of the reform of the road have prevented the reform of the privatization of housing in Russia. Two, the study of the legal support framework for the Russian housing security system. The constitution is the fundamental law of the country and the origin of all laws and codes. In the first constitution after independence, Russia is the basic obligation to ensure the housing rights of citizens to be carried out by the government, and clearly requires the government to protect the housing. In order to ensure the smooth realization of the housing security obligations stipulated in the constitution, Russia has also issued a complete set of laws and regulations under the framework of the constitution to guarantee the housing rights of the residents. The system includes the basic guarantee of the right to housing for residents and the housing law. A clear division of the duty and authority of the government's housing security, and also covered the "federal housing special plan" and the regional housing development plan formulated by the local governments. These laws and regulations provide a good institutional basis for the construction of the Russian housing security system. Three, the construction of the housing financial security system of Ross in Russia. At the beginning of the transition to the market, Russia follows the Neo liberalist economic theory with the core of monetarism, and believes in the spontaneous allocation function of the free market, trying to control the role of the government in the economic development as small as possible, thus causing a series of adverse consequences, such as The great depression and disappointing economic growth, so many Russian economists and politicians believe that if the blind power of the free market is allowed to dominate the development of the housing sector, it will not only impede the access to affordable housing for low-income groups, but also cause social differentiation and inequality caused by the uneven distribution of income. The phenomenon is more severe in the field of housing security. Thus, in the process of reform of the housing financial security system, the function of the government is positioned to regulate the housing market through relevant laws and regulations and price system, through budget appropriation, loan and budgetary investment to the housing and public services; Tax, financial supervision and housing allocation to realize its regulation and management functions. Four, the operation mechanism of the Russian housing financial security mechanism and the mode of action. Housing security is the priority of the Russian financial budget development direction, the Russian government through the formulation of housing planning and direct allocation of budget funds to promote the housing sector At present, Russia has formed a multi-level housing security supply system consisting of social housing, private and cooperative housing, special housing, rental housing and economic housing. Based on the different characteristics of various types of housing, Russia has set a different budget guarantee model for each type of housing. In addition, the Russian government, through the introduction of diversified mortgage products, provides the housing mortgage model that is in line with the actual needs of all social income groups. Five, the research on the diversified development direction of the housing financial security mechanism in Russia. In order to deepen the reform of the housing financial security system and promote the effective operation of its guarantee mechanism, Russia has also accumulated the system. On the one hand, the new mode of financial input is introduced, and on the one hand, the public and private cooperation (PPP) in the housing field is encouraged to make the concession agreement, the life cycle contract and the special purpose enterprise become an effective means to diversify the financing of the government housing security construction. On the other hand, the Russian government also actively supports the housing gold for the full play of the market mechanism. Through the above five aspects of research, this article draws the following conclusions: (1) Russia builds a complete set of perfect legal and regulatory system with the constitution as the framework, and provides a solid legal cornerstone for the establishment and development of its housing financial security system; (2) through the clear government function, the improvement of the financial security mechanism, and the housing of housing. It is the priority development direction of national planning, providing sufficient and effective financial support and institutional support for the development of housing and public utilities in Russia. (3) through the reform of financial input mode, broadening the source of funds and innovating financial instruments, Russia has solved the problem of housing construction financing better. Now: (1) research perspective innovation. Taking the financial support role of housing security system as the research base, from the perspective of government financial function, through the comparison and analysis of various financial support and guarantee means, the budget support mode of different types of housing construction is clearly put forward. (2) research method innovation. On the basis of the construction evaluation index, combined with the internationally recognized evaluation index of housing security, the evaluation of the operating results of the housing financial security mechanism from the five basic indexes, such as the comprehensive index, the national housing obligation, the housing mortgage credit development index, the housing construction index and the housing utility development index, has been evaluated. The evaluation index system can not only make a comprehensive assessment of the concrete effect of the operation of the Russian housing financial security mechanism, but also can be partly applied to the evaluation of the operating results of the housing financial security system in China. (3) the innovation of the research content. The cooperation mechanism between the Russian government and the private sector in the housing security field is analyzed. The practice and development of the public and private cooperation in the field of Russian housing security can bring a certain reflection on the reform of the housing security system in China, especially the solution to the difficult problem of housing construction financing. As well as the complicated problems in the political, economic and social fields, how to accurately and comprehensively judge and grasp the effect of the Russian housing financial security policy, as well as whether the success of the reform of the housing financial security system can draw on the reform of the housing security system in our country, is the difficult point of this article and is also the future article. The main direction of deepening and perfecting.

【學(xué)位授予單位】：中央財(cái)經(jīng)大學(xué)
【學(xué)位級(jí)別】：博士
【學(xué)位授予年份】：2016
【分類號(hào)】：DD912.3;D951.2
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本文編號(hào)：1782385