俄罗斯住房财政保障制度改革研究

发布时间：2018-04-21 12:12

  本文选题：俄罗斯 + 住房保障　； 参考：《中央财经大学》2016年博士论文

【摘要】：基于公有化的住房保障模式难以满足广大民众的住房需求,从二十世纪八十年代起,苏联政府便将市场化确定为住房制度改革的基本方向。苏联解体后,俄罗斯更是进一步摒弃了无偿供给的住房保障制度,开始实行大规模的住房私有化。为将私有化改革成果惠及所有居民,俄罗斯联邦议会于1991年颁布了《住房私有化法》,明确规定每个俄罗斯公民均享有免费获得私有化住房的权利,当然,这种权利每个公民只能享有一次。然而遗憾的是,俄罗斯虽以立法的形式对公民的住房权予以了保障,但这一法律规范实施的效果却并不理想。住房私有化不仅加剧了俄罗斯低收入群体的住房困难,更进一步加重了俄普通民众的住房负担。究其原因在于:住房私有化改革使俄罗斯政府投资住房建设和住房公用服务事业的意愿显著下降,而独立后前所未有的财政困境则更进一步削弱了俄罗斯政府对住房建设的投资能力。在这两方面因素的共同作用下,二十世纪九十年代上半期,俄罗斯在住房保障领域的财政投入大幅度下降,使俄罗斯新增的可私有化住房建设规模急剧萎缩。在这种情况下,俄罗斯居民等待私有化住房的排队时间被大大延长。对于那些在苏联时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条件的低收入群体来说,其住房问题的解决成为了生活中的一大难题。与此同时,俄罗斯独立初期严重的通货膨胀使市场上商品房的价格一路飙升,远超出普通居民的承受能力,这又使得普通民众借助于购买商品房改善住房条件的愿望成为泡影。住房公用事业改革方向选择的错位则进一步加重了俄罗斯居民的住房困难。对于住房公用事业投入,俄罗斯选择的改革道路是大幅度减少政府补贴,强化居民在该领域的支出责任。由此,无论住房是否已经私有化,俄罗斯居民都需支付高昂的住房维修、养护及其他相关费用。可见,在住房私有化改革进程中,俄罗斯绝大多数居民的居住条件并未得到改善,他们也未能享受任何实际益处,这使住房保障问题成为俄罗斯社会矛盾最为集中的领域。在此背景下,俄罗斯政府不断反思其改革方向、改革道路和改革理论。鉴于过度私有化和市场化带来的诸多弊端,俄罗斯政府及专家学者一致认为,政府在住房领域应担负起制定经济活动规则、形成经济组织结构体系、监督市场主体经营活动、制定相关社会经济和保障政策等方面的职责。据此,俄罗斯将政府在住房保障领域的基本任务确定为:(1)形成法律框架和监管机制。通过立法协调和规范住房领域国家政权机关的职能和权限;(2)确保住房制度改革与其他领域的社会改革相协调;(3)协调住房领域私人企业的发展,通过税收优惠系统,最大限度地吸引私人投资参与保障性住房建设和住房公用服务的供给。自此,俄罗斯逐步构建起以“公共财政”理论为基础、以完善的法律体系为支撑、以多样化财政支持为动力的住房财政保障机制。住房财政保障模式、保障道路及保障理论的重新确立,不仅极大地促进了俄住房保障市场的发展,也较好地改善了其居民的住房条件,同时也使俄罗斯的住房保障体系日渐完善。改革开放以来,中国住房保障制度改革也一直处于改革的中心,虽取得了一定的成效,但同时也隐藏着诸多的矛盾和问题。近年来,随着房价的不断攀升与居民收入增长放缓之间的矛盾逐渐加深,现行住房保障制度的弊端也日益显现。住房困难,特别是低收入阶层的住房困难成为我国较为突出的社会问题。由此,系统地探讨俄罗斯住房保障制度改革,深入分析改革的得失,借鉴其经验,汲取其教训,将对我国住房保障制度改革的发展与完善具有重要意义。本文以财政的保障方式和支持作用为切入点研究俄罗斯住房保障制度改革,致力于解决以下几个问题:其一,俄罗斯缘何进行住房财政保障制度改革?其二,俄罗斯如何构建住房财政保障制度改革的法律基础?其三,在住房财政保障制度改革进程中俄罗斯是如何对政府的职能和作用进行界定的?其四,俄罗斯住房财政保障制度的运行机理是什么,其手段和方法有哪些?其五,俄罗斯对住房财政保障制度的未来改革道路是如何考虑的?围绕上述问题,本文开展了系统研究:一、对俄罗斯开启住房保障财政制度改革原因的探寻。在俄罗斯独立伊始,实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、居民住房福利依赖严重、住房分配不均、轮候等待时间漫长等。为此,俄罗斯开始了大规模的住房私有化改革。然而,基于政府职能定位的错位、改革道路选择的失当,使俄罗斯的住房私有化改革未能取得预期的改革成效。二、对俄罗斯住房保障体系法律支撑框架的研究。宪法是国家的根本大法,是一切法律和法典的渊源。俄罗斯在独立后的第一部宪法中就将保障公民的住房权列为政府应履行的基本义务,明确要求政府对住房保障领域予以政策和资金的充分支持与倾斜。为确保宪法规定的住房保障义务的顺利实现,俄罗斯还在宪法的框架下出台了一整套法律法规,对居民的住房权予以保障。该体系既包含了《宪法》对居民住房权的基本保障,又包括《住房法》对各级政府住房保障职责与权限的明确划分,还涵盖了《联邦住房专项规划》以及各地方政府制定的地区级住房发展规划等,这些法律法规为俄罗斯住房保障体系的构建提供了良好的制度基础。三、对俄罗斯住房财政保障制度构建过程中政府职能作用的剖析。在向市场化转轨初期,俄罗斯遵循以货币主义为核心的新自由主义经济学说,对自由市场的自发性资源配置功能深信不疑,力图将政府在经济发展中的作用控制在尽可能小的范围,由此引发了一系列的不良后果,如大萧条和令人失望的经济增长速度。因此,不少俄罗斯经济学家和政治家都认为,如果任由自由市场的盲目力量来主宰住房部门的发展,不仅会为低收入群体获得保障性住房造成阻碍,也会使得由收入分配不均带来的社会分化和不公平现象在住房保障领域更加严峻。由此,在住房财政保障制度改革过程中,俄罗斯将政府的职能作用定位于:通过相关法律法规和价格体系对住房市场加以调控,通过预算拨款、贷款和预算投资履行财政对住房和公共事业的保障职能;通过税收、财政监督和住房配置实现其调节与管理职能。四、对俄罗斯住房财政保障机制运行机理和作用方式的探讨。住房保障是俄罗斯财政预算的优先发展方向,俄罗斯政府通过制定住房规划以及直接为其划拨预算资金来促进住房部门的发展,从而实现国家的住房政策目标。目前,俄罗斯已形成了由社会住房、私人和合作建房、专用住房、租赁房和经济型住房等组成的多层次住房保障供给体系。基于各类住房的不同特征,俄罗斯还为每类住房设定了不同的预算保障模式。此外,俄罗斯政府还通过多样化按揭产品的推出,向社会各收入阶层提供符合其实际需求的住房按揭模式。五、对俄罗斯住房财政保障机制多元化发展方向的研究。为深化住房财政保障制度改革,促进其保障机制的有效运行,俄罗斯还积极引入新的财政投入模式,一方面大力鼓励住房领域的公私合作(PPP),使特许协议、生命周期合同和特殊目的企业成为政府住房保障建设融资多元化的有效手段;另一方面,为充分发挥市场机制的有效作用,俄罗斯政府还积极支持住房金融产品的创新。通过上述五方面的研究,本文得出如下结论:(1)俄罗斯以宪法为框架逐步构建起一整套完善的法律法规体系,为其住房财政保障制度的建立与发展提供了坚实的法律基石;(2)通过明确政府职能,完善财政保障机制,将住房保障列为国家规划的优先发展方向,为俄罗斯住房和公用事业的发展提供了较为充足与有效的资金支持与制度支撑;(3)通过改革财政投入方式,拓宽资金来源,创新金融工具,俄罗斯较好地解决了住房建设融资难的问题。本文的创新之处体现在:(1)研究视角创新。以住房保障制度中的财政支持作用为研究基点,从政府财政职能角度出发,通过对多种财政支持和保障手段的对比分析,明确提出不同类型保障住房建设的预算支持模式。(2)研究方法创新。在俄罗斯现行住房建设评估指标的基础上,结合国际上公认的住房保障评估指标,构建起由综合指标、国家住房义务的完成指标、住房按揭信贷发展指标、住房建设指标和住房公用事业发展指标等五大基本指标组成的住房财政保障机制运行结果的评估指标体系。利用该评估指标体系,不仅可对俄罗斯住房财政保障机制运作的具体成效进行全面的评估,也可部分适用于对中国住房财政保障制度运行结果的评估。(3)研究内容的创新。本文不仅探讨了俄罗斯多样化的住房财政保障方式,还对俄罗斯政府与私人部门在住房保障领域的合作机制进行了分析。俄罗斯住房保障领域公私合作的实践发展,可对我国深化住房保障制度改革,尤其是保障房建设融资难问题的解决带来一定的思考。本文的不足之处在于:住房保障是涉及政治、经济和社会等领域的复杂问题,因此如何对俄罗斯住房财政保障政策效果进行准确而全面的判断和把握,以及住房财政保障制度改革取得的成效是否可借鉴到我国的住房保障制度改革之中,都是本文写作的难点,也是未来本文深化与完善的主要方向。
[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.

【学位授予单位】：中央财经大学
【学位级别】：博士
【学位授予年份】：2016
【分类号】：DD912.3;D951.2
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本文编号：1782385