我国保障性住房建设新模式与政策应对： 基于政府—市场—社会关系演进的视角
The New Model and Policy Response of Affordable Housing Construction in China: From the Perspective of the Evolution of State-Market-Society Relationship
夏 菁
合肥工业大学建筑与艺术学院 讲师 清华大学 博士后 安徽省城市风貌与空间环境更新技术工程 研究中心
田 莉
清华大学建筑学院 教授，博士生导师 自然资源部智慧人居环境与空间规划治理技术 创新中心 主任
王晨跃
浙江省社会科学院智库建设和舆情研究中心 助理研究
焦永利
中国浦东干部学院 教授
摘要: 保障性住房建设是解决住房民生问题、促进社会经济健康发展的重要举措。当前，在房地产市场供求关系发生重大变化
及其带来政府财政负担这一宏观社会经济背景下，结合国家层面“加快构建房地产发展新模式、加大保障性住房建设
和供给”这一住房保障理念，从政府—市场—社会关系视角，梳理我国保障性住房建设的阶段性特征，讨论我国住房建
设面临的实践挑战，并进一步提出应从政府—市场—社会关系再调整视角，以多元合作共建模式予以应对。具体包括：
在城市更新与乡村振兴等国家战略推进背景下多路并举统筹解决保障性住房短缺难题，创新规划管制举措以激励多主
体充分参与住房保障建设与住区治理，完善土地财税金融法律等配套政策以保障住房市场有序运行等
Abstract: The construction of affordable housing is an important measure to solve the problems of people's livelihoods and promote the healthy development of society and economy. At present, under the macro-socio-economic background of the major changes in the supply and demand relationship of the real estate market and the financial burden brought by the government,
combined with the idea of "accelerating the construction of a new model of real estate development and increasing the construction and supply of affordable housing" at the national level, this paper reviews the phased characteristics of China's
affordable housing construction from the perspective of state-market-society relationship. This paper discusses the practical
challenges faced by housing construction in China, and further puts forward that we should adjust the state-market-society relationship, and respond to them in multi-cooperation and co-construction mode. Specifically, in the context of national strategies, such as urban renewal and rural revitalization, multiple approaches are taken to solve the problem of shortage of
affordable housing, innovative planning control measures are taken to encourage multi-agent to fully participate in affordable
housing construction and community governance, and supporting policies such as land finance, taxation, financial laws and
regulations are improved to ensure the orderly operation of the housing market.
关键词：保障性住房；政府—市场—社会关系；租赁住房；规划管控
Keyword: affordable housing; state-market-society relationship; rental housing; planning control
中图分类号：TU981
文献标识码: A
资金资助
国家 国家社科基金重大项目 23&ZD114
教育部 教育部人文社会科学研究项目 23YJCZH245
北京市 北京市政府北京卓越青年科学家项目 JJWZYJH01201910003010
中央 中央高校基本科研业务费专项资金 JZ2023HGTA0189
任泽平. 中国住房存量研究报告[EB/OL].（ 2023-10-04）[2024-07-09]. https://new.qq.com/rain/a/20231005A0008G00/.
REN Zeping. Chinese housing stock research report[EB/OL]. (2023-10-04) [2024-07-09]. ttps://new.qq.com/rain/a/20231005A0008G00/.
王晓梦，刘志林，马璐瑶. 目标责任制能否提高政府回应性?——基于保障性住房政策的分析[J]. 公共行政评论，2020，13（5）：2-22.
WANG Xiaomeng, LIU Zhilin, MA Luyao. Can the target responsibility system improve government responsiveness? An analysis based on affordable housing policy[J]. Journal of Public Administration,2020, 13(5): 2-22.
陈杰. 租赁赋权助力住房租赁市场发展[C]//规范发展与最佳实践——中国住房租赁发展论坛论文集. 北京：中国城市出版社，2023：10.
CHEN Jie. Rental empowerment contributes to the development of the housing rental market[C]//Standard development and best practice: proceedings of China Housing Rental Development Forum. Beijing: China City Press, 2023: 10.
焦长权，董磊明. 迈向共同富裕之路：社会建设与民生支出的崛起[J]. 中国社会科学，2022（6）：139-160.
JIAO Changquan, DONG Leiming. A road to common prosperity: the rise of social construction and welfare expenditure[J]. Social Sciences in China, 2022(6): 139-160.
马秀莲. 在资产积累和可承担性之间：共有产权房的现状、挑战及出路[J]. 行政管理改革，2021（3）：68-76.
MA Xiulian. Asset-building and affordability: new trends and challenges of shared homeownership[J].Administration Reform, 2021(3): 68-76.
郭永沛，贺一舟，梁湉湉，等. 集体土地建设租赁住房试点政策研究——以北京市为例[J]. 中国软科学，2020（12）：94-103.
GUO Yongpei, HE Yizhou, LIANG Tiantian, et al.
Study on the policy of rental housing construction on collective land: taking Beijing as an example[J].China Soft Science, 2020(12): 94-103.
马秀莲. 保障性租赁住房：一个中间租赁的国际比较视角[J]. 行政管理改革，2022（7）：35-44.
MA Xiulian. Affordable rental housing as inter-mediate renting: an international comparative perspective[J]. Administration Reform, 2022(7): 35-44.
陈杰，陈敬安. 保障性租赁住房的价值意义与发展难题破解[C]//规范发展与最佳实践——中国住房租赁发展论坛论文集. 北京：中国城市出版社，2023：8.
CHEN Jie, CHEN Jing'an. The value significance and development of affordable rental housing [C]//Standard development and best practice: proceedings of China Housing Rental Development Forum. Beijing: China City Press, 2023: 8.
陈杰. 保障性租赁住房发展的战略与策略[C]//规范发展与最佳实践——中国住房租赁发展论坛论文集. 北京：中国城市出版社，2023：4.
CHEN Jie. The strategy and tactics of the develop-ment of affordable rental housing[C]//Standard development and best practice: proceedings of China Housing Rental Development Forum. Beijing: China City Press, 2023: 4.
吕萍，邱骏. 创新供地方式适应大城市保障性租赁住房建设[J]. 中国房地产，2021（33）：8-12.
LYU Ping, QIU Jun. Innovative land supply methods to adapt to the construction of government-subsidized rental housing in big cities[J]. China Real Estate, 2021(33): 8-12.
王靖，程思炜，陈博. 再启房地产[EB/OL].（ 2024-05-13）[2024-07-09]. https://weekly.caixin.com/2024-05-10/102194827.html.
WANG Jing, CHEN Siwei, CHEN Bo. Relaunch real estate[EB/OL]. (2024-05-13) [2024-07-09]. https://weekly.caixin.com/2024-05-10/102194827.html.
逄瑞. 国有建设用地建设保障性租赁住房的现状、难点与建议[J]. 上海房地，2022（11）：6-8.
PANG Rui. Current situation, difficulties and suggestions of building affordable rental housing on state-owned construction land[J]. Shanghai Real Estate, 2022(11): 6-8.
YAN J, HAFFNER M, ELSINGA M. Embracing market and civic actor participation in public rental housing governance: new insights about power distribution[J]. Housing Studies, 2022, 37(3): 435-458.
严娟，李嘉，贾鼎. 市场与社会协作：英国、荷兰租赁住房发展比较[J]. 宏观经济管理，2024（2）：83-92.
YAN Juan, LI Jia, JIA Ding. Market and social collaboration: a comparison of rental housing development in the United Kingdom and the Netherlands[J]. Macroeconomic Management, 2024(2): 83-92.
周雪光. 中国国家治理的制度逻辑[M]. 北京：生活•读书•新知三联书店，2017.
ZHOU Xueguang. The institutional logic of governance in China[M]. Beijing: SDX Joint Publishing Company, 2017.
黄宗智. 实践社会科学的方法、理论与前瞻[M].桂林：广西师范大学出版社，2023.
HUANG Zongzhi. The social science of practice: method, theory and prospective vision[M]. Guilin:Guangxi Normal University Press, 2023.
黄奇帆. 政府如何平衡公租房的建设资金[J]. 求是，2011（24）：35-36.
HUANG Qifan. How does the government balance
the construction funds of public housing[J]. Qiushi, 2011(24): 35-36.
王逸邈，张黎莉. 上海利用集体经营性建设用地建设保障性租赁住房实践情况分析[J]. 上海房地，2023（1）：11-15.
WANG Yimiao, ZHANG Lili. An analysis of the practice of using collective commercial construction land to build affordable rental housing in Shanghai[J]. Shanghai Real Estate, 2023(1): 11-15.
马秀莲，张黎阳. 准市场还是准科层?——基于上海、北京的中国公租房提供模式研究[J]. 广东社会科学，2019（1）：185-195.
MA Xiulian, ZHANG Liyang. Quasi-market or quasi-hierarchy: public housing provision in China based on Beijing and Shanghai[J]. Social Sciences in Guangdong, 2019(1): 185-195.
田莉，夏菁. 国际大都市租赁住房发展的模式与启示——基于15个国际大都市的分析[J]. 国际城市规划，2020，35（6）：1-7.
TIAN Li, XIA Jing. Models and policies of rental housing development in 15 international metropolises[J]. Urban Planning International, 2020, 35(6): 1-7.
田莉，夏菁. 租赁住房供应与发展的国际模式比较及对我国的启示[J]. 建筑学报，2022（6）：11-17.
TIAN Li, XIA Jing. Comparison of international rental housing provision and development models and policy implications for China[J]. Architectural Journal, 2022(6): 11-17.
周琳，王诤诤. 保障性租赁住房职住平衡发展模式研究——以宝山区为例[J]. 上海房地，2024（8）：30-33.
ZHOU Lin, WANG Zhengzheng. Research on the balanced development model of low-income rental housing—taking Baoshan District as an example[J]. Shanghai Real Estate, 2024(8): 30-33.
张京祥，胡毅，赵晨. 住房制度变迁驱动下的中国城市住区空间演化[J]. 上海城市规划，2013（5）：69-75.
ZHANG Jingxiang, HU Yi, ZHAO Chen. Evolution of Chinese urban residential district under the changing housing system[J]. Shanghai Urban Planning Review, 2013(5): 69-75.
严雅琦，黄子愚，田莉. 基于租客视角的租赁住房规划设计和建设配套标准研究[J]. 当代建筑，2021（2）：48-50.
YAN Yaqi, HUANG Ziyu, TIAN Li. Research on rental housing's design code and supporting standard based on tenants' perspective[J]. Contemporary Architecture, 2021(2): 48-50.
严雅琦，田莉，王崇烈. 利用集体土地建设租赁住房的实践与挑战——以北京为例[J]. 北京规划建设，2020（1）：95-99.
YAN Yaqi, TIAN Li, WANG Chonglie. Practice and challenge of using collective land to build rental housing—taking Beijing as an example[J]. Beijing Planning and Construction, 2020(1): 95-99.
卢汉龙. 对社会机制引入上海社会住房保障体系一体化的思考[J]. 上海城市规划，2011（3）：7-9.
LU Hanlong. Thinking on putting social mechanism into Shanghai social affordable housing system[J]. Shanghai Urban Planning Review, 2011(3): 7-9.
李泽旭，王倩，李冲贤. 中国第一家住宅合作社正式诞生于上海[EB/OL].（ 2004-12-27）[2024-07-09]. https://news.sina.com.cn/c/2004-12-Group[J]. Beijing Planning and Construction, 2021(3): 39-43.
姚之浩，田莉，范晨璟，等. 基于公租房供应视角的存量空间更新模式研究——厦门城中村改造的规划思考[J]. 城市规划学刊，2018（4）：88-95.
YAO Zhihao, TIAN Li, FAN Chenjing, et al. Research on urban renewal targeting the supply of public rental housing: a case study of Xiamen chengzhongcun regeneration[J]. Urban Planning Forum, 2018(4): 88-95.
田莉. 从城市更新到城市复兴：外来人口居住权益视角下的城市转型发展[J]. 城市规划学刊，2019（4）：56-62.
TIAN Li. Transition from urban renewal to urban regeneration: a perspective of migrants' rights to housing[J]. Urban Planning Forum, 2019(4): 56-62.
寸兴然，夏菁，周静敏. 市场主导的东京均衡化租赁住房发展模式研究[J]. 住区，2021（6）：28-34.
CUN Xingran, XIA Jing, ZHOU Jingmin. Market-oriented rental housing balance model between supply and demand in Tokyo, Japan[J]. Design Community, 2021(6): 28-34.
田莉，陶然. 土地改革、住房保障与城乡转型发展——集体土地建设租赁住房改革的机遇与挑战[J]. 城市规划，2019，43（9）：53-60.
TIAN Li, TAO Ran. Land reform, housing guarantee, and transition of urban-rural development: opportunities and challenges for developing rental housing in collective land[J]. City Planning Review, 2019, 43(9): 53-60.
谭荣. 为保障性租赁住房做好土地政策支撑[J].中国土地，2021（9）：8-10.
TAN Rong. Providing land policy support for affordable rental housing[J]. China Land, 2021(9):8-10.
