【作者】 万玲妮；

【导师】 李波；

【作者基本信息】 中南财经政法大学 ， 社会保障， 2020， 博士

【摘要】 公共租赁住房(简称“公租房”),是社会保障政策的重要内容。习近平同志指出:“保障性住房建设是一件利国利民的大好事,但要把这件好事办好、真正使需要帮助的住房困难群众受益,就必须加强管理,在准入、使用、退出等方面建立规范机制,实现公共资源公平善用。”中国2012年推行公租房政策,截至2018年底,3700多万困难群众住进公租房,累计2200万困难群众领取公租房租赁补贴。公租房已成为住房保障最有力支柱。然而,作为准公共物品,公租房保障对象的精准甄别存在难度,导致公租房政策运行中的违法、违规、失范等案件层出不穷。例如,2018年,北京市曝出数起公租房违规转租;湖北省曝出公租房申请者伪造证明材料、违规转租公租房、长期拒缴租金等失信行为;湖南省长沙市公租房保障对象将公租房转租经营麻将房;东莞、佛山、深圳等城市出现公租房申请遇冷现象。这些案件和现象极大地影响公租房政策效果和政府形象,其根源均指向公租房保障对象的精准甄别问题。本文,聚力研究公租房保障对象甄别指标,试图回答:公租房保障对象甄别应考量哪些维度?每个维度的度量指标如何确认?甄别指标体系如何构建和赋权,以准确测定公租房申请者的住房困难程度?完善公租房准入政策的路径是什么?本文,采用政策排斥性分析框架和A-F多维贫困识别方法,构建以“住房困难程度和商品房购买力”双导向的多维住房贫困对象甄别指标体系,运用轮候排序综合评价方法,验证分析公租房保障对象甄别的四个维度及其有效性。全文分为五个部分,共8章。第一部分导论,回答为什么研究。讨论现有研究成果及其贡献,概括本文研究内容和创新之处;第二部分包括第一、二章,探讨公租房保障对象甄别指标研究的核心概念和理论依据;设计研究思路,梳理并构建两类研究样本,即公租房研究文献样本(理论)、公租房准入政策样本(实践),基于量化分析,提取公租房保障对象甄别的四个维度:住房困难程度、商品房购买力、申享家庭住房需求的急迫程度和在地社会贡献,依次构成第三部分,即第三、四、五、六章。第四部分包含第七章,构建“住房困难程度和商品房购买力”双导向的多维住房贫困对象甄别指标体系,运用问卷调查数据,检测指标体系的有效性。第五部分即第八章,归纳和讨论研究结论,提出对策建议。主要研究发现如下:1.公租房保障对象甄别包含四个维度(即住房困难程度、商品房购买力、住房需求急迫程度、在地社会贡献),缺一不可。全国各地公租房政策条文显示,四个维度均有相关指标涉及。若从单一维度测量,会放大保障对象的甄别范围,不能达到精准甄别的目的。若不以H1和A1为核心导向维度,会因此产生“虚假住房贫困”现象。因此,构建以“住房困难程度和商品房购买力”双导的向多维住房贫困对象甄别指标体系,势在必行。2.公租房保障对象甄别指标,需要分类、分期、分层使用。公租房保障对象甄别指标有三类:一票否决性排斥指标、一票准入性吸纳指标和排序性指标。一票否决性排斥指标,如,是否有自有产权住房、是否享受政策性优惠住房、是否具有奢侈性消费行为等。该类指标起门槛拦截作用,在公租房保障对象甄别初期使用,排斥有自有房产的申请对象和高收入群体,缩小住房困难群体甄别的范围。一票准入性吸纳指标,如,住房质量指标的临界值“危险房”,在公租房保障对象甄别初期使用,若申享家庭达到其临界点,则直接被纳入公租房保障范围。“排序性”指标,如,家庭人口规模、家庭照护负担、就业稳定程度和申享地居住年限等,需要在公租房供给量的约束下,综合评价公租房申享家庭(如,住房需求急迫程度、在地社会贡献大小等),排队轮候,逐次纳入(或退出)公租房保障范围。一票否决性排斥指标和一票准入性吸纳指标使用的先后顺序,即:是先吸纳再排斥还是先排斥再吸纳,对保障对象范围的检验没有影响;但,若两个指标同时并列使用,会对保障范围产生显著影响,会扩大保障对象的范围。本文按后者确定保障对象范围,再使用排序性指标加以综合评价。3.家庭规模和家庭照护负担系数对住房需求急迫程度具有正向影响。家庭规模大,家庭照护负担重,家庭承担的社会责任和社会成本越大,对住房需求越急迫。反之,则相反。申享家庭在住房困难程度和商品房购买力双约束下,公租房是其最佳选择。这表明:公租房,作为准公共产品,具有弥补住房困难家庭承担养老抚幼的社会责任及其成本的功效。4.双导向多维与A-F多维住房贫困调查对象综合评价指数排序存在差异。说明公租房配租机构对申享家庭的排序偏好,是由其综合评价指数决定,即:谁的综合评价指数排序得分高,谁就拥有准入资格的优先权。双导向多维综合评价指数排序得分,显示申享家庭对公租房需求的偏好有三种,即:倾向于解决住房条件、在意租金高低、养老抚幼和照顾残疾、病患人口的特殊住房需求。这表明:公租房管理机构可以根据申享家庭不同住房需求,提供差异化的公租房产品,实现家庭住房需求与公租房供给的双边匹配,提高公租房的配租效率。主要创新点:1.将A-F多维贫困测算方法运用到住房贫困对象的识别中,构建以“住房困难程度和商品房购买力”双导向的多维住房贫困对象甄别指标体系。打破“以住房面积和收入”甄别的双线制,从多维角度精准锁定公租房保障对象,杜绝虚假住房贫困,改进A-F多维贫困甄别的不足,为公租房准入政策提供新的研究方法。2.从公租房准入制度顶层设计上,搭建户籍与公租房福利解绑路径。以四维甄别指标综合评价指数排序测算申享家庭住房需求层次,按不同需求层次将保障对象界定为四种类型,即:生存型、环境改善型、家庭保障型和自由发展型。并对四类对象实行分类管理,按类提供保障方式和差异化公租房产品。3.构建住房恩格尔系数,将家庭住房支付困难程度划分成五个层次:无支付困难、支付困难、中度支付困难,严重支付困难和负担不起。公租房管理机构可以根据住房支付困难程度,科学界定申享家庭收入准入标准,保障不同收入水平家庭享受不同层次的公租房待遇,真正保障住房困难人群的住房福利,不搞“一刀切”,实现因时、因地、因困精准施策。4.将住房面积指标和收入限额指标由临界值变为排序值,解决了公租房准入政策不同地区住房面积限额和收入限额划分标准的差异。通过一票否决性排斥指标和一票准入性吸纳指标的先行使用,替代准入政策中起门槛拦截作用的住房面积和收入的临界值。更多还原

【Abstract】 Public rental housing is an important part of social security policy.Comrade Xi Jinping pointed out: the construction of affordable housing is a great good thing to benefit the country and the people.But to get it well and really help the people with housing difficulties,we must strengthen management,establish a standardized mechanism in terms of access,use and exit,so as to realize the fair and effective use of the resources of the public resource.China implemented the public rental housing policy in 2012.By the end of 2018,more than 37 million people living in public rental housing,and 22 million people in difficulty getting the subsidies.Public rental housing has become the most powerful pillar of housing security.However,as quasi public goods,it is difficult to accurately identify the security objects,which leads to the endless occurrence of illegal and anomie cases in the operation of public rental housing policy.For example,in 2018,there were several illegal subleases of public rental housing in Beijing;There exposed the dishonest behaviors of applicants,such as forgery of certification materials,illegal subletting,and long-term refusal to pay rent,in Hubei;in Changsha,The security object sublets the public rental housing to operate mahjong room;in Dongguan,Foshan,Shenzhen and other cities,there have cold case of application for public rental housing.These cases and phenomena greatly affects the effect of public rental housing policy and the image of the government.This paper studies the target screening index of public rental housing security,try to answer: Which dimensions should be considered in the objects screening? How to confirm the measurement of each dimension? How to build and empower the screening index system,to accurately measure the housing difficulties of applicants? What is the path to improve the public rental housing access policy?This paper adopts the framework of policy exclusion analysis and A-F Multidimensional Poverty identification method,building a multidimensional housing poverty screening index system guided by the degree of housing difficulty and the purchasing power of commercial housing,Using the comprehensive evaluation method of waiting order,Verify and analyze the four dimensions of public rental housing security object screening and its effectiveness.The full text is divided into five parts,a total of 8 chapters.The first part is the introduction,which answers why research.This paper discusses the existing research results and contributions,summarizes the research content and innovation of this paper.The second part includes chapter one and chapter two,discusses the core concepts and theoretical basis of the research on the target screening index of public rental housing security,designs the research ideas,sorts out and constructs two types of research samples,the public rental housing research literature sample(Theory),the public rental housing access policy sample(practice),based on the quantity Four dimensions of public rental housing security object screening are extracted: the degree of housing difficulty,the purchasing power of commercial housing,the urgency of applying for family housing demand and the contribution of local society,which constitute the third part in turn,namely chapter three,chapter four,chapter five and chapter six.The fourth part includes the seventh chapter,constructing a multi-dimensional housing poverty screening index system based on housing difficulty degree and commercial housing purchasing power,and tests the effectiveness of the index system according to the questionnaire survey data.The fifth part contains the eighth chapter,which summarizes and discusses the research conclusions and puts forward countermeasures and suggestions.The main findings are as follows:1.There are four dimensions in the objects screening of public rental housing security(i.e.housing difficulties,purchasing power of commercial housing,urgency of housing demand and contribution to local society),not a single one can be omitted.According to the provisions of public rental housing policies across the country,the four dimensions are related to indicators.If measured from a single dimension,it will enlarge the screening scope of the security objects,can not achieve the purpose of accurate screening.If H1 and A1 are not taken as the core oriented dimensions,the phenomenon of false housing poverty will arise.Therefore,it is imperative to build a housing difficulty and commercial housing purchasing power dual oriented multidimensional housing poverty screening index system.2.Public rental housing security object screening indicators need to be classified,staged and stratified.There are three types of objects screening indicators for public rental housing security,One vote veto exclusion index,One ticket access absorption index,and ranking index.One vote veto exclusion index,for example,whether having the house property,whether accessing the preferential housing policy,whether consuming luxury goods,etc.It serves as a threshold interception,used at the initial stage of application for public rental housing,excluding the applicants who have their own properties and high-income groups,and narrowing the scope of screening groups with housing difficulties.One vote access absorption index,for example,the critical value of housing quality index dangerous room.It is used at the initial stage of application for the objects screening of public rental housing security,and the applicant families will directly included in the scope of public rental housing security when their situation meets the critical point.Ranking index,for example,family size,family care burden,employment stability,and the length of stay in the land,etc.Under the constraints of the supply of public rental housing.Under the constraints of the supply of public rental housing,it is necessary to comprehensively evaluate the applicants of public rental housing(such as the urgency of housing demand,the contribution of local society,etc.),waiting in line,and including(or excluding)from the scope of public rental housing security one by one.The order in which the one vote veto exclusion index and the one vote admission inclusion index are used,that is,whether to absorb first and then reject or reject and then absorb,is no effect on the locking of the scope of the guarantee objects,however,if the two indicators are used in parallel,It will have a significant impact on the coverage expand the scope of the object of protection.In this paper,the scope of the guarantee object is determined by the latter,then,used the ranking index is to evaluate comprehensively.3.Family size and family care burden coefficient have a positive impact on the urgency of housing demand.The larger the family size,the heavier the burden of family care,the greater the social responsibility and social cost the family bears,the greater the demand for housing,otherwise the opposite.Under the constraints of housing difficulties and purchasing power of commercial housing,public rental housing is the best choice.This shows that the public rental housing,as a public product,has the effect of making up for the poor families to bear the social responsibility and cost of providing for the aged and caring for the young.4.There are differences in the ranking of comprehensive evaluation index between the two-dimensional and A-F multidimensional housing poverty survey objects.The results show that the ranking preference of public rental housing allocation institutions to applicants is determined by their comprehensive evaluation index,that is: the one of whose ranking comprehensive evaluation index scores higher will have the priority of access qualification.The ranking scores of the two-way multidimensional comprehensive evaluation index show that there are three kinds of preference for the demand of public rental housing,that is tending to solve the housing conditions,paying attention to the rent level,providing for the aged and care for the disabled and the sick.According to the different needs of the applicant families,this shows that the public rental housing management agencies can provide differentiated public rental housing products,realize the bilateral matching between family housing demand and public rental housing supply,and improve the efficiency of public rental housing allocation.Main innovation points:1.Applying the A-F multidimensional poverty measurement method to the identification of housing poverty objects,this paper constructs a multidimensional housing poverty screening index system with housing difficulty degree and commercial housing purchasing power dual guidance.Breaking the double line system of screening by housing area and income,and from a multidimensional perspective,it accurately targets public rental housing security objects,puts an end to false housing poverty,improves the deficiency of A-F Multidimensional Poverty screening,and provides a new research method for public rental housing access policy.2.From the top-level design of public rental housing access system,the paper builds the path of disassociation between household registration and public rental housing welfare.Using ranking evaluation index of the four-dimensional screening index to calculate the housing demand level of the applicants,according to different demand levels,the security objects are divided into four types,survival type,environment improvement type,family security type and free development type.And four types of objects are classified management,according to the type to provide security and differentiated public rental housing products.3.Constructing the housing Engel coefficient and dividing the family of payment difficulty for housing into five levels: no payment difficulties,payment difficulties,moderate payment difficulties,serious payment difficulties and affordability.According to the degree of difficulty in housing payment,the public rental housing management institutions scientifically define the income access standards for the families applying for the application,ensure that families with different income levels can enjoy different levels of public rental housing security policies,truly guarantee the housing welfare of people with housing difficulties,do not implement a one size fits all approach,and implement precise policies according to the time,place and difficulty.4.Changing the housing area index and income quota index from the critical value to the ranking value,which solves the difference of the housing area quota and income quota division standard in different regions of the public rental housing access policy.Through the early adopting of one vote veto exclusion index and one vote admittance absorption index,it replaces the critical value of housing area and income which play the role of threshold interception in the access policy.更多还原