新加坡中央公积金制度何以成功——兼论中国住房公积金制度的困境

Why Does Singapore’s Affordable Housing Program Work So Well--and Its Implications for China

作为我国住房公积金制度的参照物,新加坡中央公积金制度在住房保障方面的成功依赖于与之相关的一系列配套制度和环境。首先,在一系列配套制度中组屋制度是成功的前提,新加坡政府通过建屋发展局控制了约80%的住宅市场份额,但政府并没因市场势力获取垄断利润,而是通过补贴大幅提升居民住房的可负担水平。其次,新加坡政府实现补贴的关键手段是土地的低价获取和低价提供,政府还通过组屋的有限流转实现市场的半开放结构,从而保证政府主导的市场不被炒作。最后,新加坡政府类似计划经济的精细管理模式有效提升了组屋物业的价值,从而避免了住宅市场的棘轮效应。中国公积金制度未能有效发挥住房保障作用的原因在于缺乏相应的制度环境:第一,经济适用房制度并未建立起来;第二,土地制度并没有像新加坡模式为住房建设提供低价土地,反而形成了土地财政依赖;第三,保障房配套设施及物业管理方面,中国不能像新加坡一样实行类似计划经济的精细化管理模式。针对中国公积金制度运行的诸多困境,本文提出了相关政策建议。

The success of Singapore central provident fund system in housing security doesn’t lie in the provident fund system itself,but in a series of supporting systems and environment associated with it.The provident fund system only plays a role in financing.First of all,the HDB flat system is a premise for housing security.The government controls about 80%share of the housing market through the Housing and Development Board(HDB).But instead of making monopoly profits with market power,the government has made housing more affordable by subsidies.Secondly,the key way for subsidies is to acquire and provide land at low prices.The government also achieves a semi-open structure of the market through limited transfer of HDB flats,so as to ensure that the government-guided market is not speculated.Finally,the government’s fine management pattern that is similar to planned economy has effectively raised the value of HDB flat properties,thus avoiding the ratcheting effect of the housing market.The reason of Chinese housing provident fund system’s failing in housing security is the lack of corresponding institutional environment.Firstly,the affordable housing system failed to establish.Secondly,the land system does not provide cheap land for housing construction as the Singapore model,but forming a financial dependence on land.Thirdly,in terms of supporting facilities and property management of affordable housing,it is impossible for China to implement the fine management pattern as Singapore does.Although there are many difficulties in the operation of Chinese housing provident fund system,it should not be abolished in a radical way.We propose three principles for its reform.