大城市保障房供应的两种结构——发展阶段转换背景下的广深实践

摘要　从住房供应结构（Structure of Housing Provision）的理论视角出发，基于广深两城实践，着重论述中国大城市保障房供应的 两种结构，即“政府主导”（大规模建设模式）和“政企联合”（配建模式）。不同的供应结构，根植于不同阶段的社会经济及城 市发展背景，其本质为不同行动主体由于资源动员能力的差异而联合起来以实现保障房供应。“政府主导”的大规模建设模式盛行 于“十二五”期间，主要受自上而下的中央政府压力以及城市扩张期郊区建设用地的相对可获得性所驱动。在“后‘十二五’”时期， 一方面大城市发展阶段逐渐由增量扩张转向存量更新，新增建设用地受限，而存量用地更新涉及复杂的利益主体和高昂成本，在此 情景下“企业化”的政府无法“独自”实现保障房供应；与此同时，大城市的保障房需求日益高涨，实现保障房供应的主体多元化（特 别是开发商）是形势所需，“政企联合”的配建模式成为典型。

Two Structures of Affordable Housing Provision in Large Chinese Cities: Practices in Guangzhou and Shenzhen Against the Background of Development Transition

ABSTRACT　Based on Structure of Housing Provision (SHP) theory, this paper explores two structures of affordable housing provision in large cities in China. These two structures are "state-led affordable housing provision" (large-scaled construction mode) and "government-developer alliance" (cooperative construction mode). Different structures are rooted in different social economic and urban development backgrounds. The "state-led affordable housing provision" structure prevailed in Chinese cities during the 12th Five-Year Plan period, and was mainly driven by top-down pressure from the central government and the availability of construction land in suburbs during the period of urban expansion. After the 12th Five-Year Plan period, local entrepreneurial governments could not solely rely on themselves to provide affordable housing to meet the increasing demand due to the limited supply of new construction land and the high cost of urban redevelopment. Thus, it was necessary to diversify affordable housing suppliers. As such, the "government-developer alliance" structure, also known as inclusionary housing approach, became common.