直管公房经营管理研究及其信息系统实现
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摘要
直管公房是指政府公房管理部门所有的公有房地产和管理的托管、代管房地产。一直以来，直管公房的经营管理是由各级人民政府指定房地产行政主管部门作为所有人代表，依法行使占用、使用、收益和处分的权利。长期处于计划经济管理模式下形成的管理模式和组织结构，工作效率低下，管理成本居高不下。随着市场经济的发展，房管部门一方面承担着计划经济遗留下来的各种历史包袱，一方面又不得不努力实现国有资产保值增值的使命，同时，由于社会发展的需要，直管公房的职能越来越带有社会保障的色彩。因此，继续沿袭原有的经营管理模式已无法满足新形势下的需要，直管公房经营管理急待改革，而作为经营性国有资产的直管公房运作由于资产的特殊性和经营管理的复杂性，国内一直缺乏针对性的专业研究。
纵观国际上的公房经营管理，对公房的定义如下：指市政当局和公共团体为低收入家庭建设的住房，主要是指为“穷人”和“低收入家庭”建造的公共住房。这与我国的“公房”GOVERNMET HOUSING概念有一定的差异。即，国际上的公房概念实际上只实现了我国直管公房的住房保障职能。直管公房长期以来肩负着“福利分房”和“社会保障”的社会职能，随着市场经济的发展，“福利分房”已随着住房分配货币化和住宅商品化的推行已被取消。那么，“社会保障”功能将是今后直管公房管理的主要目的。因此，本文的第二章通过对香港、日本、美国等三个国家的公房管理制度和先进经验的深入分析，对直管公房社会职能的发展必将向社会保障作出预测，并对如何结合我国的实际情况，建立符合我国特色的住房保障制度提出了自己的见解和建议。
随着经济和体制改革的纵深发展，直管公房资产的所有权和经营权分离已成为可能，这就给直管公房经营管理改革带来了新的契机。依据国有资产出资人理论，本文认为，通过授权经营手段，将直管公房的管理职能和经营职能的分离，解决长期以来的行政手段和市场运作的根本矛盾，同时运用先进的管理理念和技术手段，全面革新管理经营模式，是直管公房改革的唯一出路。
第三章通过建立长沙市商业租赁用房价格模型，确定直管公房非住宅类的租
直管公房经营管理研究及其信息系统实现
赁价格。从理论上解决了以前政策定价的落后局面，促使直管公房经营职能全面
走向市场经济化。
第四章深入地分析了直管公房信息系统实现的理论探讨和方案的具体实现。‘
第五章作为实证分析，通过对长沙市直管公房的发展和现状的具体分析，尤其
是对一直以来沿袭的政府管理模式的分析，提出直管公房的经营管理己经到了不
创新改革就会陷入无以为继的困境。然后，根据对国家政策的分析和直管公房资
产的实际情况，大胆提出直管公房的管理和经营职能分离这一解决方案。具体操
作步骤为，通过“授权经营”的方式，将直管公房资产的所有权和经营权分离，
一方面管理职能向制定政策、监督实行、住房保障转变，一方面建立相对独立的
现代企业化的直管公房经营集团公司。从而根本上解决直管公房营利性目标与非
营利性目标的矛盾。
Government housing includes the real estate owned by the governmental housing management departments and the real estate managed in trust by them. The real estate administrative departments at various governmental levels has long been designated as the representatives of the proprietors to carry out the operation and management of government housing, enjoying the right to the use of and profits from the government housing and of disposition of the profits arising from the housing properties under their management. Their operation and management have ever since been organized in the planned economy mode and organization structure, with low efficiency and persistently high management cost. With the development of market economy in China, the government housing management departments, on the one hand, shoulder the economic burden arising from the planned economy; on the other hand, endeavor to realize the value reserve and appreciation of the state assets. In the meantime, government housing is increasingly tak
ing on a role of social security. Therefore, the present operation and management mode of the government housing can't meet the requirements of the new situation, and calls for reform. But on account of the particularities of the government housing as operational state capital and the complexities of the management mode, few relevant researches have been conducted in this area.
According to the international management world Of public housing, public housing is defined as publicly owned housing constructed by the city authorities or public organizations for families with low income, particularly poor people and people with inadequately low income. The definition has considerable shades of differences from the government housing in China, that is, public housing in other parts of the world only serve the purpose of housing guarantee, which China's government has. But government housing has long served the dual purposes of "housing welfare" and "social security". In view of the common practice of the international society, social security will become the primary purpose of government housing, and the housing welfare purpose will be nullified in the process of enforcing monetary compensation for housing and housing commercialization. In chapter 2 of this paper, a thorough analysis is conducted of the system and good experiences of the public housing management in Hong Kong, Japan and
the United States, and the transition of the social function of government housing in china is predicted, and proposals and advices are offered of establishment of housing security system with Chinese characteristics on the basis of the analysis of the practices of the international world and the real situation of China. With the development and reform of economy and political system, the separation
of the ownership and operation of government housing has been made possible, thus bring forth new opportunities for the management and operation of government housing. In accordance with the theory of state capital investor, the author proposes separation of the operation and ownership of government housing through operation authorization so as to resolve the long existing conflicts between administrative means and market operation. Meanwhile, advanced management ideas and technologies must be adopted to update the management mode of government housing. This is the only hope of the reform of government housing.
Chapter 3 establishes the pricing model of rent for business and office room leasing, determining the rents of the non-residential building. In theory, this changes the situation where administrative pricing lags behind the social condition, and put the operation of government housing onto the track of market economy.
Chapter 4 conducts a thorough analysis of the theory of the information system of government housing and the realization plans.
Chapter 5 discusses the development and its current situation of government housing in Changsha City as a case study. Based on the analysis of the administrative management mode in use
纵观国际上的公房经营管理，对公房的定义如下：指市政当局和公共团体为低收入家庭建设的住房，主要是指为“穷人”和“低收入家庭”建造的公共住房。这与我国的“公房”GOVERNMET HOUSING概念有一定的差异。即，国际上的公房概念实际上只实现了我国直管公房的住房保障职能。直管公房长期以来肩负着“福利分房”和“社会保障”的社会职能，随着市场经济的发展，“福利分房”已随着住房分配货币化和住宅商品化的推行已被取消。那么，“社会保障”功能将是今后直管公房管理的主要目的。因此，本文的第二章通过对香港、日本、美国等三个国家的公房管理制度和先进经验的深入分析，对直管公房社会职能的发展必将向社会保障作出预测，并对如何结合我国的实际情况，建立符合我国特色的住房保障制度提出了自己的见解和建议。
随着经济和体制改革的纵深发展，直管公房资产的所有权和经营权分离已成为可能，这就给直管公房经营管理改革带来了新的契机。依据国有资产出资人理论，本文认为，通过授权经营手段，将直管公房的管理职能和经营职能的分离，解决长期以来的行政手段和市场运作的根本矛盾，同时运用先进的管理理念和技术手段，全面革新管理经营模式，是直管公房改革的唯一出路。
第三章通过建立长沙市商业租赁用房价格模型，确定直管公房非住宅类的租
直管公房经营管理研究及其信息系统实现
赁价格。从理论上解决了以前政策定价的落后局面，促使直管公房经营职能全面
走向市场经济化。
第四章深入地分析了直管公房信息系统实现的理论探讨和方案的具体实现。‘
第五章作为实证分析，通过对长沙市直管公房的发展和现状的具体分析，尤其
是对一直以来沿袭的政府管理模式的分析，提出直管公房的经营管理己经到了不
创新改革就会陷入无以为继的困境。然后，根据对国家政策的分析和直管公房资
产的实际情况，大胆提出直管公房的管理和经营职能分离这一解决方案。具体操
作步骤为，通过“授权经营”的方式，将直管公房资产的所有权和经营权分离，
一方面管理职能向制定政策、监督实行、住房保障转变，一方面建立相对独立的
现代企业化的直管公房经营集团公司。从而根本上解决直管公房营利性目标与非
营利性目标的矛盾。
Government housing includes the real estate owned by the governmental housing management departments and the real estate managed in trust by them. The real estate administrative departments at various governmental levels has long been designated as the representatives of the proprietors to carry out the operation and management of government housing, enjoying the right to the use of and profits from the government housing and of disposition of the profits arising from the housing properties under their management. Their operation and management have ever since been organized in the planned economy mode and organization structure, with low efficiency and persistently high management cost. With the development of market economy in China, the government housing management departments, on the one hand, shoulder the economic burden arising from the planned economy; on the other hand, endeavor to realize the value reserve and appreciation of the state assets. In the meantime, government housing is increasingly tak
ing on a role of social security. Therefore, the present operation and management mode of the government housing can't meet the requirements of the new situation, and calls for reform. But on account of the particularities of the government housing as operational state capital and the complexities of the management mode, few relevant researches have been conducted in this area.
According to the international management world Of public housing, public housing is defined as publicly owned housing constructed by the city authorities or public organizations for families with low income, particularly poor people and people with inadequately low income. The definition has considerable shades of differences from the government housing in China, that is, public housing in other parts of the world only serve the purpose of housing guarantee, which China's government has. But government housing has long served the dual purposes of "housing welfare" and "social security". In view of the common practice of the international society, social security will become the primary purpose of government housing, and the housing welfare purpose will be nullified in the process of enforcing monetary compensation for housing and housing commercialization. In chapter 2 of this paper, a thorough analysis is conducted of the system and good experiences of the public housing management in Hong Kong, Japan and
the United States, and the transition of the social function of government housing in china is predicted, and proposals and advices are offered of establishment of housing security system with Chinese characteristics on the basis of the analysis of the practices of the international world and the real situation of China. With the development and reform of economy and political system, the separation
of the ownership and operation of government housing has been made possible, thus bring forth new opportunities for the management and operation of government housing. In accordance with the theory of state capital investor, the author proposes separation of the operation and ownership of government housing through operation authorization so as to resolve the long existing conflicts between administrative means and market operation. Meanwhile, advanced management ideas and technologies must be adopted to update the management mode of government housing. This is the only hope of the reform of government housing.
Chapter 3 establishes the pricing model of rent for business and office room leasing, determining the rents of the non-residential building. In theory, this changes the situation where administrative pricing lags behind the social condition, and put the operation of government housing onto the track of market economy.
Chapter 4 conducts a thorough analysis of the theory of the information system of government housing and the realization plans.
Chapter 5 discusses the development and its current situation of government housing in Changsha City as a case study. Based on the analysis of the administrative management mode in use
引文
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[2] 哈罗，德孔茨．管理学．经济科学出版社，1996
[3] 李鹏等．一次读完25本管理学经典．吉林人民出版社，2001，23-45
[4] 张国有等．中国企业管理百科全书．企业管理出版社，1990
[5] 褚葆．经济大辞典．上海辞书出版社，1985
[6] 吴柏鸿．公共管理知识手册——MPA全集．企业管理出版社，2001
[7] 熊彼特．经济发展理论．商务印书馆，1990
[8] 秦红．20年中国城市住房消费之变迁1992-2002．城市开发，2003
[9] 胡俊南．城市直管非住宅公房的有关问题探讨．中国房地产，2002，12
[10] 申玲，黄安永．房管转制的物业管理企业的特点及其经营战略．中国房地产，1999，12
[11] 梁鹰，罗伟其．公房出售评估管理信息系统的设计及实现．华南理工大学学报，第26卷
[12] 王鉴文．公房租金的合理定价策略研究．统计与信息论坛，2000，4
[13] 侯诗云，石展鹏．宏楼危“基”——中国房改及住宅建设问题报告．沈阳出版社，1998
[14] 吴守志．公有住房使用权收益价格评估．苏州城建环保学院学报，第11卷
[15] 孙美霞，陈辉，俞乐．加强国家直管公房的经营与改革．中国房地产，1999，12
[16] 周争先．浅谈住房社会化管理．房地产业出版社，2000
[17] 上海市房屋科学研究所．上海市区住房维修管理的问题和对策．住宅科技，1994，4
[18] 王宗君、孙桂斌．试论房管所转制发展的思路．理论月刊，2002，11
[19] 这维贤．温州营业用房租金走向市场．中国房地产，1995，10
[20] 长春市房地产经营总公司．以建立现代企业制度为目标加快事转企目标．中国房地产，1994，12
[21] 武峰．直管公房能否过渡为廉租房．中国房地产，2002，7
[22] LIU Sheng-huan．The theoretical model of housing subsidies and its interpretation．华中师范大学学报，第36卷
[23] 苏怡．住房补贴效率的经济学分析．香港理工大学学报，2000，5
[24] 齐中成．转换企业经营机制—加强房地产经营管理．中国房地产，1995，1
[25] 北京市国土资源和房屋管理局主编．北京国土资源局和房屋管理局法律法规汇编．煤炭工业出版社，2002
[26] 建设部主编．建设部2002年住宅房地产论文集．2002
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