Publication: La política de la vivienda en España: una aproximación histórica
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2017-01-10
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Universidad Complutense de Madrid
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Abstract
Esta tesis es un estudio, desde una aproximación histórica, de la política de la vivienda en España. Nuestro país presenta rasgos diferenciales en su mercado de la vivienda, con una escasa presencia del alquiler frente a la propiedad y una débil cultura de la rehabilitación, en comparación con la media europea. A su vez, durante décadas se ha desarrollado un original modelo de política de vivienda: la vivienda de protección oficial. En contraste con la política social de vivienda europea (social housing) que favorece el acceso a viviendas públicas en régimen de alquiler, el modelo español favorece el acceso a vivienda privada en a través de la propiedad. Tras una centuria de política de vivienda con un denominador común, el fomento de la producción de un volumen creciente de viviendas y, sobre todo, de la propiedad como fórmula de acceso a la vivienda, España avanza hacia un cambio de modelo, que apuesta por el alquiler y la rehabilitación. El año 2013 marca un punto de inflexión, al producirse, simultáneamente, tres hechos relevantes: la puesta en marcha del Plan Estatal 2013-2016, que supone un giro en la política de ayudas públicas a la vivienda, al destinarlas al fomento del alquiler y la rehabilitación, en lugar de a financiar la construcción de viviendas y el acceso en propiedad como era tradicional en los planes anteriores; la aprobación de una nueva regulación del mercado del alquiler (Ley 4/2013), que rompe con décadas de intervencionismo (control de rentas y prórrogas forzosas) apostando por una mayor libertad en la contratación; y la supresión de los beneficios fiscales a la compra de viviendas, que se había mantenido en el IRPF desde su puesta en marcha en 1978, lográndose la neutralidad en la tributación de la vivienda. La tesis aborda el estudio de las distintas medidas de política de la vivienda desde sus orígenes en 1911 con la Ley de Casas Baratas hasta nuestros días, especialmente a través del análisis de los planes estatales de vivienda, instrumento canalizador de las ayudas directas en esta materia. A través de los 11 planes de vivienda que se han sucedido desde el Primer Plan Nacional de la Vivienda 1956- 1960, es posible identificar las líneas maestras de la política de vivienda que se han mantenido hasta el actual cambio de modelo. La política de Viviendas de Protección Oficial, creada en 1939, ha permitido generar una clase media de propietarios y contribuir al crecimiento y creación de empleo. Entre 1940 y 2011, la mitad de las familias españolas accedieron a su primera vivienda a través de viviendas protegidas. Del análisis de la evolución de la política de la vivienda en España se llega a la conclusión de que las actuales características del mercado de la vivienda (preferencia de la propiedad y escasa cultura de la rehabilitación) tienen su origen en las políticas de vivienda implementadas hace décadas, que permiten explicar nuestras diferencias con los países de nuestro entorno.
The present thesis is a study of the housing policy in Spain, from a historical approach. The Spanish housing market shows some distinctive features, with a limited development of the rental market as compared to home-ownership and a weak renovation culture, as compared to the European Unión. At the same time, in the last decades, Spain has developed an original model of housing policy: “official protected housing”. In contrast with European social housing policies, where social public owned housing is provided for rent, Spanish model provides social housing as lowcost private housing for sale, with public aid. After a century of housing policy focused towards the construction of new dwellings and the promotion of home-ownership, Spain is changing its housing policy towards rental tenure and renovation. The year 2013 is a turning point, because of three relevant facts: first, the launching of State Housing Plan 2013-2016, with a new housing policy (public aids) focused on rentals and renovation, instead of financing construction and home-ownership as in previous plans. Second, a new regulation of the rental market has been passed (Ley 4/2013) that, after decades of interventionism (rent control and compulsory extension of contracts) allows for more freedom in residential rental agreements. Finally, the elimination of home investment fiscal benefits which had been in force since 1978, achieving housing tax neutrality. The thesis studies the different housing policies from the first actions in 1911 (“Cheap housing act”), mainly through the analysis of state housing plans which are the means to direct housing public aids. The study of the 11 housing plans that have been implemented since the First Nacional Housing Plan 1956-1960, enables to identify the common trends of housing policy in Spain and the underlying factor under the current change of model. “Protected” housing policy, which started in 1939, has allowed to create a vast homeowner middle class and has contributed significantly to growth and employment. Between 1940 and 2011 half of Spanish families where able to gain access to their first home through “protected” housing. From the analysis of the evolution of housing policy in Spain we arrive at the conclusion that the current and distinctive features of Spanish housing market (in respect to tenure and lack of interest in restoration) can be explained by the policies implemented decades ago, that allow to understand the differences with other European countries
The present thesis is a study of the housing policy in Spain, from a historical approach. The Spanish housing market shows some distinctive features, with a limited development of the rental market as compared to home-ownership and a weak renovation culture, as compared to the European Unión. At the same time, in the last decades, Spain has developed an original model of housing policy: “official protected housing”. In contrast with European social housing policies, where social public owned housing is provided for rent, Spanish model provides social housing as lowcost private housing for sale, with public aid. After a century of housing policy focused towards the construction of new dwellings and the promotion of home-ownership, Spain is changing its housing policy towards rental tenure and renovation. The year 2013 is a turning point, because of three relevant facts: first, the launching of State Housing Plan 2013-2016, with a new housing policy (public aids) focused on rentals and renovation, instead of financing construction and home-ownership as in previous plans. Second, a new regulation of the rental market has been passed (Ley 4/2013) that, after decades of interventionism (rent control and compulsory extension of contracts) allows for more freedom in residential rental agreements. Finally, the elimination of home investment fiscal benefits which had been in force since 1978, achieving housing tax neutrality. The thesis studies the different housing policies from the first actions in 1911 (“Cheap housing act”), mainly through the analysis of state housing plans which are the means to direct housing public aids. The study of the 11 housing plans that have been implemented since the First Nacional Housing Plan 1956-1960, enables to identify the common trends of housing policy in Spain and the underlying factor under the current change of model. “Protected” housing policy, which started in 1939, has allowed to create a vast homeowner middle class and has contributed significantly to growth and employment. Between 1940 and 2011 half of Spanish families where able to gain access to their first home through “protected” housing. From the analysis of the evolution of housing policy in Spain we arrive at the conclusion that the current and distinctive features of Spanish housing market (in respect to tenure and lack of interest in restoration) can be explained by the policies implemented decades ago, that allow to understand the differences with other European countries
Description
Tesis inédita de la Universidad Complutense de Madrid, Facultad de Ciencias Económicas y Empresariales, Departamento de Economía Aplicada III, leída el 28-01-2016