国务院政策例行吹风会材料

进一步做好城镇棚户区和城乡危房改造

及配套基础设施建设

（2015年6月19日）

住房城乡建设部

党中央、国务院高度重视城镇棚户区和城乡危房改造工作。2013年、2014年国务院连续印发专门文件，部署各地更大规模推进棚改，完善政策，明确责任，造福群众，助力发展。国务院领导同志多次作出批示、指示，并召开会议专题研究有关工作。6月17日，李克强总理主持召开的国务院第95次常务会议上，决定进一步强化城镇棚户区和城乡危房改造及配套基础设施建设。近期，国务院还将印发专门文件，明确政策措施，提出工作举措，进行具体部署。

一、主要工作进展

近年来，各地区、各有关部门认真贯彻落实党中央、国务院决策部署，持续加大城镇棚户区和城乡危房改造力度，有关工作取得了显著进展。2008年至2014年，全国共改造各类棚户区2080万套、农村危房1565万户，其中2013至2014年改造各类棚户区820万套、农村危房532万户，通过改造，几千万群众得到了实惠，房子新了大了，居住环境改善了，生活质量提高了。实践证明，推进城镇棚户区和城乡危房改造，不仅使困难群众改善了住房条件、增添了生活和奋斗的信心，而且对促进经济社会发展起到了重要作用。

这几年，城镇棚户区和城乡危房改造在探索中前行，已经趟出了一条可行的路子，对进一步做好城镇棚户区和城乡危房改造及配套基础设施建设工作具有借鉴价值。

一是统一编制规划，分步组织实施。各地推进棚改坚持量力而行、尽力而为、逐步推进的原则。中央制订专门政策、明确改造目标，地方编制改造规划，区分轻重缓急，明确年度任务，分步组织实施。具体实施中，强调优先改造集中连片规模较大、安全隐患严重、群众改造要求迫切的项目。这次国务院常务会已明确2015-2017年改造各类棚户区1800万套、农村危房1060万户的目标。接下来，各地区将依据这个目标任务，组织编制本地区三年计划，合理确定本地区2015-2017年城镇棚户区及城乡危房改造的目标任务。

二是各部门履职尽责，切实加大政策支持力度。发展改革委、财政部等部门加大中央预算内投资和中央财政支持力度。2008—2014年，累计安排棚改及配套基础设施建设补助3000多亿元、安排农村危房改造补助资金1506亿元。2015年，已安排棚改及配套基础设施建设补助1494亿元、农村危房改造补助365亿元。国土资源部单列用地计划、按需落实用地，发展改革委加大企业债券支持力度，财政部、税务总局完善税收优惠政策，人民银行、银监会加大信贷支持力度，国开行增加棚改贷款规模，都做了大量卓有成效的工作。

三是全程公开透明操作，确保居民住房条件得到改善。在棚改中，推行了全过程的信息公开，棚改政策、安置补偿方案、安置房源信息、安置住房区位及工程进度等全部向社会公开，维护群众的知情权和参与权，确保安置住房分配公平、公正。在安置住房建设中，同步配套建设基础设施和公共服务设施，使居民的生产、生活、就医、就学等条件能够同步改善。

四是完善安置补偿方式，提高改造工作效率。各地在棚改中实行实物安置与货币化安置相结合。前几年，市场上存量房源少，棚改安置住房以新建为主。去年以来，尊重棚户区居民意愿，不少地方把存量住房转化为安置房房源，积极推行货币化安置。从这些地区的实践看，棚改货币化安置能起到“一石多鸟”的作用，受到了棚户区居民及各方面的欢迎：缩短安置周期，节省过渡费用；群众享有了更好的住房质量、居住环境、物业服务；满足了群众多样化居住需求，促进了安置工作的公平有效，维护了社会和谐；也为房地产市场健康发展做出了贡献。

五是注重发挥市场的作用，吸引社会力量参与。坚持政府主导、市场运作的原则，在发挥政府的组织引导作用的同时，注重发挥市场机制的作用，动员社会力量广泛参与。在改造中，不少地方通过配套建设一定比例商业服务设施和商品住房，采取“肥瘦搭配”、区域平衡的项目打捆做法，促进资金平衡，吸引开发企业参与，提高了改造效率。

尽管取得了显著成绩，但总体来看，这项工作还处在爬坡攻坚阶段，与党中央、国务院确定的改造约1亿人居住的城镇棚户区和城中村的目标相比，任务仍然十分艰巨。特别是待改造的棚户区多为基础差、改造难度大的“硬骨头”，在完善配套基础设施、创新融资机制等方面还存在不少困难和问题；同时，农村困难群众对改善居住条件、住上安全住房的诉求比较强烈，加快农村危房改造的要求十分迫切。虽然难度很大，但党中央、国务院下决心进一步做好城镇棚户区和城乡危房改造及配套基础设施建设工作，因为这是群众的热切期盼，能有效促进经济增长，也有利于提升城乡人居环境、增强城乡发展活力。

二、相关政策措施

6月17日国务院常务会议上，对进一步做好城镇棚户区和城乡危房改造及配套基础设施建设工作，进行了全面部署。会上指出，加快城镇棚户区和城乡危房改造及配套基础设施建设，事关千百万住房困难家庭生活改善，是惠民生、稳增长相互促进的重大举措，必须在已有成效基础上迈出更大步伐。会上决定，按照推进以人为核心的新型城镇化部署，实施三年行动计划，2015-2017年，改造包括城市危房、城中村在内的各类棚户区1800万套，改造农村危房1060万户，加大棚改配套基础设施建设力度，使城市基础设施更加完备，布局合理，运行安全，服务便捷。

就进一步做好城镇棚户区和城乡危房改造及配套基础设施建设工作，将采取四方面工作举措：

第一，加大城镇棚户区改造力度。一是加快棚改项目建设，做好土地征收、安置补偿等前期工作，建立行政审批快速通道，加强工程质量安全监管。二是积极推进棚改货币化安置，缩短安置周期，节省过渡费用，满足群众多样化居住需求。同时，要求各省（区、市）抓紧制定本地区棚改货币化安置目标和工作措施，并督促抓好落实。

第二，完善配套基础设施。一是要尽快编制2015—2017年棚改配套基础设施建设计划，确定棚改配套基础设施项目，对已开工但配套不完备的项目，一并纳入本地区配套基础设施建设计划。二是在城市基础设施建设运营中，积极推广特许经营等政府与社会资本合作（PPP）模式。

第三，加快推进农村危房改造。一是各地要组织编制农村危房改造2015—2017年实施方案，明确目标任务和政策措施，切实落实省级补助资金，保证补助资金由县级财政直接发放到改造农户。二是统筹推进农房抗震改造，加强农房建设质量安全监管，加强农房风貌管理和引导。

第四，创新融资体制机制。一是推动政府购买棚改服务，要求各省（区、市）制定具体管理办法，各地从年初财政预算中统筹安排资金支持政府购买棚改服务，对预算有缺口的市县，可通过省级政府代发地方政府债券予以支持。二是构建多元化棚改实施主体。鼓励多种所有制企业成为棚改实施主体，各地原融资平台也可通过市场化转型改造，作为实施主体继续承接棚改任务。三是发挥开发性金融支持作用。项目实施主体可依据政府购买棚改服务协议、特许经营协议等PPP合同进行市场化融资，开发银行等银行业金融机构据此给予贷款。鼓励农业发展银行在其业务范围内对符合条件的实施主体，加大城中村改造、农村危房改造及配套基础设施建设的贷款支持。

三、下一步工作安排

下一步，按照国务院常务会的决策部署，我们将采取切实举措，认真抓好三年行动计划，进一步做好城镇棚户区和城乡危房改造及配套基础设施建设工作，让住房困难群众尽早搬入新居。

Material No.2 for the Routine Briefing on Government Policies by the State Council

Further Promote the Rebuilding of Urban Shanty Towns and

Dilapidated Urban & Rural Houses and

the Construction of Supporting Infrastructure

19 June 2015

Information Office of the Ministry of Housing and Urban-Rural Development

The Party Central Committee and the State Council pay special attention to the rebuilding of urban shanty towns and dilapidated urban & rural houses. The State Council released special document successively in 2013 and 2014 to deploy local governments to promote shanty towns rebuilding, improve relevant policies and define responsibilities, so as to benefit the people and empower the development. In addition, leaders from the State Council have also given specific instructions and held meetings to study relevant topics for multiple times. On June 17, Premier Li Keqiang chaired the 95^th Executive Meeting of the State Council, deciding to further reinforce the rebuilding of urban shanty towns and dilapidated urban & rural houses and the construction of supporting infrastructure. The State Council will also issue specific document in near term to define the policy measures, put forward initiatives and make specific deployment.

I. Major Progress

In recent years, all regions and relevant government agencies have carefully implemented the decision and deployment of the Party Central Committee and the State Council to continuously reinforce efforts in rebuilding shanty towns in urban areas and dilapidated houses in urban and rural areas, and relevant work has seen significant progress. From 2008 to 2014, totally 20.8 million units of shanty towns and dilapidated rural houses for 15.65 million households have been rebuilt. To be specific, 8.2 million units of shanty towns and dilapidated houses in rural areas for 5.32 million households completed renovation from 2013 to 2014. Millions of people have gained benefits from such renovation projects, through which they have bigger houses and better living environment and quality of life. It is proven in practice that promotion of urban shanty towns and urban & rural dilapidated houses rebuilding can not only improve the housing conditions for people with financial difficulties and give them more confidence in life and work, but also play an important role in facilitating economic and social development.

In the past years, shanty towns and dilapidated houses rebuilding projects have progressed under exploration. However, we have summarized a feasible method that can be referred to in further improving the work related to shanty towns and dilapidated houses rebuilding and supporting infrastructure construction.

Firstly, make centralized planning and organize implementation by steps. In promoting shanty towns rebuilding, local governments shall follow the principles of “act according to one’s ability, do everything in one’s power and move forward step by step”. The central government develops special policy and defines the goal for rebuilding, while local governments develop the rebuilding plan, make prioritization, define annual target and organize implementation by steps. While put into implementation, projects with large size of affected areas, serious safety hazards and urgent needs for rebuilding from the people shall be emphasized and prioritized. At this executive meeting of the State Council, the goal of rebuilding 18 million units of shanty towns and dilapidated rural houses for 10.6 million households has been defined. As the next step, local governments shall formulate their own 3-year plan based on this goal and define their target for 2015-2017 shanty towns and dilapidated houses rebuilding in a reasonable manner.

Secondly, all departments fulfill their duties and vigorously enhance the strength of policy support. Departments including NDRC, Ministry of Finance etc. have strengthened the budgetary investment of central government and support from the central treasury. From 2008 to 2014, they have accumulatively arranged subsidies of more than 300 billion RMB yuan for shanty towns rebuilding & supporting infrastructure construction, and 150.6 billion RMB yuan for dilapidated houses renovation in rural areas. In 2015, 149.4 billion RMB yuan of subsidies have been scheduled for shanty towns rebuilding & supporting infrastructure construction, and 36.5 billion RMB yuan for dilapidated houses renovation in rural areas. Ministry of Land Resources has made separate land use plan to support the land use as required; NDRC has reinforced their support for corporate bonds; Ministry of Finance and State Administration of Taxation have improved tax incentives; People’s Bank of China and China Banking Regulatory Commission have enhanced the efforts in credit support; China Development Bank has increased the loan size for shanty towns rebuilding. All of these departments have made extensive and effective efforts in this regard.

Thirdly, ensure open and transparent operation in the whole process for the improvement of housing conditions of the people. In the process of shanty towns rebuilding, full-process information disclosure has been pursued, with shanty towns rebuilding policy, resettlement compensation scheme, resettlement house listings, location and construction progress all open to the public, so as to uphold the rights to know and public participation and ensure equality and fairness in resettlement housing allocation. During resettlement housing construction, supporting infrastructure and public service facilities have also been built simultaneously, such that production, living, medical and schooling conditions of the residents can be improved in parallel.

Fourthly, improve resettlement compensation methods and increase the efficiency of rebuilding work. All regions apply the method of combining physical resettlement with monetization in shanty towns rebuilding. Initially, there were a few houses in stocks, so in shanty towns rebuilding projects, resettlement with newly built houses was widely seen. Starting from last year, in order to respect the will of residents in shanty towns, many regions have converted houses in stock into the housing resources for resettlement to actively pursue monetized resettlement. Seen from the practice in these regions, monetized resettlement in shanty towns rebuilding can “kill many birds with one stone”, which has been well received by shanty downs residents and other stakeholders concerned: resettlement cycle is reduced and transition costs are saved; the residents enjoy better quality of housing and living and property management service; diversified living requirements of the people can be met, which have facilitated fair and effective resettlement, maintained social harmony and made contribution to the healthy development of the real estate market.

Fifthly, pay attention to bring out the role of the market and attract the participation from the society. Stick to the principle that government takes the leadership combined with market oriented operation. While bringing out the role of the government in organization and guidance, pay attention to bring the market mechanism into function and mobilize the social forces for wider participation. During the rebuilding process, many places have adopted the bundled project approach of “collocation and district balance” by constructing a certain ratio of commercial service facilities and commodity housing to promote balance of funding, attract participation from developers and increase the efficiency of rebuilding.

Though making significant achievements, in general, this program is still in the climbing stage, where critical issues need to be addressed. Compared to the goal set by the Party Central Committee and the State Council to rebuild the shanty towns and urban villages with around 100 million residents, the task is still arduous. In particular, the shanty towns to be rebuilt are mostly “hard bones” with weak foundation and great difficulties in renovation, so there are still a lot of challenges and problems in improving supporting infrastructure and innovating financing mechanism. Meanwhile, rural people with financial difficulties have strong hope for improving housing conditions and living in safe houses, so there is urgent need to accelerate the rebuilding of dilapidated houses there. Although faced with great difficulties, the Party Central Committee and the State Council are determined to further promote the rebuilding of urban shanty towns and urban & rural dilapidated houses and the construction of supporting infrastructure, as it is what the people are keen on, which can also effectively promote the economic growth, be beneficial to improving urban and rural living environment, and enhance urban and rural development vitality. 

II. Relevant Policies and Measures

At the Executive Meeting of the State Council held on June 17, comprehensive deployment has been made to further promote the rebuilding of urban shanty towns and urban & rural dilapidated houses and the construction of supporting infrastructure. It is pointed out in the meeting that acceleration of shanty towns and dilapidated houses rebuilding and supporting infrastructure construction is closely related to the improvement of living conditions for households with housing difficulty and it’s also an important initiative to improve people’s livelihood and stabilize growth, so we must take a big step forward building on existing achievements. It is decided in the meeting to implement a 3-year action plan in accordance with the human-centered new urbanization plan, that is to, in 2015-2017, rebuild 18 million units of shanty towns, including urban dilapidated houses and urban villages, renovate dilapidated rural houses for 10.60 million households, and strengthen the efforts in developing supporting infrastructure to improve urban infrastructure which would be safer, more reasonably distributed and more convenient.

As for further promoting the rebuilding of urban shanty towns and urban & rural dilapidated houses and the construction of supporting infrastructure, we’ll take initiatives from four dimensions:

Firstly, intensify efforts in urban shanty towns rebuilding. On the one hand, accelerate shanty towns rebuilding project, including making good preparation for land acquisition and resettlement compensation, setting up fast track for administrative approval and strengthening monitoring on engineering quality and safety. On the other hand, actively promote monetized resettlement for shanty towns rebuilding, reduce resettlement cycle, save transition costs and meet diversified living requirements of the people. At the same time, all provinces (regions, cities) are required to speed up the development of their own goals and specific measures on monetized resettlement for shanty towns rebuilding and monitor the implementation.

Secondly, promote the construction of supporting infrastructure. On the one hand, formulate 2015-2017 supporting infrastructure construction plan for shanty towns rebuilding as soon as possible, identify supporting infrastructure projects and incorporate those rebuilding projects already starting but with inadequate supporting infrastructure into the plan. On the other hand, actively promote PPP (public-private partnership) model e.g. concession etc. in the construction and operation of urban infrastructure.

Thirdly, accelerate rebuilding of dilapidated houses in rural area. On the one hand, local governments shall organize the development of 2015-2017 implementation plan for the rebuilding of rural dilapidated houses, define targets and policy measures, forcefully put subsidies at province level into place and ensure the subsidies to be extended to rural households participating in the rebuilding projects directly from county finance. On the other hand, facilitate anti-earthquake renovation of rural housing, strengthen quality and safety supervision on rural housing construction and reinforce rural housing style management and guidance.

Fourthly, innovate financing mechanisms and institutions. First, encourage the governments to purchase shanty towns rebuilding service: provinces (regions, cities) are required to develop specific management measures, who shall make overall arrangement of funds to support governments to purchase shanty towns rebuilding service from fiscal budget at the beginning of the year, and for cities or counties with budget deficiency, the provincial government can offer help by issuing local government bonds on their behalf. Second, develop diversified implementing entities for shanty towns rebuilding. Encourage enterprises with diversified ownership to act as implementing entities. The original financing platforms can also go through market-oriented transformation and restructuring in order to continue to undertake shanty towns rebuilding projects as implementing entities. Third, bring out the role of development financing support into play. Project executors can engage in market-based financing according to PPP contract e.g. the government’s agreement on purchasing shanty towns rebuilding service, concession agreement etc., while banking financial institutions e.g. Development Bank shall originate loans accordingly. Agriculture development banks are encouraged to provide loan support for qualified project executors within its scope of business to support urban village rebuilding, rural dilapidated houses renovation and supporting infrastructure construction.

III. Next Steps

As the next step, in accordance with the decision and deployment of the Executive Meeting of the State Council, we’ll take practical measures to implement the 3-year action plan and further promote the rebuilding of urban shanty towns and dilapidated houses in urban and rural areas and the construction of supporting infrastructure to help people with housing difficulties to move into new homes as early as possible.