Guiding Opinions of the Ministry of Housing and Urban-Rural Development, the National Development and Reform Commission, the Ministry of Finance, the Ministry of Land and Resources, the People's Bank of China, the State Administration of Taxation, and the China Banking Regulatory Commission on Accelerating the Development of Public Rental Housing

住房和城乡建设部、国家发展和改革委员会、财政部、国土资源部、中国人民银行、国家税务总局、中国银行业监督管理委员会关于加快发展公共租赁住房的指导意见

Promulgating Institution: Ministry of Housing and Urban-Rural Development; National Development and Reform Commission; Ministry of Finance; Ministry of Land and Resources; The People's Bank of China; State Administration of Taxation; China Banking Regulatory Commission

Document Number: Jian Bao [2010] No. 87

Promulgating Date: 06/08/2010

Effective Date: 06/08/2010

颁布机关: 住房和城乡建设部; 国家发展和改革委员会; 财政部; 国土资源部; 中国人民银行; 国家税务总局; 中国银行业监督管理委员会

文      号: 建保[2010]87号

颁布时间: 06/08/2010

实施时间: 06/08/2010

To the people's governments of all provinces, autonomous regions, and municipalities directly under the Central Government and all the relevant departments of the State Council:

According to the guiding principles of the Notice of the State Council on Firmly Curbing the Surging Housing Prices in Certain Cities (Guo Fa [2010] No. 10) and the Notice of the General Office of the State Council on Boosting the Steady and Healthy Development of the Real Estate Sector (Guo Ban Fa [2010] No. 4), the following opinions are hereby given upon approval by the State Council in order to accelerate the development of public rental housing:

    各省、自治区、直辖市人民政府,国务院各有关部门:

    根据《国务院关于坚决遏制部分城市房价过快上涨的通知》(国发〔2010〕10号)和《国务院办公厅关于促进房地产市场平稳健康发展的通知》(国办发〔2010〕4号)精神,为加快发展公共租赁住房,经国务院同意,现提出以下意见:

1. Important significance of accelerating the development of public rental housing

In recent years, there was considerable improvement in housing conditions of low-income families in urban areas along with the greater efforts to the construction of low-rent housing and affordable housing and the renovation of shantytowns. However, it remains a prominent problem that lower-middle-income families with housing difficulties are unable to rent or purchase houses through the market due to the relatively limited coverage of housing security policies in some regions, excessively high and rapid growth of housing price and short supply of rentable small-sized housing in certain medium and large cities and other reasons. Meanwhile, as a result of rapid process of urbanization, first-time employees' insufficient housing affordability in phases is becoming increasingly conspicuous and the living conditions of migrant workers are in urgent need of improvement. Promoting the development of public rental housing is an important measure to improve the housing supply system, to foster the housing leasing market, and to satisfy the basic housing needs of lower-middle-income families in urban areas. It is also a necessary requirement for guiding urban residents to reasonable housing consumption and adjusting the supply structure of the real estate market. All local governments and all relevant departments shall reach a common understanding, heighten their awareness, carefully make arrangements and increase investments to actively yet prudently promote the construction of public rental housing.

       一、加快发展公共租赁住房的重要意义

    近年来,随着廉租住房、经济适用住房建设和棚户区改造力度的逐步加大,城市低收入家庭的住房条件得到较大改善。但是,由于有的地区住房保障政策覆盖范围比较小,部分大中城市商品住房价格较高、上涨过快、可供出租的小户型住房供应不足等原因,一些中等偏下收入住房困难家庭无力通过市场租赁或购买住房的问题比较突出。同时,随着城镇化快速推进,新职工的阶段性住房支付能力不足矛盾日益显现,外来务工人员居住条件也亟需改善。大力发展公共租赁住房,是完善住房供应体系,培育住房租赁市场,满足城市中等偏下收入家庭基本住房需求的重要举措,是引导城镇居民合理住房消费,调整房地产市场供应结构的必然要求。各地区、各部门要统一思想,提高认识,精心组织,加大投入,积极稳妥地推进公共租赁住房建设。

2. Basic principles

(i) Governmental guidance and social participation. All local governments shall effectively take supporting policies in land, taxation and finance etc. while increasing government funding for public rental housing to encourage various enterprises and other institutions to invest in and operate public rental housing.

(ii) Adaptation to local condition and separate decision-making. All local governments shall, according to local economic development and the supply and demand of small-sized housing and other circumstances, rationally determine the scale in supply and demand of public rental housing, and recipients of the supply of public rental housing. More effort shall be made to the construction of public rental housing in cities where the price of small-sized housing is excessively high and rentable small-sized housing is in short supply.

(iii) Overall planning and step-by-step implementation. All local governments shall formulate the development plan, and the annual plan, for public rental housing, and include the plans in the 2010-2012 security housing construction plan and the Twelve Five-Year Plan for housing security for implementation on annual basis.

       二、基本原则

    (一)政府组织,社会参与。各地区在加大政府对公共租赁住房投入的同时,要切实采取土地、财税、金融等支持政策,充分调动各类企业和其他机构投资和经营公共租赁住房的积极性。

    (二)因地制宜,分别决策。各地区要根据当地经济发展水平和市场小户型租赁住房供需情况等因素,合理确定公共租赁住房的供应规模和供应对象。商品住房价格较高、小户型租赁住房供应紧张的城市,应加大公共租赁住房建设力度。

    (三)统筹规划,分步实施。各地区要制订公共租赁住房发展规划和年度计划,并纳入2010-2012年保障性住房建设规划和“十二五”住房保障规划,分年度组织实施。

3. Lease administration

(i) Public rental houses shall be provided mainly to lower-middle-income families with housing difficulties in urban areas. Where conditions permit, first-time employees and migrant workers who have stable jobs and have lived in a city for a certain number of years may qualify for such supply. The supply scope of public rental housing and the earnings criteria and housing difficulty conditions for recipients shall be determined by the people's government of the relevant city or county. A family that has enjoyed the policies for allocated low-rent housing or for affordable housing are prohibited from renting public rental house. 

(ii) The rents of public rental houses shall be rationally determined by the people's government of a city or county based on the overall consideration of the rents of the housing market and affordability of recipients of the supply of public rental housing and other factors, and dynamic adjustment to the rents shall be made on an annual basis. Where a family that meets the conditions for low-rent housing security rents a public rental house, the family may file an application for rental subsidy for low-rent housing.

(iii) The lessor and the lessee of a public rental house shall conclude a written leasing contract. The term of a contract for leasing of a public rental house shall be three to five years in general, and the standard contract shall be formulated by the housing and urban-rural development (or housing security) department of a province, autonomous region, or municipality directly under the Central Government. The lessee shall rationally use the house as agreed, and pay the rents and other fees in a timely manner. The lessee satisfying the requirements may apply to renew the leasing contract upon expiry of the term of the contract.

(iv) A public rental house can be used only by the lessee and shall not be lent, subleased, left idle or used for other business operation activities. Where the lessee uses the public rental house in violation of the provisions, the lessee shall be ordered to vacate the public rental house. Where the lessee purchases, accepts as a gift, inherits or rents another house, the lessee shall vacate the public rental house. Where the lessee fails to pay the rent and other fees due and payable, such failure shall be notified to the lessee's employer and the unpaid amount shall be directly deducted from the lessee's salary.

       三、租赁管理

    (一)公共租赁住房供应对象主要是城市中等偏下收入住房困难家庭。有条件的地区,可以将新就业职工和有稳定职业并在城市居住一定年限的外来务工人员纳入供应范围。公共租赁住房的供应范围和供应对象的收入线标准、住房困难条件,由市、县人民政府确定。已享受廉租住房实物配租和经济适用住房政策的家庭,不得承租公共租赁住房。

    (二)公共租赁住房租金水平,由市、县人民政府统筹考虑住房市场租金水平和供应对象的支付能力等因素合理确定,并按年度实行动态调整。符合廉租住房保障条件的家庭承租公共租赁住房的,可以申请廉租住房租赁补贴。

    (三)公共租赁住房出租人与承租人应当签订书面租赁合同。公共租赁住房租赁合同期限一般为3至5年,合同示范文本由省、自治区、直辖市住房城乡建设(住房保障)部门制订。承租人应当按照合同约定合理使用住房,及时缴纳租金和其他费用。租赁合同期满后承租人仍符合规定条件的,可以申请续租。

    (四)公共租赁住房只能用于承租人自住,不得出借、转租或闲置,也不得用于从事其他经营活动。承租人违反规定使用公共租赁住房的,应当责令退出。承租人购买、受赠、继承或者租赁其他住房的,应当退出。对承租人拖欠租金和其他费用的,可以通报其所在单位,从其工资收入中直接划扣。

4. Providing housing sources

(i) Public rental housing sources shall be gathered through multiple channels such as new construction, reconstruction, acquisition, long-term leasing etc.. The construction of new public rental houses mainly focuses on supplementary construction or can be carried out in a centralized construction manner. Newly constructed public rental houses shall be scientifically planned and rationally distributed. Such houses shall be arranged in areas with convenient transportation and relatively complete public amenity where possible. The construction of municipal amenity at the inner and outer areas shall also be carried out properly simultaneously.

(ii) With regard to a development zone or industrial park where migrant workers are concentrated, the people's government of a city or county shall, according to the principle of intensive use of land, carry out overall planning to guide various investors to construct public rental houses for leasing to their employees or those working in the park.

(iii) Newly constructed public rental houses are mainly used to satisfy basic housing needs, and thus shall comply with the safety and health standard and requirements for energy conservation and environmental protection to ensure project quality and safety. The floor area of a single unit of the complete set of public rental houses shall be limited to no more than 60 square meters. A public rental house which is built in the form of a dormitory shall comply with the relevant provisions of the dormitory construction and design standard.

       四、房源筹集

    (一)公共租赁住房房源通过新建、改建、收购、在市场上长期租赁住房等方式多渠道筹集。新建公共租赁住房以配建为主,也可以相对集中建设。要科学规划,合理布局,尽可能安排在交通便利、公共设施较为齐全的区域,同步做好小区内外市政配套设施建设。

    (二)在外来务工人员集中的开发区和工业园区,市、县人民政府应当按照集约用地的原则,统筹规划,引导各类投资主体建设公共租赁住房,面向用工单位或园区就业人员出租。

    (三)新建公共租赁住房主要满足基本居住需求,应符合安全卫生标准和节能环保要求,确保工程质量安全。成套建设的公共租赁住房,单套建筑面积要严格控制在60平方米以下。以集体宿舍形式建设的公共租赁住房,应认真落实宿舍建筑设计规范的有关规定。

5. Policy support

(i) All local governments shall include the land used for construction of public rental housing in their annual plan for the supply of land, and lay stress on the guarantee of such land. The land used for construction of public rental housing which is provided to recipients of affordable housing shall be supplied through allocation. For public rental housing with investment in any other forms, the land used for construction shall be used with compensation by means of grant, lease or making equity participation through valuation and pricing etc., and the supply of land shall be conditioned on rental rates, dwelling unit type and structure, construction standard and facilities etc.. The houses shall be leased only, and shall not be sold.

(ii) The people's government of a city or county shall increase investment in the construction and operation of public rental housing by means of direct investment, capital injection, investment allowance, discount loan etc. The people's government of a province or autonomous region shall provide financial support. The Central Government shall provide fund subsidies in an appropriate manner.

(iii) The specific measures for preferential tax policies for the construction and operation of public rental housing shall be formulated by the Ministry of Finance and the State Administration of Taxation. The relevant policies regarding affordable housing shall be applicable to the administrative and institutional fees and governmental funds involved in public rental housing.

(iv) Financial institutions shall be encouraged to issue long-term and medium-term loans for public rental housing. Specific measures thereof shall be formulated by the People's Bank of China and the China Banking Regulatory Commission. Enterprises that meet the requirements shall be encouraged to raise funds through the issuance of long-term and medium-term bonds and use such bonds for the construction and business operation of public rental housing. Research shall be conducted on the use of insurance funds, trust funds and real estate investment trust funds to develop financing channels for public rental housing. Public rental houses which are built through governmental investment shall be included in the scope of pilot construction of low-income housing backed by housing accumulation fund loans.

(v) Public rental houses shall be owned by their investors. The interests of such investors may be transferred in accordance with the law.

       五、政策支持

    (一)各地要把公共租赁住房建设用地纳入年度土地供应计划,予以重点保障。面向经济适用住房对象供应的公共租赁住房,建设用地实行划拨供应。其他方式投资的公共租赁住房,建设用地可以采用出让、租赁或作价入股等方式有偿使用,并将所建公共租赁住房的租金水平、套型结构、建设标准和设施条件等作为土地供应的前置条件,所建住房只能租赁,不得出售。

    (二)市、县人民政府要通过直接投资、资本金注入、投资补助、贷款贴息等方式,加大对公共租赁住房建设和运营的投入。省、自治区人民政府要给予资金支持。中央以适当方式给予资金补助。

    (三)对公共租赁住房的建设和运营给予税收优惠,具体办法由财政部、税务总局制订。公共租赁住房建设涉及的行政事业性收费和政府性基金,按照经济适用住房的相关政策执行。

    (四)鼓励金融机构发放公共租赁住房中长期贷款,具体办法由人民银行、银监会制订。支持符合条件的企业通过发行中长期债券等方式筹集资金,专项用于公共租赁住房建设和运营。探索运用保险资金、信托资金和房地产信托投资基金拓展公共租赁住房融资渠道。政府投资建设的公共租赁住房,纳入住房公积金贷款支持保障性住房建设试点范围。

    (五)公共租赁住房建设实行“谁投资、谁所有”,投资者权益可依法转让。

6. Supervision and administration

(i) The people's governments at the level of province shall take overall responsibility for the development of public rental housing and the people's governments at the level of city or county shall be responsible for implementing the development. The housing and urban-rural development (or housing security) departments at all levels shall be responsible for the administration over public rental housing, and the relevant departments of development and reform, supervision, finance, land and resources, planning etc. shall be responsible for relevant works according to their respective duties. Local people's governments at all levels shall strengthen organization and leadership, clearly define their duties, improve the administrative and working mechanisms for housing security, and make personnel and funds available to ensure the smooth implementation of public rental housing.

(ii) The people's government of a city or county shall establish and improve the systems for application, examination and verification, public notification, queuing-up, allocation and post-rent administration for public rental houses. The housing security departments shall, according to the required procedure, strictly conduct examination and approval in respect of the admission to public rental housing and strengthen the supervision and administration of business operation of public rental houses to ensure that the allocation process is open and transparent and the allocation is fair and impartial. In the event of dereliction of duties, practicing favoritism, committing irregularities or any other violations of laws and regulations, the relevant organizations and persons shall be subject to liability in accordance with laws and disciplines.

(iii) Revenues from rents of public rental houses constructed by governmental investment shall be turned over to the State Treasury at the same level in accordance with the provisions on the administration of non-tax revenues of governments, and shall be subject to the administration of "separation between revenue and expenditure". Revenues from rents shall be specially used for repayment of public rental housing loans, as well as maintenance, administration and investment allowance for public rental houses.

(iv) All local governments may, according to these Opinions, formulate specific implementing measures. The policies for policy-oriented rental houses, affordable rental houses, economically affordable houses, and migrant worker apartments (dormitories) etc. which have been issued by all local governments shall be adjusted according to the provisions of these Opinions in a unified manner.

Ministry of Housing and Urban-Rural Development

National Development and Reform Commission 

Ministry of Finance

Ministry of Land and Resources

People's Bank of China,

State Administration of Taxation

China Banking Regulatory Commission

June 8, 2010

       六、监督管理

    （一）发展公共租赁住房实行省级人民政府负总责、市县人民政府抓落实的责任制。各级住房城乡建设（住房保障）部门负责公共租赁住房的行政管理工作，发展改革、监察、财政、国土资源、规划等有关部门按照各自职责负责相关工作。地方各级人民政府要加强组织领导，明确工作责任，健全住房保障管理机制和工作机构，落实人员和经费，确保公共租赁住房工作顺利实施。

    （二）市、县人民政府要建立健全公共租赁住房申请、审核、公示、轮候、配租和租后管理制度。住房保障部门要按照规定的程序严格准入审批，加强对公共租赁住房运营的监督管理，做到配租过程公开透明、配租结果公平公正。对存在滥用职权、玩忽职守、徇私舞弊等违法违规行为的，要依法依纪严肃追究相关单位和人员的责任。

    （三）政府投资建设公共租赁住房的租金收入，应按照政府非税收入管理的规定缴入同级国库，实行“收支两条线”管理。租金收入专项用于偿还公共租赁住房贷款，以及公共租赁住房的维护、管理和投资补助。

    （四）各地可根据本意见，制订具体实施办法。各地已经出台的政策性租赁住房、租赁型经济适用住房、经济租赁住房、农民工公寓（集体宿舍）等政策，统一按本意见规定进行调整。

    中华人民共和国住房和城乡建设部

    中华人民共和国国家发展和改革委员会

    中华人民共和国财政部

    中华人民共和国国土资源部

    中国人民银行

    国家税务总局

    中国银行业监督管理委员会

    二〇一〇年六月八日