Xiamen Construction Project Examination and Approval Reform Pilot: "We will run the second phase in Xiamen"

In Xiamen Administrative Service Center, there are more than 30 units in the "multi-regulation integration" project construction approval service hall and the comprehensive service hall on the third floor, including municipal departments such as construction, planning, environmental protection, municipal gardens, transportation and water conservancy, and public service departments such as electricity, gas, telecommunications and cable TV. Enterprises here can "accept one window, one-stop examination and approval, one-stop service and one-window charge", which greatly reduces the "one hundred chapters, slow work,

The situation of multi-head running. The pictures in this article are all from newspapers.

2065438+On March 8, 2009, Yan Huang, Vice Minister of Housing and Urban-Rural Development, answered a reporter's question about comprehensively reforming the examination and approval system of engineering construction projects at a regular meeting in the State Council, saying that with the joint efforts of all pilot areas and relevant departments, the examination and approval time in the pilot areas has been reduced by more than half, from an average of more than 200 working days to 120 working days, forming a unified system. According to the deployment requirements of the State Council, the Ministry of Housing and Urban-Rural Development, together with relevant departments, has studied and drafted the Implementation Opinions on Comprehensively Carrying out the Reform of the Examination and Approval System of Construction Projects, which has been deliberated and adopted at the the State Council executive meeting on February 20th, 20 19, and will be issued in the name of the General Office of the State Council.

Eight months ago, JD.COM's construction application manager Pan Lihua. On August 3rd, 20 18, Xiamen Xunzan Logistics Co., Ltd. of COM told this reporter that the plot of JD.COM Asia No.1 Xiamen Tongan Logistics Park was acquired in the land market on August 20th17, and the construction permit was obtained on February 20th 18. "Four months has been considered as a very smooth preliminary work. In more than a month, this project will enter the completion acceptance stage. "

In fact, there are nearly 90 items for examination and approval stipulated by laws, regulations and policies, involving more than 20 departments such as housing and urban construction, development and reform, natural resources, ecological environment, water conservancy, transportation, earthquake, civil air defense and national defense science and technology. In Xiamen, it involves more than 200 departments and units from the city to the district. It is conceivable that Pan Lihua may encounter problems and troubles during the construction application.

These troubles are about to disappear-the "Reform of the Examination and Approval System for Engineering Construction Projects" implemented in the pilot city of Xiamen since last August will sort out 89 items, and focus on solving the problems such as long processing time, complicated procedures and many submitted materials reflected by enterprises in the process of engineering construction examination and approval by strengthening the pre-planning evaluation, reengineering the examination and approval process, streamlining the examination and approval items and simplifying the examination and approval procedures.

At the same time, this reform has been promoted at the national level. On May 20 18, the State Council issued the Notice on Launching the Pilot Reform of the Examination and Approval System for Construction Projects (Guo Ban Fa [2065438+08] No.33), which is being implemented in pilot cities in eastern, central and western regions, developed and underdeveloped regions. The ultimate goal is to strive to establish a scientific, convenient, efficient and unified management system for examination and approval of engineering construction projects nationwide by 2020, and form a basic national system.

Transforming government functions: the examination and approval of engineering construction projects is the key, difficulty and key.

JD.COM Xiamen Logistics Park is a new warehousing and logistics project, located in Wuxian Town, Tong 'an District, Xiamen. The park includes the East Zone and the West Zone, with six warehouses. Other buildings include sorting center, equipment room and supporting room, industrial garbage room and domestic garbage room, doorman and bicycle shed. , covers an area of about 270,000 square meters, with a planned total construction area of 228,700 square meters.

The goal is to become a regional e-commerce operation center, intelligent logistics demonstration base, regional procurement center, e-commerce cluster park, Fujian e-commerce base and logistics hub in the future.

"Sometimes newspaper construction is really confusing." For example, Pan Lihua, who is in charge of the construction report of Xunzan in Xiamen, South China, said: "Which road gate should the construction site open? This is subject to the approval of the Planning Commission. No matter where the gate is opened, the municipal gardens are open, only how big it is. We have passed the examination and approval of the Planning Commission, and the municipal garden said that the gate is 20 meters wide and we can only choose between 7 meters, 9 meters and 12 meters. The position of the duty room originally designed on the drawings will move accordingly, and the corresponding greening, fire protection and civil air defense will also change. It would be nice if all the requirements were told to the enterprise at once from the beginning. "

She still has a lot of troubles. For example, the examination and approval system of engineering construction projects is different among cities in southern China.

"Take the city supporting fees, Xiamen does not, but in Fuzhou and Zhangzhou, they are charged separately. The charging standard of tens of yuan per square meter is also different. Relatively speaking, the process in Xiamen will be simpler. When an enterprise enters the city to do a project, the construction application department should include all the terms and management fees involved in the project in the contract plan as the basis for applying for payment. If you want to use the omitted expenses in the future, you need to re-apply for project approval with the company, which is a work mistake. And the regulations vary from place to place. If unified, it can greatly save manpower. " Pan Lihua said.

Pan Lihua's wish will come true soon. 2018165438+123 October, Fujian provincial government issued a document to promote the reform of the examination and approval system of engineering construction projects in Fujian province. Fujian Province indicated that in 20 19, the province summarized and copied Xiamen's pilot experience, simplified the pre-approval link to the greatest extent and established a new mechanism of post-event supervision with credit supervision as the core under the premise of ensuring the quality of engineering construction.

Global ranking of China's business environment: jumped from 78th to 46th.

Generally speaking, the construction and application department of the company is mainly responsible for coordinating the competent departments involved in the early stage of project development, perfecting various specific procedures and ensuring the smooth implementation of the development plan. Take Xiamen as an example, the relevant authorities include Municipal Development and Reform Commission, Planning Commission, Land and Real Estate Bureau, Transportation Bureau, Water Conservancy Bureau, Environmental Protection Bureau, Landscape Bureau, Commerce Bureau, Economic and Information Bureau, Seismological Bureau, and even fire brigade, civil air defense office, power supply company, gas group and other large and small units.

It may take ten days and a half to run all the relevant departments on weekdays alone. If you want to collect all the chapters, including the approval time of various departments and the modification time of the plan, it may have been more than half a year by the time the project officially started, and the time cost and capital cost of the enterprise have greatly increased.

The examination and approval time of engineering construction projects in China used to take more than 200 working days on average. This is also the most criticized point when the World Bank evaluates the business environment in China. 20 17, 10 In June, the World Bank released the global 192 business environment assessment report, and China ranked 78th in the comprehensive score, among which it was ranked 172 in the building permit index, which was lower than that of Russia and Brazil.

In order to optimize the business environment and deepen the reform of "decentralization, combination of decentralization and management, and optimization of services", the State Council requires that the examination and approval time of engineering construction projects in Beijing, Shanghai, Xiamen, Shenyang, Zhejiang and other "15+ 1" pilot areas be shortened to 120 working days.

On June 4th, 20 18, Vice Premier Han Zheng of the State Council pointed out at the symposium on the pilot reform of the examination and approval system for construction projects held in Xiamen, "We have been talking about the transformation of government functions, and the key issue is the reform of the administrative examination and approval system, and the examination and approval of construction projects is the focus, difficulty and emphasis in administrative examination and approval."

Document No.33 clearly puts forward "five ones", that is, "a blueprint" defines the construction conditions, "a system" implements unified management, "a window" provides comprehensive services, "a form" integrates application materials, and "a set of mechanisms" standardizes the examination and approval operation.

After more than a year's efforts, the 20 18, 10, 3 1 Business Environment Reports issued by the World Bank show that China has made remarkable achievements in a series of reforms to improve its business environment, and its global ranking has jumped from 78th place a year ago to 46th place.

Xiamen is one of the leading cities. After the implementation of the reform, the project of JD.COM Xiamen Logistics Park, a general social investment project, has been approved within 70 working days from land acquisition to property right registration.

The Management Committee of Xiamen Administrative Service Center made a summary of the work of 20 18 on June 5438+0 this year, saying that it is necessary to formulate the implementation plan for the reform of the examination and approval system for engineering construction projects, clarify 89 reform tasks, publish the flow chart of eight categories of projects and the list of reform items for examination and approval, and control the examination and approval time within 90 working days from the stage of project establishment and application for land planning permission for linear projects. General social investment projects from the acquisition of land to the registration of property rights, the approval time is controlled within 70 working days; The approval time of social investment projects and small social investment projects planned for land transfer is controlled within 50 working days, which is 28.5% shorter than that of general social investment projects.

Since the new process was put into production in September, 20 18, 1, there are 75 * * projects in the whole city, 242 of which have been jointly reviewed by multi-maps, 0 of which have applied for multi-measurement integration and 0 of which have applied for joint acceptance. Strengthen joint technical guidance, deepen regional comprehensive evaluation, build a rapid approval mechanism for small social investment projects, and further reduce the approval time limit for small social investment projects to 50 working days. Promote the formulation and abolition of local laws and regulations, sort out 27 reform opinions and report them to the Ministry of Housing and Urban-Rural Development, forming more than 300 reform document systems. Innovating the supervision mode of intermediary agency approval, 64 intermediary services were included in the online lobby of intermediary agencies, 529 intermediaries settled in, 348 1 investment projects were signed online, and 1, 2 16 projects were completed and evaluated. Significantly streamline the applicant's application materials, and reduce the number of application materials from 373 in series before the reform to 76 in parallel after the reform, a decrease of 297.

Entrust the third-party evaluation system of Xiamen University Business Environment Evaluation Center to conduct the third-party evaluation of 100% of the examination and approval departments of engineering construction projects stationed in the center. Focusing on serving major key construction projects, the service time limit of 8 15 key construction projects 1790 examination and approval items was reduced to less than 35% of the statutory time limit, and 1369 items were completed, 680 items were completed ahead of schedule, with an early completion rate of 49.67%.

The commitment system is implemented, and enterprises act on credit.

"The city will give us enterprise training reform plan. I see that the application process for temporary water use, construction electricity use and official electricity use has been cancelled. In the past, these were all declared separately, and there were many processes. " "Multi-drawing joint review", "multi-measurement integration" and "joint acceptance" have solved the problem of repeated design mentioned earlier. Tell me the opinions and standards of planning, fire protection, municipal administration, gardens, civil air defense, secondary water supply, lightning protection and other departments at one time, and I can consider reducing the problems in a unified way. Municipal and garden technical guidance has been informed to the planning department in advance, and only the planning department will accept it in the end. This is too simple. "

"This time, the payment guarantee of the construction unit and the performance guarantee of the contractor were also cancelled. The commitment system is implemented, and enterprises act on credit. For example, a group enterprise like ours is not registered in Xiamen, and the bank can't give a guarantee, so it can only find a guarantee company. It takes a long time to find a guarantee company by public bidding.

For this logistics park project, we paid 6.5438+0.5 million yuan to the guarantee company in advance, and we have to pay a deposit of 6.5438+0.9 million yuan before we can open a letter of guarantee for me. If some projects take a long time, the liquidity of enterprises is also considerable. It's great now. "Speaking of streamlining the process, Pan Lihua repeatedly sighed," There is also the second phase of our logistics warehouse, and we will continue to do it in Xiamen. When the time cost is reduced, the construction cost is naturally reduced. "

The relevant staff of Xiamen told the reporter that in strengthening the supervision and management mechanism, a blacklist system will be established to connect with the national credit information platform for project construction approval, and a joint disciplinary mechanism of "one place is broken and everywhere is limited" will be built. If an enterprise re-registers to apply for qualification, it will also cost a considerable amount of money, time and manpower, and it will not be worth the loss if it breaks its promise rashly.

It sounds beautiful, but no matter how many items are reduced and how good the optimized process is, enterprises still have to deal with so many departments. Pan Lihua said that one stop to the administrative service center is enough. There are all in the district and city, and enterprises can handle it nearby. The reporter visited the Xiamen Administrative Service Center located in Yunding North Road, Huli District, Xiamen.

The examination and approval service hall and comprehensive service hall of "multi-regulation integration" project construction are located on the third floor of the center. There are more than 30 units in the two service halls, including municipal departments such as construction, planning, environmental protection, municipal gardens, transportation and water conservancy, and public service departments such as electricity, gas, telecommunications and cable TV. The first floor and the second floor are the comprehensive service hall of land, resources and real estate and the comprehensive service hall of social security respectively, which have more direct relations with residents and more business.

In the eye-catching position on the third floor, the online declaration process of engineering construction projects, the flow chart of financial investment and financing engineering construction projects, and the guidelines of various departments are posted. There is a small display screen to broadcast the specific contents of the reform, and there is also a large display screen to show the progress of each reporting unit.

Official website shows that the administrative examination and approval and supporting public services of Xiamen municipal departments and their subordinate units, except for the vehicle management accreditation hall, the port joint inspection hall and the entry-exit accreditation hall, have all entered the municipal administrative service center for centralized handling. Xiamen Administrative Service Center takes the service concept of "convenience, efficiency, openness and honesty" and implements the operation mode of "one-window acceptance, one-stop examination and approval, one-stop service and one-window charge"; Formulate and implement a series of convenient and efficient working systems, such as reservation service, parallel approval, service commitment and key project agency. For units with fewer examination and approval items, the municipal administrative service center will set up a comprehensive window to send and receive documents in a unified manner. The same application materials required by multiple departments will be shared through the database of the municipal administrative service center. Each stationed unit fully authorizes the window staff to complete all procedures of "acceptance (acceptance), review, approval, payment and accreditation (certificate)" in the center in accordance with the requirements of "one window acceptance, internal operation, parallel approval and time limit completion".

In jimei district Administrative Service Center, a staff member of Xiamen Housing and Construction Group Co., Ltd. took the materials of more than a dozen projects and handled them one by one in different windows. Many of his projects are currently at different nodes. For parallel matters that need to be handled at the same time in the early stage of the project, as long as the materials are submitted in one window, the window acceptance personnel will send the materials to the departments that need to accept according to the project type. After approval, he only needs to come to the same window to get the certificate.

Planning land projects in advance on behalf of the owners.

Xiamen Anzhu Construction Company is a state-owned enterprise of Xiamen Housing and Construction Group Co., Ltd., which belongs to the category of financial investment and financing housing construction in engineering construction projects. Xiamen Anzhu Construction Company is a public welfare enterprise mainly engaged in affordable housing and public rental housing, mainly engaged in financing, construction and operation management of affordable housing and public rental housing.

Lian Xiaoli, the construction application Commissioner, said that the progress requirements of the affordable housing project are relatively high. It takes three months from project generation to project start-up, and the period from project start-up to acceptance is mostly two and a half to three and a half years.

Xiamen's reform requires that the approval time of such projects be controlled within 90 working days. Lian Xiaoli said that before the reform, land use approval must wait for the municipal government to approve the red line. If the project land is clean land and cultivated land, it will take one month for the red line approval. If it involves peasants, it must be reported to the provincial office for two months. You can only go through the process after approval. In this reform, the project design does not have to wait for land approval, as long as the approval procedures are completed before the project starts. After the design is completed, it can be sent to the planning department first.

She also mentioned the "cancellation of payment guarantee" after the reform. "Banks can save a week by issuing insurance policies. We are a state-owned enterprise, and the project is financial allocation. It was originally a government project. To provide a guarantee, only prove that' my mother is my mother'. "

Among the 89 items sorted out, Xiamen Planning Commission is responsible for 56 items, including 34 organizers and 22 co-organizers.

Li You, head of the Office of the Chief Engineer of Xiamen Municipal Planning Commission, said that the preliminary work is the most fundamental, and the premise of fast and efficient approval is an overall plan without contradictions and conflicts.

Traditional examination and approval often have to wait until the owner appears and the owner comes to the relevant examination and approval department. Now it's the mode of posing as the master. The Planning Committee prepares the next year's project one year in advance, and the government first completes the planning of a piece of land-how high and what nature the building is, and if it needs to be demolished, it will first intervene in land acquisition and demolition, and those who have become peasants will first intervene in the approval procedures. After the government department makes a good plan, it will report it for approval. After the land auction, the owner already has complete project planning conditions.

When entering the examination and approval stage, it means streamlining. The main purpose of the Planning Commission is to reduce preconditions and reduce the mutual containment of various departments.

Li You said, "We now take the pre-examination of land use as the basis for the approval of the planning permit for construction projects. Originally, it would take at least three or four months from the pre-trial to the approval of the red line. For the construction land planning permit, two preconditions-the announcement of land acquisition and demolition or the completion certificate of land acquisition-are cancelled.

"Another big reform is the merger of 14. Before the reform, the examination and approval of 14 series links took almost 100 days, and after the merger, it only took 18 days.

"License issuance is relaxed and approval is convenient. The government has the obligation to provide a good business environment for developers with good credit, but it does not mean that enterprises are not regulated. Within the Planning Commission, a spot check mechanism will be launched, and a third-party agency will be entrusted to conduct a substantive review of the application materials. If the promise is false, the license will be revoked, blacklisted and the punishment will be doubled. If the promise is true, the company simply does not know that there is this link. "

"Improving the business environment is to act in accordance with the law, not to condone"

Whether 200 days is compressed to 120 days, or 120 days is further compressed to 90 days and 70 days, it is not easy for relevant departments to coordinate.

To this end, Xiamen has established more than 220 rules and regulations involving top-level design, departmental coordination, supervision and dynamic updating, and issued the first local regulations with "multi-regulation integration" in China, forming a relatively perfect and mature "set of mechanisms", which has made the reform of the examination and approval system of engineering construction projects have laws to follow and rules to follow.

"Although it is difficult, the enthusiasm of all departments is there, because after the reform, administrative examination and approval and technical review can be separated." Zou Menglin, director of the examination and approval department of Xiamen Construction Bureau, said.

In terms of multi-map joint review, Zou Menglin took fire protection as an example. "The fire department needs both approval and technical review, and the workload and pressure are great. From the end of last year to February this year, the fire department and the drawing review agency have been coordinating, how to identify the responsibilities, how to define the standards, and how to accept the results. Fire fighting is sensitive, and building fires are frequent. Fire audit has its own laws and regulations, and the qualification is also in the fire department. It is suggested that the drawing review organization should be thorough and promise to abide by all fire laws and regulations, so as to be at ease. The drawing review agency dare not draw such a conclusion and is deadlocked. Finally, the Fujian Provincial Housing and Construction Department and the Provincial Fire Corps issued a document to coordinate. At present, it is unified that the fire department informs the drawing review organization in writing which specifications must be observed, and the drawing review organization reviews the drawings according to the opinions of the fire department. If there is a fire in the building due to drawing review, the main responsibility lies with the drawing review organization, and whoever entrusts it will be responsible, and the fire department will also bear certain responsibilities. Because the drawing review agency is responsible, it is necessary to carefully review the drawings and reduce some pressure on the fire department. "

In addition, Zou Menglin believes that "joint acceptance" and "multi-picture joint examination" are the highlights of the reform of the Ministry of Housing and Urban-Rural Development. Including himself, in the process of reporting to the Ministry of Housing and Urban-Rural Development in Beijing last July, many city representatives attending the meeting asked whether this project could be used as an independent choice for enterprises. The Ministry of Housing and Urban-Rural Development made it clear at that time that the above-mentioned Circular 33 was promulgated as a national policy and regulation and should not be loosened.

"In fact, this is a question of height." Zou Menglin said that to improve the business environment, deepen decentralization, strengthen supervision and improve services, on the one hand, government departments need to reduce the links and materials for enterprise approval and simplify the process; On the other hand, they need to standardize market operators and strengthen post-event supervision.

Zou Menglin said, "In order to maximize the time and economy of self-interest, in the process of acceptance, some enterprises are used to completing inspections as much as possible, and unfinished projects are dragged behind, such as the municipal landscaping part, and some enterprises will wait for other inspections and acceptance modifications, and then carry out rectification, and finally complete them almost at the same time; There are also enterprises that have tried to break through laws and regulations for the benefit, and delayed the acceptance with many excuses. Such a project will inevitably take a long time and is also a kind of harm to the business environment. "

"As for the multi-picture joint review, before the reform, the drawings should be sent to different departments for review. In order to pass, some enterprises will use different drawings for different departments, and finally all departments will accept them according to the received drawings. Enterprises will carry out rectification according to their opinions, and it is very likely that other departments will rectify the previously compliant places. Improving the business environment is based on law, not connivance. It is to make the whole market open and transparent and let enterprises have expectations. " He said, "There is a contrast. At the end of 20 16 and the beginning of 20 17, the wholly foreign-owned Amazon Xiamen operation center project provided joint acceptance. All aspects of this project are standardized, and the relevant departments completed the acceptance within half a month. Reform is to make standardized enterprises profitable, and non-standardized enterprises will not be supported. "

"Reform means cutting the blade inward."

Han Zheng pointed out at the above-mentioned meeting in June last year: "Reform is a form if it is not aimed at problems. Reform is to solve problems one by one. Running around with problems is not reform. When encountering major reforms, we must seriously think about it and want to know how to do it. ..... Reform cannot be painless, but the blade should be inward and the power should be in place. "

Han Zheng said that in this pilot project, the municipal party committees and governments should bear the main responsibility, and the secretary of the municipal party committee and the mayor should personally deploy it. Xiamen's early success was the result of the leadership of the secretary and mayor.

The reporter saw from a list of leading groups for the reform of the examination and approval system of construction projects in Xiamen that the group leader was Mayor Zhuang Jiahan, and the deputy heads were Executive Vice Mayor Huang Qiang and Vice Mayor Zhang Yigong. Chen, deputy director of Xiamen Municipal Affairs Service Center, told reporters that in June alone, three leading group meetings were held, which were presided over by the secretary of the municipal party committee, the mayor and the deputy mayor.

Some experts who participated in the program review in July said that the reform involved too many barriers to interests. If it is not promoted by the top leaders, it is difficult for all departments to coordinate highly.

The relevant person in charge of the Administrative Committee of Xiamen Municipal Service Center said that the implementation of multi-regulation in Xiamen can be traced back to 2002 at the earliest, and the top leaders of every government attached great importance to this reform, which led to Xiamen's current achievements. Without the attention of senior leaders, perhaps Xiamen Administrative Service Center will stagnate at the height of serving the people and cannot promote the reform of the examination and approval system for the whole construction project by all departments.

"You say, if the staff of the service center window of each department does not have certain approval authority, what's the difference with a connector? Many of our departments set up in the service center are directors who work directly here. " She said.

Before Xiamen, the reform was local reform, and the limitation of local reform was that it could only be adjusted under the physical framework. "Under the leadership of the Ministry of Housing and Urban-Rural Development, the reform of the examination and approval system for engineering construction projects has made us feel that it has played a great role in promoting local governments. At the national level, we can allow local governments to reform laws, regulations and measures that really need to be changed at the operational level. At the same time, we can ask the relevant departments and organs to adjust these terms, so that we can change from physical adjustment to chemical integration. For us, the difficulty of promoting reform has been greatly reduced, and the confidence in promoting reform has greatly increased. "