1. Project Overview
The textile mill workers' housing site is on Fuqiang Lane in Jiao District, Jiamusi. The land is allocated residential land with a site area of 0.896 hectares and 8,490 square metres of floor space, comprising four three-storey Soviet-style red-brick housing blocks and scattered surrounding land. Built in 1952, the complex is an important witness to the First Five-Year Plan and the era of industrial migration, and was listed as a historic building of Jiamusi in 2020.
After more than 70 years, the housing was clearly inefficient. First, there were serious safety risks: the buildings were rated grade C in safety appraisal and did not meet current seismic or fire standards. Second, functions were badly outdated, with no private kitchens or bathrooms and no accessible facilities, making them uncomfortable to live in. Third, the historic character did not match residents' needs: the Soviet-era industrial heritage stood idle and weathering, while young people in the area lacked affordable homes near work. Protective repair and a change of function were urgently needed.
In April 2025 the Jiao District government confirmed the long-idle residential land of the textile mill housing as inefficient land and launched its redevelopment, converting it to residential land for affordable rental housing while protecting and reusing the historic buildings as a cultural landmark and a living carrier of the city's history. The project passed completion acceptance in January 2026.
2. Redevelopment Entity and Model
(1) Redevelopment entity
The project was led by the Jiao District government. The Jiamusi Natural Resources and Planning Bureau prepared a special conservation plan for historic buildings and organized the redevelopment of the inefficient land.
(2) Redevelopment model
An innovative "government reserve + market operation" model was used. The government used its strengths in planning, upfront investment and policy to fund the acquisition and consolidation of fragmented property rights, and merged the scattered surrounding land into a single development parcel. With the consolidated space matched to the city's needs, a professional operator was brought in to run it on market terms. Government investment to revive the asset, value added through spatial consolidation and long-term returns from market operation together form a sustainable mechanism that unites the public interest, market returns and cultural heritage.
3. Results of the Redevelopment
(1) Better use of existing space and long-term operation of affordable rental housing
First, the idle asset was revived and the environment improved. The idle historic buildings were converted into affordable rental housing, with public activity space, greenery and parking added, significantly improving land efficiency. Second, housing for residents was secured: original residents were properly resettled and 189 new affordable rental homes were created, meeting the housing needs of industrial workers and young professionals in nearby parks. Third, a new operating mechanism ensures long-term viability: stable rental income supports a "rent sustains conservation" model, keeping the project running steadily.
(2) Continuing the city's heritage through active reuse of historic buildings
The project fully respected the city's historical fabric and the requirements for protecting historic buildings, repairing "old as old" and retaining the distinctive period and regional character of the mill housing. The continuity of everyday life — from workers' family housing to a modern community for young professionals — strengthens residents' sense of cultural belonging and pride.
4. Key Practices
(1) Strong planning guidance and strict control of townscape
Before the project began, and in strict accordance with laws on the protection of historic buildings, the Jiamusi Natural Resources and Planning Bureau and other departments prepared the Conservation Plan for Historic Buildings in Jiamusi's Urban Area, which was approved by the city government. The plan defined the protection boundary, core character elements, repair standards, spatial controls and reuse path for the mill housing. Soviet-style red-brick texture, arched doorways, period window frames, industrial reliefs and the original spatial layout were designated as core elements that may not be moved or damaged, preventing destructive alteration and loss of character.
(2) Innovative consolidation of property rights to resolve fragmented ownership
Because ownership of the housing was fragmented, the Jiao District government offered original residents cash compensation, signing 217 compensation agreements and paying CNY 23.89 million to recover ownership lawfully and in an orderly way. This established a clear, lawful chain of state ownership through a path of "government mediation → financial compensation → consolidation of title", bringing the assets under unified management and clearing ownership obstacles for renovation and operation.
(3) Piloting a first: converting a historic building into affordable rental housing
While holding firm to the bottom lines of historic character and safety, the pilot policy was used to explore converting an existing historic building into affordable rental housing — filling a gap in China. Matching local industry and housing needs, the conversion offers three demonstration advantages. First, "micro-renovation" preserves authenticity: the main structure and traditional layout were not changed, and the change of function was achieved with minimal intervention and at optimal cost. Second, a long-term solution to maintenance: stable income from affordable rents creates a funding balance in which "rent sustains conservation and returns feed back", solving the high cost of maintaining historic buildings. Third, active reuse highlights cultural value: repairing "old as old" restored the Soviet red-brick character while adding modern housing services, creating a new city landmark that combines secure housing with industrial memory.
(4) Encouraging reasonable changes of use for existing buildings
Given the special nature of redeveloping inefficient land with historic buildings, Jiamusi actively explored reasonable conversions of existing buildings. On condition that plans are complied with and safety is assured, the Jiao District government encourages the revitalization of inefficient residential land; converting the workers' housing into affordable housing achieved this and raised land-use efficiency.
(5) Full-process control of conservation and use
The requirements of the conservation plan were strictly implemented through a range of protection and improvement measures. First, façades, characteristic components and historic features were authentically repaired, with more than ten core elements — including arched doorways, window frames and reliefs — restored to their original form. Second, interior spaces were adapted to meet the safety and functional needs of affordable housing. Third, the building envelope was upgraded for energy efficiency in a cold climate, improving overall energy performance by 33%.
5. Policy Basis
(1) The Opinions of the CPC Central Committee and the State Council on Promoting High-quality Urban Development call for improving policies for the consolidation, integration, exchange and registration of property rights.
(2) The Notice of the Ministry of Natural Resources on Launching Pilot Work on the Redevelopment of Inefficiently Used Land (Ziran Zifa [2023] No. 171) encourages reasonable changes in the use of existing buildings.
(3) The Jiamusi Implementation Plan for Pilot Redevelopment of Inefficiently Used Land (Jiazhengbanfa [2025] No. 15) calls for "encouraging the conversion of existing properties into public-interest facilities", "preparing a series of plans scientifically" and "promoting the revitalization of existing resources".
Show original Chinese text （中文原文）
佳木斯市纺织厂家属楼保护利用
一、项目基本情况纺织厂家属楼地块项目位于佳木斯市郊区富强巷，土地性质为划拨住宅用地，用地面积 0.896 公顷，建筑面积 8490平方米，包含 4 栋 3 层苏式家属红楼以及周边零星用地。该建筑群建于 1952 年，是国家“一五”计划与工业移民时代的重要见证，2020 年被列为佳木斯市历史建筑。纺织厂家属楼建成逾 70 年，呈现典型低效状态。一是安全隐患突出，房屋安全鉴定评级为 C 级，整体不满足现行抗震与消防标准；二是功能严重滞后，无独立厨卫及无障碍设施，居住舒适度低；三是历史风貌与民生需求错位，苏式工业遗存闲置风化，区域青年安居与职住平衡短板突出，亟须保护性修缮与功能转换。
2025 年 4 月，佳木斯市郊区人民政府将闲置多年纺织厂职工家属楼住宅用地确认为低效用地，随即启动了低效用地再开发工作，将其转换为保障性租赁住房住宅用地，同时实现历史建筑保护与活化利用，成为文化地标和城市文脉的鲜活载体，2026 年 1 月竣工验收。
二、改造主体和改造模式
（一）改造主体本项目由郊区人民政府统筹主导，佳木斯市自然资源和规划局编制历史建筑专项保护规划，并组织低效用地再开发盘活利用工作。
（二）改造模式通过“政府收储+市场化运营”创新盘活利用模式，充分发挥政府在规划统筹、前期投入与政策供给上的优势，先期投入资金收储归集碎片化产权，并整合周边零星用地实施土地并宗开发；依托空间整合精准适配城市发展需求，引入专业主体进行市场化运营。通过政府投入盘活资产、空间整合提升价值、市场运营长效回报等可持续机制，最终实现公共利益、市场效益与文化传承的有机统一。
三、低效用地再开发取得的成效
（一）存量空间优化，实现保租住房长效运营一是活化闲置资产，提升环境品质。将闲置历史建筑改造为保租房，配建公共活动场地、绿化及停车场地，显著提高用地效能。二是保障民生安居，强化保障住房供给。妥善安置原住民，新增 189 套保租房，精准解决周边园区产业工人与青年人才住房需求。三是创新运营机制，实现长效发展。依托稳定租金收益构建“以租养保”模式，实现项目可持续、稳步运营。
（二）城市文脉传承，实现历史建筑活化利用项目充分尊重城市文脉和历史建筑保护要求，修旧如旧，保留了纺织厂家属楼独特的时代特征和地域特色，从原家属楼到现代人才住区的居住生活场景延续，增强了市民的文化归属感和自豪感。
四、主要做法
（一）强化规划引领，严格空间风貌管控项目启动前，严格按照历史建筑保护相关法规，佳木斯市自然资源和规划局会同有关部门编制《佳木斯市城区历史建筑保护规划》并报佳木斯市政府批准实施。《佳木斯市城区历史建筑保护规划》明确了纺织厂家属楼的保护范围、核心风貌要素、修缮技术标准、空间管控要求与活化利用路径，将苏式红砖肌理、拱券门洞、复古窗棂、工业浮雕、原有空间格局等列为不可移动、不可破坏的保护核心，有效防范了破坏性改造与风貌异化。
（二）创新产权归集，破解权属分散难题针对原家属楼权属分散的问题，佳木斯市郊区人民政府对原住户实行货币化安置，累计签订补偿协议 217 份，支付补偿资金 2389 万元，依法有序收回房屋所有权，确立清晰合法的国有产权链条，系统构建“政府调解→资金补偿→产权归集”实施路径，实现国有资产归集与统一管理，为后续改造、运营扫清权属障碍。
（三）先行先试，首创“历史建筑+保租房”转换路径在严守历史风貌与安全底线前提下，依托试点政策率先探索存量历史建筑向保障性租赁住房的用途转换，填补了该领域国内空白。结合区域产业与安居需求，将纺织厂家属楼改造为保租房，形成三大示范优势：一是“微改造”保全原真风貌。不改变建筑主体结构与传统格局，以最小干预、最优成本实现功能置换，最大限度保留苏式建筑原真性。二是“长效化”破解运维难题。依托保租房稳定收益，构建“以租养保、收益反哺”的资金平衡机制，破解历史建筑维护成本高的现实困境。三是“活化用”彰显人文价值。坚持修旧如旧，复原苏式红楼风貌并植入现代安居服务，打造兼具安居保障功能与工业记忆的城市新名片。
（四）鼓励存量建筑用途合理转换针对历史建筑类低效用地再开发项目的特殊性，佳木斯市积极探索存量建筑用途合理转换利用。在符合规划、确保安全的前提下，佳木斯市郊区人民鼓励盘活低效住宅用地，通过将家属住宅楼改建为保障性住房，实现了低效用地再开发盘活利用，提高了土地利用效率。
（五）历史建筑保护与利用的全过程管控严格落实历史建筑保护规划要求，实施多样化保护与提升措施。一是对建筑外观立面、特色构件、历史风貌要素进行原真性修缮保护，原样复原拱券门洞、窗棂、浮雕等 10余项核心风貌要素；二是对内部空间进行功能适配性改造，满足保障性住房的居住安全和使用需求。三是同步实施寒地围护结构节能改造，改造后建筑综合节能提升 33%。
五、政策依据
（一）
《中共中央 国务院关于推动城市高质量发展的意见》明确，优化产权归集、整合、置换和登记政策。
（二）《自然资源部关于开展低效用地再开发试点工作的通知》（自然资发〔2023〕171 号），鼓励存量建筑用途合理转换。
（三）《佳木斯市推进低效用地再开发试点工作实施方案》（佳政办发〔2025〕15 号），“鼓励利用存量房产转换为公益性设施”
“科学编制系列规划计划”
“推动存量资源盘活利用”
。