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This could be illustrated by the poor implementation. For instance, from 1999 to 2006, the state invested only 7.08 billion yuan on low-rent housing and built 780,000 flats for the lowest income households, while the total provision of Economic and Appropriate Housing amounted to only 350 million m2, accounting for only 7.82% of commercial housing in the same period, far less than the mainstay form of housing provision for the majority of urban residents as the 1998 reform plan claimed.
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This policy was firstly mentioned by Qi Ji, Vice-minister of the Ministry of Housing and Urban-Rural Development of the People's Republic of China on 11 March 2009. It was targeted at the 'sandwich class', those who are not eligible for low-rent housing but cannot afford to buy Economical and Appropriate Housing; and those who are not qualified to buy Economical and Appropriate Housing but cannot afford to buy commercial housing in the market. Young colleague graduates are also target groups. In 2010, a document titled 'Guidance on speeding up the development of public rental housing' was co-promulgated by seven related ministries.
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