To deepen the reform of market-oriented allocation of industrial land, promote the full-lifecycle management of industrial land, advance the high-quality utilization of industrial land, foster the high-quality development of industrial chains, contribute to the formation of a new development paradigm centered on the domestic economic cycle while mutually reinforcing the domestic and international economic cycles, and enhance our city’s functions as a provincial capital and its status as a leading central city, the following implementation plan is formulated in accordance with relevant national and provincial policies and in light of our city’s actual conditions.
I. General Requirements
(1) Guiding Ideology. Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, we will implement the new development philosophy and the general requirements for high-quality development. We will deepen the reform of market-based allocation of industrial land, precisely allocate land resources, and establish and improve mechanisms for industrial land access, performance evaluation, revitalization of existing land stock, and transformation and exit. This will increase the economic carrying capacity and output per unit of land, achieving a more intensive, efficient, and sustainable high-quality utilization of industrial land.
(2) Basic Principles.
1. Adhere to planning-led development, coordinate the use of various planned industrial spaces, fully ensure the needs of industrial development and scientific research and innovation in terms of total scale, strengthen planning guidance in spatial layout, and create high-quality industrial development spaces.
2. Uphold institutional innovation, comprehensively advance reforms in industrial land supply methods, implement the transfer of “standard plots,” reasonably determine flexible lease terms for industrial land, encourage long-term leasing and “lease-to-own” arrangements, and explore the implementation of a “price-capped, contribution-based” model to achieve the optimized allocation of industrial land.
3. Prioritize efficiency: Firmly adhere to the overarching requirements of high-quality development; comprehensively strengthen industrial market access and full-lifecycle land management; promote quality and efficiency improvements in the real economy; and enhance the performance of industrial land.
4. Uphold the principles of intensive and efficient use by strengthening constraints on indicators such as input-output ratios, energy conservation, environmental protection, and safety for new industrial land; encourage mixed-use development; intensify efforts to revitalize existing low-efficiency land; and improve land utilization efficiency.
II. Scope of Application
For the purposes of this Implementation Plan, “industrial land” refers to industrial land (zoned as M), warehouse land (zoned as W), and research and development land (zoned as B29a) within the administrative boundaries of this city.
III. Optimizing Industrial Spatial Layout
(1) Establishing Red Lines for Industrial Development. Based on the urban functional positioning determined by Nanjing’s Territorial and Spatial Planning, red lines for high-quality industrial development shall be established. The total planned industrial land area across the city shall be capped at 300 square kilometers, with the scale stabilized through a three-tier system comprising “industrial parks—industrial communities—scattered industrial plots.” Within industrial parks and industrial communities, the area of industrial land designated for advanced manufacturing shall account for no less than 80% of the total industrial land area, and changes in land use shall be strictly restricted.
(2) Optimizing Industrial Spatial Layout. The city’s territorial spatial plan defines the boundaries of industrial parks and industrial communities, emphasizing functional positioning and land use structure guidance.Guided by industrial and spatial planning, industrial land will be concentrated in industrial parks and industrial communities. New industrial projects shall, in principle, be located within industrial parks and industrial communities, must align with the industrial positioning of these zones, and must include a coordinated allocation of a certain proportion of industrial land reserved for the construction of high-standard factory buildings. In accordance with high-quality industrial development standards, scattered industrial plots outside industrial parks and industrial communities will be designated for retention in the plan.
1. Industrial parks shall primarily serve manufacturing functions and focus on enhancing their capabilities. Industrial and warehouse land should account for more than 60% of the total area, creating advanced manufacturing bases that support the strategic functions of national central cities and represent the highest level of domestic manufacturing.
2. Industrial communities emphasize the integration of industry and urban life as well as mixed-use functions. The proportion of industrial and warehouse land should be controlled at around 50%, with an increase in functions such as scientific research and development, corporate headquarters, and supporting public services.
3. Scattered industrial plots shall be subject to differentiated management. For those within the development boundary, existing enterprises shall be assessed by the municipal industrial authorities in accordance with the “Guiding Opinions on Differentiated Policies for the Comprehensive Evaluation of Resource-Intensive Utilization Performance of Industrial Enterprises in Nanjing (Trial)” (Ning Zheng Ban Fa [2018] No. 90). Those meeting Class A standards shall be retained and may be newly constructed, renovated, or expanded in accordance with the plan;existing high-quality enterprises meeting Class B or higher standards, provided their operations do not conflict with near- and medium-term planning and the enterprise commits to unconditionally complying with government planning and land reclamation upon implementation, may be coordinated by the respective districts for renovation in accordance with industrial needs. For those outside the development boundary, if confirmed for retention through planning, buildings may be renovated or expanded in accordance with the plan.
IV. Rational Determination of Planning Indicators
(1) Scientifically Formulate Planning Control Indicators. Determine the floor area ratio, building height, and green space ratio for industrial land based on industrial needs.
1. The floor area ratio for newly granted industrial land generally shall not be less than 1.5; for high-standard factory projects, it shall not be less than 2.0. For industrial land involving the protection of historic cities or the use of special processes, the floor area ratio may be determined based on actual conditions upon approval. For research and development land, the floor area ratio may be set with reference to commercial and office land in the same area, with a minimum of 2.5; the layout of such land should be relatively concentrated.
2. The scale and layout of green spaces within industrial parks and industrial communities shall be coordinated holistically. Green space ratios for individual industrial projects may be flexibly set. Concentrated layout and mixed-use are encouraged. Except for designated special-purpose zones, and provided that workplace safety is ensured, control detailed plans shall not impose requirements on building density or green space ratios for industrial land.
(2) Simplify the planning adjustment procedures for industrial and warehouse land. For major provincial and municipal projects, as well as new industrial and warehouse projects at the municipal level or above, planning control indicators such as floor area ratio, building density, building height, and green space ratio may be appropriately optimized—provided they comply with the overall indicators of higher-level plans—and the technical refinement procedures for control plans shall be followed.
(3) Encourage mixed-use development of industrial land.
1. For existing industrial land, the proportion of compatible facilities such as administrative offices and community services added to existing buildings shall not exceed 15% of the total above-ground floor area, and relevant procedures shall be completed in accordance with the law. For industrial land where compatible uses are added, the land may continue to be used for its original purpose; for research and development land where compatible uses are added, land use procedures may be processed through mutual agreement, and compatible facilities may not be transferred separately.
2. For new industrial land projects, the proportion of other production-service uses (limited to industrial, warehousing, and research) may not exceed 15% of the total above-ground floor area, and the proportion of administrative office and daily service facilities may not exceed 15% of the total above-ground floor area. The land supply method, management, and registration shall still be determined based on the primary land use type, and compatible facilities may not be transferred separately. For research land incorporating other uses, the minimum transfer price shall be calculated based on the actual use.
3. Pilot programs for multi-purpose mixed-use development will be launched, allowing for flexible determination of the proportions of various industrial uses. Where two or more uses are accommodated on the same parcel of land, the supply method shall be determined based on the primary use, which may be determined by the proportion of floor area or functional importance.
V. Strict Management of Industrial Access
(1) Strictly enforce industrial access policies. Implement the requirements of the Industrial Structure Adjustment Guidance Catalog and the Catalog of Industries Encouraging Foreign Investment, strengthen the management of industrial project access, strictly prohibit the allocation of land to prohibited industrial projects, and strictly control land use for restricted industrial projects. Give priority to projects in sectors such as software and information services, smart grids, integrated circuits, biomedicine, intelligent manufacturing equipment, new energy vehicles, and emerging future industries, and ensure land supply for advanced manufacturing.
(2) Strictly Evaluate Land-Saving Measures for Construction Projects. During the preliminary review of land use for construction projects, strictly enforce national and provincial restricted land use catalogs, prohibited land use catalogs, and land use standards. For projects without established standards or those requiring deviations from standards due to special requirements, the planning and natural resources department, in conjunction with the competent industrial authority, shall organize a land-saving evaluation in accordance with regulations. The evaluation shall consider factors such as production processes, workflow, investment scale, and output scale to reasonably determine the land use area.
(3) Strengthen input-output constraints for industrial land use.
1. For projects within the Jiangbei New Area, Qixia District, Yuhuatai District, and Jiangning District, the total investment and investment intensity per mu shall be no less than 100 million yuan and 5.5 million yuan, respectively; output value per mu shall be no less than 8 million yuan; and tax revenue per mu shall be no less than 350,000 yuan.
2. For projects within Pukou District and Liuhe District, the total investment and investment intensity per mu shall be no less than 80 million yuan and 3.5 million yuan, respectively; the output value per mu shall be no less than 7 million yuan; and the tax revenue per mu shall be no less than 300,000 yuan.
3. For projects within Lishui District and Gaochun District, the total investment and investment intensity per mu shall be no less than 60 million yuan and 3.5 million yuan, respectively; the output value per mu shall be no less than 5 million yuan; and the tax revenue per mu shall be no less than 200,000 yuan.
On this basis, implement a land transfer model that “caps land prices and incentivizes contributions.”
(4) Explore the establishment of a soil sample repository for industrial land. Strengthen the management of soil pollution on industrial land by collecting and sealing soil samples prior to land transfer. Conduct regular soil monitoring and perform soil pollution assessments upon land withdrawal. Explore the establishment of a soil remediation guarantee mechanism and implement soil pollution remediation responsibilities in accordance with the “polluter pays” principle.
VI. Optimizing the Industrial Land Supply Model
(1) Promote the transfer of “standard plots” for industrial land.Advance work on spatial planning, land allocation quotas, land acquisition reserves, and industrial access requirements in advance. Clearly define five basic standards for industrial land—investment intensity, floor area ratio, energy consumption per unit, emissions, and tax revenue per mu—and supply “standard plots” for enterprises to select. Upon application, these plots may be converted to the land auction process at any time, achieving a “land-waits-for-projects” model. The total volume of “standard plots” should account for a certain proportion of the annual industrial land supply.
(2) Ensuring Land Quotas for Industrial Projects
1. For major municipal-level industrial projects, construction land quotas reserved by the municipal government shall provide comprehensive support. For district-level industrial projects, the municipal government shall allocate a portion of construction land quotas to each district based on the disposal of approved-but-unsupplied and idle land; the remaining portion shall be directly linked to the revitalization of low-efficiency industrial land and arranged by each district.
2. Establish a system for the temporary transfer of industrial land quotas. Where relevant districts face temporary difficulties in supplying land quotas, the municipal government shall provide temporary land quota transfers, provided that the method and timeline for repayment are clearly defined. Explore the establishment of a city-district coordination mechanism to ensure reasonable industrial land demand through multiple channels and methods.
(3) Optimize the methods of industrial land supply. Determine land transfer methods and lease terms based on the enterprise life cycle to effectively reduce enterprises’ land costs. Supply industrial and warehouse land through three methods: long-term leasing, flexible-term transfers, and “lease-to-own” arrangements. These provisions may be applied to the transfer of research and development land.
1. For land supplied through long-term leases, lease terms of 5, 10, 15, or 20 years shall be reasonably set in 5-year increments based on industrial development trends and the enterprise life cycle.
2. For land supplied through flexible-term concessions, the total concession period generally shall not exceed 30 years. Terms of 20, 25, and 30 years shall be reasonably established in increments of 5 years.
3. For land supplied through “lease-to-own” arrangements, the process is divided into two phases: leasing and transfer. The total duration of the lease and transfer generally shall not exceed 30 years. Enterprises shall first lease the land for construction and industrial operations, and complete the transfer procedures after production begins and efficiency is achieved. Within the term specified in the contract for the paid use of state-owned construction land use rights, land users may construct permanent buildings or structures upon approval by relevant authorities.
(4) Implement dual-contract management for industrial land projects.
1. For industrial land projects where the transfer area of a single plot reaches 50 mu or more, each district shall promptly submit the “Investment Development Supervision Agreement” to the municipal industrial authorities and planning and resources departments for joint review; projects that pass the review shall be reported to the municipal government in accordance with procedures. For industrial land projects where the transfer area of a single plot is less than 50 mu, the district industrial authorities and planning and resources departments shall conduct a joint review and submit the application for approval in accordance with procedures.
2. For industrial land projects involving a single plot with a concession area of 50 mu or more, the municipal industrial authorities and planning and natural resources departments shall regularly track progress and conduct on-site inspections; for industrial land projects involving a single plot with a concession area of less than 50 mu, the municipal industrial authorities and planning and natural resources departments shall establish a system of random spot checks and regular inspections for supervision.
3. After the transferee or lessee signs the “State-Owned Construction Land Use Right Grant (Lease) Contract” with the planning and natural resources department,the district government or its designated department shall, within 30 days, sign an “Investment Development Supervision Agreement” with the transferee or lessee. This agreement shall clearly stipulate industrial requirements for land use, environmental protection requirements, work safety requirements, conditions for commencement and completion of construction, input-output standards (investment intensity, output value, and tax revenue), as well as key provisions of the investment promotion agreement; it shall also specify requirements for input, output, process, and maturity assessments, as well as provisions regarding the payment of liquidated damages for breach of contract, handling of liability for breach, and exit mechanisms, and shall implement full-lifecycle supervision.
(5) Implement the “price cap and contribution-based competition” land grant model. Set a price ceiling for industrial land grants. Once bidding reaches the ceiling, the competition shall shift to a process where bidders submit projected annual tax revenue per mu. The successful bidder shall be determined based on the highest projected annual tax revenue per mu, and the projected annual tax revenue per mu shall be incorporated into the “Investment Development Supervision Agreement” for oversight.
VII. Implementation of Differentiated Land Use Policies
(1) Concession Period and Price for Major Projects. For major investment projects with a total investment of 1 billion yuan or more, as well as national strategic industrial projects, the land concession period may be set at 50 years and granted as a single, comprehensive concession following review and approval by the respective district people’s governments. Upon application by the district government, the planning and resources department may set the starting price for land concessions at no less than 70% of the minimum price standard for industrial land corresponding to the local land grade.
(2) Lease and Grant Prices for Different Supply Methods.
1. For land supplied through long-term lease, the rent payment cycle shall be every 5 years, with payment made in a single lump sum; the initial rent shall not be less than 10% of the land grant price for the statutory maximum term.
2. For land supplied through flexible-term grants, the starting grant price shall be determined by multiplying the assessed grant price for the statutory maximum term of 50 years for industrial land by the corresponding term coefficient, where the term coefficient = actual term / statutory maximum term.
3. For land supplied under a “lease-to-own” arrangement, the transfer price shall be determined by deducting the lease payments already made from the total land price agreed upon at the time of leasing.
4. Depending on the size of the land parcel, the results of the land valuation, and market conditions, the land grant price may be paid in installments. Provided that the initial payment is no less than 50% of the total grant price, the remaining balance may be paid in full within one year as stipulated in the contract.
(3) Determination of the Method and Price for Renewing Industrial Land Use Rights.
1. Upon expiration of the term specified in the industrial land lease or grant contract, if the land passes the expiration assessment and the industrial project remains consistent with industrial policy guidelines, the construction land use right may be renewed through methods such as negotiated grant or lease term extension.
2. Regarding land transfer fees or rent for renewal, if explicitly stipulated in the contract, the amount shall be determined in accordance with the agreement. If not explicitly stipulated, upon approval by the respective district government, the renewal price may be determined through a comprehensive assessment based on the original transfer fee or rent, or by combining the original transfer fee or rent with the benchmark land price for industrial land at the time of renewal.
(4) Clarify the “equal rights” of granted and leased land.
1. When processing procedures such as industrial project approval, planning permits, construction permits, and loan mortgages (transfers), land lease contracts shall have the same legal effect as land grant contracts. State-owned land use rights obtained through lease and those obtained through grant shall have equal legal effect, and real estate registration shall be processed based on the actual period of rent paid.
2. To ensure the clear demarcation of assets and the solidification of associated rights across different land supply methods, real estate constructed on land acquired through either method may be mortgaged. Buildings shall be appraised based on ownership value, while land shall be appraised based on the land value implications of the respective supply method.
(5) Encourage the construction and use of high-standard industrial buildings.
1. Large and medium-sized enterprises are encouraged to construct and use high-standard factory buildings of four stories or more equipped with industrial elevators for their own use; state-owned enterprises are encouraged to construct high-standard factory buildings; and small and micro enterprises, as well as start-ups, are encouraged to lease high-standard factory buildings to reduce land use costs.
2. Specific requirements such as total investment, investment intensity, and concession term will no longer be stipulated for high-standard factory land. For industrial land designated for high-standard factories, the starting price for land concessions may be set at a level no lower than the minimum price standard for industrial land corresponding to the local land grade.
3. Provided that the function and land use of high-standard industrial buildings remain unchanged, they may be subdivided and registered or transferred based on fixed boundaries such as individual buildings or floors, without restrictions on the proportion of the transfer. The districts and industrial parks where the projects are located shall specify eligibility criteria for transferees and exercise oversight.
(6) Strengthen the management of industrial land transfers.
1. Buildings on newly added industrial land shall be held as a whole, except for portions explicitly agreed to be transferable.For research and development land, no more than 50% of the above-ground structures (excluding ancillary facilities) may be transferred; relevant districts and industrial parks must supervise transferees and shall not permit transfers or sales to individuals. For structures on existing industrial land where division and transfer are not explicitly permitted, conditional division and transfer may be permitted—subject to approval by competent authorities such as industry and planning and resources departments—to optimize industrial support facilities, enhance industrial performance, and improve building utilization efficiency.
2. For buildings eligible for transfer, the land grant contract must clearly specify the transfer method, industrial access requirements, and exit mechanisms. The “lease-to-own” model is encouraged, whereby transfer occurs only after the lessee meets predetermined criteria regarding industrial performance, R&D investment, and other metrics.
3. Buildings transferred by the park platform may not be transferred again within five years from the date of transfer registration. If transfer is indeed necessary after five years, the park platform or an agency designated by the district government may repurchase them at the agreed-upon price on a priority basis. If the right of first refusal is waived, the buildings may be transferred to enterprises or R&D institutions that meet industrial access requirements.
4. Optimize the subdivision and transfer of surplus land. For industrial land where the original rights holder’s own needs have been met and surplus remains, if the land meets planning subdivision criteria, the district government (or industrial park) shall take the lead. After the planning and natural resources department clarifies the planning and construction conditions for the subdivided portion and the industrial authority specifies the industrial access and input-output requirements, the land may be transferred through the land transaction market via a “land-plus-industrial-project” listing method to the industrial park platform or to projects that meet industrial access requirements.
VIII. Implementation of Full Life Cycle Performance Evaluation
(1) Establish a full life-cycle performance evaluation system.
1. Performance evaluations for industrial land projects shall be conducted at various stages, including the completion stage (input evaluation), the full-production stage (output evaluation), the operational stage (process evaluation), and one year prior to the expiration of the land grant or lease term (expiration evaluation). These evaluations shall be organized and implemented in accordance with relevant laws and regulations, as well as land grant (lease) contracts and investment development supervision agreements. Research and development land may be evaluated in a similar manner.
2. For industrial land granted prior to the implementation of full-lifecycle management, when the project undergoes renovation or expansion, or when land use rights are transferred through judicial auction, a supplementary agreement shall be signed to clarify industrial performance requirements and incorporate the project into full-lifecycle management.
3. Establish an industrial park evaluation mechanism to conduct comprehensive performance evaluations of industrial parks based on indicators such as fixed asset investment intensity, industrial value-added per mu, tax revenue per mu, value-added per unit of energy consumption, and value-added per unit of emissions. The evaluation results shall serve as an important reference for the allocation of land use quotas and the granting of differentiated preferential policies.
(2) Pilot a project timeline compliance guarantee system. Based on actual project conditions, each district may implement a project timeline compliance guarantee system, with liquidated damages for timeline breaches set at a specified percentage of the land transfer price, to ensure that industrial projects commence construction, are completed, and achieve full production capacity on schedule.Penalties for delays shall be managed through a phased collection approach corresponding to stages such as commencement, completion, and full production capacity; in cases of severe breaches, the land grant contract may be terminated and the right to use the construction land revoked in accordance with the agreement.
(3) Strengthen the Application of Full Life-Cycle Performance Evaluation.
1. Upon project completion, an investment assessment shall be conducted. District governments or their designated departments shall, in accordance with the specific policies outlined in the “Guiding Opinions on Differentiated Policies for the Comprehensive Performance Evaluation of Resource-Intensive Utilization by Industrial Enterprises in Nanjing (Trial),” promptly incorporate relevant information into the comprehensive performance evaluation platform for resource-intensive utilization by industrial enterprises.Concurrently, an input assessment shall be conducted. If the fixed-asset investment intensity fails to meet the standards stipulated in the agreement, the competent industrial authority shall order the enterprise to rectify the issue within a specified timeframe, with the rectification period not exceeding six months. If the standards are still not met after rectification, the relevant clauses regarding breach of contract liability in the agreement shall be enforced.
2. After the project reaches full production capacity, an output assessment shall be conducted. If the tax revenue per mu of the project fails to meet the standards stipulated in the agreement, the competent industrial authority shall order the enterprise to rectify the issue within a specified time limit, with the rectification period not exceeding one year. If the tax revenue per mu still fails to meet the agreed standards after rectification, the enterprise shall, in principle, pay an annual penalty equal to the difference between the tax revenue stipulated in the agreement and the actual tax paid; specific enforcement shall follow the relevant clauses regarding liability for breach of contract in the agreement.
3. Once the project is in normal operation, a process evaluation shall be conducted.Periodic process evaluations shall be conducted on the project entity or investment entity regarding the project’s business model, tax revenue per mu, sales revenue per mu, tax revenue per unit of electricity consumption, sales revenue per unit of energy consumption, and tax revenue per unit of major pollutants, as committed. Differentiated policies shall be implemented based on the evaluation grade. For enterprises rated as Category C (Supervision and Regulation Category), in principle, no new construction land shall be provided; enterprises rated as Category D (Outdated and Rectification Category) shall be prohibited from participating in bidding, auction, or listing activities for industrial land.
4. A renewal assessment shall be conducted prior to the expiration of the project’s term of use. For land supplied through “lease-to-own” or long-term lease arrangements, if the land rights holder submits an application for renewal one year prior to the expiration of the lease term or industrial land use rights, an expiration assessment shall be conducted. If the assessment meets the standards and the industrial project remains consistent with industrial policy guidelines, priority shall be given to obtaining renewed construction land use rights through methods such as negotiated transfer or lease extension.If the land rights holder fails to submit a renewal application, or submits an application but fails to meet the criteria following a performance evaluation, the contract shall automatically terminate upon the expiration of the construction land lease term or usage rights, and the construction land usage rights shall be reclaimed in accordance with the law.
(4) Strengthen the construction of a full-lifecycle regulatory system. In accordance with the principle of “whoever oversees is responsible,” relevant departments at the district and municipal levels shall establish monitoring and verification mechanisms covering all stages of industrial land projects, including project approval, construction, completion acceptance, post-production verification, and renewal upon expiration, and implement a comprehensive, full-process, coordinated regulatory system.During project approval, the focus shall be on verifying whether enterprises have prepared construction plans in accordance with the standards and requirements of the “dual-contract” system. During project construction, supervision shall focus on whether enterprises strictly adhere to standards and design requirements. After project completion and full-scale production, a system of random inspections and regular checks shall be established in accordance with the “double random, one public” principle to promptly identify and eliminate potential hazards. Once projects are in normal operation, management shall be conducted based on the comprehensive performance evaluation of resource-intensive utilization by industrial enterprises.
(5) Improve the industrial land exit mechanism.
1. Establish a voluntary land exit mechanism. If, prior to the project’s agreed-upon commencement date or after reaching full production capacity, an enterprise is unable to develop, construct, or operate the project due to its own reasons, the land rights holder may apply to terminate the land grant contract. Upon the grantor’s consent, the land grant contract shall be terminated as agreed, the right to use the construction land shall be reclaimed, and the land grant payment for the remaining term shall be refunded as stipulated.
2. Strengthen the compulsory land exit mechanism. After obtaining the right to use construction land, the land rights holder shall use the land in accordance with the development and utilization conditions stipulated in the “dual contracts.”In any of the following three circumstances—(1) failure to commence construction, complete the project, or reach full production capacity on time due to reasons attributable to the enterprise (excluding force majeure), exceeding the maximum time limit specified in the contract; (2) causing severe environmental pollution during use, as determined by the ecological environment authorities; or (3) occurrence of a major safety accident during project construction or operation, as determined by the emergency management authorities—the grantor may, in accordance with the agreement, reclaim the right to use the construction land without compensation.
3. In cases of voluntary or compulsory land withdrawal, compensation for above-ground structures may be handled in accordance with prior contractual agreements, including residual value compensation, gratuitous recovery, or restoration to the original condition by the land rights holder. If withdrawal occurs upon expiration of the land use term, compensation for the residual value of the structures may be calculated based on depreciation at the highest annual rate.
(6) Strengthen credit evaluation and joint incentive and disciplinary measures. Explore the establishment of a credit evaluation system for industrial land investment projects and a system for listing entities with severe credit violations.Establish and improve credit records covering the entire project lifecycle, and request relevant departments to incorporate these records into public credit reporting systems in accordance with national, provincial, and municipal regulations, making them available for inquiry or public disclosure as required by law. Rewards and penalties shall be imposed in accordance with agreements based on project commencement, completion verification, and production capacity verification. Credit evaluation results shall serve as an important reference for enterprises to enjoy differentiated preferential policies. Joint disciplinary measures shall be taken against land-using enterprises with severe credit breaches.
IX. Intensify Efforts to Revitalize Existing Industrial Land
(1) Guide the “withdrawal of secondary industries and optimization of secondary industries” on low-efficiency industrial land.
1. For low-efficiency industrial land within industrial parks and industrial communities, encourage the comprehensive use of various methods—such as adding floors to existing factory buildings, increasing capital for technological upgrades, and carrying out renovation and improvement projects—to enhance land utilization levels. For projects that comply with relevant planning requirements and do not change land use, increases in land utilization rates and floor area ratios will not incur additional land premiums.
2. To promote enterprises’ implementation of the “retire and upgrade” initiative, each district may study and introduce relevant support measures—such as improving transitional relocation services, providing financial support, and offering guidance and assistance for renovation and development—to meet enterprise needs and unlock the potential for industrial land upgrading.
3. In principle, the redevelopment of low-efficiency industrial land within industrial parks and industrial communities shall not alter the land use designation. Where a change in land use is indeed necessary, it must be approved by the municipal industrial authorities and submitted for approval in accordance with procedures, provided that the total volume of industrial land is not reduced. For newly supplied industrial land, the land use designation shall not, in principle, be altered through the agreement-based transfer method for the redevelopment of low-efficiency urban land within ten years of the project’s transfer.
4. For industrial land projects included in the special plan and annual plan for low-efficiency land, the land and buildings may be subdivided to facilitate redevelopment.
(2) Actively explore pathways for the exit of low-efficiency land. Improve the municipal and district industrial land reserve systems; each district may designate specific areas where industrial land within those zones must undergo transformation and development through land reserve mechanisms. Encourage industrial park platforms to leverage their market advantages and pilot market-oriented buyback and exit methods, such as “exchanging high-quality properties for low-efficiency land.”
(3) Encourage the relocation and transformation of scattered industrial plots into industrial parks. For scattered industrial plots located outside industrial parks and industrial communities that must be relocated in accordance with planning and industrial policy requirements, provided they comply with national industrial policies, the original land use rights shall be reclaimed after review by the planning and resources department and approval by the municipal and district governments. Industrial land shall then be reallocated to the original land use right holders within industrial parks or industrial communities through contractual transfer or lease.
X. Establishing a Mechanism to Ensure High-Quality Utilization of Industrial Land
The municipal government shall establish a citywide Leading Group for the High-Quality Utilization of Industrial Land, with the principal leader of the municipal government serving as the group leader, and the vice mayors in charge of industry and planning and resources serving as deputy group leaders. Relevant departments, including the Municipal Bureau of Industry and Information Technology, the Bureau of Planning and Resources, the Development and Reform Commission, the Science and Technology Bureau, the Finance Bureau, the Ecology and Environment Bureau, the Commerce Bureau, the Investment Promotion Bureau, the Emergency Management Bureau, the Market Regulation Bureau, and the Tax Bureau, shall serve as member units of the Leading Group to coordinate and promote the high-quality utilization of industrial land.A joint review mechanism for the transfer of land for industrial projects across the city will be established. Led by the Vice Mayor in charge of industry and involving relevant departments such as the Municipal Bureau of Industry and Information Technology, the Municipal Bureau of Planning and Natural Resources, the Municipal Bureau of Ecology and Environment, the Municipal Bureau of Commerce, and the Municipal Investment Promotion Bureau, this mechanism will be responsible for reviewing project investors, project feasibility, industry development prospects, project output value, tax revenue, investment intensity, and compensation mechanisms for failure to meet standards.Relevant functional departments may, in accordance with their respective responsibilities and with the approval of the municipal government, incorporate regulatory provisions into land grant contracts, investment supervision agreements, and other documents. Supervision shall be carried out by the relevant departments in accordance with the principle of “whoever proposes, fulfills responsibilities, and supervises.”
For the transfer of industrial land parcels with an area of 50 mu or more, each district shall draft the project’s “Investment Development Supervision Agreement” and the industrial land transfer plan, and submit the relevant materials to the Municipal Bureau of Industry and Information Technology and the Municipal Bureau of Planning and Natural Resources, respectively. The Municipal Bureau of Industry and Information Technology and the Municipal Bureau of Planning and Natural Resources shall respectively organize reviews of the project’s “Investment Development Supervision Agreement” and the industrial land transfer plan, and submit them to the city-wide joint review mechanism for industrial project land transfers for review.The Vice Mayor in charge of industry shall convene a special meeting of the Municipal Government’s Joint Review Mechanism for Industrial Project Land Concessions to collectively deliberate on the submitted agenda items.Upon approval at the meeting, the meeting minutes, the industrial land transfer plan, and the review opinions on the industrial land project shall be submitted together to the Vice Mayor in charge of industry, the Vice Mayor in charge of planning and resources, and the principal leaders of the municipal government for signature and approval. Thereafter, the Municipal Bureau of Planning and Resources shall use the “Nanjing Municipal People’s Government Special Seal for Land Approval” to issue an official approval document in the name of the municipal government and organize the public auction in accordance with procedures.For the transfer of industrial land where the area of a single plot is less than 50 mu, each district shall formulate corresponding workflows and organize the transfer independently. These workflows shall be filed with the Municipal Bureau of Industry and Information Technology and the Municipal Bureau of Planning and Natural Resources.
The Municipal Bureau of Industry and Information Technology shall take the lead in the specific work of high-quality utilization of industrial land, comprehensively coordinate the industrial planning and layout of industrial parks, implement comprehensive performance evaluations on the intensive use of resources by industrial enterprises and parks, promote the implementation of differentiated policies, and, in conjunction with the Municipal Bureau of Planning and Natural Resources, revise the rules governing the work procedures for the transfer of industrial land. These revised rules shall be submitted to the Municipal Leading Group for the High-Quality Utilization of Industrial Land for review and approval before being issued and implemented.A dedicated industrial park management agency shall be established to oversee the full lifecycle management of industrial land, guide and promote the efficient and intensive use of industrial land, and coordinate the planning, layout, and development of industrial parks.
The Municipal Planning and Resources Bureau is responsible for formulating spatial plans for industrial land, demarcating industrial land boundaries, providing enterprises with spatial geographic information and industrial land data, and supervising and implementing industrial land concession contracts.
The Municipal Development and Reform Commission is responsible for implementing the requirements of the Industrial Structure Adjustment Guidance Catalog.
The Municipal Science and Technology Bureau is responsible for providing relevant data on enterprise R&D institutions and other related information.
The Municipal Finance Bureau is responsible for implementing national and provincial tax and fee policies regarding the acquisition and storage of existing land, and for coordinating the implementation of differentiated policies.
The Municipal Ecology and Environment Bureau is responsible for providing enterprise emission data and information on environmental violations, and for overseeing ecological and environmental access requirements for industrial projects.
The Municipal Emergency Management Bureau is responsible for providing relevant data, such as information on enterprise safety production standardization assessments and accident statistics, and for leading efforts to promote safety production in industrial projects.
The Municipal Market Regulation Bureau is responsible for participating in joint supervision of land-related equity transfers in accordance with the law.
The Municipal Taxation Bureau is responsible for providing data on corporate sales revenue and tax-related information, implementing national and provincial tax and fee policies regarding the acquisition and storage of existing land, and cooperating in the implementation of differentiated policies.
As the primary entities responsible for the high-quality utilization of industrial land, district governments must establish corresponding specialized mechanisms and designate departments or industrial park management committees to oversee specific tasks related to high-quality land utilization, including project approval, land transfer, performance evaluation, and the withdrawal of underutilized land.
The Jiangbei New Area Administrative Committee shall, in accordance with the requirements of this Implementation Plan and within its respective management authority, formulate an implementation plan for the high-quality utilization of industrial land within the directly administered area of the Jiangbei New Area. The “Contract for the Grant (Lease) of State-Owned Construction Land Use Rights” and the “Investment Development Supervision Agreement” signed after land transfer shall be submitted simultaneously to the Municipal Bureau of Industry and Information Technology and the Municipal Bureau of Planning and Natural Resources for filing.
This Implementation Plan shall take effect on the date of its issuance. The “Implementation Plan for Promoting the High-Quality Utilization of Industrial Land” (Ning Zheng Fa [2021] No. 7) issued by the Municipal People’s Government on January 12, 2021, is hereby repealed.
