In order to implement the spirit of the 20th National Congress of the Communist Party of China and the second and third plenary sessions of the 20th Central Committee, implement the "Opinions of the General Office of the Central Committee of the Communist Party of China and the General Office of the State Council on Comprehensively Strengthening Resource Conservation," comprehensively promote the rational development and utilization of urban underground space, fully tap the potential of underground space resources, improve the accuracy and utilization efficiency of land element allocation, enable advantageous regions to have greater development space, enhance the city's comprehensive carrying capacity, and promote high-quality economic and social development, the following opinions are put forward to further explore and promote the development and utilization of urban underground space.

　　I. General Requirements

　　The promotion of rational development and utilization of urban underground space should be guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, with the goal of promoting the optimized allocation and efficient utilization of urban underground space resources, refining land management policy units, strengthening planning guidance, optimizing the supply system, strengthening property rights protection, and improving monitoring and supervision, establishing and improving a policy system for the development and utilization of urban underground space, exploring and promoting the orderly development and utilization of urban underground space, and providing spatial support and element guarantees for high-quality economic and social development. The development and utilization of urban underground space should follow the following principles:

　　Develop in a planned and orderly manner according to local conditions. The development and utilization of urban underground space should be adapted to the stage of urban development, functional positioning, and spatial layout, fully considering natural environmental conditions such as geology and hydrology, and requirements for environmental protection, cultural relic protection, flood control, drainage, and earthquake resistance, minimizing the risk of natural disasters, clarifying the areas that can be developed and utilized and the areas that are restricted or prohibited from development and utilization, and reasonably determining the development and utilization sequence.

　　Unified planning and classified guidance. Underground space should be planned in coordination with surface and above-ground space, coordinating related plans such as civil air defense, transportation, flood control, and drainage, handling neighboring relationships, clarifying access requirements and implementing classified guidance on the premise of fully considering safety. According to needs, establish the right to use state-owned construction land and servitudes for underground space according to law, and strengthen the supervision of the entire process of plan implementation.

　　Public priority and composite utilization. Adhering to putting public interests first in the development and utilization of underground space, strengthening the requirements for urban underground space safety and resilience construction, serving the people's livelihood, dual-use in peace and emergency, and military-civilian integration, implementing vertical layered three-dimensional integrated development and horizontal spatial connectivity development, adhering to safety and environmental protection, and promoting composite utilization. Government guidance and market operation. Strengthen government guidance, optimize incentive and support policies, pay attention to giving play to the role of market allocation of resources, and guide operating entities to participate in the development and utilization of underground space.

　　Within about 5 years, promote the further improvement of the urban underground space planning system, the more complete development and utilization policy system, the continued expansion of the scale of development and utilization, the safer development and utilization process, and the continuous improvement of national land spatial security capacity in key cities with natural conditions for underground space development and utilization, and large development and utilization needs and high management levels, providing better element guarantees for high-quality economic and social development and high-level security.

　　II. Strengthen the overall planning and guidance of urban underground space

　　(1) Carry out comprehensive surveys and evaluations of urban underground space resources. All localities should conduct comprehensive surveys of underground space resources according to unified standards and requirements and dynamically update them. Establish a technical and standard system for underground space resource surveys, fully utilize new technologies and methods such as remote sensing, geophysical exploration, Internet of Things perception, and ground digital surveys, strengthen urban geological basic surveys, understand the urban geological conditions and the distribution of earthquake active faults, establish a three-dimensional geological and seismic active tectonic model, and prevent and induce urban geological disasters. Strengthen the investigation, monitoring, and impact analysis of regional groundwater level changes. Clarify the utilization status, ownership, and distribution of cultural relics of existing municipal facilities, civil air defense projects, and other buildings and structures in urban underground space. Construct a comprehensive evaluation system for underground space, based on a full-element index system for underground space, scientifically evaluate the resource and environmental carrying capacity of underground space, the characteristics of natural disaster impacts, and the suitability and safety risks of underground space development, clarify the scale, quality, and three-dimensional spatial layout of usable resources, and lay the foundation for scientific development and utilization.

　　(2) Accelerate the compilation of related national land spatial plans. All localities should, in accordance with the main functional positioning and combined with urban development needs, fully consider the carrying capacity of underground space, the impact of disasters, natural conditions such as geology and hydrology, and humanistic conditions such as cultural relics and historical sites, put forward urban underground space development goals, seismic fortification requirements, layout guidance, key areas, and control requirements for coordination and connectivity in the overall national land spatial plan (hereinafter referred to as the overall plan), and take safety, environmental protection, and sustainable utilization as prerequisites to delineate underground space protection and utilization control zones, put forward differentiated control and guidance measures, and strengthen the safety resilience of underground space development. Carry out the compilation of relevant specialized plans for the development and utilization of urban underground space according to local conditions. The relevant achievements should be incorporated into the detailed national land spatial plan (hereinafter referred to as the detailed plan), and the development and utilization of underground space involved in other specialized plans should be coordinated. For the underground space planned for development and utilization, the detailed plan should clearly define the planning control indicators and requirements for underground development functions and facilities, development intensity, development depth, development boundaries, construction scale, etc., put forward the requirements for connected areas and connection methods that meet safety requirements, as well as the requirements for the composite utilization and functional coordination of above-ground and underground spaces, and put forward control requirements for underground municipal facility security, and coordinate the planning of non-synchronous construction contents. Encourage advantageous regions, urban agglomerations, metropolitan areas, and areas with net population inflow to give priority to compiling urban underground space plans.

　　(3) Explore the composite utilization of urban above-ground and underground space. Closely combining the construction of "dual-use in peace and emergency" public infrastructure, the redevelopment of inefficient urban land, and the revitalization and utilization of existing land resources, taking into account the layout of key infrastructure construction projects such as rail transit, exploring the layered planning of urban space and the composite utilization of resources, and promoting the optimization of urban functional layout and the coordination of above-ground and underground space. Encourage the construction of underground public parking facilities in urban green spaces, squares, and bus stations that meet safety standards and comprehensive transportation planning requirements. Underground space construction projects should avoid immovable cultural relics and their protection areas as much as possible.

　　III. Improve the urban underground space construction land supply policy system

　　(1) Clarify the access requirements for underground space. Underground space should scientifically and rationally lay out urban infrastructure and public utilities such as underground transportation, emergency disaster prevention, civil air defense projects, comprehensive corridors, and environmental protection, encourage the rational layout of projects such as commercial, warehousing, and logistics facilities, and prohibit the layout of residential, school, childcare, and elderly care projects. Local governments should clarify the control depth of urban underground space and reserve space for the construction of underground transportation and other public facilities. For major national and provincial projects that need to use deep underground space for construction, support local governments to explore the establishment of the right to use state-owned underground construction land for development and construction without changing the current situation and type of land use on the surface.

　　(2) Standardize the supply methods of underground space. The supply of state-owned construction land for underground space shall be handled in accordance with the methods and procedures for the supply of state-owned construction land on the surface. However, in the following cases, the negotiated transfer (lease) method can be used for supply:

　　 1. Underground space projects developed and constructed by the user of state-owned construction land on the surface;

　 2. Commercial underground space that is constructed simultaneously with urban underground public transportation facilities and cannot be implemented separately;

　 3. Underground corridors within and between land parcels;

　　 4. Other situations that meet the requirements for negotiated transfer (lease).

　　The land use term for land supplied through transfer should be reasonably determined in accordance with the land use, planning implementation requirements, and the relationship with the surface state-owned construction land use rights.

　　(3) Implement differentiated land price support policies. For state-owned construction land use rights in underground spaces acquired through transfer or lease, the land transfer price (rent) is calculated layer by layer. Local governments can determine the price of state-owned construction land use rights in underground spaces based on local benchmark land prices and actual real estate transactions, and implement a preferential policy of downward land price reduction, fully considering cost differences. Except where otherwise stipulated locally, land transfer payments (rent) for underground levels three and below may be reduced or exempted.

　　No land price will be charged for underground spaces where state-owned construction land use rights have been established on the surface and are supplied through allocation and developed independently. For the utilization of underground spaces in public management and public service land, parks and green spaces, the construction of non-profit underground parking facilities providing public services to the society may not be charged land price, but underground parking spaces may not be divided and sold or sold through leasing.

　　IV. Standardize the planning and management of urban underground space construction projects

　　(1) Standardize planning permission management. For engineering construction using underground space, planning permission should be handled in accordance with the relevant provisions of the "Urban and Rural Planning Law of the People's Republic of China". For separately established state-owned construction land use rights in underground space, planning permission procedures can be handled separately from the surface space. Before land supply is implemented, the land use should be clarified and planning conditions should be proposed based on the detailed plan, including the location, spatial boundary, underground depth, construction scale, use nature, supporting construction requirements, and connection methods of the underground space. For detailed plans that do not clearly define the planning control indicators and requirements for the development and utilization of underground space, planning research should be organized and carried out in a timely manner before land supply is implemented, based on the overall plan and relevant special plans, to determine the planning requirements for underground space, incorporate them into the detailed plan, and propose clear planning conditions and development and construction requirements based on the detailed plan. Underground space engineering construction should comply with the layout requirements and engineering technical standards of public fire protection facilities, flood control, drainage and seepage prevention facilities as stipulated by law; if it involves the scope of cultural relic protection and construction control areas, the opinions of the cultural relic administrative department should be sought in accordance with the law.

　　(2) Optimize planning permission procedures. For state-owned construction land use rights in underground space allocated through allocation, the construction land planning permit and the decision on the allocation of state-owned construction land can be issued simultaneously; for those allocated through transfer (lease), the construction land planning permit can be issued after the transfer (lease) contract is signed. If the construction project design scheme complies with the detailed plan and planning conditions, the construction project planning permit shall be issued in accordance with the law.

　　V. Improve the property rights management of urban underground space

　　(1) Standardize the registration of underground space real estate. The registration of underground space construction land use rights is based on the real estate unit as the basic unit, and its scope is determined by the horizontal projection coordinates, vertical starting and ending elevations, and maximum horizontal projection area stated in the decision on the allocation of state-owned construction land, the paid use contract and its attached drawings, and real estate registration is carried out in accordance with the law and regulations. Areas with conditions are encouraged to explore the implementation of three-dimensional land registration management.

　　 1. For underground spaces supplied as a whole together with the surface state-owned construction land use rights, the land right type continues to be registered as state-owned construction land use rights, and the right setting method is registered as surface.

　 2. For separately established underground space state-owned construction land use rights, the land right type is registered as state-owned construction land use rights, and the right setting method is registered as underground.

　 3. For the construction of buildings using underground space state-owned construction land use rights in accordance with the law, registration shall be handled in accordance with the provisions on the separate ownership of buildings, and the area of underground space state-owned construction land use rights shall not be allocated in principle; if allocation is required, it shall be allocated according to the building area of the underground space.

　　(2) Promote the improvement of relevant procedures for completed underground spaces. For completed underground space state-owned construction land use rights that have passed completion acceptance and comply with the detailed plan, relevant land procedures shall be improved in accordance with the law. Among them, those that meet the catalog of allocated land shall have their procedures supplemented in accordance with the allocation method; those that do not meet the catalog of allocated land may have their procedures supplemented in accordance with the agreement transfer method. For the supplementary handling of underground space state-owned construction land use rights through transfer, the setting of the transfer start and end dates shall follow the agreement in the original contract. If there is no agreement, it shall be calculated from the date of issuance of the construction permit, and the termination date shall not exceed the maximum transfer term corresponding to the determined use category, and shall be linked to the remaining term of the surface state-owned construction land use rights, and included in the contract or supplementary agreement.

　　(3) Clarify the rights and powers of underground space construction land use rights. The state-owned construction land use rights of urban underground space are established upon registration, and the construction land use rights and building (structure) ownership involved shall be registered as real estate in accordance with the law, and can be transferred, leased and mortgaged in accordance with the law.

　　VI. Guarantee Mechanism

　　(1) Strengthen organizational leadership. Local natural resources authorities should strengthen coordination with relevant government departments and jointly promote the planning, implementation, and development and utilization of underground space resources according to their respective functions. Where conditions permit, relevant local regulations and standards can be formulated or revised in accordance with local conditions.

　　(2) Improve the supervision mechanism. Strengthen the requirements for safety bottom lines, strictly implement planning conditions, and no unit or individual may arbitrarily change the use function, planning conditions, and land use of underground space without approval. Strengthen the dynamic supervision of contract performance to ensure development and utilization in accordance with regulations and agreements. Strengthen supervision coordination, establish a mechanism for sharing supervision information, and promote the formation of a joint supervision force.

　　(3) Strengthen information technology support. Establish and improve the mechanism for collecting, querying, and updating underground space data information. The current base map, comprehensive resource evaluation, planning data, approval supply, planning permission, and planning verification information of underground space should be timely incorporated into the "One Map" implementation supervision information system of national land spatial planning.

Ministry of Natural Resources