上海市人民政府关于印发《上海市土地储备办法实施细则》的通知

各区、县人民政府，市政府各委、办、局：

　　现将《上海市土地储备办法实施细则》印发给你们，请按照执行。

二00四年十月二十五日

上海市土地储备办法实施细则

　　第一条　根据《上海市土地储备办法》，制定本实施细则。

　　第二条　市土地管理工作领导小组下设办公室（设在市房地资源局），负责本市土地储备计划、土地储备的日常管理和重大问题的协调。

　　第三条　由市房地资源局会同市发展改革委等有关部门编制本市土地储备三年计划，作为编制土地储备年度计划的依据。

　　第四条　本市新增经营性建设用地的供应，原则上应当从储备土地中选择，并优先列入土地利用年度计划。

　　第五条　本市的滩涂围垦，由市土地储备中心按照《上海市滩涂管理条例》以及国家和本市土地开发整理的有关规定实施。

　　滩涂围垦成陆并经验收合格的土地，由市土地储备中心实施储备。

　　第六条　市土地储备中心和区县土地储备机构联合储备土地的，除市政府另有规定外，按照下列规定确定投资比例：

　　（一）储备拟依法征收后实行出让的原农村集体所有土地的，市土地储备中心与区县土地储备机构所占比例各为50%；

　　（二）储备第（一）项以外土地的，市土地储备中心所占比例为30%，区县土地储备机构所占比例为70%.

　　市土地储备中心与区县土地储备机构经协商一致，可以对前款规定的投资比例进行适当调整。

　　市政府批准的土地储备专门机构可以在相关批准文件规定的区域范围内单独实施土地储备，或者联合市土地储备中心、区县土地储备机构实施土地储备。

　　第七条　土地储备机构应当于每年10月底前，提出下一年度的土地储备计划建议，并报送市房地资源局和市发展改革委。其中，本实施细则第六条第一款第（一）项所列土地的储备计划建议，由市土地储备中心提出、报送；本实施细则第六条第一款第（二）项所列土地的储备计划建议，由区县土地储备机构提出，经区县土地管理部门审查，并经区县政府同意后报送。

　　市房地资源局应当会同市发展改革委等有关部门根据本市国民经济和社会发展计划、土地利用年度计划以及房地产市场状况，在对报送的土地储备计划建议进行综合平衡的基础上，编制全市土地储备年度计划，并于每年11月底前，提交市土地管理工作领导小组，经市土地管理工作领导小组审核批准后分解下达。

　　第八条　土地储备机构拟实施储备的地块涉及农用地转用或者农村集体所有土地征收的，应当向市房地资源局提出申请；市房地资源局应当自受理申请之日起10个工作日内完成审核。上述地块经审核同意并列入土地储备年度计划后，土地储备机构方可按规定实施储备。

　　土地储备机构拟储备原划拨的国有建设用地的，应当持与原土地使用权人达成的收购储备意向或者与区政府指定机构签订的有关协议，向市房地资源局备案，列入土地储备年度计划后，方可按规定实施储备。

　　土地储备机构拟储备的地块在土地储备年度计划中已经确定的，不再按照前两款的规定办理审核或者备案手续。

　　列入土地储备年度计划的储备地块涉及农用地转用的，在土地利用年度计划内，优先安排其农用地转用计划指标。

　　第九条　土地储备机构确需调整土地储备年度计划实施储备的，应当经市房地资源局会同市发展改革委等有关部门审核后，报市土地管理工作领导小组批准。

　　第十条　储备地块的前期开发立项，参照本市固定资产投资项目的审批程序办理。市和区县投资主管部门应当自受理土地储备机构提交的项目建议书（代可行性研究报告）之日起10个工作日内完成审批。其中，下列储备地块的前期开发立项由市发展改革委审批：

　　（一）市土地储备中心和市政府批准的土地储备专门机构实施储备的地块；

　　（二）第六条第一款第（一）项所列土地地块。

　　土地储备机构申请储备地块的建设用地规划许可证的，市和区县规划部门应当自受理申请之日起10个工作日内，按规划管理权限审核办理。其中，储备地块有经批准的控制性编制单元规划或者控制性详细规划的，建设用地规划许可证应当载明该地块基础性建设的规划要求。

　　土地储备机构申请储备地块的建设用地批准文件的，市和区县土地管理部门应当自受理申请之日起10个工作日内，按建设用地管理权限审核办理。但储备地块涉及农用地转用或者农村集体所有土地征收的，按照法律、法规规定的程序办理。

　　第十一条　土地储备机构收购储备原划拨给企事业单位使用的国有土地的，应当持收购储备协议、列入土地储备年度计划的证明和原土地使用者的房地产权证等有关材料，向市或者区县土地管理部门申请收回原土地使用权；经批准后，由市或者区县土地管理部门注销原房地产权证。

　　土地储备机构可以持收回原土地使用权的批准文件等有关材料，向市或者区县房地产登记机构申领房地产权证。

　　第十二条　土地储备机构经规划管理部门批准，临时利用储备地块的，应当按规定向市或者区县土地管理部门办理相关用地手续。

　　第十三条　本市建立统一的土地储备信息库，对土地储备实行动态、全程管理。

　　土地储备机构应当按照土地储备信息统计制度的要求，将储备地块的基本情况、前期开发情况和临时利用情况等，定期报送市房地资源局。

　　第十四条　按批准的投资、规划、建设要求实施基础性建设的储备地块，经市或者区县土地管理部门会同规划等有关部门验收合格后，方可按土地供应计划交付供应。

　　第十五条　储备地块交付供应时，土地储备机构应当按照本市土地使用权出让招标拍卖的有关规定，配合市或者区县土地管理部门做好向规划、投资、环保等有关部门书面征询意见，编制招标拍卖文件，组织现场踏勘，接受地块情况咨询等前期准备工作。

　　第十六条　市和区县土地管理部门应当定期检查土地储备年度计划的执行情况。

　　市发展改革委、市财政局和市房地资源局应当定期检查土地储备专项资金的使用情况。

　　财政、审计部门应当定期对土地储备的成本、开支以及土地储备机构的财务状况进行核查、审计。

　　规划、土地管理部门应当定期对储备地块的临时利用情况进行检查。

　　第十七条　土地储备机构应当定期将机构的基本情况、变更情况等向市房地资源局报告；有重大变动事项的，应当及时报告。

　　第十八条　本市土地储备专项资金管理办法，由市发展改革委、市财政局和市房地资源局另行制订。

　　第十九条　本实施细则自印发之日起施行。

Detailed¹ Implementation² Rules of the Procedures of Shanghai Municipality on Land Reserve

　　Article 1 These Detailed Implementation Rules are formulated⁴ on the basis of the"Procedures of Shanghai Municipality on Land Reserve".

　　Article 2 An office shall be set up under the Municipal Leading Group of Land Administration （located at the Municipal Housing, Land and Resources Administration） to take charge of the day-to-day administration of land reserve plans and reserved land and the coordination⁵ of important issues in this Municipality.

　　Article 3 The Municipal Housing, Land and Resources Administration, jointly⁶ with the Municipal Development and Reform Commission and other relevant departments, shall formulate³ a three-year land reserve plan of this Municipality as the basis for the drawing-up of annual land reserve plans.

　　Article 4 The supply of newly-increased land for construction purposes of a business nature in this Municipality shall in principle be selected from the reserved land, and listed in the annual land use plan as a priority. Article 5

　　The reclamation⁷ of land from mudflats in this Municipality shall be carried out by the Municipal Land Reserve Center according to the"Procedures of Shanghai Municipality on the Administration of Mudflats"and relevant provisions of the State and this Municipality on land development and improvement.

　　Land reclaimed⁸ from mudflats, upon passing the acceptance test, shall be reserved by the Municipal Land Reserve Center.

　　Article 6 In case the Municipal Land Reserve Center reserves the land jointly with the district/county land reserve organs, the investment ratio shall be determined⁹ in accordance with the following provisions, unless otherwise provided by the Municipal People's Government:

　　1. In case of reserving the land originally owned by rural collectives for sale after requisitioning according to law, the proportions for the Municipal Land Reserve Center and the district/county land reserve organs shall be 50% respectively.

　　2. In case of reserving the land other than what is provided in Item 1, the proportion for the Municipal Land Reserve Center shall be 30%, while the proportion for the district/county land reserves organs 70%.

　　The Municipal Land Reserve Center and the district/county land reserve organs may make appropriate adjustments to the investment ratio provided in the preceding clause, upon reaching agreement through consultations¹⁰.

　　Specialized¹¹ land reserve organs approved by the Municipal People's Government may, on their own, reserve land in those areas provided in relevant approval documents, or cooperate with the Municipal Land Reserve Center and district/county land reserve organs in reserving land

　　Article 7 Land reserve organs shall, before the end of October each year, put forward their proposals on land reserve plans for the next year, and submit them to the Municipal Housing, Land and Resources Administration and the Municipal Development and Reform Commission. In particular, proposals on reserve plans for land provided in Item 1, Clause 1 of Article 6 of these Detailed Implementation Rules shall be put forward and submitted by the Municipal Land Reserve Center; proposals on reserve plans for land provided in Item 2, Clause 1 of Article 6 of these Detailed Implementation Rules shall be put forward by the district/county land reserve organs and submitted upon examination by the district/county land administrative¹² departments and approval by the district/county governments.

　　The Municipal Housing, Land and Resources Administration shall, jointly with the Municipal Development and Reform Commission and other relevant departments, formulate the annual land reserve plan of this Municipality, in accordance with the national economic and social development plan and the annual land-use plan of this Municipality, and in the light of the conditions of the real estate market of this Municipality, subject to a comprehensive balancing of the proposals on the land reserve plans submitted . The annual plan shall be submitted to the Municipal Leading Group of Land Administration before the end of November each year and transmitted in a disaggregated form to the lower levels upon examination and approval by the Municipal Leading Group of Land Administration.

　　Article 8 Where the land lot to be reserved by a land reserve organ involves the use of farm land for other purposes or the requisitioning of rural collective-owned land, the land reserve organ shall file an application to the Municipal Housing, Land and Resources Administration, which shall complete the examination and verification process within 10 working days from the date of accepting the application. The above-mentioned land lot shall be examined, approved and listed in the annual land reserve plan before it can be reserved by the land reserve organ according to relevant provisions.

　　In case a land reserve organ proposes to reserve state-owned land originally allocated¹³ for construction-purpose, it shall file with the Municipal Housing, Land and Resources Administration by presenting a letter of intention to purchase and reserve land reached with the original owner of the land use right, or relevant agreements signed with an organization designated by the district government, and the land shall be listed in the annual land reserve plan before it can be reserved according to relevant provisions.

　　In case the land lot to be reserved by the land reserve organ has already been identified in the annual land reserve plan, the formalities of examination and approval or of filing, as provided in the preceding two clauses, may not be performed.

　　In case the reserve land lot listed in the annual land reserve plan involves the use of farmland for other purposes, it shall be given the priority in the allocation of planned quotas¹⁴ for the use of farmland for other purposes under the annual land use plan.

　　Article 9 Where it is proved to be necessary for a land reserve organ to make adjustments to the annual land reserve plan for the purpose of reserving land, the land reserve organ shall report them to the Municipal Leading Group of Land Administration for approval, upon examination and verification by the Municipal Housing, Land and Resources Administration, jointly with the Municipal Development and Reform Commission and other relevant departments.

　　Article 10 The application for approval of the initial development project of a reserved land lot shall be handled by referring to the examination and approval procedure of this Municipality for fixed-assets investment projects. Competent municipal and district/county investment administrative departments shall complete the examination and approval process within 10 working days from the date of accepting the project proposal （substitute for a feasibility study） submitted by the land reserve organ. The application for approval of the initial development project of the following reserved land lots shall be examined and approved by the Municipal Development and Reform Commission:

　　1. Land lots reserved by specialized land reserve organs approved by the Municipal Land Reserve Center and the Municipal People's Government;

　　2. Land lots listed in Item 1, Clause 1 of Article 6.

　　Applications by land reserve organs for permits to plan the use of reserved land lots for construction purpose shall be examined and processed by the municipal and district/county planning departments according to their terms of reference for planning administration, within 10 working days from the date of accepting the applications. In case a reserved land lot is subject to an approved controlled formulation-unit plan or controlled detailed plan, the permit to plan land use for construction purpose shall specify¹⁵ the planning requirements for infrastructure¹⁶ construction of the said land lot.

　　Applications by land reserve organs for approval documents to use reserved land lots for construction purpose shall be examined and processed by the municipal and district/county land administrative departments according to their terms of reference for the administration of land use for construction purpose within 10 working days from the date of accepting the applications. But where the reserved land lot involves the use of farmland for other purposes or the requisition of rural collective-owned land, procedures provided by laws and regulations shall apply.

　　Article 11 In case a land reserve organ purchases and reserves state-owned land originally allocated to enterprises or institutions for their own use, the land reserve organ shall apply to the municipal or district/county land administrative departments for the revocation¹⁷ of the original land use right by presenting the purchase and reserve agreement, the certificate of being listed in the annual land reserve plan, the real estate title deed of the original land user and other relevant materials. Upon approval, the municipal or district/county land administrative departments shall nullify the original real estate title deed.

　　The land reserve organ may apply to the municipal or district/county real estate registration¹⁸ organs for the real estate title deed by presenting the approval document for the revocation of the original land use right and other relevant materials.

　　Article 12 Land reserve organs that temporarily use reserved land lots with the approval of planning administrative departments shall perform proper formalities for land use with the municipal or district/county land administrative departments as required.

　　Article 13 This Municipality shall establish a unified¹⁹ land reserve information database and subject land reserve to dynamic and whole-process administration. .

　　Land reserve organs shall, in accordance with the requirements of the statistics system of land reserve information, report regularly to the Municipal Housing, Land and Resources Administration on the basic conditions, initial development status and temporary use of reserved land lots.

　　Article 14 Reserved land lots where infrastructure is constructed in accordance with approved requirements for investment, planning and construction shall pass the acceptance check-up carried out by the municipal or district/county land administration departments jointly with the planning and other relevant departments before they can be made available for supply purpose in accordance with the land supply plan.

　　Article 15 When making a reserved land lot available for supply purpose, the land reserve organs shall, according to relevant provisions of this Municipality on bidding or auctioning²⁰ for the transfer of land use right, cooperate with the municipal or district/county land administrative departments in making initial preparations, such as soliciting²¹ written opinions from the planning, investment, environmental protection and other relevant departments, drawing up bidding or auctioning documents, organizing on-the-spot surveys, and responding to enquiries on the conditions of the land lots.

　　Article 16 The municipal and district/county land administrative departments shall regularly check up on the implementation of the annual land reserve plan.

　　The Municipal Development and Reform Commission, the Municipal Finance Bureau and the Municipal Housing, Land and Resources Administration shall regularly check up on the use of the special funds for land reserve.

　　The finance and auditing²³ departments shall regularly verify, examine and audit²² the cost and expenditure²⁴ of land reserve and the financial status of the land reserve organs.

　　The planning and land administrative departments shall regularly check up on the temporary use of reserved land lots.

　　Article 17 Land reserve organs shall regularly report to the Municipal Housing, Land and Resources Administration on their own basic conditions and changes; in case of any major changes, they shall submit timely reports thereupon.

　　Article 18 The procedures for the administration of the special funds for land reserve in this Municipality shall be formulated later on by the Municipal Development and Reform Commission, the Municipal Finance Bureau and the Municipal Housing, Land and Resources Administration.

　　Article 19 These Detailed Implementation Rules shall become effective on the date of printing and distributing

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