Promote High Quality Development in Resource-based Regions "14th Five-Year Plan" Implementation Plan

Resource-based areas are special types of areas developed by mining and processing natural resources such as local minerals and forests. Promoting the high-quality development of resource-based regions is an important guarantee for safeguarding national resource and energy security, an important link in improving the regional coordinated development system and mechanism, and an important measure to accelerate the shortcomings of transformation and development. 

In order to implement the decisions and deployments of the Party Central Committee and the State Council, and promote high-quality development in resource-based areas during the 14th Five-Year Plan period, the following implementation plans are proposed.

1. General Requirements

(1) Guiding Ideology

Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, thoroughly implement the spirit of the 19th National Congress of the Communist Party of China and the 2nd, 3rd, 4th, and 5th Plenary Sessions of the 19th National Congress of the Communist Party of China. Complete, accurate and comprehensive implementation of the new development concept, build a new development pattern, promote high-quality development, take the deepening of supply-side structural reforms as the main line, reform and innovation as the fundamental driving force, and meet the people’s growing needs for a better life as the fundamental goal. Adhere to the system concept, better coordinate development and safety, promote the high-quality development of resource-based regions, focus on stimulating innovation vitality, focus on improving systems and mechanisms, focus on consolidating the foundation for transformation, focus on making up for shortcomings in people's livelihood, and accelerate the formation of strong endogenous power and people’s livelihood A new situation of high-quality development with a happy, beautiful ecological environment.

(2) Basic Principles

Respect the law and accelerate the transformation. Scientifically grasp the natural law of non-renewable mineral resources, follow the economic law of the phased evolution and development of resource-based regions, effectively integrate various production factors, improve the efficiency of factor allocation, actively adjust and optimize the economic structure, and promote the accelerated transformation and upgrading of resource-based regions and sustainable health develop.

Policy is implemented according to local conditions. Fully consider the differences in the development level, resource conditions and factor endowments of various resource-based regions, give full play to the comparative advantages of various regions, clarify the transformation direction and development focus, formulate policies and measures accurately according to local conditions, and explore new paths for transformation and development with their own characteristics.

The market is led by the government and guided by the government. Give full play to the decisive role of the market in the allocation of resources, stimulate the vitality of market players, and accelerate the establishment of a high-standard market system that is unified and open, orderly competition, complete systems, and perfect governance. Give better play to the role of the government, strengthen government guidance, continue to optimize the business environment, and actively create a good policy environment.

Do your best, do what you can. Based on the objective reality of the development of resource-based regions, fully mobilize the polarity and creativity of all parties, adhere to the problem-oriented and goal-oriented, focus on the outstanding shortcomings and weak links of economic and social development, scientifically and rationally determine the transformation goals, construction scale and people's livelihood standards, and steadily improve the transformation effectiveness.

(3) Main Objectives

By 2025, resource-based regions will have a significant increase in the security of resources and energy, their economic development potential will be fully utilized, a modern industrial system led by innovation, accelerated transformation, and diversified support will be basically established. The well-being continues to improve. Looking forward to 2035, the high-quality development goals of resource-based regions with strong resource guarantees, vibrant economy, beautiful ecological environment, and people's well-being will be basically achieved, and socialist modernization will basically be realized in step with the whole country.

2. Ensuring National Resource And Energy Security

(4) Coordinate the Development And Protection of Resources And Energy

Strengthen the unified planning for the investigation, evaluation, exploration, development and utilization of strategic mineral resources, establish a safe and reliable resource and energy reserve, supply and guarantee system, and improve the adaptability of the resource and energy supply system to domestic demand. In accordance with the characteristics of the resource and environment of resource-based regions, strengthen the land and space planning and use control, implement the permanent basic farmland, ecological protection red line, urban development boundary and other spatial control boundaries to ensure the orderly development, utilization and protection of resources and energy.

(5) Improve the Level of Resource and Energy Utilization

Improve the recovery rate, beneficiation recovery rate and comprehensive utilization level of important mineral resources, and establish a scientific and reasonable recycling model. Vigorously promote the construction of green mines, intensify the transformation and upgrading of existing mines, and all new and expanded mines meet the standard requirements. Promote the development of strategic mineral resources and the coupled development of downstream industries, support resource-based enterprises in the transformation and upgrading of low-carbon, green, and intelligent technologies, and coordinate and orderly achieve carbon peak and carbon neutral work.

(6) Strengthening the Construction of Resources and Energy Security Capabilities

Based on resource endowments, development and utilization, etc., lay out a number of energy resource bases and nationally planned mining areas to create a core area for the stable supply of strategic mineral resources. Implement the mineral reserve project and build a strategic mineral resource reserve system that combines products, production capacity and origin. Intensify the exploration of strategic mineral resources such as petroleum, natural gas, copper, chromium, tungsten, rare earth, and crystalline graphite, and do a good job in the strategic continuation of important mineral resources.

3. Guide the Innovation and Development of Resource-Based Regions

(7) Enhance Scientific and Technological Innovation Capabilities

Guide resource-based regions to vigorously promote scientific and technological innovation, create a more open, fair, and flexible environment for innovation and entrepreneurship, introduce and train a group of innovative skilled talents and teams, and complement the technical and talent shortcomings of transformation and development. Strengthen the main position of enterprise innovation, integrate various innovative resources, strengthen the research and development of key technologies and major equipment such as resource and energy exploitation and utilization, and improve the level of innovation and development of the industry. Centering on common technology research and development, engineering demonstration and industrial development, encourage cross-regional and cross-industry innovation cooperation, explore the formation of multi-subject, diversified and multi-directional innovation drivers new path of dynamic development.

(8) Speed Up the Conversion of New and Old Kinetic Energy

Relying on national and provincial laboratories, industrial innovation centers, engineering research centers, etc., establish a characteristic innovation and entrepreneurship platform to further enhance the technological research and achievement transformation capabilities of key core technologies and key products. Accelerate the construction of new infrastructure such as 5G, cloud computing, and big data centers, encourage the development of a new generation of information technology, artificial intelligence, integrated circuits, high-end equipment, new materials, the Internet of Things, biomedicine and other industries, and promote the integrated development of new technologies and traditional industries. Support traditional resource-based enterprises to build smart factories and smart parks.

(9) Enhance the Competitiveness of the Industrial Chain Supply Chain

Strengthen the connection between the innovation chain and the industrial chain, continue to explore and consolidate and enhance comparative advantages, actively develop equipment manufacturing, fine chemicals, new energy and other industries, enhance the innovation capabilities and added value of the industrial chain, and cultivate a number of emerging pillar industries. Encourage resource-based regions to actively integrate into the global supply chain, and support to accelerate the construction of an autonomous, controllable, safe and efficient resource and energy supply chain system.

4. Promote the Coordinated Development of Resource-Based Regions

(10) Promote Regional Coordinated Development

Support resource-based regions to actively integrate into the coordinated development of the Beijing-Tianjin-Hebei region, the development of the Yangtze River Economic Belt, the construction of the Guangdong-Hong Kong-Macao Greater Bay Area, the integrated development of the Yangtze River Delta, the ecological protection and high-quality development of the Yellow River Basin and other major regional development strategies. In accordance with the national strategic orientation and development priorities, fully consider the carrying capacity of resources and environment and comparative advantages, promote cooperation between resource-based regions and surrounding central cities and provincial capitals, connect advanced production factors and innovative resources, and promote the flow of production factors such as capital, talents, and technology , Strengthen the construction of cross-regional industrial cooperation parks, explore the development model of "enclave economy", and optimize the spatial layout of industries and cities and towns.

(11) Guiding the Transformation and Development of Resource-Rich Regions

Strengthen the construction of on-site transformation capacity in resource-rich areas, and encourage places with industrial foundation and technological advantages to carry out intensive processing of resources. Improve the technology and comprehensive integration level of resource-based industries, promote the transformation and upgrading of traditional industries, accelerate the development of new materials, new energy, energy saving and environmental protection, high-end equipment manufacturing and other strategic emerging industries that are closely related to the deep processing of resources, and support the development of modern

Production service industries such as logistics, financial services, engineering design, and management consulting will build a diversified industrial system driven by deep processing of resources. Promote the coordinated development of resource development, new-type urbanization and ecological protection, and improve mechanisms for supporting emerging industries and benefit distribution and sharing.

(12) Support the Sustainable Development of Resource-Exhausted Areas

The transformation and development of resource-exhausted areas must first solve people’s livelihood issues, protect the lives of the people in need, improve infrastructure and basic public services, and raise the level of people’s livelihood security. Strengthen the responsibility of state-owned enterprises to support the transformation of resource-exhausted areas, and continue to increase investment. Vigorously cultivate replacement industries, support the development of labor-intensive enterprises and small, medium and micro enterprises, and create a number of replacement industrial parks and clusters. In-depth implementation of the comprehensive treatment project of coal mining subsidence area and the transformation and upgrading project of independent industrial and mining areas, and support the development of projects such as the risk-avoidance relocation of residents in major safety hazard areas, ecological restoration and environmental remediation, infrastructure and public service facilities, and continued alternative industry platforms, which are effective Improve production and living conditions in mining areas.

(13) Strengthening the Quality and Efficiency of Infrastructure

Strengthen the planning and construction of trunk routes for resource and energy development, and strengthen the construction of related connecting passages in resource-based areas. Promote the construction of special transportation lines for coal, ore, and oil in an orderly manner, and coordinate the layout of freight hub stations in various ways. Accelerate the interconnection of transportation facilities between the mining area and the city where it belongs. Support areas with conditions to speed up the construction of airports and railways, promote the reconstruction and expansion of passenger stations, or relocate and build new ones, and effectively improve the travel conditions of the masses.

5. Promote Green Development in Resource-Based Regions

(14) Carry Out Comprehensive Management of the Ecological Environment

Strictly implement various ecological protection and pollution prevention measures related to resource mining, insist on mining and governance, and simultaneously restore and control vegetation damage, soil erosion, mining subsidence, land salinization, water level subsidence, heavy metal pollution, etc. caused by resource mining. Environmental issues, prevent potential pollution risks in closed pit mines. According to the "who destroys, who manages", "who repairs, who benefits" Principles, implement the main responsibilities of enterprises and local governments, explore third-party governance models, and speed up the resolution of historical problems left over from industrial and mining wastelands, waste rocks, tailings ponds, and extra-large open-pit mines. Strengthen forest management and protection, accelerate the cultivation and restoration of forest resources, and implement key forest and grass projects such as natural forest resource protection, returning farmland to forests and grasslands, and desertification control according to local conditions.

(15) Accelerate the Formation of Green Production Methods

Promote the green development of resources and energy, adhere to scientific exploration, orderly mining, clean production, and efficient utilization, increase the comprehensive evaluation of mineral resource reserves, development potential and ecological environment impact, rationally regulate the scale, timing and intensity of mining, and fully implement ecological protection Red line, environmental quality bottom line, resource utilization online and ecological environment access list. Promote green manufacturing in the continuation industry, promote clean production processes, technologies and production equipment, promote the conservation and intensive use of water resources, and raise the level of clean production in traditional high-consumption and high-emission industries. Encourage waste reduction, resources based utilization and harmless disposal to promote the cascade utilization and efficient output of raw materials and energy. Strictly implement environmental access and emission standards for key industries, and resolutely eliminate backward and excess production capacity.

(16) Building an Ecologically Livable Environment

Coordinate the development of underground resources and energy and the development of above-ground cities and towns, guide existing development projects to withdraw from the main urban area in an orderly manner, timely repair the ecological environment damaged by the exploitation of resources and energy, and optimize the layout of production, living, and ecological space. Protect the natural landscape and historical and cultural features of urban and rural areas, and promote the construction of urban greenways and ecological corridors. Vigorously promote urban renewal and transformation, and build a livable environment with pleasant environment, convenient travel, comfortable life, safe and resilient. Cultivate and practice a green culture, advocate a simple and moderate, green and low-carbon lifestyle, and create a batch of green cities.

6. Accelerate the Opening Up And Development of Resource-Based Regions

(17) Actively Participate in International Resource, Energy and Industrial Cooperation

Based on domestic demand, encourage resource-based regions to actively participate in the coordinated promotion of the integrated development of international and domestic resources and energy markets, and foster cross-border resource and energy trade industries. Encourage enterprises to conduct market-oriented international cooperation in resources and energy, and build overseas resources and energy development bases. Actively participate in the high-quality co-construction of the "Belt and Road", and drive mining machinery, chemical equipment, environmental protection equipment and specialty agricultural products to the international market. Promote international cooperation and exchanges between enterprises and research institutions in resource-based regions.

(18) Improve the Opening-Up Level Of Resource-Based Regions

Further optimize the business environment, deepen the reform of "delegating control and service", create a good market environment, and reduce the cost of institutional transactions in import and export links. Introduce diversified investors to stimulate the vigor of competition among market players. Support qualified regions to apply for the establishment of comprehensive bonded zones in accordance with procedures to improve resources level of foreign trade in this type of region.

7. Support the Shared Development of Resource-Based Regions

(19) Improve the Level of Inclusive Public Services

Focusing on upgrading and expanding the scope of public service facilities, we will speed up the filling of shortcomings and improve the level of co-construction and sharing of facilities. Promote the balanced development of compulsory education and the integration of urban and rural areas, expand inclusive preschool education resources, and continue to increase support for difficult areas and weak schools. We will do a good job in normalizing epidemic prevention and control, enhance the comprehensive capabilities of medical institutions in mining areas, and improve the level of diagnosis and treatment of occupational diseases for mining workers. Guide social forces to build childcare and elderly care service facilities. Inherit, carry forward and make full use of the spiritual and cultural resources in the process of entrepreneurial construction in resource-based areas, and build a number of museums, memorials and education demonstration bases. Promote the construction of public fitness facilities and improve the efficiency of open use. Renovate and renovate old and damaged water and gas supply facilities, develop central heating by combined heat and power as needed, and improve the harmless waste treatment facilities and centralized sewage treatment facilities.

(20) Improve the Basic Living Security Level of Residents

Insist on all the necessary insurances, improve the overall urban and rural, sustainable social insurance system, and steadily raise the level of protection. Promote the overall planning of unemployment insurance and work-related injury insurance at the provincial level, and improve the medical insurance and assistance systems for major diseases. Improve the social security system for flexible employees. Improve the social assistance and social welfare policies, and improve the living conditions of the miners and the masses in need.

(21) Focus on Stabilizing And Promoting Employment

Strengthen the employment priority policy, effectively prevent the risk of large-scale unemployment caused by resource depletion and industrial fluctuations, further strengthen the vocational skills training for laid-off miners, employees of companies that have stopped production, and migrant workers, and take multiple measures to solve the employment problem of residents. Improve the quality of employment, strengthen the construction of public training bases, promote the co-construction and sharing of entrepreneurial foundation platforms, build high-level and professional training bases for the integration of production and education, and provide skilled workers, management personnel and entrepreneurial talents for the continued development of alternative industries.

8. Policy Support and Organizational Guarantee

(22) Strengthen Organization and Leadership

Adhere to and strengthen the party's overall leadership, strengthen the main responsibility of localities, extensively mobilize all social forces, and jointly promote the high-quality development of resource-based regions. The National Development and Reform Commission should take the lead in strengthening work coordination and do a good job of overall planning and coordination. All relevant departments of the State Council should provide active support in terms of project construction, capital investment, and system and mechanism innovation in accordance with the division of functions. The people's governments of all relevant provinces (autonomous regions and municipalities) should earnestly take their responsibilities, formulate provincial-level implementation plans, and study and introduce supporting policies and measures. All resource-based regions should take the initiative to ensure that all key tasks are implemented, and explore experience and practices that can be replicated and promoted. Major matters, major policies and major projects involved in the implementation of the plan shall be submitted for approval in accordance with procedures.

(23) Improve the Long-Term Mechanism

Improve the resource and energy development order restriction mechanism, strictly implement the exploration and development access and zoning management system, and coordinate the promotion of resource and energy development and sustainable urban development. Improve the price formation mechanism of resource products so that prices can flexibly reflect market supply and demand, resource scarcity, and environmental damage costs. Implement the support mechanism for the replacement industry, give full play to the decisive role of the market in the allocation of resources, mobilize social forces, and promote the development of the replacement industry. Improve resource development compensation and benefit distribution and sharing mechanisms, and supervise resource development entities to undertake the responsibilities and obligations of ecological restoration and environmental remediation. Improve the dynamic monitoring and evaluation mechanism for the transformation and development of resource-based regions, and adjust and optimize the list of resource-based regions in a timely manner.

(24) Improve Supporting Policies

Continue to support relevant regions through transfer payments from resource-exhausted cities. Continue to arrange investment within the central budget to support the implementation of comprehensive treatment projects for coal mining subsidence areas and the transformation and upgrading of independent industrial and mining areas. Carry out the performance evaluation of resource-exhausted cities' transformation and strengthen the application of evaluation results. Promote the construction of sustainable development demonstration zones and transformation innovation pilot zones in resource-based regions. Guide and encourage various financial institutions to increase credit support for the transformation of resource-based regions under the premise of controllable risks, and support eligible companies to go public and raise funds and issue bonds. After restoration of abandoned construction land in historical mines, it can be used as urban construction land under the premise of conforming to the national land and space plan. Actively promote land reclamation in key areas such as coal mining subsidence areas and independent industrial and mining areas. For construction land that meets the conditions for reclamation, reclamation can be implemented in accordance with the policy of linking urban and rural construction land increase and decrease and the reclamation and utilization policy of industrial and mining abandoned land. Relevant provinces (autonomous regions and municipalities) should fully consider the land demand for major transformation projects in resource-based regions when arranging indicators for new construction land use each year, and support qualified construction projects to be included in the national overall plan for the balance of arable land occupation and compensation. Support the orderly development of administrative districts in small independent industrial and mining areas due to historical reasons plan adjustments to expand the space for transformation and development.