1. Project Overview
The Changchun Water Culture Ecological Park ("Water Culture Park") is in the centre of Changchun's main urban area, Jilin Province, covering 29.28 hectares with 53,000 square metres of buildings. It was originally Changchun's No. 1 Water Purification Plant, built in 1932. In 2015 it stopped supplying water because its equipment was worn out, and its role was taken over by a new plant beside the Yitong River. After closure, 41 buildings, water treatment structures and green space remained.
The site is well located with a good ecological base. After the plant closed, its natural setting and location turned it spontaneously into an open public green space themed on urban water culture, long providing ecological conservation, recreation and leisure, and scenic enjoyment. Over time, however, problems emerged: a lack of commercial amenities and parking, inefficient land and buildings in need of revival, and a current use (industrial) that did not match the planned use (park, commercial and parking). To solve these problems, Changchun used a "combined supply" of natural resources. While keeping the park's existing functions, it raised the overall value of the existing buildings, added commercial and parking functions, and transformed the former waterworks into a "cultural, tourism and commercial landmark" combining culture, exhibitions, consumption, leisure and ecology.
2. Redevelopment Entity and Model
(1) Why redevelopment was needed
First, inefficient land use and low returns. After the plant closed, 41 buildings remained, including 11 provincial-level protected heritage buildings, one unrated heritage building and 13 buildings of traditional character. As owner, Changchun Urban Development and Investment (Group) Co., Ltd. continued to repair and maintain the heritage buildings, industrial remains and landscape, and lawfully converted some buildings into uses such as a water culture museum. But with no catering, retail or leisure services and a current use inconsistent with the plan, land use remained inefficient, some buildings stood idle and returns were low.
Second, a dense population nearby and insufficient amenities. Within one kilometre are several universities, including Jilin University and Jilin University of Arts, and many established neighbourhoods, attracting many visitors and local residents. Surrounding shops and parking could no longer meet demand. Reviving the plant's inefficient land and buildings was therefore key to filling the gap in commercial facilities and to "turning resources into assets and assets into capital", as well as an important step to meet residents' needs and boost local tourism.
(2) Model and distinctive practices
The project used a model of "government reserve + allocation of the park + combined supply". After fully consulting the owner on its wishes, the government took the land into its reserve. Following the plan, it resupplied the land through "allocation + sale": 25.95 hectares of park green space was allocated to the original owner, while the state-owned construction land use rights to 3.33 hectares of commercial and parking land were sold openly as a combined package together with cultural tourism and parking operating rights. Through this, the park's land and buildings changed use "from industrial to public, and from public to commercial", raising their efficiency.
3. Results of the Redevelopment
(1) Inefficient buildings revived
After the planning adjustment, the operator used existing buildings to introduce five types of business in 13 commercial projects. Industrial heritage was converted into the Nanling 1932 theatre; Buildings 5 and 12 became professional art exhibition spaces; the concert hall in Building 20 hosts stand-up comedy; and the park holds cultural festivals, team-building events and other activities.
(2) A fuller range of businesses
Themed restaurants, cafés, teahouses and other high-quality experiential businesses were recruited, completing the park's commercial services and improving the visitor experience.
(3) Higher land efficiency
The combined conversion "industrial to public, industrial to commercial", guided by actual needs, raised the project's overall operating income. The use of buildings in the park shifted from mainly protection to an equal emphasis on protection and use, greatly improving the efficiency of land and buildings.
(4) Higher value for the surrounding area
The overall upgrading of the park has markedly improved the area's leisure environment and commercial amenities, steadily releasing the development potential of nearby plots. Neighbouring commercial-residential plots have been included in Changchun's 2026 land supply plan, market interest has risen sharply, and many developers, including several central SOEs, have expressed strong interest.
(5) Stronger protection of historic buildings
Historic buildings in the park — especially the 12 provincial-level and unrated heritage buildings — are used for cultural venues such as the water culture museum, combining protection with active reuse so that heritage buildings are "used while protected and protected while used".
4. Key Practices
(1) Provincial, city and district surveys and a database of inefficient land
The Jilin Department of Natural Resources and Changchun, applying the Ministry's latest standards, surveyed the city's 11 districts and development zones in detail to identify developable inefficient land. After several rounds of study at provincial, city and district levels, 96 plots totalling 317 hectares were identified, a redevelopment approach and strategy were set for each, and the database was filed with the Ministry of Natural Resources.
(2) Supplying land according to rules to realize new planned uses
To lift the restrictions of the former industrial land designation, the park's land was expropriated and taken into the reserve. It was then resupplied according to the plan for its new uses — park green space, commercial land and parking — completing a compliant change to the new planned uses through combined supply.
(3) An innovative supply scheme: exploring "combined supply"
Changchun issued a series of policies providing support and operating guidance for combined supply. Grounded in ecological protection and "using to protect", the municipal planning and natural resources bureau, together with the ecology and environment, water affairs, agriculture and rural affairs, culture and tourism, and forestry and parks bureaus, prepared the Combined Supply Scheme for the Changchun Water Culture Ecological Park, clarifying development, use and management requirements for each type of natural resource. The 25.95 hectares of park green space were supplied by allocation; 30 parcels totalling 3.33 hectares of commercial service land and parking in the combined package were supplied by sale. The combination type is "land + operating rights" — specifically construction land use rights together with parking and cultural tourism operating rights.
5. Policy Basis
(1) The Notice of the Ministry of Natural Resources on Launching Pilot Work on the Redevelopment of Inefficiently Used Land (Ziran Zifa [2023] No. 171) calls for exploring combined supply of different types of natural resource assets. The Notice on Further Securing Land and Sea Use (Ziran Zifa [2023] No. 89) and the Opinions on High-level Protection and Efficient Use of Natural Resources to Realize the Value of Ecological Products (Ziran Zifa [2024] No. 281) call for combined supply of multiple natural resource assets to optimize allocation efficiency and maximize returns.
(2) The Opinions of the Jilin Department of Natural Resources on Supporting and Encouraging Redevelopment of Inefficient Land (Trial) (Jiziranzifa [2024] No. 135) encourage original land users to redevelop themselves and market players to take part, and support government reserve and redevelopment and activation of the secondary land market. The Notice on Launching Pilots for Combined Supply of Natural Resource Assets (Jiziranzifa [2025] No. 196), issued by the department and six other agencies, encourages cities and counties to explore combinations such as "land + forest" and combined supply mechanisms, and sets requirements for the main procedures.
(3) Changchun's Implementation Plan for Pilot Redevelopment of Inefficient Land and Work Plan for Exploring Combined Supply of Natural Resource Assets (Trial) set out the overall requirements so that the approach "can be followed step by step", aiming at a transaction system with "standard procedures, connected steps and easy operation". The Changchun Online Trading Rules for Combined Supply of Natural Resource Assets (Trial) and the Operating Guide to Property Registration for Combined Supply of Natural Resources specify the rules for publishing information, bidding applications, auctions, confirming sales and publishing results.
Show original Chinese text （中文原文）
长春市水文化生态园一体化改造
一、项目基本情况长春市水文化生态园（以下简称“水文化园”）位于吉林省长春市主城区中心地段，总面积 29.28 公顷，总建筑面积 5.3 万平方米。水文化园原为长春市第一净水厂，始建于1932 年。2015 年因设备老化而暂停供水，其主要功能也被伊通河畔的新净水厂取代，停产后的净水厂存留 41 栋建筑及净水设施和绿地。
本项目区位条件优越、生态基底良好。原净水厂停产关停后，依托优良的自然生态禀赋与区位优势，自发形成开放式城市水文化主题公共绿地，长期以来承担城市生态涵养、市民休憩康养、景观游赏等公共服务功能。同时也逐渐暴露出商业配套缺乏、停车场不足等问题，还存在亟须盘活的低效用地、建筑，现状用途（工业用地）与规划用途（公园、商业、停车场）不符等问题。为破解以上问题，长春市通过自然资源“组合供应”的方式，在保留公园绿地现有功能的基础上，提升既有建筑的综合效益，补全商业、停车等功能，并推动其由净水厂遗址，蜕变为集文化、会展、消费、休闲、生态于一体的“文旅商综合性地标”。
二、改造主体和改造模式
（一）改造原因一是土地利用低效、产出效益不高。原净水厂停产后，存留建筑 41 栋，包括省级文物保护单位 11 栋，未定级文物建筑 1 栋，传统风貌建筑 13 栋。长春城投建设投资（集团）有限公司作为产权单位，对文物建筑、工业遗址、绿化环境等持续开展修缮和维护工作，并依法将部分建筑改造为水文化博物馆等功能。但由于缺乏餐饮、零售、休闲服务等商业业态，现状用途与规划用途不符，依然存在土地利用低效、部分建筑闲置、产出效益不足等问题。
二是周边人口密集、相关配套不足。周边 1 公里范围聚集了吉林大学、吉林艺术学院等多所高校以及众多成熟社区，吸引较多外来游客和本地市民。由于周边配套商业、停车场等场所已无法满足群众需求，因此将原净水厂的低效用地及建筑盘活改造，是补充商业设施短板，实现“资源变资产、资产变资本”的关键，也是满足群众需求、带动周边旅游的重要举措。
（二）改造模式与特色做法项目采用“政府收储+公园划拨+组合供应”的改造模式。政府在充分对接产权单位改造意愿基础上，对项目用地实施收储。依据规划，采取“划拨+出让”重新供应：25.95 公顷的公园绿地，划拨给原土地产权单位；3.33 公顷商业用地和停车场国有建设用地使用权，加上文化旅游经营权、停车场经营权等权能资源资产组合包公开出让交易。通过改造，实现水文化园土地和建筑“工改公、公改商”的用途转变，提升土地和建筑利用效能。
三、低效用地再开发取得的成效
（一）盘活低效建筑规划调整后，项目主体充分利用现有建筑植入 5 种业态功能 13 个商业项目。其中利用原有工业遗产打造南岭 1932戏剧演出场馆，将 5 号、12 号楼打造成专业艺术会展，将20 号楼音乐厅引入脱口秀演出，承办文化主题节庆、团建拓展等各类活动。
（二）补全多元业态通过招商引入主题餐饮、咖啡馆、茶馆等高品质的体验消费业态，完善园区内的商业配套服务设施，提升游客的游览体验。
（三）提高土地利用效率通过本次“工改公、工改商”综合用途改造，以实际需求为导向，提升项目整体运营收益。园内建筑利用也由保护为主，向保护与利用并重转变，大力提升土地和建筑利用效率。
（四）提升周边区域价值依托水文化园整体改造升级，区域休闲环境、商业配套水准显著提档升级，带动周边地块开发潜力持续释放。周边已有商住地块纳入 2026 年长春市供地计划，市场关注度大幅攀升，包含多家央企在内的众多开发企业均表达出浓厚的投资开发意向。
（五）加强历史建筑保护利用水文化园内历史建筑，特别是 12 栋省级和未定级文物保护单位建筑，打造水文化博物馆等文化场馆，将历史建筑保护工作同历史建筑活化利用相融合，实现文物建筑“在保护中利用，在利用中保护”的良好局面。
四、主要做法
（一）省市区联动调查摸底，建立低效用地数据库吉林省自然资源厅会同长春市依据自然资源部最新标准，详细摸排了长春市 11 个城区、开发区，对可开发低效用地开展调查认定，经省、市、区三级多轮研究，确定了 96个、317 公顷的低效用地，逐宗确定再开发方式和策略，建立数据库后上报自然资源部备案。
（二）依规供地，实现规划新用途为破解水文化园原工业用地的土地利用限制，对园区土地开展土地征收储备工作，收储后，重新依据规划，以公园绿地、商业用地和停车场用地的新用途出让，以“组合供应”的方式完成对园区新规划用途的合规转变。
（三）创新供应方案，探索“组合供应”新模式长春市出台了一系列政策，为长春市开展组合工作提供有力政策支撑和操作指引。同时立足生态环境保护，坚持“以用促保”，市规资局会同市生态环境局、水务局、农业农村局、文广旅局、林园局等部门，编制《长春市水文化生态园组合供应方案》，厘清各门类自然资源的开发利用和管理管控要求。其中，公园绿地 25.95 公顷，以划拨方式供应；组合供应包内的商服用地、停车场等 30 宗 3.33 公顷，以出让方式供应；组合类型为“土地+经营权”，具体为建设用地使用权，及停车场、文化旅游等经营权。
五、政策依据
（一）《自然资源部关于开展低效用地再开发试点工作的通知》（自然资发〔2023〕171 号）要求，探索各门类自然资源资产组合供应；《自然资源部关于进一步做好用地用海要素保障的通知》（自然资发〔2023〕89 号）、《自然资源部关于高水平保护高效率利用自然资源推动生态产品价值实现的意见》（自然资发〔2024〕281 号）要求，推动多要素自然资源资产组合供应，促进资产配置效率最优化和效益最大化。
（二）《吉林省自然资源厅关于支持和鼓励低效用地再开发的意见（试行）》（吉自然资发〔2024〕135 号）提出，鼓励原土地使用权人自主开发、鼓励市场主体参与再开发、支持政府收储再开发和激活土地二级市场。吉林省自然资源厅等 7 部门联合印发《关于开展自然资源资产组合供应试点的通知》（吉自然资发〔2025〕196 号）提出，鼓励各市县探索“地+林”等资源组合模式、探索组合供应机制等试点目标任务，并对组合供应主要流程提出规范要求。
（三）《长春市关于印发低效用地再开发试点工作实施方案的通知》《长春市探索开展自然资源资产组合供应工作方案（试行）》明确组合供应总体要求，确保“照着就能做”，着眼构建“流程规范、环节衔接、便于操作”交易体系；《长春市自然资源资产组合供应网上交易规程（试行）》《自然资源组合供应不动产登记操作指南》《长春市自然资源资产组合供应网上交易规程（试行）》明确信息发布、竞买申请、拍卖竞价、成交确认、结果公示等细则要求。
改造前园区生态环境改造前闲置的建筑改造后园区中央艺术广场鸟瞰改造前闲置的建筑改造后园区亚泰大街主入口和停车楼改造后雨水花园和咖啡馆改造后园区音乐厅改造后林间栈道改造后南、北露天沉淀池及原水表厂改造后密林中的游乐场改造后水文化雕塑改造后建筑 1改造后建筑 2改造后建筑 3