1. Project Overview
The project is in the Zhaijia Town industrial park, Linyi County, Dezhou, Shandong Province, covering 175.86 mu with about 120,000 square metres of floor space. The original land user was Linyi Zhengtai Packaging Materials Technology Co., Ltd. Shandong Zhuoyue New Materials Technology Co., Ltd. invested CNY 390 million, bought all the original company's assets through negotiation, and built the project through a combination of demolition and reconstruction and renovation. Implementation ran from October 2021 to June 2025. The site now has annual capacity of 300,000 tonnes of calcined petroleum coke and 200,000 tonnes of advanced carbon materials.
2. Redevelopment Entity and Model
(1) Causes of inefficiency and difficulties faced
The original company used land extensively, with a floor area ratio below 0.3 and tax revenue of less than CNY 10,000 per mu — typical inefficient industrial land. The project faced three difficulties: first, the bankrupt company's assets involved several creditors, so property rights had to be transferred cleanly through legal procedures; second, transformation was costly, as most buildings did not meet new-materials production standards and required substantial funds to demolish and rebuild; and third, the approval timetable was tight, with land transfer, planning approval and construction permits all needed within a short time.
(2) Redevelopment entity and model
The redevelopment entity is Shandong Zhuoyue New Materials Technology Co., Ltd. The project used an innovative model of "transfer of a bankrupt company's assets + demolition and reconstruction combined with renovation + a leap in industrial capacity". Acquiring the assets by transfer resolved legacy property issues; the construction strategy was "mainly demolish and rebuild, with some retention and renovation"; and the group's technical and financial strengths turned inefficient industrial land into a leading domestic new-materials production base.
3. Results of the Redevelopment
(1) Markedly higher land efficiency
The project revived 175.86 mu of inefficient industrial land, raising the floor area ratio from below 0.3 to 1.02 and building coverage to 53.22%. Overall planning created a modern industrial layout with clear functional zones and smooth production flows, transforming the intensity and structure of land use.
(2) Social benefits
The project has created more than 300 new jobs and indirectly employs more than 400 people nearby, raising local incomes. Waste-heat steam boilers and generating sets were built alongside, using energy in cascades in line with green, low-carbon development.
4. Key Practices
(1) Use of policy
1. A dual path of "transfer + court ruling" to consolidate the bankrupt company's property rights. After the original company went bankrupt, its assets were fragmented and its debts complex. The project used a dual-path model, "mainly negotiated transfer, supplemented by court confirmation". Shandong Zhuoyue negotiated with the bankruptcy administrator and the main creditors and reached an asset transfer agreement; the parties jointly applied to the court for judicial confirmation, and the court issued a ruling confirming the transfer's legality and lifting restrictions on the rights; the company then registered transfer of the land use rights and building ownership on the basis of the ruling and agreement.
2. "Planning control, one policy per plot" to match the plan to the project. After the new company took over, the original plan did not fully match its needs. The Linyi County Natural Resources Bureau applied a refined "one policy per plot" approach: first, it got involved early and organized experts to assess feasibility; second, it adjusted flexibly, optimizing floor area ratio, building coverage and other indicators without breaching higher-level plans; and third, it incorporated the adjusted planning conditions into the detailed plan at the same time.
3. Graded assessment of existing buildings and differentiated renovation. Rather than demolishing everything, the company assessed and treated existing buildings selectively. Specialist firms carried out structural safety appraisals and functional suitability assessments, and buildings were renovated according to their condition, saving about CNY 5 million in construction costs and about 3,000 tonnes of construction waste.
4. "Land-based investment attraction" and per-mu performance evaluation to bring in the right project. Linyi County set up a mechanism linking revival of inefficient land with investment attraction. First, the natural resources bureau built a database of inefficient land and shared it with the investment promotion department. Second, targeted matching: when Inner Mongolia Zhuoyue Group expressed interest, the investment department selected this plot and proposed it. This turned "projects waiting for land" into "land waiting for projects"; the project took only three months from first contact to signing an investment agreement.
(2) Management and approvals
1. Survey, identification and dynamic management of inefficient land. In 2020 the Linyi County Natural Resources Bureau surveyed inefficient land across the county and built a database. The project site was identified as meeting the criteria, included in the database, managed dynamically and passed to the investment promotion department.
2. Better approval services and "construction upon acquisition". To deliver this provincial key project quickly, Linyi County set up a "green channel" for redevelopment projects. First, departments carried out pre-review as soon as the investment agreement was signed and proposed amendments. Second, land transfer and planning permits were handled in parallel rather than in sequence, cutting approval time by more than 60%. Third, applications were accepted with non-critical materials to follow. Fourth, "construction upon acquisition": when the company obtained its land use certificate, it received its works planning permit and construction permit at the same time. The project took only 45 days from obtaining land to starting construction — about two months shorter than usual.
3. A cross-departmental coordination mechanism. The county set up a coordination mechanism to resolve difficulties. For this project, the working group held six meetings and resolved eight specific issues, including the tax treatment of the asset transfer and fire inspection for renovated existing buildings.
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) brings construction land with a scattered layout, extensive use or unreasonable use within the scope of redevelopment. The Ministry's policies deepening the pilots, including "planning control, one policy per plot", guided planning control.
(2) The Enterprise Bankruptcy Law, the Interim Regulations on Real Property Registration and related rules guided the innovative "transfer + court ruling" path for consolidating and registering property rights.
(3) The Opinions of the General Office of the Shandong Provincial Government on Promoting Redevelopment of Urban Inefficient Land and related rules guided the differentiated renovation of existing buildings.
Show original Chinese text （中文原文）
德州市卓越高新材料产业园拆改结合
一、项目基本情况项目位于山东省德州市临邑县翟家镇工业园，总用地
175.86 亩，建筑面积约 12 万平方米。原土地使用权人为临邑正太包装材料科技有限公司，由山东卓越高新材料科技有限公司投资 3.9 亿元，通过协商购买原企业全部资产，采取拆除重建和改造升级相结合的方式建设而成。项目实施周期为 2021 年 10 月至 2025 年 6 月，目前已实现年产煅烧石油焦 300 千吨、高新碳材 200 千吨的生产能力。
二、改造主体和改造模式
（一）低效成因与面临困难原企业土地利用粗放，容积率不足 0.3，亩均税收低于 1万元，属于典型低效工业用地。项目推进面临三大难题：一是破产企业资产涉及多名债权人，需通过法定程序实现产权清晰流转；二是转型成本高，原有建筑大多不符合新材料生产标准，需大量资金拆除重建；三是审批周期紧，需在短时间内完成土地过户、规划审批、施工许可等手续。
（二）改造主体与模式改造主体为山东卓越高新材料科技有限公司，项目采用“破产企业资产转让+拆除重建与改造升级相结合+产业能级跃升”的创新模式，通过转让获取资产，解决产权遗留问题；采取“拆除重建为主、保留改造为辅”的建设策略；依托集团技术和资金优势，将低效工业用地打造为国内领先的新材料生产基地。
三、低效用地再开发取得的成效
（一）土地利用效率显著提升项目盘活低效工业用地 175.86 亩，容积率从不足 0.3 提升至 1.02，建筑密度提升至 53.22%。通过整体规划，形成功能分区明确、生产流程顺畅的现代化工业布局，土地利用强度和结构实现质的飞跃。
（二）社会效益充分释放项目提供新就业岗位 300 余个，带动周边 400 余人就业，提高居民收入水平。项目配套建设余热蒸汽锅炉和发电机组，实现能源梯级利用，符合绿色低碳发展理念。
四、主要做法
（一）政策运用方面
1.创新运用“转让+法院裁定”双路径，破解破产企业产权归集难题针对原企业破产后资产权属分散、债务关系复杂的情况，项目创新采取“协商转让为主、法院裁定确认为辅”的双路径产权归集模式。
山东卓越高新材料科技有限公司与原破产企业管理人及主要债权人协商，达成资产转让协议；双方共同向法院申请司法确认，法院出具裁定书，确认转让行为合法性并涤除权利限制；企业依据裁定书和协议办理土地使用权及房屋所有权过户登记手续。
2.运用“规划管控、一地一策”政策，实现规划与项目精准适配新企业接手地块后，原规划与企业需求存在差距。临邑县自然资源局创新运用“一地一策”的精细化规划管控模式。一是提前介入，组织专家联合论证项目可行性；二是弹性调整，在不突破上位规划前提下，优化地块容积率、建筑密度等指标；三是同步修编，将调整后的规划条件纳入国土空间详细规划。
3.运用既有建筑分级评估与差异化改造政策，实现存量资源高效利用对地块原有建筑企业实施精细化评估和差异化改造，未采取“一刀切”拆除方式。委托专业机构对既有建筑进行结构安全鉴定和功能适用性评估，进行差异化改造，节约建设成本约 500 万元，减少建筑垃圾排放约 3000 吨。
4.运用“以地招商”与“亩产效益”评价政策，实现项目精准导入临邑县建立“以地招商”工作机制，将低效用地盘活与招商引资有机衔接。一是自然资源局摸排建立低效用地信息库，并与招商部门共享；二是精准推送，当内蒙古卓越集团表达投资意向后，招商部门筛选出该地块并主动推送。通过“以地招商”机制，实现“项目等地”向“地等项目”转变，项目从接触到签订投资协议仅用时 3 个月，缩短落地周期。
（二）管理审批方面
1.建立低效用地调查认定与动态管理机制临邑县自然资源局于 2020 年开展全县低效用地调查摸底，建立低效用地数据库。经认定，本项目用地符合低效用地标准，被纳入低效用地数据库，实行动态管理，并推送至招商部门。
2.优化审批服务，推行“拿地即开工”模式为保障省重点项目快速落地，临邑县建立低效用地再开发项目“绿色通道”审批机制。一是提前介入预审，在项目签订投资协议后，多部门提前介入预审，提出修改意见；二是并联审批，将土地过户、规划许可等事项由“串联”改为“并联”，审批时限压缩 60%以上；三是容缺受理，对非关键性材料实行“先受理、后补齐”；四是“拿地即开工”，企业取得土地使用权证时，同步取得建设工程规划许可证和施工许可证。项目从取得土地到开工建设仅用时 45 天，较常规流程缩短约 2 个月，保障工程顺利投产。
3.建立部门联动协调机制临邑县建立部门联动协调机制，研究解决项目推进中的困难和问题。针对本项目，工作组先后召开 6 次会议，协调解决了资产过户税费认定、既有建筑改造消防审验等 8 个具体问题。
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）明确将布局散乱、利用粗放、用途不合理的建设用地纳入再开发范围。自然资源部深化试点工作相关政策，运用“规划管控、一地一策”政策，指导规划管控工作。
（二）依据《中华人民共和国企业破产法》《不动产登记暂行条例》等相关规定，创新运用“转让+法院裁定”双路径，指导产权归集和转移登记工作。
（三）《山东省人民政府办公厅关于推进城镇低效用地再开发的意见》等相关规定，指导既有建筑差异化改造工作。