1. Project Overview
Nankang District in Ganzhou is one of China's major furniture manufacturing clusters. Its early industrial parks suffered from low building standards and scattered layouts. To break this bottleneck, the district launched a programme to renovate old, inefficient parks through self-redevelopment of inefficient industrial land. The project lies in Nankang's main furniture manufacturing area and covers three old parks — Daling in Tangjiang Town, Shilong in Taiwo Town and Guankeng in Dongshan Subdistrict — with a total area of 940 mu, mostly single-storey tin sheds and makeshift factories. Since it began in 2025, about 245 mu of inefficient industrial land has been sold, on which about 330,000 square metres of standard factories are planned. Following redevelopment policy, the project uses a self-redevelopment model with "government coordination, support from state-owned platforms, market players in the lead and private capital taking part", building a multi-party, clearly accountable and efficient implementation system that consolidates property rights, regularizes plots and upgrades traditional furniture parks.
2. Redevelopment Entity and Model
(1) Causes of inefficiency and main problems
1. No planning control and extensive, fragmented land use. The parks grew spontaneously without a unified plan or layout, entry of companies was poorly controlled and land was badly fragmented, with most plots of 5–10 mu scattered about. Factories were mainly single-storey tin sheds and makeshift buildings with low ceilings, light floor loads and a jumbled layout, so space use and industrial capacity were weak.
2. Weak infrastructure and serious safety and environmental risks. Roads were narrow and winding, some less than 4 metres wide; sewage treatment was badly lacking and wastewater was discharged without control; fire lanes were blocked and fire equipment missing.
3. Fragmented ownership made self-redevelopment impractical. Ownership was scattered and boundaries were fragmented, so individual companies could not meet mandatory planning, construction, safety and fire standards on their own. Costs were high and compliance difficult, companies had little appetite for self-redevelopment, and progress stalled.
(2) Redevelopment entities and model
1. Entities. The district government leads and coordinates, with the natural resources, housing and construction, industry and information technology, and emergency management departments working together. Towns and subdistricts handle tenure surveys, consolidation of property rights, negotiation with residents and resolution of disputes. The district-owned industrial investment construction management company builds infrastructure and arranges funding and finance. Companies in the parks are the implementing entities for self-redevelopment, responsible for demolition, permits, new construction and operation. State-owned platforms take part in building and maintaining supporting facilities through construction and operating partnerships.
2. Model. Self-redevelopment by companies is the core path, with consolidation of property rights and contiguous development as the key levers. Planning controls, tenure integration, phased acquisition into the reserve and infrastructure-first delivery are coordinated to guide companies to redevelop jointly, rebuild in concentrated form and develop intensively — reviving inefficient land, upgrading industry, eliminating safety hazards and improving park functions.
3. Results of the Redevelopment
(1) Much higher land efficiency
Eight plots of inefficient industrial land, totalling about 70 mu, have been completed, with 90,000 square metres of standard factories built. Single-storey makeshift tin-shed factories have been replaced by multi-storey, high-standard buildings, and the parks' average floor area ratio has risen from 0.5 to 2.0. Merging small plots and integrating fragments has produced contiguous industrial land and released the value of existing land.
(2) Steady economic returns
After integration, 28 industrial plots totalling 245 mu have been sold, generating about CNY 97.9 million in land revenue, an average of CNY 400,000 per mu. The three parks are expected to revive 724 mu of inefficient industrial land in total, which at market prices would yield about CNY 290 million. Better land drives better industry, creating a virtuous circle of rising land values, higher fiscal revenue and industrial upgrading.
(3) Fully improved park infrastructure
Seven external trunk roads and 11 internal roads have been opened, about 51 kilometres of water supply, drainage and sewer pipes laid and four standard sewage treatment stations built. Transport, environmental, fire and daily-life facilities have been upgraded across the board, transforming "old, run-down" parks into modern industrial clusters with a rational layout, complete facilities, clean surroundings and safe operations.
(4) Stronger industrial clustering
Better land and facilities promote clustering and speed the digital and smart transformation of the traditional furniture industry, strengthening the base of Nankang's leading industry. They also ease the shortage of new construction land quotas and provide space for the furniture cluster to expand, solving the problem of "projects waiting for land".
4. Key Practices
(1) Plan-led, with a coordinated planning system
1. Two levels of plans prepared together for full coordination. The unit regulatory detailed plan and the site-level detailed plan for each park were prepared simultaneously, coordinating road levels, utility connections and plot grading so that roads, pipes and levels inside and outside the parks connect seamlessly, avoiding duplication and conflicts.
2. Binding planning indicators to prevent a second round of inefficiency. Based on the furniture industry's production, storage and logistics needs, mandatory indicators were set — floor area ratio of at least 1.5 and building coverage of at least 45% — together with uniform storey heights and floor loads, and space was reserved for smart manufacturing and public services.
3. Detailed plot integration to resolve scattered tenure. Boundaries were verified and optimized parcel by parcel, re-plotting the scattered land of 66 companies into 60 contiguous industrial parcels, laying the planning foundation for consolidation and contiguous development.
(2) Innovative consolidation of property rights
1. A full survey and confirmation of rights. A comprehensive sweep verified each company's and each plot's occupied area and transfer agreements, creating a tenure register of "one file per company, one map per plot", clarifying boundaries and resolving historical issues.
2. A new "land-share ratio" calculation to balance interests fairly. A standard model was established: starting from the total park area, land for roads, fire lanes and other public facilities is deducted and scattered leftover corners are merged to give the total net land available for allocation. Each company's land-share ratio is set according to its original occupied area as a share of the total park area, determining the area of land it may obtain. The principle is "deductions shared in proportion — occupying more does not earn extra, occupying less is no disadvantage", balancing all parties' interests institutionally and defusing disputes.
3. Market-based negotiation to consolidate rights smoothly. Through a company council, firms negotiate exits and transfers of plots, with help in signing transfer mandates, so that property rights are merged among companies, reducing administrative compulsion and building momentum.
4. Government-led regularization and orderly reserve and sale. Led by the district and driven by town task forces, companies' strength and industry types were vetted, land was regularized and the scope of revitalization defined, laying the basis for orderly reserve, efficient sale and higher land values.
(3) Innovative acquisition methods for smooth, orderly renewal
1. Policy incentives to encourage voluntary demolition. Policy briefings and clear prospects eased companies' concerns. Companies that cooperate and demolish on time receive priority in land supply, stimulating self-redevelopment.
2. Phased implementation by area for steady progress. Following "easy first, hard later; concentrated first, scattered later", plots with clear tenure, willing owners and contiguous layout go first, while plots with many disputes, low willingness or scattered layout are deferred to reduce risk.
3. A better compensation mechanism for a virtuous circle. Compensation is fair and lawful, protecting companies' rights. Land is taken into the reserve as a whole, serviced and then sold openly, creating a cycle of "reserve — preparation — servicing — sale — reinvestment" that keeps redevelopment sustainable.
(4) Broader financing and diverse funding
Private capital is brought in to secure funding. A "general construction contract + operating partnership" model with state-owned enterprises has a central SOE build the infrastructure and recover its costs through operating income, creating diverse investment from government, SOEs and companies and ensuring adequate, stable funding.
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 an effective market and a proactive government, strengthening the government's role in spatial coordination, dealing with tenure and organizing implementation; it requires clear tenure, confirmation and registration of rights and proper handling of historical land issues, and supports consolidation of property rights, contiguous development and open sale of cleared land — providing the policy basis for consolidation and self-redevelopment.
(2) The Ganzhou Implementation Plan for Pilot Redevelopment of Inefficiently Used Land sets out specific rules on planning control, consolidation of property rights, sale with a design scheme, land expropriation and handling of historical issues, providing the operating basis for the project's consolidation, reserve and sale, and redevelopment.
Show original Chinese text （中文原文）
赣州市南康区老旧家具产业集聚区集约提质
一、项目基本情况赣州市南康区作为全国重要家具产业集聚区，早期产业园区存在建设标准低、布局散乱等土地低效问题，为破解发展瓶颈，当地实施低效老旧园区改造项目，采用自主更新模式盘活低效工业用地。项目位于南康区家具产业主要制造片区，涉及唐江镇大岭、太窝镇石龙以及东山街道官坑三个老旧园区，总用地面积 940 亩，现状以单层铁皮棚和简易厂房为主。自 2025 年实施以来，已累计出让低效工业用地约 245亩，拟建设标准厂房约 33 万平方米。项目严格依据低效用地再开发相关政策，采用政府统筹引领、国有平台支撑、市场主体主导、社会资本参与的自主更新开发模式，构建多方协同、权责清晰、闭环高效的实施体系，统筹推进产权整合、地块规整，推动传统家具产业园区提档升级。
二、改造主体和改造模式
（一）低效成因与突出问题
1.规划管控缺失，用地粗放碎片化。园区产业属自发形成、缺乏统一规划与整体布局，企业准入把关不严，土地利用碎片化严重，单宗用地多为 5—10 亩小块分散布局，土地集约利用水平低。厂房以单层铁皮棚、简易厂房为主，层高低、荷载小、布局乱，空间利用率低、产业承载能力弱。
2.配套设施薄弱，安全环境风险突出。园区道路狭窄弯曲，局部路宽不足 4 米，通行能力弱；污水处理设施缺口大，污水无序排放；消防通道不畅通、消防设施缺失，安全与环保问题突出。
3.产权分散割裂，自主改造难以实施。地块权属分散、边界细碎，企业单独改造无法满足规划、建设、安全、消防等强制标准，改造成本高、合规难，企业自主更新意愿不强、动力不足，改造推进受阻。
（二）改造主体与改造模式
1.改造主体。区政府牵头统筹，自然资源、住建、工信、应急等部门协同发力；属地乡镇负责权属调查、产权归集、群众协商及矛盾化解；区属工投建设管理有限公司承担基础设施建设、资金统筹与融资保障；园区企业作为自主更新实施主体，负责厂房拆除、报建审批、新建及投产运营；国企平台以工程建设、运营合作等方式参与配套建设与长效运维。
2.改造模式。以企业自主更新为核心路径，以产权归集、连片开发为关键抓手，统筹规划管控、权属整合、分期收储、配套先行，引导企业联合改造、集中重建、集约发展，全面实现低效用地盘活、产业迭代升级、安全隐患清零、园区功能提升的综合目标。
三、低效用地再开发取得的成效
（一）土地利用效率大幅提升累计已完成 8 宗低效工业用地建设，用地面积约 70 亩，建成标准厂房 9 万平方米，原有单层简易铁皮棚厂房整体升级为多层高标准厂房，园区平均容积率由 0.5 提升至 2.0，土地节约集约利用水平显著提高。通过小地块归并、碎片化整合形成连片产业用地，存量土地价值得到充分释放。
（二）经济收益稳步显现经整合优化后已出让工业用地 28 宗，用地面积 245 亩，实现土地出让收益约 9790 万元，均价达 40 万元/亩；三个园区预计可盘活低效工业用地 724 亩，按市场地价，预计实现出让收益约 2.9 亿元。通过用地提质带动产业提质升级，形成土地增值、财税增收、产业升级的良性循环，有效增强区域实体经济发展活力。
（三）园区承载功能全面完善累计打通对外主干道 7 条、内部道路 11 条，新建给水、排水、排污等市政管网约 51 公里，建成标准化污水处理站 4座。园区交通、环保、消防、民生配套全面升级，整体面貌显著改善，由“老、破、旧”蝶变为布局合理、设施齐全、环境整洁、安全规范的现代化产业聚集区。
（四）产业集聚能级持续增强通过用地空间优化与设施升级，促进产业集聚发展，加快传统家具产业数字化、智能化转型，夯实南康家具主导产业发展基础。同时缓解新增用地指标紧张，为家具产业集群扩容提质提供空间，解决“项目等地、用地紧缺”问题。
四、主要做法
（一）坚持规划引领，构建协同联动规划体系
1.两级规划同步编制，实现全域统筹。同步编制园区单元控制性详细规划与修建性详细规划，统筹路网标高、市政管网接口、地块竖向设计，确保园区内外道路、管网、竖向无缝衔接，避免重复建设与规划冲突。
2.刚性管控规划指标，杜绝二次低效。结合家具产业生产、仓储、物流需求，明确容积率≥1.5、建筑密度≥45%等硬性指标，统一厂房层高、荷载标准，预留智能制造与公共服务空间，保障改造高标准落地。
3.细化地块整合布局，破解权属散乱。针对地块破碎、权属复杂问题，逐宗核定边界、优化整合，将原有 66 家企业零散用地规整为 60 宗连片工业用地，为产权归集、连片开发奠定规划基础。
（二）创新产权归集，破解权属整合核心难题
1.全面摸底确权，夯实改造底数。开展拉网式排查，逐企逐地块核查占地范围、流转协议，建立“一企一档、一地块一图”权属台账，厘清边界、化解历史遗留问题。
2.创新得地率核算，公平平衡利益。建立标准化“得地率”核算模型，以园区总用地面积为基数，扣除道路、消防通道等公共设施用地，整合零星边角地块，形成可供分配的净用地总量。依据企业原实际占地面积占园区总用地面积的比例，核定各企业得地率，明确其可获产权的地块面积。实现“占地均摊、多占不多得、少占不吃亏”，从制度上公平平衡各方利益，有效化解矛盾。
3.市场化协商归集，平稳整合产权。依托企业理事会协商地块退出与转让，协助签订转让委托协议，推动产权在企业间优化合并，减少行政强制、提升改造合力。
4.政府主导规整，规范收储出让。区政府牵头、乡镇专班推进，审核企业实力与产业门类，统一规整土地、明确盘活范围，为规范收储、高效出让、提升土地价值提供保障。
（三）创新收储方式，平稳有序推进土地更新
1.政策激励引导，激发自主拆迁动力。强化政策宣讲与前景引导，消除企业顾虑。对主动配合、按期拆迁企业给予优先供地倾斜，激活自主更新内生动力。
2.分区分批实施，确保平稳推进。坚持“先易后难、先集中后零散”，优先推进权属清晰、企业自愿、连片集中地块；对纠纷多、意愿低、零散地块暂缓实施，降低改造风险。
3.完善补偿机制，实现良性循环。依法公平补偿、保障企业权益。土地统一收储、配套完善后公开出让，形成“收储-整理-配套-出让-再投入”良性循环，实现改造可持续化推进。
（四）拓宽融资渠道，构建多元资金保障体系引入社会资本合作，强化资金保障。与国企建立“施工总承包+运营合作”模式，央企建设基础设施，通过运营收益回收成本，形成政府、国企、企业多元投入格局，保障资金充足稳定。
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，坚持有效市场、有为政府，强化政府空间统筹、权属处置、组织推动作用，要求权属清晰、确权登记、妥善处理历史遗留用地问题，支持产权归集、连片开发、净地公开出让，为产权整合与自主更新提供政策依据。
（二）
《赣州市低效用地再开发试点工作实施方案》，对规划管控、产权归集、带方案出让、土地征收、历史遗留问题处置作出具体规定，为项目产权整合、收储出让、改造实施提供操作依据。