1. Project Overview
The Bijiagang mine area is in Bagongshan Town, Bagongshan District, Huainan, with a total area of 346 mu. One of the birthplaces of the Huainan coalfield, it closed in 2003 when its resources were exhausted. Ecological restoration was completed in 2016, but because of overlapping land rights and a former mining use that did not fit the area's high-quality development plan, the land long remained "restored but undeveloped, vacant and inefficient". From 2022 the Bagongshan District government listed it as a key redevelopment project, recovered the former mining land, replanned it and began building a "Green Food Industrial Park". Phase 1 has delivered 270,000 square metres of standard factory space, turning an "ecological liability" into an "engine of transformation".
2. Redevelopment Entity and Model
The redevelopment entity is the Bagongshan District government, using a government-led model of "joint government–enterprise recovery + dynamic planning adjustment + targeted development of standard factories". The main difficulties were: first, dealing with tenure — the mining land belonged to a large mining group and the compensation standards for recovery were complex; second, planning mismatch — the former mining land was scattered and lacked systematic functional guidance; and third, a large infrastructure backlog — water, power, gas and roads at the edge of the mine area lagged far behind.
3. Results of the Redevelopment
(1) Much better land-use structure and layout. The 346 mu of vacant mining land has been converted to modern industrial and integrated service land. Through a unit regulatory plan, the floor area ratio rose from 0.3 for the low mine buildings to above 1.5, doubling the intensity of land use.
(2) A leap in local economic momentum. When complete, the park is expected to attract 32 anchor companies in green food and pet food, generating annual output of CNY 3 billion and annual taxes of CNY 180 million. "Turning stock into growth" fills the industrial gap left by the exhausted mine.
(3) Resource management and ecological outcomes reinforcing each other. The project ties the results of mine restoration closely to industrial development. Building on the levelled, restored land while ensuring geological safety both maintains the restoration and turns ecological benefits into economic ones.
4. Key Practices
(1) Use of policy
1. An innovative "mine–locality coordination" mechanism to break the deadlock on land recovery. Because the land belonged to a large state-owned enterprise and was hard to deal with, a coordination group was set up, "led by the government, with departments cooperating and the enterprise taking part". Through several rounds of negotiation on an equal footing, a comprehensive solution of "land recovery with compensation + land swap elsewhere (if needed) + resolving historical issues" was adopted. The recovery agreement was signed in 2022, ending the old disconnect between mine and locality and quickly consolidating the existing industrial assets.
2. Unit-based planning and precise optimization of the urban development boundary. The Bijiagang area was brought under unified management in the "one map" of the territorial master plan. The district natural resources department prepared the Regulatory Detailed Plan for Plot XJL-01 in Bagongshan District, tailoring land uses to the green food industry's combined needs for cold chain, production and quality inspection. Without breaching the mandatory indicators for the urban development boundary, the policy of "fine-tuning within the urban development boundary" was used to integrate scattered derelict land into contiguous industrial land, with floor area ratio, building coverage and other indicators maintained dynamically so that the plan closely matched companies' actual needs.
3. Combined supply of resources and assets to fill infrastructure gaps. To solve the problem of "scattered plots and difficult servicing", Bagongshan explored a "combined supply of resources and assets" model. In land sales and construction schemes, production land was designed as an "integrated package" together with land for a sewage treatment plant, district heating network and energy station. Companies are encouraged to build multi-storey, high-standard factories. Bringing in specialist environmental and power companies to build the supporting facilities lowered initial investment for tenants and linked land development with infrastructure operation.
4. Land price incentives so companies can "move straight in". Land pricing rules were optimized: for projects converting existing mine buildings, no additional land price is charged provided they comply with the plan and do not change the land use. New standard factories are supplied flexibly on a "lease first, transfer later; lease and transfer combined" basis. The government platform company builds standard factories, and companies may first move in as tenants and complete the land transfer once they reach agreed output and tax targets. This greatly eases funding pressure on small and micro food companies and revives land assets quickly.
(2) Management and approvals
1. Sale with a design scheme and parallel approvals to speed construction. A "checklist + notification and commitment" approach was used. Before sale, soil environmental surveys and geological hazard assessments were completed. Publishing the building design in advance allows "construction upon acquisition". Natural resources, housing and construction, and environmental assessment departments approve in parallel, cutting the approval process by more than 40%. For conversion projects, planning permits were simplified, and an "exemption list" allows quick filing for repair works that do not alter the main structure, shortening the path from "inefficient use" to "production workshop".
2. Rigorous survey and identification with dynamic "one map" supervision. Following the principle of "clear baseline, controllable results", the district natural resources department used the Third National Land Survey and annual change survey data to profile the inefficient state of the mine area precisely, entering it in real time into the territorial spatial planning implementation and supervision system. A "full life-cycle" supervision file tracks development intensity and output with quarterly evaluations. Remote sensing and field inspections guard against land being "enclosed but not built" or covertly changed during redevelopment, ensuring the pilot policies are implemented precisely.
3. A closed-loop investment management system with "operations first". Unlike the traditional "build first, recruit later", the project put operations first. Experts from the green food industry association reviewed the plans at the planning stage to ensure factory spans, floor loads and other indicators met leading companies' standards. An "admission list" focuses on high value-added, low-pollution green processing and pet food. Writing per-mu performance standards into the transfer contracts sets a quality threshold for redevelopment and keeps the revived assets productive over the long term.
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 improving the land reserve mechanism and land price policy tools.
(2) The Ministry's documents deepening the pilots support optimizing detailed plans through technical corrections and integrated development of above- and below-ground space.
(3) The Notice of the Ministry of Natural Resources on Improving Industrial Land Supply Policies to Support Development of the Real Economy (Ziran Zifa [2022] No. 201) calls for a sound supply system for industrial land including long-term leasing, lease first then transfer, and flexible-term sale.
(4) The Huainan Implementation Plan for Pilot Redevelopment of Inefficiently Used Land encourages revitalizing inefficient industrial land and exploring market-based buy-back and exit routes, concentrating companies in parks through "property for land" and "land for land" exchanges.
Show original Chinese text （中文原文）
淮南市毕家岗矿区业态重塑
一、项目基本情况毕家岗矿区位于淮南市八公山区八公山镇，总面积 346亩。该矿区作为淮南煤矿的重要发源地之一，因资源枯竭于2003 年正式关闭。2016 年完成生态修复，由于土地权属交叉、原工矿用途与区域高质量发展规划不符，该地块长期处于“修而不发、空置低效”状态。2022 年起，八公山区人民政府将其列入低效用地再开发重点项目，通过收回原工矿用地，重新规划，实施“绿色食品产业园”建设。项目一期已建成标准化厂房 27 万平方米，实现从“生态负债”向“转型引擎”的华丽蝶变。
二、改造主体和改造模式本项目改造主体为八公山区人民政府。采取“政企联动收回+规划动态调整+标准化厂房定向开发”的政府主导模式。面临的主要困难一是权属处置难，涉及大型矿业集团工矿用地，收回补偿标准复杂；二是规划不适配，原有工矿用地布局散乱，缺乏系统性功能引领；三是基建欠账多，矿区边缘地带水、电、气、路等基础设施严重滞后。
三、低效用地再开发取得的成效
（一）土地利用结构与布局深度优化。成功将 346 亩空置工矿用地转换为现代工业与综合服务用地。通过实施单元化控规，容积率由原矿区低矮建筑的 0.3 提升至 1.5 以上，土地集约利用水平实现倍增。
（二）区域经济动能实现跨越式提升。产业园整体建成后，预计招引绿色食品及宠物食品链主企业 32 家，实现年产值 30 亿元、年税收 1.8 亿元。通过“存量改增量”，有效填补了矿区枯竭后的产业空白。
（三）资源管理与生态产出协同深化。项目将矿山修复成果与产业开发深度绑定。在保障地质安全的前提下，通过利用修复后的平整土地进行建设，不仅维护了生态修复成果，更实现了生态效益向经济效益的闭环转化。
四、主要做法
（一）政策运用方面
1.创新“矿地统筹”协商机制，破解权属收回僵局。针对毕家岗矿区土地权属归属于大型国有企业、处置难度大的现状，建立“政府牵头、部门协同、企业参与”的矿地统筹工作组。通过多轮平等协商，采取“土地收回补偿+异地置换（如需）+解决历史遗留问题”的综合方案，于 2022 年正式签订收回协议，打破以往“矿地脱节”的格局，实现了存量工业资产的快速归集。
2.实施单元化规划统筹，精准优化城镇开发边界。将毕家岗矿区纳入国土空间总体规划“一张图”统一管理，区自然资源部门编制了《八公山区 XJL-01 地块控制性详细规划》，针对绿色食品产业对冷链、生产、质检的复合需求，量身定制土地用途。在不突破区域城镇开发边界强制性指标的前提下，通过“城镇开发边界内调优”政策，将原本零星分散的废弃地整合为成片的产业开发空间，对地块容积率、建筑密度等指标实施动态维护，确保了规划方案与企业实际需求的高度适配。
3.推行资源资产组合供应，补齐基础设施短板。为解决低效用地开发中“地块散、配套难”的问题，八公山区积极探索“资源资产组合供应”模式。在土地出让和建设方案中，将生产性用地与污水处理厂、集中供热管网、能源站等配套设施用地进行“整体包”设计。鼓励企业建设多层高标准厂房，推行“工业多层厂房”。通过引入专业环保电力企业实施配建，不仅降低了入驻企业的初始投资，更实现了土地开发与基础设施运营的协同增效。
4.完善地价政策激励，支持企业“拎包入住”。优化地价计收规则，对利用存量矿区建筑进行改建的项目，在符合规划且不改变土地用途的前提下，不再增收土地价款。对于新开发的标准化厂房，采取“先租后让、租让结合”的弹性供应方式。通过政府平台公司统一建设标准化厂房，允许企业以租赁方式先期入驻，待达到约定产值税收后再办理出让手续。这一政策极大地缓解了中小微食品企业的资金压力，实现了土地资产的快速盘活。
（二）管理审批方面
1.推行“带方案出让”与并联审批，跑出建设“加速度”。针对毕家岗项目，推行“清单制+告知承诺制”管理。在土地出让前，先行完成地块的土壤环境调查及地质灾害评估。通过提前公示建筑设计方案，实现“拿地即开工”。自然资源、住建、环评等部门实施并联审批，将原本复杂的报批流程压缩了 40%以上。针对改建项目，简化规划许可手续，利用“豁免清单”制度，对非主体结构变动的修缮类工程实施快速备案，有效缩短了从“低效利用”到“生产车间”的转化周期。
2.严格调查认定与“一张图”动态监管。坚持“底数清晰、结果可控”原则。区自然资源部门利用“三调”成果及变更调查数据，对毕家岗矿区的低效状态进行精准画像，并实时录入国土空间规划实施监督信息系统。通过建立“全生命周期”监管档案，对开发强度、产出效益进行季度动态评估。利用遥感影像和实地巡查，严防在再开发过程中出现“圈而不建”或隐形变异等行为，确保试点政策精准落地。
3.构建“运营前置”的闭环招商管理体系。区别于传统的“先建后招”，毕家岗项目坚持“运营前置”。在规划阶段便引入绿色食品产业协会专家进行评审，确保厂房跨度、承重等指标符合头部企业标准。通过建立“准入清单”制度，重点导入高附加值、低污染的绿色加工及宠物食品产业。通过在出让合同中明确“亩均英雄”评价标准，建立了低效资产再开发的质量门槛，确保了存量资产盘活后的长效活力。
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，完善收储机制；完善地价政策工具。
（二）自然资源部深化试点文件要求，支持通过技术修正优化详细规划，支持地上地下空间综合开发。
（三）《自然资源部关于完善工业用地供应政策支持实体经济发展的通知》（自然资发〔2022〕201 号），健全工业用地长期租赁、先租后让、弹性年期出让等供应体系。
（四）
《淮南市低效用地再开发试点实施方案》，鼓励低效工业用地盘活。鼓励探索低效工业用地市场化回购和退出路径，通过“以物业换土地”“以地换地”等方式向园区集中。