1. Project Overview
The Longteng Building project (the Doilungdêqên Longteng Entrepreneurship and Innovation Project) is in Doilungdêqên District, Lhasa, Tibet Autonomous Region, south of Duilong Avenue and east of Tuanjie Road. It covers 1.54 hectares (about 23.1 mu) with 52,306.71 square metres of floor space.
Construction began on 28 March 2022 and passed completion acceptance on 17 May 2024. Leasing and operation have made good progress: rent and property service income totals CNY 10.8929 million, 35 tenants have signed and 70% have opened, boosting local jobs and commercial activity.
2. Redevelopment Entity and Model
(1) Why redevelopment was needed
First, historical problems needed resolving. The land involved — agency land allocated to the former commerce bureau and the former innovation and entrepreneurship centre — had incomplete land formalities and low land-use efficiency. The former commerce bureau plot (5,019 square metres) had been taken over by the Longteng company under minutes of a government meeting, but no sale procedures had been completed. For the former innovation centre plot (10,419 square metres), the origin of title had become unclear over time and there were no lawful land formalities; the buildings on it had long been operated and maintained by Lhasa Doilungdêqên District Longteng State-owned Assets Investment and Operation Co., Ltd. ("Longteng"). Land formalities needed to be completed lawfully, scattered plots integrated and the whole redeveloped to realize the land's value.
Second, urban renewal was urgent. As construction in Doilungdêqên accelerated, demand for offices, retail, housing for professionals and public services grew, and the inefficient land needed redevelopment to reshape its functions, image and returns.
(2) Redevelopment entity
The Doilungdêqên District government led the project, with Longteng as the buyer and investor–builder, working with the natural resources, housing and finance departments.
(3) Redevelopment model
Based on coordinating the existing parcels as a whole, a combined model of "parcel merger + sale with assets attached + investment and construction by a state-owned enterprise" was used, with unified planning, construction, leasing and operation. The agency land and the innovation centre land were merged and rezoned together as commercial land, with the floor area ratio raised to above 3.0, using land economically and intensively.
3. Results of the Redevelopment
(1) A qualitative leap in land efficiency
Through merger and rezoning, scattered, single-function inefficient land was integrated into mixed commercial land. Floor space rose from under 15,000 to 52,300 square metres and the floor area ratio to 3.0. The site is divided into three functional blocks — offices, talent apartments and a shopping centre — giving a regular layout and a clear mix of uses.
(2) Higher economic and social returns
Total investment exceeds CNY 250 million. Through market-based operation, by April 2026 the project had signed 35 tenants, with 70% open, and earned CNY 10.3745 million in rent and CNY 518,400 in property service fees — a steady cash flow for the district-owned company — while boosting jobs and commerce nearby. About 2,393 square metres are leased for government public service offices, filling a gap in facilities and improving the business environment.
(3) Historical issues resolved
By completing the land formalities and redeveloping the site, Longteng was able to sign relocation agreements with the 41 shops in the former innovation centre, avoiding the social risks that missing land formalities could have caused.
(4) A better townscape and stronger industry
The project turned two dilapidated, scattered plots into a modern, high-quality commercial complex (Longteng Centre), greatly enhancing the district's image as a gateway. It shifted the site from a single, inefficient function to a mixed urban area combining retail, offices and housing, providing quality space for industrial upgrading and attracting talent.
4. Key Practices
(1) Planning first, with an integrated layout
Doilungdêqên followed planning guidance and planned the project area as a whole in advance. A partial revision of the regulatory detailed plan rezoned the agency land and innovation centre land together as commercial land and set key controls such as floor area ratio and building coverage, providing the legal basis for unified reserve, merged development and efficient use. Under the regulatory plan, the merged site has an overall floor area ratio of 3.0, a height limit of 42 metres, building coverage of 40% and a green space ratio of 25%.
(2) Innovative land supply to resolve tenure problems
Because the two plots had different origins and types of tenure, different supply methods were used: (1) the 5,019 square metres of former commerce bureau agency land were supplied by converting allocation to sale; (2) the 10,419 square metres of the former innovation centre, which Longteng had in fact invested in and operated, were supplied by sale by agreement. Both plots were consolidated under Longteng and merged, clearing ownership obstacles to contiguous development.
(3) Sale with assets attached to simplify disposal of existing assets
The buildings and other assets on the former innovation centre plot were valued by a third-party firm commissioned by the district finance bureau at CNY 7.822411 million and sold to Longteng together with the land use rights, achieving unified supply of "assets + land", with buildings and land held together and rights and responsibilities aligned, avoiding separation of ownership.
(4) Streamlined approvals and an end-to-end service mechanism
The district government set up a task force of the natural resources, housing, development and reform, and environmental departments to serve the project from start to finish. Preliminary assessment, planning permits, land supply and construction permits were handled through parallel approvals and a "green channel", keeping the project moving efficiently from groundbreaking to completion acceptance.
(5) A minimum investment threshold and stronger contract supervision
The land transfer contract specified the buyer's minimum development investment (CNY 250 million) as a contractual term. This created a clear mechanism of "admission beforehand, supervision afterwards", strengthened the binding force of the contract and prevented land being "enclosed but not built" or becoming inefficient again, ensuring investment and development intensity.
(6) Early leasing to link construction with operation
Leasing began in November 2023, with tenant mix and operational preparations under way during the later stages of construction. Early leasing, operation by zone and introducing tenants by category meant the project generated income and footfall soon after completion.
5. Policy Basis and Tools Used
In line with the Notice of the Ministry of Natural Resources on Launching Pilot Work on the Redevelopment of Inefficiently Used Land (Ziran Zifa [2023] No. 171), other ministry documents and the Doilungdêqên District Implementation Plan for Pilot Redevelopment of Inefficient Land, the project reflects the aims of "using existing land in place of new land, replacing inefficiency with efficiency, and using spatial renewal to upgrade industry and urban functions". The main tools and mechanisms were: first, parcel merger, integrating existing parcels to improve the coherence and intensity of development; second, sale with assets attached, regularizing the disposal of existing buildings and assets; third, investment and implementation by a state-owned enterprise, which bears the construction funding and organization, strengthening the project's public interest, stability and deliverability; and fourth, market-based leasing and operation, generating sustained rent and property income after completion.
Show original Chinese text （中文原文）
拉萨市龙腾大厦有机更新
一、项目基本情况龙腾大厦项目（即堆龙龙腾创业创新工程项目）位于西藏自治区拉萨市堆龙德庆区，选址于堆龙大道以南、团结路以东的区位，总用地面积为 1.54 公顷（约 23.1 亩），建设总建筑面积 52306.71 平方米。
项目于 2022 年 3 月 28 日正式开工建设，2024 年 5 月17 日顺利通过竣工验收。目前，招商运营工作取得阶段性成效，累计实现租金及物业费收入 1089.29 万元，签约入驻商户 35 家，开业率达 70%，有效带动区域就业与商业活力。
二、改造主体和改造模式
（一）改造原因一是历史遗留问题亟待解决。本项目涉及的土地（原商业局划拨的机关团体用地、原双创中心用地）均存在用地手续不完善、土地利用效率低等问题。其中，原商业局机关团体用地地块（5019 平方米）虽已由龙腾公司依据政府会议纪要接管，但未办理出让手续；原双创中心地块（10419 平方米）由于历时久远，土地权属来源不清，缺乏合法用地手续，实际地上附着物由拉萨市堆龙德庆区龙腾国有资产投资运营有限公司（以下简称“区龙腾公司”）长期运营并承担维修管护责任。亟需依法完善用地手续、整合零散地块、实施统一再开发，充分发挥土地资源效益，释放潜在价值。二是城市更新需求迫切。随着堆龙德庆区城市建设加快推进，片区对商务办公、商业消费、人才安居、公共服务等功能需求不断增强，原有低效用地亟需通过再开发实现功能重塑、形象提升和效益转化。
（二）改造主体堆龙德庆区人民政府主导，区龙腾公司作为受让人和投资建设主体，联合自然资源、住建、财政等部门协同推进。
（三）改造模式以原有宗地整体统筹为基础，采用“土地合宗开发+带资产出让+国有企业投资建设”的复合模式，统一规划、统一建设、统一招商运营。通过土地合宗整合原机关团体用地和双创中心用地，统一规划调整为商业用地，容积率提升至
3.0 以上，实现土地资源节约集约利用。
三、低效用地再开发取得的成效
（一）土地利用效率实现质的飞跃通过土地合宗与规划调整，零散、功能单一的低效用地整合为复合型商业用地，建筑面积由原不足 1.5 万平方米提升至 5.23 万平方米，容积率提升至 3.0。合理划分办公楼、人才公寓、商业商场三大功能区块，形成布局规整、业态清晰的整体用地格局。
（二）经济效益与社会效益双提升项目总投资超 2.5 亿元，通过市场化运营，截至 2026 年4 月，项目已签约商户 35 家，开业率达 70%，累计实现租金收入 1037.45 万元、物业费收入 51.84 万元，为区属国企带来持续现金流的同时，带动周边就业和商业活力，促进区域经济发展。同时，项目租赁约 2393 平方米用作政府公共服务办公区域，有效补充设施短板，优化营商环境。
（三）有效化解历史遗留问题通过补办土地手续并实施再开发，龙腾公司顺利推进与原双创中心 41 家商铺签订搬迁腾退协议的相关事宜，彻底避免了土地手续缺失可能会导致的潜在社会风险。
（四）城市面貌与产业能级同步跃升项目将原先破旧、分散的两块用地改造为现代化、高品质的商业综合体（龙腾中心），极大地提升了堆龙德庆区的城市形象和门户品质。成功实现了从单一、低效功能向集商业、办公、居住于一体的综合型城市功能区的转型，为区域产业升级和人才引进提供了高品质的空间载体。
四、主要做法
（一）规划先行，统筹布局堆龙德庆区坚持规划引领，依据城市发展需求，提前对项目区域进行整体规划。通过控制性详细规划的局部调整，将原机关团体用地和双创中心用地统一调整为商业用地，明确了容积率、建筑密度等关键控制指标，为后续的统一收储、合宗开发和高效利用提供了法定依据，实现了“多规合一”下的精准供地与空间重构。依据控制性详细规划，将两宗用地统筹调整为商业用地，整体容积率提升至 3.0，建筑限高42 米，密度 40%，绿地率 25%。
（二）创新土地供应方式，破解权属难题针对两宗地来源不同、权属性质不同的问题，采取差异化供地方式：（1）原商业局机关团体用地 5019 平方米，以划拨转出让方式供应；（2）原双创中心 10419 平方米，因区龙腾公司有投入运营事实，以协议出让方式供应。两宗地统一归集至区龙腾公司名下，完成土地合宗，为成片连片开发扫清了产权障碍。
（三）实施“带资产出让”，简化存量资产处置将原双创中心地块上的地上附着物及资产，按照区财政局委托的第三方机构出具的资产评估报告（评估价 782.2411万元）
，与土地使用权一并打包出让给区龙腾公司，实现“资产+土地”统一供应，做到“房地一体、权责一致”
，避免产权分离。
（四）优化审批流程，建立全流程服务机制区政府建立了由自然资源、住建、发改、环保等多部门参与的工作专班，对项目实行“一跟到底”的全流程服务。在项目前期论证、规划许可、土地供应、施工许可等环节，实行并联审批和“绿色通道”，有效保障了项目从开工建设到竣工验收的高效推进。
（五）明确投资底线，强化履约监管在土地出让合同中，明确约定受让人最低开发投资额（2.5 亿元），并将其作为合同条款写入土地出让文件。这一举措建立了清晰的“事前准入、事后监管”机制，强化了土地出让合同的约束力，从源头上防止了“圈而不建”“二次低效”等现象，确保了再开发项目的资金投入和开发强度，实现土地资源的高效配置。
（六）提前谋划招商运营，实现建设与经营衔接项目于 2023 年 11 月正式启动招商工作，在项目建设后期即开展业态导入和运营准备，推动工程建设与市场运营有效衔接。通过提前招商、分区运营、分类导入商户，项目在竣工后较快形成经营收入和人流集聚。
五、政策依据和工具运用根据《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）等部发文件和《堆龙德庆区低效用地再开发试点实施方案》等政策文件要求，体现了“以存量换增量、以低效换高效、以空间更新促进产业和城市功能提升”的工作要求。主要运用以下政策工具和实施机制：一是土地合宗开发。通过整合原有宗地，提高土地开发整体性和集约利用水平。二是带资产出让。对原有地上附着物及资产进行规范处置，理顺资产关系，保障项目顺利推进。三是国企投资实施。由国有企业承担项目建设资金和组织实施任务，强化项目公益性、稳定性和落地性。四是市场化招商运营。项目建成后通过招商引入经营主体，形成持续租金和物业收入，实现再开发项目长期运营。