1. Project Overview
The project is in the Yinan Economic Development Zone, Shandong Province, on the 199.17-mu former site of Linyi Keruitai Steel Pipe Co., Ltd. Because of poor management and debt disputes, the site was repeatedly seized by courts at creditors' request, becoming a typical case of inefficient land that could not be redeveloped because of judicial seizure. In 2025 the county government, following the principles of contiguous development, using land to attract investment and having "land wait for projects", adopted a model of "buying the debt + judicial auction + cluster-based investment attraction" to revive the area. Four companies have been brought in, completed construction and started production, with 143,000 square metres of floor space, forming two industrial clusters in new materials and hydraulic equipment. The whole process, from launch to full production, took just 18 months.
2. Redevelopment Entity and Model
Before revival, the original company's products were low-end and its market had shrunk; together with debt disputes that led to its assets being seized, it had become a "zombie company" that had stopped production years earlier. Redevelopment faced complex property rights, high clearance costs and great difficulty. To solve this, the county government led, a state-owned enterprise provided funds, and the natural resources and planning bureau, the court, banks and the economic development zone took part. Using a model of "emptying the cage for new birds + cluster-based investment attraction", the low-end capacity was cleared entirely, land use rights were obtained through debt purchase and judicial auction, and four high value-added companies were precisely introduced, turning "inefficient land" into "high-yielding land".
3. Results of the Redevelopment
(1) A fully optimized land structure and a leap in efficiency. Old single-storey factories were demolished and 143,000 square metres of standard factories built, raising the floor area ratio from 0.3 to above 1.2. The Kelute project in particular uses a compact U-shaped layout that shortens material transport distances by 30–50% and reduces land for belt corridors, transfer stations and intermediate stockyards, achieving 70,000 square metres of floor space on 128 mu.
(2) A strong industrial cluster and a leap in output per mu. Total investment by companies in the area is CNY 1.31 billion, with investment intensity of CNY 5.75 million per mu, tax revenue of CNY 150,000 per mu, expected annual output of CNY 1.93 billion and CNY 18 million of new annual taxes. Three of the companies supply one another; Mengmai's smart mineral exploration equipment and Qianlong's crawler chassis assemblies hold 70% and 40% of the domestic market respectively. Kelute, working with Wuhan University of Technology, is investing CNY 1 billion in high-purity quartz materials and downstream quartz products, producing 20,000 tonnes of high-purity quartz sand a year and becoming a domestic leader in both technology and capacity.
(3) Combined economic and social benefits and a clear shift to new growth drivers. More than 600 jobs have been created directly, with knock-on growth in nearby retail, logistics and catering. The transformation from a bankrupt steel pipe plant to a modern industrial park provides a replicable model for county-level redevelopment of inefficient land.
4. Key Practices
(1) A new revival model for an old problem. Property rights were resolved through "debt purchase + judicial auction + investment attraction": a state-owned enterprise raised funds to buy the bank debt as a whole, applied to the court to start an auction, took part in the bidding and lawfully obtained the land use rights. This solved the problem that seized land cannot be transferred directly and achieved a regular transfer on the secondary market. A closed-loop "planning — investment attraction — supervision" mechanism was set up at the same time. A task force got involved early and held 12 coordination meetings to resolve key bottlenecks such as lifting seizures, transferring title and adjusting the plan, and precisely recruited four companies — Kelute New Materials, Mengmai Hydraulic Equipment, Qianlong Intelligent Equipment and Lisheng Hydraulic Machinery. According to each company's actual needs, the site was divided into smaller parcels on demand and matched precisely, making efficient, intensive use of limited space.
(2) Replacing industry to free space and cluster-based recruitment. Rather than piecemeal demolition and restructuring, the project used "emptying the cage for new birds + cluster-based investment attraction" to clear the low-end capacity entirely and target high value-added industries such as new materials and hydraulic equipment, creating a chain effect in which "bringing in one company brings in a string of others". At the micro level, lean design and compact layouts achieved 70,000 square metres of floor space on 128 mu, raising land use by nearly 40%. From industry to space, the model creates a closed loop of "investment attraction — industrial replacement — strengthening the chain — saving land and raising efficiency".
(3) End-to-end services to clear bottlenecks and secure delivery. The county government applied a mechanism of "one project, one team, follow-through to the end". Under the "standard land" supply model, the task force handled planning, approvals and construction formalities on companies' behalf, so that new arrivals received "multiple permits at once" and could "start construction upon acquiring land". The four companies took on average just six months from obtaining land to topping out, setting a new speed record for industrial projects in Yinan.
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 proper confirmation and registration of real property: land, buildings and other property included in redevelopment should have clear ownership, defined rights holders and no tenure disputes.
(2) The Opinions of the General Office of the Shandong Provincial Government on Promoting Redevelopment of Urban Inefficient Land (Luzhengbanzi [2020] No. 32) call for stronger policy integration and institutional innovation to raise the overall level of economical and intensive land use.
(3) The Notice of the General Office of the Linyi Municipal Government on the Implementation Plan for Pilot Redevelopment of Inefficient Land in Linyi (Linzhengbanzi [2025] No. 51) calls for fully unlocking the potential of existing land, raising the use rate of construction land and accelerating high-quality economic and social development in Linyi.
Show original Chinese text （中文原文）
临沂市科鲁特片区腾退整备
一、项目基本情况本项目位于山东省沂南经济开发区，原为临沂科瑞泰钢管有限公司用地，土地面积 199.17 亩。因企业经营不善、债务纠纷，地块被债权人申请法院多次查封，成为典型的因司法查封难以再开发利用的低效用地。2025 年，县政府按照连片开发、以地招商、地等项目的原则，采取“收购债权+司法拍卖+集群招商”盘活模式，启动该片区盘活工作，共引入 4家企业已建设完毕并顺利投产，总建筑面积达 14.3 万平方米，形成了新材料、液压装备两大产业链集群。整个盘活过程从启动到全面投产仅用时一年半，跑出了低效用地“蝶变”加速度。
二、改造主体和改造模式本项目盘活前，因原企业产品低端、市场萎缩，叠加债务纠纷导致资产被查封，成为停产多年的僵尸企业，低效用地再开发存在产权复杂、腾退成本高、盘活难度大等难题。为破解这一难题，县政府牵头，国企出资，自然资源和规划局、法院、银行、经济开发区等协同参与。采取“腾笼换凤+集群招商”的模式对原企业进行改造，整体清退低端产能，通过债权收购、法拍取得土地使用权，精准引入 4 家高附加值企业，实现“低效地”向“高产田”的华丽转身。
三、低效用地再开发取得的成效
（一）用地结构全面优化，土地利用效率跃升。通过拆除老旧单层厂房，建设标准化厂房 14.3 万平方米，容积率由
0.3 提升至 1.2 以上。特别是科鲁特项目采用 U 型紧凑布局，将物料传输距离缩短 30%—50%，减少皮带廊道、转运站和中间堆场占地，在 128 亩土地上实现了 7 万平方米建筑面积的高密度建设。
（二）产业集群强势崛起，亩均产出跨越增长。项目区内企业总投资 13.1 亿元，亩均投资强度达 575 万元，亩均税收 15 万元，年总产值预期 19.3 亿元，年新增税收 1800 万元。其中三家企业互为上下游供应链，梦迈的智能探矿设备、潜龙的履带底盘总成国内市场占有率分别达到 70%和 40%。科鲁特与武汉理工大学合作，投资 10 亿元新上高纯石英材料及下游石英制品项目，年可生产高纯石英砂两万吨，成为国内技术、产能双领先的高纯石英材料生产企业。
（三）经济社会效益协同，新旧动能转换显著。直接创造就业岗位 600 余个，带动周边商业、物流、餐饮等协同发展。从破产钢管厂到现代化产业园，实现了“寸土生寸金”的蝶变，为县域低效用地再开发提供了可复制的样板。
四、主要做法
（一）实施盘活新模式，破解盘活老难题。创新采用“债权收购+法拍+招商”模式调整产权：由国企筹集资金整体收购银行债权，申请法院启动法拍程序，参与竞买依法取得土地使用权，解决了查封地无法直接转让的难题，实现土地二级市场规范流转。同步建立“规划—招商—监管”全链条闭环机制。工作专班提前介入，先后召开 12 次专题协调会，逐一破解了债权解封、土地过户、规划调整等关键堵点，通过精准招商引入科鲁特新材料有限公司、梦迈液压设备有限公司、潜龙智能装备有限公司、力晟液压机械有限公司等 4 家企业。根据企业实际用地需求，将该地块化整为零、按需分割、精准匹配，实现了有限空间高效利用的节约集约利用效果。
（二）产业置换腾空间，集群招促闭环。该项目摒弃简单拆迁重组的碎片化模式，以“腾笼换凤+集群招商”的模式，整体清退原低端落后产能，锁定新材料、液压装备等高附加值产业，实现“引进一个、带动一串”的链式集群效应。同时，在微观层面推行精益设计与紧凑布局，在 128 亩土地上实现7 万平方米建筑面积的高密度建设，土地利用率提升近 40%。该模式从产业层级到空间层级，同步实现“招商引资—腾笼换凤—强链补链—节地增效”的闭环盘活机制。
（三）全程服务破堵点，高效保障促落地。为高效盘活该地块，县政府推出“一个项目、一个班子、一抓到底”的帮包机制。工作专班按照“标准地”供地模式，全程帮办规划、审批、建设等各环节手续，实现新落户企业“多证齐发”“拿地即开工”。四家企业从取得土地到主体封顶平均仅用 6 个月，刷新了沂南工业项目建设速度。
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），做好不动产确权登记。纳入低效用地再开发范围的土地、房屋等不动产，应当权利归属清晰、主体明确、不存在权属争议。
（二）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》（鲁政办字〔2020〕32 号），加强政策集成和制度创新，全面提升节约集约用地水平。
（三）临沂市人民政府办公室《关于临沂市低效用地再开发试点工作实施方案的通知》（临政办字〔2025〕51 号），充分挖掘存量用地潜力，提升建设用地利用率，加快临沂经济社会高质量发展。