1. Project Overview
The Xianshi Soy Sauce Factory project is in Xianshi Town, Hejiang County, Luzhou. The project area contains the Xianshi soy sauce brewing workshops, a Major Historical and Cultural Site Protected at the National Level, and the Xianshi soy sauce brewing technique, listed as national intangible cultural heritage. The owner is Sichuan Sanxi Group, and the site covers 698 mu (80 mu in Phase 1 and 618 mu in Phase 2). Since November 2023, Sichuan Sanxi Group has used pilot policies on area-wide planning coordination, mixed use of space and change of use for existing buildings, together with heritage protection requirements, to revive the former Xianshi grain depot and the whole of Xianshi Old Street, creating the flagship "Xianshi Soy Sauce Intangible Heritage Workshop" and an industrial base that integrates primary, secondary and tertiary industries.
2. Redevelopment Entity and Model
(1) Why redevelopment was needed
First, resources did not match the development role. Existing buildings were old and dilapidated, services worn out and sanitation poor — out of step with Xianshi's role as a centre for traditional brewing requiring operation at scale. Second, the plan did not fit the direction of development. The area's original detailed plan simply followed the pre-existing mix of housing, public services and industry, which did not support the integration of industry with heritage protection or effective industrial linkages. Third, space could not meet development needs. The national heritage brewing technique urgently needed investment and expansion, but the adjacent grain depot and houses had been empty for years, involving many owners with differing demands, and redevelopment would take a long time.
(2) Redevelopment entity
The government discussed redevelopment with the parties concerned and explained the pilot policies, and it was agreed that the rights holder, Sichuan Sanxi Group, would carry out self-redevelopment.
(3) Redevelopment model
Under a "government-led, company as the main actor" model, the government provided planning support and policy, and Sichuan Sanxi Group invested CNY 200 million to redevelop the old factory, the surrounding houses, the former grain depot and other inefficient land as a contiguous area. The development and reform department secured CNY 45.97 million of central budget funds for the Xiwangtan ecological restoration project, and the housing department secured CNY 33 million of central budget funds for traditional villages, supporting the revival of Xianshi Old Street and the restoration of Xiwangtan. This integrated industrial and cultural tourism resources, improved the town's functional structure, and addressed low-quality industry, weak commercial activity, poor living conditions and inadequate protection of the traditional village.
3. Results of the Redevelopment
By reviving inefficient land, the area's spatial layout became more rational, its industry stronger and its environment more attractive, creating a brewing industry system that combines traditional brewing, green agriculture and cultural tourism and integrates all three sectors.
(1) Primary sector: expansion
Focusing on a modern agricultural base, green agriculture was integrated with brewing. More than 10,000 mu of "soybean + vegetable" modern agricultural park was established in Xianshi as a raw-material base for soy sauce, pickled cabbage and preserved vegetables. Rotating soybeans and vegetables, transferring land contract management rights, employing farmers and helping sell produce have raised local incomes by more than CNY 1,000 per mu of farmland.
(2) Secondary sector: higher quality and efficiency
Phase 1 combined "intangible heritage techniques + modern production", doubling output from 1,000 to 2,000 tonnes and raising annual output value from CNY 30 million to CNY 70 million. Dual "intangible heritage + geographical indication" labels and online channels raised average product prices by 25%. The product range was extended to vinegar, pickles, chilli bean paste and other fermented condiments, plus viral spin-offs such as soy sauce ice cream. The brand has also raised the value of other local soy sauce brands such as Yongxingcheng, Wozi and Kuangzheng — "one base energizing a whole industry chain". When completed, Phase 2, with CNY 1.8 billion of investment, will produce 200,000 tonnes of soy sauce a year, with annual output value of about CNY 5 billion, annual profit and tax of about CNY 500 million and more than 1,000 jobs.
(3) Tertiary sector: linking attractions into a chain
Industry and cultural tourism were integrated: Xianshi soy sauce culture was explored, the Jia family compound restored, a soy sauce brewing museum built and a study base for traditional brewing created. Drawing on the old street, the old wharf, the Xian Wang tomb and other historic sites, together with the Xiwangtan restoration and protection of the traditional village, a Xianshi historic and cultural district was created, boosting catering and services such as the "Lixiang Qiansu" homestay brand. The area receives more than 200,000 visitors a year, generating over CNY 40 million in spending.
4. Key Practices
(1) Plan-led: from disorder to order
Guided by the area plan for integrated development of Xianshi's three sectors and by Hejiang County's Xianshi historic and cultural protection unit for redeveloping inefficient land, and building on local strengths and trends, the area is developing modern agriculture, traditional brewing and eco-cultural tourism, combining agriculture, culture and tourism around traditional brewing. Given the area's industrial needs and the houses left empty after residents moved away, and after due assessment, some residential and public facility land in the original detailed plan was rezoned to industrial land. Under the Luzhou Implementation Guidelines for the Mixed Land-use Reform Pilot, the industrial land may include up to 30% commercial use, giving the project room to grow and meeting the need for mixed "industry + commerce" uses — traditional brewing, heritage display and educational experiences. Of the 618 mu in Phase 2, 192 mu is mixed industrial–warehouse land, meeting diverse needs and reflecting the reform of market-based allocation of factors. Combining heritage protection with environmental improvement, the company's purchase of land for contiguous redevelopment, town renewal and ecological restoration integrate brewing, commerce and tourism services into a distinctive Xianshi soy sauce culture.
(2) Contiguous redevelopment: results as soon as projects land
The traditional model of government reserve followed by resupply was replaced, avoiding long lead times and pressure on public finances. In Phase 1 the government helped the company buy 46 vacant, inefficient state-owned houses totalling 4,878 square metres for CNY 14 million, and moved the idle state-owned grain depot into the state asset disposal process, where the company won it in an open sale for CNY 20.6 million (10,999 square metres of floor space). Hejiang County also set unified planning conditions for 5.35 mu of scattered leftover and enclosed plots within the area and transferred them to the company by agreement for expansion, putting small inefficient plots to use.
(3) Changing building uses: an old face made new
A combined approach of "retain, alter, demolish, add" was implemented under unified planning. The fermentation and drying yards and the original building style were kept, and the classical character of southern Sichuan vernacular houses was enhanced. After parallel review by several departments, about 6,000 square metres of grain depot warehouses — existing public service buildings meeting fire and safety requirements — were converted to industrial and commercial use for homestays, restaurants, meeting rooms, offices, a study centre and a soy sauce brewing museum. 4,878 square metres of old, unsafe houses that did not meet fire and safety requirements were demolished, and about 5,400 square metres of new public space — parking, drying yards, green space and covered walkways — were added, laying the groundwork for "industry + tourism". Following Sichuan's reform of construction approvals and the rules for simple, low-risk social investment projects, simple structures such as the covered walkways linking the site's functions were exempted from planning permits. Taking into account the demolition of 4,878 square metres of unsafe buildings and the net effect of the rezoning — about 7.32 mu less residential land, 9 mu more commercial land and about 1.68 mu less industrial land — the difference in land transfer fees to be paid was assessed as a whole.
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) supports issuing planning conditions for small plots that are difficult to develop independently together with adjacent industrial plots and supplying them as a whole to the adjacent industrial project for expansion (excluding commercial housing). It encourages concentrated, contiguous redevelopment and, where tenure is clear and undisputed, the process is open, competition is sufficient and industry is given priority, explores mixed supply of plots for different uses and the conditions and procedures for linking "industrial to industrial" with "industrial to commercial" and "industrial to residential" redevelopment. It calls for sound mechanisms for converting existing resources, exploring ways to change the use of existing buildings where plans are complied with and safety is assured, and allows a transition period of up to five years without changing the land user or planning conditions for using existing property to develop industries supported by the state.
(2) The Implementation Rules for Promoting Pilot Redevelopment of Inefficient Land (Lushizirangui [2025] No. 6), issued by the Luzhou Bureau of Natural Resources and Planning and four other departments, support companies in redeveloping old residential compounds and commodity markets with fragmented ownership on state-owned land, and in renewing historic and cultural districts and historic character areas. Once the county or district government has set the scope and requirements, the implementing entity is selected through open competition. Once it has reached agreement with the property owners within the scope, it may redevelop on a "land follows the building" basis. Where land-use conditions, the term of use or floor area change, planning conditions are reset, a new land transfer contract is signed and the land price is paid.
Show original Chinese text （中文原文）
泸州市先市酱油厂升级焕新
一、项目基本情况先市酱油厂盘活改造项目位于泸州市合江县先市镇，项目范围内有全国重点文物保护单位先市酱油酿造作坊群和国家级非物质文化遗产代表性项目先市酱油酿造技艺，改造项目产权单位为四川三溪集团，用地面积 698 亩（其中一期80 亩，二期 618 亩）。2023 年 11 月以来，四川三溪集团基于低效用地再开发试点政策的片区规划统筹、空间复合利用、存量建筑用途转换等政策，结合历史文化保护要求，有序盘活利用原先市粮站、整体活化先市古街，打造“先市酱油非遗工坊”标杆项目和一二三产业融合发展产业基地。
二、改造主体和改造模式
（一）改造原因一是资源不匹配发展定位。项目区域存量建筑资源老旧破败、服务设施老化、环境卫生较差，与先市传统酿造产业为主导、需要规模化经营的发展定位不匹配。二是规划不符合发展方向。片区原详细规划是沿用改造前利用现状确定的居住、公共服务、产业交叉布局，不符合产业发展和历史文化保护深度融合的发展方向，不能有效支撑产业联动。三是空间不满足发展需求。先市酱油酿造技艺作为国家级非物质文化遗产代表性项目，急需增资扩产，但毗邻的先市粮站、民房空闲多年，涉及主体多、诉求多元，改造周期长。
（二）改造主体政府与相关主体沟通对接改造意愿、宣讲试点政策，确定由权利人四川三溪集团实施自主更新改造。
（三）改造模式按照“政府主导、企业主体”的再开发改造模式，政府给予规划赋能、政策支撑，四川三溪集团投资 2 亿元对原先市酱油厂及周边民房、原先市粮站等低效用地进行连片改造开发，发展改革部门争取获得洗网滩生态修复项目中央预算内资金 4597 万元，住建部门争取获得传统村落项目中央预算内资金 3300 万元，支持先市古街活化改造、洗网滩生态修复，实现产业资源和文旅资源融合，进一步调优区域城镇功能结构，解决区域内产业质量不高、商业活力不足、人居环境品质低、传统村落保护不强等问题。
三、低效用地再开发取得的成效通过盘活低效用地，使片区国土空间布局更合理，产业实力更强劲，生态环境更美丽，构建了集传统酿造、绿色农业、文化旅游为一体的酿造产业发展体系，实现三产有机融合。
（一）“一产”扩量提升紧扣现代农业产业基地建设“牛鼻子”，推动绿色农业与酿造产业的深度融合，建设先市“大豆+蔬菜”现代农业园区 1 万余亩，作为酱油、酸菜、芽菜等食品产业原料保障基地。采取大豆蔬菜轮作模式，通过土地承包经营权流转、吸纳农民务工、帮助销售农产品等方式，带动当地群众致富，每亩耕地增收 1000 余元。
（二）“二产”提质增效项目一期通过“非遗技艺+现代生产”融合，产量从 1000吨增至 2000 吨，年产值从 0.3 亿元跃升至 0.7 亿元。创新“非遗+地理标志”双标签营销，线上渠道带动产品均价提升25%，延伸开发醋、酱菜、豆瓣酱等发酵调味品矩阵，创新推出酱油冰淇淋等网红衍生品。通过品牌辐射带动永兴诚、窝子、匡正等酱油品牌价值提升，实现“一个基地激活一个产业链”的示范效应。投资 18 亿元的二期项目建成投产后，可年产酱油 20 万吨，年产值约 50 亿元，年利税额约 5 亿元，提供就业岗位 1000 余个。
（三）“三产”串珠成链推进工业+文旅融合发展，挖掘先市酱油文化，修复贾家大院，建设先市酱油酿造博物馆，打造古法酿造工艺研学基地。依托先市古街、古码头、先汪墓等历史古迹，结合洗网滩生态修复和传统村落保护，打造先市历史文化街区，带动餐饮、“荔乡千宿”等服务业发展。全年接待游客 20 万余人次，带动消费 4000 余万元。
四、主要做法
（一）规划引领，引导“无序变有序”
坚持以先市三产融合发展片区规划为统领，以合江县低效用地再开发—先市历史文化保护单元为引导，结合区域发展基础和态势，大力发展现代农业、传统酿造、生态文化旅游等产业，实现以传统酿造工艺为特色的农文旅融合发展目标。根据片区产业需求及居民外迁民房空闲实际，经论证将原详细规划中部分居住用地、公共服务设施用地优化调整为工业用地，依据《泸州市混合用地改革试点工作实施指引》，确定工业用地兼容 30%商业指标，优化项目发展空间，满足传统酿造生产区、非遗展示区、研学体验等“工业+商业”混合业态需求。二期用地 618 亩，其中工业兼容仓储混合用地 192 亩，满足多元业态需求，充分体现要素市场化改革要求。融合保护传承和环境提升要求，通过企业购地连片改造、城镇更新、生态修复等方式，将传统酿造产业、商业、旅游服务业有效融合，打造先市酱油酿造特色文化。
（二）连片改造，推动“落地即见效”
改变政府收储后再供应的传统改造模式，破解项目落地时间长、财政资金压力大等问题。政府在改造项目一期协助企业以 1400 万元收购周边 46 户 4878 平方米低效国有空闲民房，推动先市粮站空闲国有存量资产进入国有资产处置程序，由改造主体以 2060 万元公开竞得（建筑面积 10999 平方米）。合江县将项目改造片区内边角地、夹心地等零星用地 5.35 亩，通过统一核定规划条件，以协议方式出让给企业用于增资扩产，实现低效零星用地盘活利用。
（三）建筑用途转换，实现“旧貌换新颜”
采用统一规划、分类实施“留改拆增”综合改造的方式，保留酿晒场及原有建设风格，优化提升川南民居古典风貌，传承地域特色；通过多部门并联审查，将符合消防、安全要求的约 6000 平方米公共服务设施类存量建筑粮站仓库用途转换为工业、商业，用于打造民宿、餐厅、会议室、办公用房、研学中心、酱油酿造博物馆，丰富区域功能；拆除 4878平方米不符合消防、安全要求的老旧危房；新增约 5400 平方米的停车场、酿晒场、绿地、风雨长廊等公共空间，夯实“工业+旅游”环境基础。按照四川省工程建设项目审批制度改革精神和社会投资简易低风险工程建设项目审批管理服务要求，对风雨长廊等串联项目内功能布局的简易设施优化规划审批程序，免予办理规划许可。综合考虑改造后拆除4878 平方米老旧危房建筑，规划用途优化后减少居住用地约
7.32 亩、增加商业用地 9 亩、减少工业用地约 1.68 亩，整体评估并确定补缴土地出让金的差价。
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），探索将难以独立开发的零星地块，与相邻产业地块一并出具规划条件，整体供应给相邻产业项目用于增资扩产（商品住宅除外）。鼓励集中连片改造开发，在权属清晰无争议、过程公开透明、充分竞争参与、产业导向优先的前提下，探索不同用途地块混合供应，探索“工改工”与“工改商”“工改住”联动改造的条件和程序。健全存量资源转换利用机制。在符合规划、确保安全的前提下，探索对存量建筑实施用途转换的方法，按照实事求是、简化办理的原则，制定转换规则，完善相关审批事项办理程序。鼓励利用存量房产等空间资源发展国家支持产业和行业，允许以 5 年为限，享受不改变用地主体和规划条件的过渡期支持政策。
（二）泸州市自然资源和规划局等 5 部门印发《关于推进低效用地再开发试点工作的实施细则》（泸市自然资规规〔2025〕6 号），支持企业参与国有土地上具有分散产权特征的老旧居住院落、商品交易市场的整体改造，以及对历史文化街区和历史风貌区的更新改造。区县政府确定项目实施范围、改造要求等条件后，通过公开择优方式确定实施主体。实施主体与实施范围内房屋所有权人协商一致后，可选择采用“地随房走”方式实施再开发。若涉及改变土地使用条件、调整土地使用年期、增加建筑面积的，则重新核定规划条件，签订土地出让合同，缴纳土地出让价款。