1. Project Overview
The project is at No. 132 Changle Road, Qinhuai District, Nanjing, Jiangsu Province, where the two leading tourist landmarks of the Confucius Temple and Laomendong meet. It covers about 1.3 hectares with about 40,000 square metres of floor space. The site was originally the Nanjing Knitwear Factory, carrying memories of the industrial era. In the 1990s it became a complex of accommodation, catering and retail; in 2004 it was converted into a Walmart supermarket; and after Walmart closed in 2020 it stood empty for a long time. Redevelopment began in 2024; trial opening was on 19 February 2026 and full opening in April 2026. The project is now a cultural, tourism and retail complex with cultural experiences, intangible heritage crafts, themed dining and "guochao" (Chinese-style) retail.
2. Redevelopment Entity and Model
(1) Why the land was inefficient
The original land use was industrial, tenure was complex, and there were many unpermitted buildings built over the years; legal floor space was only about 12,000 square metres, and it was scattered. The land included both sold commercial land and allocated industrial land with several rights holders, making redevelopment difficult. The project is also within the southern historic city defined by Nanjing's historic city protection plan, so buildings must harmonize with the surrounding traditional townscape. It is surrounded by existing housing estates, making it hard to meet current planning controls such as building separation, and existing floor space already exceeded the permitted floor area ratio.
(2) Redevelopment entity
Nanjing Textile Industry and Trade (Group) Co., Ltd., a subsidiary of the owner Nanjing New Industrial Group, carried out the redevelopment as the original land user. In August 2024, led by the Qinhuai District government and the owner, three private companies and a professional operating team were brought in to form Nanjing Xinwenmei Commercial Investment Co., Ltd. (35% owned by New Industrial Group), responsible throughout for planning, construction, leasing and operation.
(3) Redevelopment model
An existing-building renovation model was used. Without exceeding the original building envelope, adversely changing relationships with neighbours, or compromising structural and fire safety, existing buildings were renovated inside and their façades renewed, and pedestrian space was added. By including the project in the redevelopment plan, the "industrial to commercial" procedure was completed: after administrative penalties for the unpermitted buildings, a supplementary agreement to the land transfer contract was signed and the land price paid, converting the land use and legalizing the buildings. Parts exceeding planning indicators were demolished to meet current planning requirements.
3. Results of the Redevelopment
(1) Better land structure and layout
By "consolidating fragments into a whole", 14,000 square metres of scattered plots were integrated into 12,300 square metres of self-held commercial land, and the allocated industrial land was converted to commercial land with a payment of CNY 233 million in land transfer fees, using land intensively and efficiently. Planning indicators such as floor area ratio and building coverage were set reasonably after a compliance assessment, continuing the urban fabric.
(2) Flexible use of redevelopment policy
The project explored a route for the original land user to apply for a change of use, pay the transfer fee and sign a new agreement, and completed the process by which historical unpermitted buildings, after administrative penalties, obtain planning permits and property registration — a replicable institutional approach for reviving existing assets in old city areas.
(3) Significant economic and social benefits
The project revived about 40,000 square metres of idle floor space with CNY 200 million of fixed-asset investment. Expected annual sales are CNY 600 million, and it directly creates more than 1,200 jobs. In the first three days of trial opening it drew more than 220,000 visitors; over the 2026 Spring Festival holiday it had more than 700,000 visitors and sales of nearly CNY 25 million, and was featured repeatedly on CCTV's Xinwen Lianbo and Chaowen Tianxia.
4. Key Practices
(1) Use of policy
1. Inclusion in the redevelopment plan and a complete "industrial to commercial" procedure. In July 2023 the project was included in the Nanjing 2023 Annual Implementation Plan for Redevelopment of Inefficient Land. After the district government approved the implementation scheme, penalties were imposed for illegal buildings, expert consultation and public notice of the design were organized, and the scheme was approved by the city government. In May 2025, renovation of the existing industrial buildings proceeded through a supplementary agreement to the land transfer contract. After the land price was paid, part of the allocated industrial land was converted to commercial land.
2. A path to legalize historical unpermitted buildings. For about 29,000 square metres of unpermitted buildings, after the administrative penalty procedure, planning permits and property rights were completed according to redevelopment requirements. The steps included safety appraisal and fire assessment of the unpermitted buildings, completing the penalty decision, paying the relevant fees, signing a supplementary agreement to the land transfer contract that defined the legal floor area and use, and finally obtaining planning verification.
3. Assessing compliance with planning indicators: "improve, not worsen". Because the project is in the historic city and surrounded by housing, indicators such as building separation and green space ratio could not meet current standards. Interior renovation proceeded without exceeding the original envelope, worsening separation from neighbours or adding height, ensuring no adverse effect on surrounding homes. Controls such as the green space ratio were assessed on the principle of "improve, not worsen". On townscape, comparison of several schemes and consultation with leading experts ensured the façades harmonize with the surroundings. Parts exceeding planning indicators were demolished to meet the floor area ratio in the current regulatory plan.
4. Consolidation and integration of property rights. The site originally included sold commercial land and allocated industrial land with scattered tenure. Through consolidation, 14,000 square metres of fragmented plots were integrated; the owner paid CNY 233 million in land transfer fees to convert the allocated industrial land into sold commercial land, unifying the land designation within the site and laying the property basis for unified leasing and operation.
5. Land valuation and payment of the transfer fee. Based on the land valuation and redevelopment policy, the land price paid was the difference between the market price of the land use rights under current conditions and under the redevelopment conditions, and the new land use, term and planning conditions were defined.
(2) Management and approvals
1. Multi-department joint approvals. The municipal bureau and the Qinhuai District government worked with the housing, fire, culture and tourism, and environmental departments, repeatedly weighing historical circumstances, current regulations, technical standards, public interest and market returns to resolve complex tenure, confirm unpermitted areas and convert the land designation. Planning approval followed the idea of "continuing memory, regenerating space": rather than demolishing and rebuilding, the project was supported to "protect through use" and renew organically within the existing building fabric.
2. Streamlined planning approval. Historical planning records were missing and the company's current staff knew little of the site's history, so the municipal bureau collected and organized the original land records. Based on the regulatory detailed plan, the property boundaries, existing building footprints and land survey results, and the historic townscape controls of the old southern city, it defined the planning zones after redevelopment and determined the areas for each land use and the design scheme.
3. Route to planning permits and acceptance. After the district approved the scheme, the steps were: penalties for illegal buildings → expert consultation and public notice of the design → city government approval → supplementary agreement to the land transfer contract → planning permit (May 2025) → planning verification (February 2026). Planning verification focused on checking that the legal floor area and uses matched the transfer contract, ensuring rights were confirmed after penalties for unpermitted buildings.
4. Public participation and notice. After the design was completed it was publicly displayed and residents' views sought; issues raised about separation, daylight and noise were answered one by one and the scheme improved. Expert consultation on townscape harmony, structural safety and fire evacuation ensured the scheme was sound and feasible.
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) encourages redevelopment by original land users, improves procedures for changing land use, encourages concentrated contiguous redevelopment and explores mixed supply of plots for different uses.
(2) The Nanjing Implementation Plan for Pilot Redevelopment of Inefficient Land (Ningzhengbanfa [2025] No. 13) encourages original land users, where consistent with planning, to redevelop by themselves, through joint ventures, equity participation or transfer.
(3) The Nanjing Territorial Spatial Planning Regulations provide that urban renewal projects, while complying with territorial spatial plans and protecting the public interest and safety, may appropriately adjust current planning indicators within the area such as building separation, setbacks, density and green space ratio, but may not impair the rights of neighbouring plots.
(4) The Nanjing 2023 Annual Implementation Plan for Redevelopment of Inefficient Land (Ningguihuaziyuanfa [2023] No. 87) included the project in the annual plan.
Show original Chinese text （中文原文）
南京市金陵长乐坊城市更新
一、项目基本情况项目位于江苏省南京市秦淮区长乐路 132 号，地处夫子庙与老门东两大顶流文旅地标的交汇节点，占地面积约 1.3公顷，总建筑面积约 4.0 万平方米。地块前身为南京针织内衣厂厂房，承载了工业时代的城市记忆；20 世纪 90 年代改造为集住宿、餐饮、商业于一体的综合体；2004 年改建为沃尔玛超市；2020 年沃尔玛超市正式停业后，陷入长期空置状态。项目于 2024 年启动改造，2026 年 2 月 19 日试营业，2026年 4 月正式建成营业。再开发后，项目成为集文化体验、非遗百工、主题餐饮、国潮零售等多元业态于一体的文旅商业综合体。
二、改造主体和改造模式
（一）低效原因地块原用途为工业用地，权属复杂，存在大量历史形成的无证建筑，合法建筑面积仅约 1.2 万平方米，且分散分布。土地性质包括出让商业用地和划拨工业用地，产权主体多元，改造难度大。同时，项目位于南京历史文化名城保护规划确定的城南历史城区内，建筑风貌需与周边传统风貌相协调，且周边均为现状住宅小区，间距等指标难以满足现行规划控制要求，现状存量建筑面积已超出容积率指标要求。
（二）改造主体由南京纺织工贸实业（集团）有限公司（产权方南京新工集团下属）作为原土地使用权人实施再开发。2024 年 8 月，由秦淮区政府和产权方牵头，引入 3 家民营企业和专业运营团队，联合成立“南京新文美商业投资有限公司”（新工集团参股 35%），全过程负责项目的策划、建设改造、招商、运营工作。
（三）改造模式采取存量改造模式，在不突破原建筑外轮廓、不负向改变相邻关系、保证房屋结构和消防安全前提下，对现状存量建筑进行内部改造、立面出新，增加人行空间。通过纳入低效用地再开发计划，完善“工改商”流程，对无证建筑完成行政处罚后，签订土地出让合同补充协议，补缴土地价款，实现土地用途转换和建筑合法化。对超出规划指标部分进行拆除，确保满足现行规划要求。
三、低效用地再开发取得的成效
（一）用地结构与布局优化通过“化零为整”，将 1.4 万平方米零散地块优化整合为 1.23 万平方米自持商业用地，将原划拨工业用地调整为商业用地，补缴土地出让金 2.33 亿元，实现土地资源集约高效利用。规划容积率、建筑密度等指标经合规性判断后合理确定，有效延续了城市肌理。
（二）再开发政策灵活运用项目探索了原土地使用权人申请改变土地用途、补缴出让金、重新签订变更协议的路径，完成了历史遗留无证建筑通过行政处罚后办理规划许可及不动产登记手续的实践，为老城区存量资产盘活提供了可复制的制度经验。
（三）经济社会效益显著项目盘活闲置建筑面积约 4 万平方米，完成固定资产投资 2 亿元，预计年销售收入可达 6 亿元，直接带动就业岗位超 1200 个。试营业前三日客流总量突破 22 万人次，2026 年春节假期总客流超 70 万，销售额近 2500 万元，获央视《新闻联播》《朝闻天下》连续报道。
四、主要做法
（一）政策运用方面
1.纳入低效用地再开发计划，完善“工改商”流程项目于 2023 年 7 月纳入《南京市 2023 年度低效用地再开发实施计划》。实施方案经区政府批准后，对违法建筑进行处罚，组织设计方案专家咨询及社会公示，报市政府批准同意。2025 年 5 月，通过签订土地出让合同补充协议方式开展存量工业厂房更新改造。补缴土地价款后，将原用地中部分划拨工业用地调整为商业用地，实现了土地用途转换。
2.历史遗留无证建筑合法化路径针对地块内约 2.9 万平方米无证建筑，在完成行政处罚程序后，按照低效用地再开发项目要求完善规划许可及产权手续。具体流程包括：对原无证建筑进行安全鉴定和消防评估，完善行政处罚决定书，补缴相关费用，再签订土地出让合同补充协议，明确合法建筑面积和用途，最终取得规划核实手续，实现了老城区遗留无证建筑的有效盘活。
3.规划指标合规性判断——“优化不恶化”原则项目位于历史城区内，周边均为现状住宅小区，间距、绿地率等指标难以满足现行规范。做法是：在不突破原建筑外轮廓、不负向改变与周边间距、不新增建筑高度的前提下开展内部改造，确保对周边现状住宅不产生负向影响。对绿地率等控制要求，按照“优化不恶化”原则进行合规性判断。建筑风貌上，通过多方案比选、权威专家咨询等方式，确保落地方案外立面与周边城市风貌相协调。对超出规划指标部分进行拆除，确保满足现行控规容积率要求。
4.土地产权归集与整合项目地块原包括出让商业用地和划拨工业用地，权属分散。通过“化零为整”，将 1.4 万平方米零散地块优化整合，产权方补缴 2.33 亿元土地出让金，将划拨工业用地转为出让商业用地，实现同一地块内土地性质统一，为后续统一招商运营奠定产权基础。
5.地价评估与出让金补缴依据土地评估结果，结合低效用地再开发政策，按现状使用条件下的出让土地使用权市场价格与改造条件下土地使用权市场价格差额补缴土地价款，明确了新的土地用途、使用年限和规划条件。
（二）管理审批方面
1.多部门协同审批机制南京市局联合秦淮区政府，协同住建、消防、文旅、环保等多部门，在历史遗留、现行法规、技术规范、公共利益和市场收益之间反复权衡，逐一攻克产权复杂、无证面积确认、土地性质转换等难题。规划审批中，秉持“接续记忆、再生空间”的更新理念，不搞推倒重建，支持项目“以用促保、活化利用”，在原有建筑肌理上有机更新。
2.规划审批流程优化面对规划用地历史档案资料缺失、接管企业在职人员了解情况较少的实际，南京市局牵头收集整理原用地档案资料，依据控制性详细规划，紧密结合地块产权边界衔接、现有建筑占地实际及土地勘测定界成果，兼顾老城南历史风貌管控要求，科学划定低效用地再开发后的规划分区，精准确定土地分用途面积、规划设计方案等关键内容。
3.规划许可与验收手续办理路径项目实施方案经区政府批准后，依次完成：违法建筑处罚→设计方案专家咨询及社会公示→市政府批准→签订土地出让合同补充协议→规划许可（2025 年 5 月）→规划核实（2026 年 2 月）。其中，规划核实环节重点核查建筑合法面积、用途与出让合同一致性，确保无证建筑处罚后确权到位。
4.公众参与和社会公示设计方案完成后，组织社会公示，充分听取周边居民意见，对反映的间距、采光、噪音等问题逐一回应并优化方案。同时召开专家咨询会，邀请规划、建筑、历史保护等领域专家对风貌协调、结构安全、消防疏散等关键问题进行论证，确保方案科学可行。
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）规定，鼓励原土地使用权人改造开发，完善改变土地用途程序；鼓励集中连片改造，探索不同用途地块混合供应。
（二）《南京市低效用地再开发试点实施方案》（宁政办发〔2025〕13 号）规定，在符合规划的前提下，鼓励原土地使用权人通过自主、联营、入股、转让等多种方式进行再开发。
（三）《南京市国土空间规划条例》规定，城市更新项目在遵守国土空间规划、确保公共利益和安全的前提下，可以适当调整片区范围内有关建筑间距、退让、密度、绿地率等现行规划指标，但不得减损周边地块的相邻权益。
（四）《南京市 2023 年度低效用地再开发实施计划》（宁规划资源发〔2023〕87 号），将本项目纳入年度实施计划。