1. Project Overview
The project is in the core of the Shengshan Town industrial park in Cixi, one of China's three national bicycle-parts industry bases. It covers 32,100 square metres (48.2 mu). Plots in the area were interlocked and mixed, buildings were old, the average parcel was 8.03 mu and the smallest only 2.25 mu; the existing floor area ratio was 0.8 and overall development intensity low. Launched in November 2022, the project departed from the usual approaches of government acquisition and resale or redevelopment by a single company: three market players — Ningbo Richeng Industry and Trade Co., Ltd., Ningbo Rilian Vehicle Co., Ltd. and Cixi Wangjiao Vehicle Co., Ltd. — developed it jointly, integrating their adjacent inefficient industrial land to create Ningbo's first bicycle-parts innovation park.
2. Redevelopment Entity and Model
Breaking with government acquisition or single-company development, three leading companies in the park acted together as joint developers, bringing private capital into the renewal of an old industrial area. The model eased the funding pressure and weak incentives facing individual companies and avoided fragmenting resources, allowing the site to be planned and developed as a whole.
3. Results of the Redevelopment
(1) More value from the land and markedly more intensive use
Small and micro companies face high costs, high risks and limited capacity when redeveloping on their own. Joint redevelopment of a contiguous area shared the costs and risks of transformation and supported the real economy. The project revived 48.2 mu of inefficient industrial land, overcame the spatial limits of redeveloping single parcels, coordinated the park's building layout, services, greenery and fire safety, and adopted multi-storey factories. Old single-storey factories were replaced by high-standard industrial buildings of four to six storeys and nearly 24 metres high. The floor area ratio rose to 2.72 — more than three times the original — and total floor space increased from 22,000 to 87,400 square metres, adding more than 60,000 square metres of quality industrial space and fully resolving the problem of low land use.
(2) More innovation in the economy and stronger industry
Total investment is about CNY 275 million, with five new factory buildings and one original building retained. Drawing on the combined strengths of several companies, the project brings together the industrial, innovation and service chains and provides producer services such as R&D and design, testing and inspection, and smart maintenance, linking manufacturing and services and driving smart, green upgrading of traditional manufacturing. Resource allocation efficiency has improved markedly: the companies' per-mu tax ratings rose from grade D to grades A and B. The park can nurture more than 15 above-designated-size companies, with expected annual sales above CNY 1.2 billion and annual capacity of 30 million sets of bicycle parts.
(3) A more attractive town and better safety
The low, dilapidated old factories were fully redeveloped into a standardized, modern, high-standard industrial park, eliminating fire, environmental and other hazards and regularizing operations. The streetscape along Shengshan Avenue has been greatly improved and the town's industrial image refreshed — better industry, safer conditions and a better environment.
4. Key Practices
(1) Top-level design and a joint development mechanism
Old industrial areas have small parcels, scattered ownership and are hard for a single company to redevelop. On policy, Ningbo issued an implementation plan for the redevelopment pilot that supports joint development by multiple parties, and Cixi detailed an action plan for upgrading old industrial blocks that allows existing fragmented ownership boundaries to be broken and guides several companies to redevelop adjacent plots together. On mechanisms, Cixi set up a leading group for upgrading old industrial blocks to coordinate joint consultations among the natural resources and planning and economy and information technology departments and the local town, clearing bottlenecks along the whole chain. On implementation, the three companies, following the pilot policy, removed the ownership boundaries between their six parcels, signed a joint development agreement and prepared a single joint redevelopment scheme merging the six parcels into one. The value of each company's land use rights and retained permitted buildings was assessed and, together with total project investment, used to set each party's share of construction costs and allocation of the finished property. The scheme was reviewed jointly by the departments convened by the leading group's office and then implemented.
(2) Unified land terms to support redevelopment of the whole park
Mismatched lease terms would have led to out-of-step redevelopment and mismatched financing periods. By agreement with the companies, the expiry date of the second-largest parcel was taken as the reference. The difference in land price for the extra years was paid by agreement, and the expiry dates of four parcels with different terms were all extended to 16 July 2056; the land use rights to another parcel of 1,497 square metres gave up part of their term to align with the same date.
(3) Coordinated planning for more efficient land use
Redeveloping single parcels separately is limited by requirements for setbacks from boundary lines, continuous fire lanes and green space ratios, which lower land use. Joint redevelopment and unified planning approval removed the constraints of old ownership boundaries on building layout: fire lanes and green space were provided across the site, and the park's entrances and internal roads are shared, greatly increasing effective land use.
(4) Better services and faster approvals
Joint projects by several parties are difficult to approve and involve cumbersome applications, so the approval mechanism was improved and procedures simplified. Cixi issued implementation rules for redeveloping inefficient industrial land, stating that once a joint project has been approved by a joint departmental review and minuted, each department and the local government handle project filing (or approval), works planning permit, construction permit, completion acceptance and property registration according to their responsibilities. In practice, because the Zhejiang online government service platform did not yet support joint applications by several parties, the development and reform department designated Richeng, the consortium leader, to apply for project filing on behalf of all, listing all consortium members in the filing documents. All subsequent approvals were handled by the lead company as the implementing entity, with integrated approval and recognition, removing the approval barriers for joint redevelopment of multiple parcels.
(5) Innovative registration to meet companies' need for title
Following the joint scheme, the local tax authority was consulted to determine the area of land use rights transferred and the tax arrangements. Because roads and other shared facilities were planned, developed and shared jointly, the six parcels could no longer stand as separate parcels. With the agreement of the joint departmental review, minuted accordingly, after completion title is registered building by building as separate certificates within a jointly held parcel, on the principle of registering land and buildings together. Land use rights for each building are set as "exclusive footprint + apportioned share of common areas": the footprint equals the building's projected area, and the common area — roads, greenery and other shared parts, i.e. the total area minus exclusive footprints — is apportioned in proportion to each building's floor area.
5. Policy Basis
The Ningbo Implementation Plan for Pilot Redevelopment of Inefficient Land provides for "joint development by multiple parties, encouraging holders of land use rights to adjacent parcels to apply for joint redevelopment of old industrial land. Where consistent with the detailed plan, consortium members may cross ownership boundaries to exchange land, prepare a redevelopment scheme and agree on division ratios. The building layout in the scheme is not constrained by ownership boundaries, and production services, administrative offices and living services may be concentrated. Once approved by the relevant departments, the works planning permit and construction permit are issued. After completion and acceptance, property rights are divided and registered in the names of consortium members according to the approved ratios." This provided the policy basis for the joint project.
Show original Chinese text （中文原文）
宁波市胜山创新园区联合改造
一、项目基本情况本项目地处慈溪市胜山镇工业园核心区，为全国三大国家级自行车零部件产业基地之一，总用地面积 3.21 万平方米（48.2 亩）。项目区内现状地块交错混杂、建筑老旧，宗地平均面积 8.03 亩，最小宗地面积仅 2.25 亩，现状容积率 0.8，整体开发强度偏低。项目于 2022 年 11 月正式启动，打破传统由政府收储后再出让改造或单一企业自主改造的常规模式，由宁波市日骋工贸有限公司、宁波日联车业有限公司、慈溪旺角车业有限公司 3 家市场主体实施联合开发，整合企业相邻低效工业用地，打造宁波市首个自行车零部件产业创新园。
二、改造主体和改造模式本项目打破传统由政府收储或单一企业开发的常规模式，由园区内三家行业龙头企业——宁波市日骋工贸有限公司、宁波日联车业有限公司、慈溪旺角车业有限公司共同作为联合开发主体，推动民间资本参与老旧工业园区改造。该模式既缓解了单一企业资金压力较大、改造动力不足的问题，又避免了资源分割，实现了地块的整体规划与统一开发。
三、低效用地再开发取得的成效
（一）提高土地“含金率”，集约水平明显提升针对中小微企业单体改造投入大、风险高、能力不足的短板，项目通过多主体联合改造、连片整体开发，有效分摊改造成本、共担转型风险，切实为实体经济纾困赋能。本项目共盘活低效工业用地 48.2 亩，打破传统单宗地改造的空间局限，统筹优化园区建筑布局、配套设施与绿化消防体系，推行多层厂房建设立体开发模式，将原有单层传统老旧厂房改造为 4 至 6 层、建筑高度近 24 米的高标准产业厂房，地块容积率提高至 2.72，相比原指标提升 3 倍以上，总建筑面积由 2.2 万平方米增至 8.74 万平方米，新增优质产业空间超 6 万平方米，彻底破解土地利用率偏低难题，实现土地资源节约集约利用。
（二）做大经济“含新量”，产业实力持续增强项目总投资约 2.75 亿元，新建厂房 5 幢、保留原有厂房 1 幢。依托多主体联动优势，项目整合集聚产业链、创新链、服务链资源，统筹布局研发设计、检验检测、智慧运维等生产性配套服务，打通制造业与服务业融合发展通道，推动传统制造业智能化、绿色化转型升级，培育服务型制造新业态。通过系统化改造升级，园区企业资源配置效率显著优化，亩均税收由原有 D 档提升至 A、B 档，可集聚培育规上企业 15 家以上，预计年销售收入超 12 亿元，自行车零部件年产能达 3000 万套。
（三）做实城镇“含美量”，安全条件不断改善项目对原有低矮破旧、设施老化的老旧厂房进行全方位改造，建成标准化、现代化高标准产业园区，从根本上消除厂区消防安全、环保合规等各类隐患，规范园区生产经营秩序。同时大幅优化胜山大道沿线城市界面，刷新镇区产业风貌，实现产业提质、安全提级、环境提美的多重提升，为区域实体经济高质量、可持续发展夯实坚实基础。
四、主要做法
（一）完善顶层设计，创新联合开发机制针对老旧工业区宗地小、产权散、单一企业实施改造难度大等问题，政策层面，宁波市出台低效用地再开发试点实施方案，支持开展多主体联合开发；慈溪市细化实施老旧工业区块改造提升攻坚行动计划，允许打破原有零散的土地权属壁垒，引导多企业邻近地块连片改造。机制层面，为进一步理清全链条的堵点卡点、凝聚部门合力，慈溪市成立老旧工业区块改造提升工作领导小组（以下简称“领导小组”），统筹自然资源和规划、经信部门及属地镇街联合会商，协同推动项目落地。实施层面，3 家企业对照试点政策，打破原有 6 宗地权属界限，签订联合开发协议，统一编制联合改造方案，将原 6 宗土地合并为一宗，并以自有土地使用权、保留有证建筑核算资产价值，结合项目总投入，明确各方建设成本分摊比例及不动产分配方案。改造方案报经领导小组办公室召集部门联审后组织实施。
（二）统一土地年期，保障园区整体改造为解决因原出让年限错配导致的联合改造不同步、融资期限不匹配等实际问题，经与企业协商一致，约定以其中面积第二大的 1 宗土地出让期限为基准日，通过协议方式补缴差额年限出让价款，统一调整出让终止日期，将年期不一致的 4 宗土地统一延长至 2056 年 7 月 16 日，另 1 宗 1497 平方米的土地使用权放弃部分年期也统一到这个时点。
（三）强化规划统筹，提高土地利用效率为有效破解单宗地块独立改造的局限性，解决单宗地块改造因土地红线退让、消防通道环通、绿地率达标等规范要求导致土地利用率偏低的难题，项目通过联合改造、统一规划审批，打破原有权属界线对建筑布局的制约，统筹配置消防通道、绿化空间，共享园区出入口及内部道路，大幅提升土地实际利用效能。
（四）优化服务机制，提高行政审批效率针对多主体联合改造项目审批难、申报繁等问题，进一步优化审批机制、简化办理流程。机制层面，出台慈溪低效工业用地改造实施细则，明确联合改造项目经部门联审同意并形成会议纪要后，各职能部门及属地政府按职责分工，统筹做好项目备案（核准）、工程规划许可、施工许可、竣工验收、不动产登记等全流程审批、监管及服务工作。操作层面，立项阶段针对浙江政务服务网暂不支持多主体联合申报的实际，发改部门明确由联合体牵头企业日骋公司统一申报项目立项，并在立项备案文件完整列明联合体企业；后续审批均由牵头企业作为实施主体统一代办申报，实行一体审批、整体认定，有效破解多宗权属地块联合改造的审批壁垒。
（五）创新登记方式，保障企业确权需求根据联合改造方案，积极协调属地税务部门，明确土地使用权转移面积和缴税方案。在确定不动产登记方案时，考虑到道路等配套设施统一规划、开发、共享后，6 宗地不再具备单独成宗条件，经部门联审同意并形成会议纪要，竣工验收后，按照房地一体原则，以幢为单位进行共有宗分证登记。具体按照“幢基底独用+共用部分分摊”形式确定土地使用权面积，其中幢基底面积按照建筑投影面积确定；共用分摊面积，即为对道路、绿化等共有部分，按照总面积扣除独用面积后进行量化分摊，分摊系数按照建筑面积占比确定。
五、政策依据《宁波市低效用地再开发试点实施方案》中明确“开展多主体联合开发，鼓励已取得土地使用权的相邻宗地土地使用权人对旧工业用地申请联合改造。在符合详细规划的前提下，允许各联合体成员打破权属界线置换土地，编制改造方案，约定分割比例。改造方案中的建筑布局不受权属界线限制，可集中建设生产服务、行政办公、生活服务设施。改造方案经相关部门审批后，核发建设工程规划许可证与建筑工程施工许可证。改造完成并竣工验收后，根据改造方案中批准约定的比例将产权分割登记到联合体成员名下”，为联合改造项目实施提供了政策依据。