1. Project Overview
"Shaoxin Valley" (the Mahai area of Paojiang) lies on the southern shore of Hangzhou Bay at the northern urban core of Shaoxing, bounded by Yuexing Road to the east, the Hangzhou–Ningbo Expressway to the south, the Xinzha River to the west and the Cao'e River to the north. It covers 6,988 mu with about 4.55 million square metres of buildings. The area was formerly a cluster of dyeing and chemical companies, whose land accounted for 4,802 mu — more than half of the total. Land use was extensive, output was low and infrastructure was outdated.
To transform traditional industries systematically and break out of this inefficiency, Shaoxing launched a cross-district relocation programme for the dyeing and chemical industries: dyeing companies were concentrated in Keqiao and chemical companies in Shangyu, and electroplating was phased out entirely. In total about 10,000 mu of land and nearly 5 million square metres of factory space were released. On this basis, construction of Shaoxin Valley began in the main vacated area, Mahai, focusing on "pan-semiconductor+" industries such as semiconductors and photovoltaics. The project started in June 2022, and 12 companies have completed self-redevelopment.
2. Redevelopment Entity and Model
The project is coordinated by the Shaoxing Binhai New Area Management Committee under a model of "the government improves supporting infrastructure, companies choose their own path". The new area revised the territorial spatial plan for the district, optimized its spatial structure and released redevelopment potential. It developed a government–enterprise cooperation toolkit of "four categories and ten methods" to encourage original owners to redevelop their own sites, planning at the scale of the whole area and implementing through the market to raise overall land-use efficiency.
3. Results of the Redevelopment
(1) Existing space upgraded
To date, Shaoxin Valley has relocated 47 dyeing and chemical companies, involving 2,656 mu of land and 1.87 million square metres of factory space. The permitted floor area ratio for redevelopment in the vacated area has been raised to 4.0, releasing the potential of existing space by building upwards. Companies are encouraged to redevelop their own sites: 43 have started self-redevelopment, and their average floor area ratio has risen from below 1.0 to above 2.0.
(2) Industrial transformation under way
With about 680,000 square metres of factory space currently available for lease in the area, an innovative "factory lease + lease first, transfer later" model was introduced to shorten construction time and speed up project landing. Focusing on mid-range core industries such as semiconductor ICs, LEDs, displays and new energy, the area has attracted 37 high-quality companies including Lanyao New Materials, Roumo Electronics and Jinshi 3D, mobilizing CNY 30 billion of investment.
(3) A renewed urban image
Guided by the territorial spatial plan, urban design and architectural style guidelines, and the Urban Design for the Mahai (Shaoxin Valley) Area of Shaoxing, the "33324" urban design layout was established. Old factories and low-density buildings have been comprehensively renewed, markedly improving the townscape and the quality of industrial space.
4. Key Practices
(1) Optimizing layout across counties to free up space — "emptying the cage to change the birds"
Using its per-mu performance evaluation system, Shaoxing addressed the scattered layout, concentrated pollution and low output of the dyeing and chemical industries in Mahai by breaking down administrative boundaries. It pioneered a national first in "cross-jurisdiction integration" with a path of "cross-county relocation + in-situ redevelopment". Based on per-mu evaluation results and the city-wide industrial layout, an "evaluation-plus" approach merged 34 dyeing companies into five dyeing groups, which moved as a whole to the Keqiao dyeing cluster, and merged 21 chemical companies into 18 groups, which moved to the Shangyu Hangzhou Bay chemical park. All other companies were closed, phased out, merged or restructured. After relocation, the concentration of the dyeing and chemical industries rose from 65% to 80%; nearly 5,000 mu of industrial land and nearly 3 million square metres of factory space were vacated.
In the vacated area, spatial planning and industrial development planning were coordinated to launch Shaoxin Valley, attracting 37 high-quality industrial projects with planned total investment of more than CNY 30 billion. This path broke administrative barriers and separated the "emptying of the cage" from the "arrival of new birds" in space while coordinating them in function, offering a replicable approach for similar areas undergoing traditional industrial transition.
(2) Plan-led renewal with better infrastructure, driving systematic redevelopment
The detailed plan for Shaoxin Valley was revised and an urban design prepared, reshaping the area's industrial space through top-level design. The "33324" layout creates a spatial pattern with clear functions, a leading innovation core, connecting ecological corridors and community services. The urban design sets architectural style guidelines with mandatory controls on style, colour and massing. Making use of planning flexibility, planning indicators for projects were reasonably determined even before the regulatory detailed plan was approved, encouraging companies to start redevelopment.
Supporting rules were issued, including the Special Policy Opinions on Organic Urban Renewal in the Mahai Area (Trial) and the Supplementary Measures to Encourage Self-transformation in the Mahai Area, giving targeted support for self-transformation, joint development and project landing. The self-redevelopment rules provide rewards paid in instalments according to the amount invested, up to 30%. The Admission Standards for Industrial Projects in the Paojiang Mahai Block set clear entry thresholds. This "special policy + admission standards + implementation rules" package closely integrated planning controls with land policy, advancing institutional innovation and spatial restructuring together.
(3) Different paths for different owners, mobilizing many actors
Ownership in the area was fragmented, owners' demands varied and their financial strength differed widely. Instead of the traditional one-size-fits-all approach of acquiring and rebuilding everything, Shaoxing proposed the "four batches" principle — some owners transform on their own, some redevelop in partnership, some are pushed to exit, and some sites are expropriated or purchased as needed. It developed "ten methods" of government cooperation: guided self-transformation, joint development between companies, strategic cooperative development, investment through funds, equal-value property swaps, whole-site leasing by the government, joint government–enterprise companies, closure and exit, market-based purchase, and expropriation where needed. These were matched precisely to each company's willingness and capacity.
Self-redevelopment. Willing and capable companies are encouraged to demolish and rebuild or to carry out light-touch renovation. Feiyue Juxin, one of the first self-redevelopment pilots in Shaoxin Valley, invested CNY 600 million to demolish and rebuild an old dyeing factory, creating more than 200,000 square metres of high-standard factory space and raising the plot's floor area ratio from 0.53 to 2.17.
Government–enterprise joint development. Companies that are willing but lack funds proceed through strategic cooperative development, fund investment or joint government–enterprise companies. Part of the former Dushu dyeing plant was bought by a state-owned enterprise and converted into the Shaoxin Valley "City Living Room", with a site area of about 5,000 square metres and about 12,000 square metres of floor space, housing exhibitions, dining, leisure, fitness and training, and serving as the area's showcase.
Relocation, closure and exit. Companies that do not fit the industrial direction and have no wish to redevelop leave in an orderly way through equal-value property swaps, market purchase, or closure. All four electroplating companies in Shaoxin Valley, and the dyeing and chemical companies that did not meet the standards for relocation into clusters, were closed.
Expropriation and purchase where needed. Land needed for infrastructure and the public interest is expropriated or purchased by the government according to project needs, ensuring public facilities are delivered. Shaoxing Chancheng Renewal Construction and Development Co., Ltd. purchased the Mingye plant to build the Mahai No. 1 Area Industrial Community 1-1 comprehensive renewal project, with about 410,000 square metres of floor space and total investment of about CNY 2.2 billion, combining an industry–research centre, an urban industry centre and an exhibition and reception centre.
Compared with the traditional "acquire everything, rebuild everything" model, the "four categories and ten methods" let each company choose a redevelopment route that suits its situation. It respects owners' wishes while preserving the government's guiding role, has greatly increased companies' willingness to take part, has mobilized more than CNY 10 billion of private investment and has eased the government's acquisition funding burden — a shift from "the government does everything" to "many actors governing together".
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 improving the specific procedures for land expropriation in the redevelopment of inefficient land.
(2) Under the Supplementary Measures to Encourage Self-transformation in the Mahai Area, companies carrying out self-redevelopment may, according to investment progress and redevelopment type, apply for high-quality development awards, self-redevelopment investment awards and equipment investment subsidies.
(3) The Special Policy Opinions on Organic Urban Renewal in the Mahai Area (Trial) support companies' redevelopment and encourage higher floor area ratios: the floor area ratio for new industrial land should generally be no lower than 1.5, and for mixed industrial land generally no lower than 2.0 and in principle no higher than 4.0.
Show original Chinese text （中文原文）
绍兴市“绍芯谷”城市更新
一、项目基本情况“绍芯谷”（袍江马海片区）位于杭州湾南翼、绍兴北部城市核心，东至越兴路、南至杭甬高速、西至新闸江、北至曹娥江，总面积 6988 亩，建筑面积约 455 万平方米。该片区原为印染、化工企业集聚区，其中印染化工用地 4802亩、占比超过一半，土地利用粗放、产出效益低下、基础设施陈旧。
为推动传统产业系统转型提升，破解低效困局，绍兴市创新实施印染化工产业跨区域集聚提升工程，印染、化工企业分别向柯桥、上虞集聚提升，电镀产业全部淘汰退出，共计释放土地空间约一万亩土地、厂房近 500 万平方米。在此基础上，在主要腾退区马海片区启动“绍芯谷”建设，重点发展半导体光伏等“泛半导体+”产业，项目于 2022 年 6 月启动，12 家企业完成自主更新。
二、改造主体和改造模式本项目由绍兴滨海新区管委会统筹推进，坚持“政府优配套+企业定路径”模式，新区修编片区国土空间规划，优化空间结构，释放再开发潜力；探索形成政企合作“四类十法”，激发原产权人自主更新积极性，片区化谋划、市场化实施，推动土地利用效率整体提升。
三、低效用地再开发取得的成效
（一）存量空间提质增效截至目前，“绍芯谷”腾退 47 家印染化工企业，涉及土地 2656 亩、厂房 187 万平方米，腾退区域再开发允许容积率突破至 4.0，以向上拓展的方式释放存量空间潜力。鼓励片区企业自主更新，已有 43 家企业开展自主更新，改造后平均容积率从不足 1.0 提升至 2.0 以上。
（二）产业转型有效推进结合目前片区可租厂房面积约 68 万平方米现状，创新推行“厂房租赁+先租后让”模式，缩短工期，加速项目落地。围绕半导体 IC、LED、显示、新能源等中端核心产业，引进蓝珧新材料、柔墨电子、金石三维等 37 家优质企业，撬动投资 300 亿元。
（三）城市形象焕新升级在国土空间规划、城市设计建筑风貌导则、《绍兴马海（绍芯谷）片区城市设计》的指引下，构建“33324”城市设计布局，实现老旧厂房和低容积率建筑全面更新，片区建筑景观风貌和产业空间品质显著提升。
四、主要做法
（一）跨县域优布局腾空间，实现空间“腾笼换鸟”
绍兴市依托亩均效益评价体系，针对马海片区印染化工产业布局分散、污染集中、产出低效等问题，打破行政区划壁垒，开创全国“跨域整合”先河，创新实施“跨县域腾退+原地再开发”路径。运用亩均效益评价结果，结合全市产业布局，采用“亩均评价+”的方式，把 34 家印染企业整合为 5 个印染组团，整体搬迁至柯桥区印染产业集聚区，21 家化工企业整合成 18 个化工组团，整体搬迁至上虞杭州湾化工园区，其余企业全部关停淘汰或兼并重组，集聚后印染化工产业集中度由 65%提升至 80%，累计腾退工业用地近 5000亩、腾空工业厂房近 300 万平方米。在腾退区域，统筹空间规划和产业发展规划，启动“绍芯谷”建设，引进优质产业项目 37 个，计划总投资超 300 亿元。这一路径打破了行政区划壁垒，实现了“腾笼”与“换鸟”的空间分离与功能协同，为同类传统产业转型区域提供了可复制的经验。
（二）编规划重引领优配套，推动片区系统改造开展“绍芯谷”详细规划修编和城市设计，以顶层设计重塑片区产业空间。谋划“33324”城市布局构建片区功能清晰、创新极核引领、生态廊道串联、社区服务配套的空间发展格局。城市设计明确建筑风貌导则，对风格、色彩、体量实施刚性管控，依托规划弹性实施，在控制性详细规划批复前支持片区内项目规划指标合理核定，引导企业落地改造项目，释放企业改造活力。出台《马海片区城市有机更新专项政策意见（试行）》及《马海片区鼓励自主转型补充实施办法》等配套细则，在企业自主转型、合作开发、落地保障等方面给予重点支持。其中，自主更新补充政策明确企业更新改造按照自主更新投资额度分批兑现奖补，最高给予 30%奖励；同步出台《袍江马海区块产业项目准入标准》，明确产业准入门槛。通过“专项政策+准入标准+实施细则”的制度组合，推动规划管控与土地政策深度融合，实现了制度创新与空间重构的协同推进。
（三）分类别定路径促转型，凝聚多元主体合力针对片区内企业产权分散、诉求多元、资金实力差异大的实际，摒弃传统“一刀切”的全收全建模式，创新提出“四个一批”（自主转型一批、合作改造一批、倒逼淘汰一批、因需征收、收购一批）的总体思路，探索形成政府合作开发“十法”（引导自主转型、企业联合开发、战略合作开发、入股基金合作、不动产等值置换、政府整租开发、政企合建公司、关停淘汰退出、市场化收购、政府因需征收等 10 种合作模式），精准匹配不同企业的改造意愿和能力。
引导自主更新类。对有意愿、有实力的企业，鼓励自主拆除重建或微更新改造。飞越炬芯是“绍芯谷”第一批自主更新试点企业，投资 6 亿元对老旧印染厂房实施拆除重建，新建高标准厂房总建筑面积达 20 余万平方米，容积率由 0.53提升至 2.17。
政企合作开发类。对有意愿但资金不足的企业，通过战略合作开发、入股基金合作、政企合建公司等模式联合推进。原独树印染厂区由国企收购部分厂区，更新改造建成“绍芯谷”城市客厅，占地约 5000 平方米、总建筑面积约 12000平方米，植入展示、餐饮、休闲、健身、培训等功能板块，成为片区集中展示窗口。
转移关停退出类。对不符合产业导向、无改造意愿的企业，通过不动产等值置换、市场化收购、关停淘汰退出等方式平稳腾退。绍芯谷片区内 4 家电镀企业和不符合集聚标准的印染化工企业全部关停退出。
因需征收、收购类。对片区基础设施建设和公共利益需要的用地，由政府按照项目建设需要进行征收、收购，保障公共配套落地。绍兴产城更新建设发展有限公司收购明业厂区，建设马海 1 号片区产业社区 1-1 综合更新建设项目，项目总建筑面积约 41 万平方米、总投资约 22 亿元，打造集产研中心、都市产业中心、展示接待中心等功能于一体的综合性产业社区。
“四类十法”对照传统全收全建模式，根据不同企业实际灵活选择再开发方式，既尊重企业主体意愿，又发挥政府引导作用，大幅提升了企业参与积极性，拉动社会投资超过100 亿元，有效减轻了政府收购资金压力，实现了从“政府包揽”向“多元共治”的转变。
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），完善低效用地再开发中土地征收的具体办法。
（二）
《马海片区鼓励自主转型补充实施办法》，企业自主更新可按投资进度和再开发类型申请高质量发展奖励、自主更新改造投资奖励、设备投资补贴。
（三）
《马海片区城市有机更新专项政策意见（试行）
》，支持企业更新改造，鼓励提高容积率（新建工业用地容积率一般不低于 1.5，混合产业用地容积率一般不低于 2.0、原则上不高于 4.0）。