1. Project Overview
(1) Site
The project is at No. 192 Nanjing North Street, Heping District, Shenyang, next to the core Zhongshan Square area and across the street from the main campus of the Hospital of Stomatology, China Medical University ("the Stomatology Hospital") — a prime location in the city centre. The site covers 4,591.5 square metres with three buildings totalling 19,078.28 square metres. It was formerly the Shenyang branch of the People's Bank of China and was later acquired by the management committee of the Shenyang Finance and Trade Development Zone. After the committee moved out, the buildings stood empty because their recorded use did not match the planned use and they did not meet current building safety codes, and the site was classed as inefficient land.
(2) Timeline and outcome
The project started in November 2025. To meet demand for medical services in the surrounding area, the planned use was changed to medical and health land. In December the Stomatology Hospital acquired the land and buildings as a whole on the secondary market for construction land use rights, signed a transfer agreement and completed the transfer of state-owned construction land use rights, to build a new campus operating together with the existing one — "one hospital, two campuses". By May 2026 transfer of ownership of the land and buildings and physical handover were complete, and renovation and upgrading of facilities had begun.
2. Redevelopment Entity and Model
(1) Why the land was inefficient
After the original owner moved out, the buildings stood empty for a long time. The land was held under allocation and recorded for use by government agencies and public organizations, which did not match the current plan for business and research use. The surroundings were mainly housing, a historic district and a top-tier hospital cluster; office supply was saturated, so the planned function did not match local demand. Left unmaintained, the buildings' fire systems, mechanical and electrical equipment and heating and ventilation networks had all deteriorated and did not meet current safety codes, so they could not be rented out or reused directly. Government acquisition and resale would have been slow and costly for public finances, so a route for transferring allocated land was needed to revive the idle assets.
(2) Redevelopment entity and model
The Stomatology Hospital is the redevelopment entity. The model was "planning adjustment + public listing on the secondary market + direct transfer of allocated land", carried out strictly through the secondary market for state-owned land to transfer the existing construction land use rights and building ownership at a fair price.
3. Results of the Redevelopment
(1) Better land structure and much higher efficiency
Through a planning adjustment, the plot was repurposed from agency land inconsistent with the current plan to medical and health land that serves the city's needs, matching the area's development. All 19,078.28 square metres of existing floor space were brought back into use, turning empty buildings with zero output into a comprehensive medical facility with much higher productivity per unit of floor area.
(2) Filling a public service gap and improving the living environment
The Stomatology Hospital is a leading dental specialist hospital in Northeast China, rated A in the national performance assessment of tertiary public hospitals, with more than 600,000 outpatient visits a year. The project addresses the shortage of high-quality dental care, eases pressure between supply and demand, concentrates resources, greatly increases patient capacity and raises the level of medical services in the area. Reusing the empty buildings avoided large-scale demolition, protected and enhanced the townscape of the Zhongshan Square historic district, improved public services in the old city core and supported urban renewal and the development of the surrounding area.
(3) An innovative secondary-market transaction deepening land reform
This was the first transaction on Liaoning's secondary land market in which the buyer of state-owned construction land use rights was determined through an online public listing with timed bidding. It marked the completion of Shenyang's integrated "consultation + service + transaction + management" platform for the secondary market in state-owned land. The process emphasized "government guidance, market operation, openness and transparency": it avoided adding to the fiscal burden, reduced institutional transaction costs and benefited the government, the seller and the buyer alike, offering a replicable model for transferring allocated land.
4. Key Practices
(1) Plan-led change gives existing buildings new life
Taking a problem-oriented approach and based on the unit detailed plan, after thorough study the land-use layout was further optimized to fit urban functions, changing business land to medical and health land. While keeping the main structure and historic appearance of the old buildings, modern dental services were inserted — continuing the city's historical fabric while meeting the area's urgent need for high-quality dental care. Through careful reconfiguration of interior space and upgraded facilities, the three buildings were converted into modern medical space for treatment, research and teaching.
(2) Regular transfer of property rights and clear tenure
Through public listing, ownership passed directly from the original rights holder, the management committee of the Shenyang Finance and Trade Development Zone, to the buyer, the Stomatology Hospital. After the two parties signed a Contract for the Transfer of State-owned Construction Land Use Rights, the transfer was filed according to regulations, creating a complete transaction record and ensuring that consolidation of title was lawful and orderly. This gives the hospital secure title for later construction, financing and operations.
(3) A streamlined secondary-market process and shorter transaction time
Using Liaoning's secondary land market service platform "Liaoditong", the steps of review and acceptance, valuation and pricing, setting rules, publishing notices, organizing bidding, confirming the sale, filing the contract and registering the property were streamlined. The full chain of "publishing supply and demand — electronic bidding — contract coding — statistical supervision" was standardized, shortening the transfer cycle by more than 60% compared with the traditional route.
(4) Streamlined approvals and greater efficiency
Several steps in the approval process were improved. For the planning adjustment, views were sought widely through expert review and public participation to ensure legal compliance. At the planning permit stage, review of the land-use change and of the transfer plan were combined, speeding up the process. For property registration, "transaction to registration" was handled in one stop and the registration period was cut to five working days. A life-cycle tracking service was also set up: the city and district natural resources departments each assigned a "service steward" to liaise with the redevelopment entity throughout and resolve planning, land and registration issues, keeping approvals smooth from planning adjustment through completion and operation.
5. Policy Basis
(1) The Guiding Opinions of the General Office of the State Council on Improving the Secondary Market for the Transfer, Lease and Mortgage of Construction Land Use Rights (Guobanfa [2019] No. 34) provide that transfer of construction land use rights obtained by allocation requires approval according to law; where the land use is in the Catalogue of Allocated Land, no land transfer fee need be paid and the transfer is registered as a change of ownership.
(2) 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 sound mechanisms for converting existing resources: on condition that plans are complied with and safety assured, localities should explore ways to change the use of existing buildings, set conversion rules on the principles of being practical and simplifying procedures, and improve the related approval processes.
(3) The Shenyang Implementation Rules for Improving the Secondary Market for the Transfer, Lease and Mortgage of State-owned Construction Land Use Rights provide in Article 18 that where an independent parcel changes the current use of the land and buildings, or the buildings are altered, extended or rebuilt, transfer may be applied for under the currently planned land use and new planning conditions. Article 20 provides that transfers of allocated land use rights, idle land, subdivided commercial construction land, and transfers involving a change to commercial use should in principle determine the buyer through public listing on the secondary land market trading platform.
Show original Chinese text （中文原文）
沈阳市医大附属口腔医院盘活利用
一、项目基本情况
（一）项目区域情况项目位于沈阳市和平区南京北街 192 号，毗邻中山广场核心板块，与中国医科大学附属口腔医院（以下简称医大附属口腔医院）主院区一街之隔，属于城市中心区优质区域。土地面积 4591.5 平方米，地上共有三栋建筑，建筑总面积
19078.28 平方米。项目为中国人民银行沈阳分行旧址，后由沈阳金融商贸开发区管理委员会取得，管委会搬迁后因产权用途与规划用途不符、不符合现行建筑安全规范等原因处于空置状态，被认定为低效用地。
（二）项目实施时间及再开发结果本项目于 2025 年 11 月启动，对接周边区域医疗卫生资源需求，完成规划用途调整，将用途调整为医疗卫生用地。医大附属口腔医院于 12 月通过建设用地使用权二级市场整体取得土地及地上资产，签署了转让协议，办理了国有建设用地使用权转让手续，建设新院区，与原有院区联动发展，形成“一院两区”格局。2026 年 5 月已完成土地及地上建筑物所有权转移及实物交割开展建筑改造和功能设施升级。
二、改造主体和改造模式
（一）低效原因原产权单位整体搬迁后，楼宇长期处于空置状态，因土地权利性质为划拨、证载用途为机关团体用地，与现行商务、科研用地规划不符，项目周边以居住区、历史文化街区、三甲医疗配套为主，商务楼宇供给饱和，规划功能与片区实际需求错配。同时楼宇因长期无人运维，消防系统、机电设备、暖通管网全面老化，不符合现行建筑安全规范，无法直接对外出租或二次利用。政府收储再出让周期长、财政负担重，需要探索划拨用地转让路径，盘活空置资产。
（二）改造主体及改造模式改造主体为医大附属口腔医院，改造模式为“规划调整+二级市场公开挂牌+划拨用地直接转让”，严格依托国有土地二级市场完成存量国有建设用地使用权及地上建筑物产权转让，实现国有资产公允交易。
三、低效用地再开发取得的成效
（一）用地结构与布局优化，土地利用效率显著提升通过用地规划调整，地块完成功能重塑，实现了从与现行规划不符的机关团体用地，向符合城市发展需要的医疗卫生用地转型，土地功能与周边发展需求高度契合，19078.28平方米存量空间得到全面活化，原本零产出的空置楼宇转型为综合医疗服务建筑，单位面积产出能力显著提升。
（二）补齐公共服务短板，改善城市人居环境医大附属口腔医院作为东北地区核心口腔专科医院，国家三级公立医院绩效考核 A 等次，年门诊量达 60 余万人次。项目建设可有效补齐优质口腔医疗资源供给不足的短板，有效缓解供需矛盾，促进资源集聚，大幅提升接诊能力，提高区域医疗服务水平。同时，盘活空置楼宇避免大拆大建，保护和提升中山广场历史街区城市风貌，完善老城核心区公共服务配套，助力城市更新提质升级，带动周边区域发展。
（三）创新二级市场交易，深化土地制度改革作为辽宁省首宗通过网上公开挂牌、限时竞价确定买受人的国有建设用地使用权土地二级市场交易项目，标志着沈阳市国有土地二级市场“咨询+服务+交易+管理”一体化平台全面建成。交易全过程突出“政府引导、市场运作、公开透明”
，既避免增加财政资金负担，又降低制度性交易成本，实现了政府、转让人、受让方三方共赢，为划拨用地转让提供了可复制、可推广的实践经验。
四、主要做法
（一）规划引领，存量建筑焕发新活力。
聚焦问题导向，以单元详细规划为基础，经充分论证研究，进一步合理优化用地布局与城市功能的衔接，将商务用地转变为医疗卫生用地，让老建筑在保留原有建筑主体结构和历史风貌的前提下，植入现代化口腔医疗服务功能，既延续了城市历史文脉，又精准匹配了周边区域对优质口腔医疗资源的迫切需求。通过对建筑内部空间的科学重构与设施升级，三栋存量楼宇被改造为集诊疗、科研、教学于一体的现代化医疗空间。
（二）规范产权转移，明晰权属管理。
通过公开挂牌转让方式，顺利实现权属转移，使土地产权从原权利人沈阳金融商贸开发区管理委员会直接归集至受让方医大附属口腔医院。双方签订《国有建设用地使用权转让合同》后，按规定办理转让备案手续，形成完整的交易备案流程，确保产权归集全过程的合法性与规范性，为医大口腔医院后续的改造建设、融资贷款及运营管理提供了坚实的产权保障，确保项目在规范有序的框架内推进。
（三）优化二级市场流程，缩短交易周期。
依托辽宁省土地二级市场交易服务平台“辽地通”，优化审核受理、评估定价、制定规则、发布公告、组织竞价、成交确认、合同备案以及不动产登记等关键环节的具体工作流程，实现“供需发布-电子竞价-合同赋码-统计监管”全流程各环节标准化管理，使项目转让周期较传统模式缩短60%以上。
（四）优化审批流程，提升办事效率。
项目审批流程实现多项优化：在规划调整环节，通过专家评审和公众参与等方式广泛征求意见，确保程序合法；在规划许可环节，将用地用途调整与转让方案审议合并进行，进一步加快进度；在不动产登记环节，实现“交易－登记”一站式办理，登记时限压缩至 5 个工作日。同时，建立项目全生命周期跟踪服务机制，由市区两级自然资源部门指定专人担任项目“服务管家”，全程对接改造主体需求，协调解决审批过程中遇到的规划、用地、登记等各类问题，确保改造项目从规划调整到竣工运营的各环节审批高效顺畅，为项目快速落地提供坚实保障。
五、政策依据
（一）《国务院办公厅关于完善建设用地使用权转让、出租、抵押二级市场的指导意见》（国办发〔2019〕34 号）规定，以划拨方式取得的建设用地使用权转让，需经依法批准，土地用途符合《划拨用地目录》的，可不补缴土地出让价款，按转移登记办理。
（二）《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，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。
（三）《沈阳市完善国有建设用地使用权转让、出租、抵押二级市场实施细则》规定，第十八条 独立宗地改变土地及地上建筑物利用现状的或者对地上建筑物改建、扩建或者重新建设的，可以依法申请按照现行规划用地性质及新的规划条件转让；第二十条 以划拨方式取得的建设用地使用权转让、闲置土地转让、经营性建设用地分割转让及建设用地使用权转让中涉及土地用途改变为经营性用地的，原则上应当通过土地二级市场交易平台以公开挂牌交易方式确定受让人。