1. Project Overview
The Tuanjie area lies in Weiyang District, bounded by Beichen Road to the east, Fengcheng 5th Road to the south, Zhenguan Road to the west and the Xi'an Ring Expressway to the north, with a total area of about 13.07 square kilometres. It faces the site of the Han dynasty capital Chang'an to the west and adjoins the Daming Palace National Heritage Park to the south. The area includes the Hongqi Railway Park, the Xihang industrial park and the Tuanjie and Hongqi urban-village redevelopment projects, and has rich ecological and industrial resources and good transport access. It is a key area for urban renewal and redevelopment of inefficient land in Xi'an. The Tuanjie urban renewal project was launched in 2020, and in June 2024 the city extended the work to the area along the Hongqi railway spur line.
2. Redevelopment Entity and Model
As urbanization accelerated, the area's problems became clear: a poor-quality built environment, shortages of public services, ageing infrastructure, under-used public space and low land efficiency. The ecological benefits of Hongqi Railway Park did not spread to surrounding plots, so land values did not rise enough. Public services had not formed a complete system, falling short of the area's role as a "concentrated location for administrative and economic functions". Some land already in the reserve faced being left vacant for lack of projects, while urgent key projects were delayed because their land had not yet been acquired — land reserve and development plans were out of step. The area also contained a large amount of land that was approved but not supplied, awaiting recovery, not yet submitted for approval, or held by urban-village redevelopment investors, with complex tenure that was hard to integrate. Systematic urban renewal and redevelopment of inefficient land were therefore urgently needed to restructure spatial functions, fill gaps in facilities and revitalize existing resources — moving the area from the city's "back side" to its "front cover".
A joint city–district land reserve and development model was adopted, with "city funding and district implementation". Weiyang District acts as the implementing entity and gave the area a new role as a "vibrant urban heart" combining industrial innovation, commercial services and quality living, closely aligned with the district's overall role as "Xi'an's northern gateway, an advanced manufacturing hub and a demonstration area for protecting major heritage sites and passing on culture".
3. Results of the Redevelopment
Pursuing the "vibrant urban heart" goal, the renewal draws on the area's advantages as a transport hub, administrative centre, ecological resource and industrial base, gathering commercial and business, innovation and R&D, quality housing and modern services. Urban renewal and redevelopment of inefficient land in Tuanjie support the upgrading of the Xihang aviation industry and the clustering of the digital economy, promote integration of industry and city and the conversion of spaces to innovation uses, and boost the area's vitality. The aim is a vibrant new urban district that is at once "a happy home, an innovation park and a green park".
Since 2025, the area has sold one 46-mu commercial-residential plot for a total of CNY 526 million; on 4 July, a 46-mu residential plot for CNY 530 million; and on 4 November, a 36-mu residential plot for CNY 424 million — steadily bringing existing land back into supply.
4. Key Practices
(1) Planning across the whole chain with closed-loop control
An integrated planning transmission system of "master plan — unit detailed plan — plot implementation" was established. Based on a full assessment of current conditions, area identification and policy research, a comprehensive renewal scheme covering functional positioning, spatial design and implementation mechanisms was prepared. Once approved, it was entered into the territorial spatial planning "one map" platform, enabling precise control from macro strategy to micro construction and providing binding guidance for implementation.
(2) Institutional arrangements and clear responsibilities
Under the guidance of the city's urban renewal action headquarters, a district-level task force was set up with an organizational model of "implementing entity + city–district administrative coordination + professional technical support". Responsibilities for land expropriation and reserve and for renewal were fully assigned, forming a coordinated, clearly accountable and efficient system that keeps projects on track throughout their life cycle.
(3) Policy innovation across the process to speed up delivery
Eight measures were issued to improve services for projects starting construction on newly acquired land, combining mechanisms such as "service from the moment of signing", "project agents" and "leadership responsibility plus dedicated task teams". The district was the first in Xi'an to achieve "multiple surveys in one" and introduced a model of "pre-approval + simulated approval + acceptance with commitment for missing documents", shifting approvals from sequential to parallel. Approval times were cut by more than 15 working days compared with statutory limits, setting a new speed record for project construction in Xi'an.
(4) Diversified land consolidation to clear bottlenecks
Under government leadership, diverse land reserve mechanisms were established, including government-funded acquisition and acquisition recorded as a liability on account ("on-account reserve"). Urban renewal, redevelopment of inefficient land and the land reserve plan were linked, with "one policy per plot" handling. Funding was sought from several sources, including special land bonds and central budget funds, and contiguous development of the whole area was pursued through "unified planning, unified reserve, unified development, unified supporting facilities and unified supply".
(5) Using ecological value to create a park-city model
Applying the ideas of "fusing and stitching", a 3-kilometre "borderless" park belt was created to integrate the park with urban functions. New crossings, opened park entrances and open communities removed the barriers between the park and neighbourhoods, letting ecological benefits spread across the area and raising both land values and living quality.
(6) Putting residents first with all-age-friendly living circles
Using the "four goods" — good homes, good housing estates, good communities and good districts — as the framework, land for public administration and services, industry, commerce and green space was laid out systematically, and quality healthcare, education, elderly care, culture and sports facilities were provided. "Famous doctors, famous schools and famous shops" were brought in to raise service levels, and seven "four goods" living circles were built to a high standard, making public services equal and convenient and improving residents' sense of well-being.
(7) Station–city integrated development for compact, vibrant blocks
TOD development is being pursued around metro stations, with integrated use of above- and below-ground space and mixed-use land for various transport facilities. The aim is vertical urban complexes and open, lively blocks combining interchange, retail, offices, quality housing and public services, achieving compact land use and mixed urban functions.
5. Policy Basis
Xi'an issued the Policy Measures to Support Development of Key Areas and Urban Renewal and Promote Intensive and Efficient Land Management (Shizhengbanfa [2026] No. 18). The measures (1) encourage mixed and compatible uses to integrate industry and city and raise areas' capacity and vitality; (2) encourage rational use of underground space and TOD development, with integrated above- and below-ground planning and construction for compact three-dimensional development; (3) establish diverse land reserve mechanisms, including government-funded acquisition and on-account reserve, to promote contiguous development; and (4) support multiple methods of land supply, introducing "construction upon acquisition" services and using transfer with a design scheme attached and combined supply, to improve land allocation efficiency and ensure projects can start quickly.
Show original Chinese text （中文原文）
西安市未央区团结片区城市更新
一、项目基本情况团结片区位于未央区，东至北辰路、南至凤城五路、西至贞观路、北至西安绕城高速，总面积约 13.07 平方公里，片区西望汉长安城遗址，南邻大明宫遗址公园，范围内集聚了红旗铁路公园、西航产业园、团结城改项目、红旗城改项目等要素，生态及产业资源丰富，交通区位优越。是西安市推进城市更新和低效用地再开发的重点片区。2020 年，团结片区城市更新项目正式启动，2024 年 6 月，市政府延伸推进红旗铁路专用线片区更新改造。
二、改造主体和模式随着城市化进程加速，团结片区逐步暴露出诸多问题：城市建成环境品质不足，公共服务设施短缺，市政基础设施老化，公共空间利用不充分，用地效能不高；红旗铁路公园的生态效益未能有效外溢至周边地块，土地价值提升不足；公共服务设施配套尚未形成体系，与“政经功能集中承载地”的定位存在差距；部分已收储土地因缺乏项目支撑面临空置压力，而急需启动的重点项目又因土地未完成收储而延迟，土地储备与开发计划不协调。同时，片区内涉及大量批而未供、待收回、未报批及城改社会投资类土地，权属复杂，整合难度大。因此，亟须通过系统性城市更新和低效用地再开发，重构空间功能，补齐设施短板，盘活存量资源，实现从城市“背面”向城市“封面”的跃升。
采取“市级出资、区级实施”的市区联合储备开发模式，由未央区作为实施主体开展更新，赋予团结片区全新定位——融产业创新、商业服务、品质生活功能为一体的“城市活力心”，与未央区“西安北部开放门户、先进制造业为引领的产业高地和大遗址保护与文化传承示范区”的整体开发格局深度契合。
三、低效用地再开发取得的成效围绕“城市活力心”目标定位，充分发挥片区内交通枢纽优势、行政中心优势、生态资源优势、产业基础优势等特点，集聚商业商务、科创研发、品质居住、现代服务等功能，通过团结片区城市更新和低效用地再开发，支持西航产业升级和数字经济集聚，促进产城融合、创新空间功能转换，助力区域活力激发。打造成为“幸福家园、科创产园、绿美公园”三位一体的都市活力新区。
2025 以来，团结片区挂牌成交 1 宗商住用地 46 亩，成交总价款 5.26 亿元；7 月 4 日，挂牌成交 1 宗居住用地 46亩，成交总价款 5.30 亿元；11 月 4 日，挂牌成交 1 宗居住用地 36 亩，成交价款 4.24 亿元，有序推进片区存量土地盘活供应。
四、主要做法
（一）全链条规划引领，构建闭环管控体系创新构建“总体规划—单元详规—地块实施”全链条规划传导体系，在全面现状评估、区域识别、政策研究基础上，编制形成集功能定位、空间设计、实施机制于一体的综合更新方案，经审定后纳入国土空间规划“一张图”平台管理，实现从宏观战略定位到微观建设实施的全流程精准管控，为片区更新实施提供刚性指引。
（二）全维度机制保障，压实协同推进责任在市级城市更新行动指挥部统筹指导下，成立区级专项工作指挥部，建立“实施主体+市区两级行政统筹+专业技术支撑”的组织模式，全面落实土地征收储备、更新改造主体责任，形成上下协同、权责清晰、运转高效的推进体系，保障项目全周期有序实施。
（三）全流程政策创新，提速项目落地见效出台优化新拿地开工项目服务保障八项措施，集成“签约即服务”“项目代办员”“领导包抓+专班推进”等工作机制；率先在全市实现“多测合一”
，推行“预审批+模拟审批+容缺承诺”模式，推动审批流程从“串联”向“并联”根本性转变，审批时限较法定时限压缩超 15 个工作日，刷新西安项目建设速度纪录。
（四）多元化土地整备，精准破解盘活堵点坚持政府主导，建立政府筹资收储、挂账收储等多元土地储备机制，联动城市更新、低效用地再开发与土地储备计划，实行“一地一策”分类处置。同步争取土地专项债、中央预算内资金等多元资金支持，以“统一规划、统一储备、统一开发、统一配套、统一供应”模式，推动片区整体连片开发。
（五）生态价值赋能，打造公园城市样板以“融合、缝合”理念打造 3 公里无界公园带，推动公园与城市功能深度融合。通过增设过街设施、开放公园出入口、建设开放社区等举措，打通公园与社区的空间壁垒，推动生态效益全域外溢，实现土地价值与人居品质双提升。
（六）民生优先导向，构建全龄友好生活圈以“好房子、好小区、好社区、好城区”四好建设为抓手，系统布局公共管理与服务、产业、商业、绿地等各类用地，统筹配置医疗、教育、养老、文体等优质配套资源，引入“名医、名校、名店”提升服务能级，高标准打造 7 个四好生活圈，实现公共服务均等化、便捷化，切实提升居民获得感、幸福感。
（七）站城一体开发，塑造高效集约活力街区围绕地铁站点推进 TOD 综合开发，统筹地上地下空间一体化利用，布局多类型交通场站混合用地，打造集交通换乘、商业零售、商务办公、品质居住、公共服务于一体的垂直城市综合体与活力开放街区，实现土地高效集约利用与城市功能复合升级。
五、政策依据西安市出台《关于支持重点片区开发实施及城市更新促进集约高效用地管理若干政策措施》（市政办发〔2026〕18号），一是鼓励使用功能混合与兼容开发，促进产城融合，提升片区综合承载能力与空间活力；二是鼓励地下空间合理利用，推进 TOD 综合开发，统筹地上地下空间一体化规划与建设，实现立体集约开发；三是建立多元土地储备机制，采用政府筹资收储、挂账收储等多元模式，推进片区土地连片开发；四是支持多种方式供应土地，推出“拿地即开工”服务机制，采用带方案出让及组合式供应模式，提高土地资源配置效率，保障项目快速落地实施。