1. Project Overview
The former Taifu Heavy Industry project is in the Xiangtan Economic Development Zone, north of Baishi East Road, west of Tanzhou Avenue and south of Jiuzhao East Road, covering about 1,510 mu with about 310,000 square metres of buildings. Because of over-expansion and other factors, the company entered bankruptcy at the end of 2021, leaving 1,510 mu of industrial land and 310,000 square metres of factories idle — a major waste of existing resources and a legacy problem holding back Xiangtan's development. To resolve it, city departments moved quickly, using bankruptcy restructuring and transfer of the whole site to redevelop it. They precisely selected Zoomlion, whose industry is similar and which could use the existing factories effectively, as the strategic investor, bringing in two high-end equipment industrial park projects for crawler cranes and mining machinery. The agreement was signed in September 2025 and production has partly begun. At full production, annual output is expected to reach CNY 20 billion, drawing many upstream and downstream suppliers and delivering a major industrial project without any new construction land.
2. Redevelopment Entity and Model
Zoomlion is the entity for industrial revival and redevelopment, fully responsible for taking over the assets, upgrading the existing factories and subsequent operations. The Xiangtan Economic Development Zone Management Committee, the Xiangtan Bureau of Natural Resources and Planning and other departments provide end-to-end support in planning control, verification of land rights, handling of legacy issues, change of use and approval services. The project uses a model of "judicial bankruptcy restructuring + transfer on the secondary land market". Using the pilot policies, government-led asset verification, joint approvals by multiple departments and comprehensive balancing of planning indicators systematically resolved key issues for the 1,510 mu — clearing title, reconfiguring the plan, completing formalities and optimizing space — enabling efficient reuse of existing factories and a major project with no new land.
3. Results of the Redevelopment
(1) Significant economic returns
The project revived 1,510 mu of inefficient industrial land and 310,000 square metres of factories and brought in Zoomlion to build two headquarters projects for crawler cranes and mining machinery plus an R&D centre, with total investment of about CNY 5 billion. At full production, annual output is expected to reach CNY 20 billion, clustering upstream and downstream high-end equipment manufacturers, creating a new regional growth pole and greatly increasing industrial scale and competitiveness.
(2) Intensive, efficient land use
Reviving the large stock of land and buildings left by the bankrupt company saved about CNY 2 billion in land acquisition and infrastructure costs. By optimizing the layout, functions such as a test track that would otherwise have required new land were accommodated on the existing site, delivering a major project with "zero new land" and saving a further CNY 300 million in new construction land costs. Building by converting existing facilities also cut the construction period by about two thirds compared with a new site, markedly raising land efficiency and output.
(3) Ongoing social benefits
Construction and operation will create many jobs, improve nearby shops and services and promote industry–city integration, while a careful layout of functional zones prevents production from disturbing nearby residents.
(4) Wide demonstration value
The project established an end-to-end mechanism of "reviving assets through judicial bankruptcy — transfer on the secondary land market — coordinated planning optimization — policy innovation", a replicable model for redeveloping similar inefficient industrial land.
4. Key Practices
(1) Proactive services to establish a full inventory of land assets
Historical records were missing and land rights unclear, so the natural resources department got involved early, carrying out a full asset inventory with the bankruptcy administrator and technical firms. It retrieved past land approval and property registration files, checked each parcel's source of title, use category, transfer contract and restrictions; used land survey results and historical imagery, with site visits, to verify the state of buildings and how long the land had been vacant; and drew up a "one policy per parcel" problem list identifying each parcel's legacy issues. This provided a precise basis for handling each case and removed Zoomlion's investment concerns.
(2) Multi-department cooperation to complete construction and land formalities lawfully
The Taifu factories lacked drawings and had incomplete fire and completion acceptance records. Under the procedures for identifying and issuing planning opinions on conversion of existing buildings in the Interim Measures for Review of Conversion and Use of Existing Buildings in Xiangtan, and the "single window, parallel approval, full agency service" provisions of the Joint Approval Service Mechanism for Redevelopment of Inefficient Land in Xiangtan (Trial), the natural resources department led the housing and fire departments in completing planning verification and completion acceptance retrospectively, through supplementary surveys, structural safety appraisals and fire assessments. The project was included in the redevelopment project database and received joint approval services, achieving "certificates delivered with the land" and greatly shortening approval times.
(3) Plan-led layout to solve a "not in my back yard" problem
Zoomlion's new project needed a test track and painting workshops, and the original layout placed them next to housing, with environmental impacts. The natural resources department intervened early. Under the provisions on urban renewal unit controls and comprehensive balancing of planning indicators in the Measures to Strengthen Land Use and Promote Urban Renewal in Xiangtan (Trial), the project was included in an area-wide redevelopment unit, where planning indicators could be balanced across the area. The test track, painting workshops and other high-impact functions were moved inside the site away from homes, avoiding disturbance to residents and saving 300 mu of new land, combining intensive land use, industrial upgrading and industry–city integration.
(4) New ways of securing land and using the pilot policies to clear long-term bottlenecks
Internal pipe networks obstructed heavy equipment and land for the test track was insufficient. On the one hand, storm and sewer pipes were relocated outside the site, removing safety hazards and improving local drainage. On the other hand, under the Measures for Integrating and Using Small Scattered Inefficient Plots in Xiangtan, leftover land along roads was handled through "short-term lease + later planning adjustment + transfer by agreement", with formalities completed lawfully, systematically removing spatial constraints and supporting the project's long-term development.
5. Policy Lessons
(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) allow original holders of state-owned land use rights, where consistent with planning, to redevelop the state-owned construction land they use by themselves, through joint ventures, equity participation or transfer, guiding regular and efficient land transfers.
(2) The Interim Measures for Review of Conversion and Use of Existing Buildings in Xiangtan (Tanziranzifa [2024] No. 29) provide that where existing buildings are converted to modern services or small business innovation bases, the developer, after obtaining the natural resources authority's agreement, may apply directly to the housing authority for construction permits and fire design review or fire acceptance filing. Article 9 provides that where conversion requires changing the registered use of land and buildings, planning permits and change of land use are applied for following the procedure for new projects. These provisions provided the direct basis for retrospective planning verification, completion acceptance and fire formalities for the existing factories.
(3) The Joint Approval Service Mechanism for Redevelopment of Inefficient Land in Xiangtan (Trial) provides for "single-window acceptance and parallel approval", agency services and assigned handling, so that "certificates are delivered with the land" and "certificates are delivered on completion". After inclusion in the project database, the natural resources department provided agency services throughout and held joint reviews with the housing and fire departments, greatly shortening approval times.
(4) The Measures to Strengthen Land Use and Promote Urban Renewal in Xiangtan (Trial) (Tanzhengbanfa [2023] No. 35) designate old factory areas as key redevelopment and urban renewal areas. They allow compatible land uses, mixed development and compound use of space; height and floor area ratio controls may be relaxed appropriately, and green space ratio, building coverage and building separation may be somewhat below current local technical standards. Within renewal areas, land-use plans and indicators may be balanced comprehensively where the site plan is approved as a whole and supporting facilities are delivered at the same time, and the floor area ratio may be raised appropriately.
(5) The Measures for Integrating and Using Small Scattered Inefficient Plots in Xiangtan allow land users to obtain paid use through long-term lease, flexible-term sale or sale by agreement, with long-term leases of up to 20 years.
Show original Chinese text （中文原文）
湘潭市泰富重工整备焕新
一、项目基本情况原泰富重工项目位于湘潭经开区白石东路以北、潭州大道以西、九昭东路以南，总用地面积约 1510 亩，总建筑面积约 31 万平方米。因企业盲目扩张等多重因素影响，2021年底进入破产程序，导致 1510 亩工业用地及 31 万平方米厂房长期处于破产空闲状态，成为制约湘潭高质量发展的重大存量资源浪费和历史遗留难题。为彻底破解这一困局，湘潭市各部门高效推进，采用破产重组、整体转让模式实施再开发，精准引入产业类型相近、能够有效利用原有厂房的中联重科集团作为战略盘活方，导入履带式起重机与矿山机械两大高端装备产业园项目。项目于 2025 年 9 月正式签约，目前已部分投产，项目全面达产后，预计可实现年产值 200 亿元，并将有力带动一批上下游配套企业集聚发展，实现存量资产高效盘活和重大产业项目零新增用地落地。
二、改造主体和改造模式本项目以中联重科集团为产业盘活和改造实施主体，全面负责资产接收、存量厂房改造升级及后续生产运营，湘潭经开区管委会、湘潭市自然资源和规划局等政府部门在规划管控、土地权属核查、历史遗留问题处置、用途转换及审批服务等方面提供全流程支撑保障。项目采取“司法破产重整+土地二级市场转让”的盘活模式，依托低效用地再开发试点政策，通过政府主导的资产清查、多部门联合审批、规划指标综合平衡等机制，系统解决 1510 亩低效工业用地的权属清零、规划重构、手续完善、空间优化等关键问题，实现存量厂房高效复用、重大产业项目零新增用地落地。
三、低效用地再开发取得的成效
（一）经济效益显著提升成功盘活 1510 亩低效工业用地及 31 万平方米厂房，引入中联重科集团，建设履带式起重机、矿山机械两个总部项目及研发中心，总投资约 50 亿元，全面投产后预计年产值200 亿元，带动高端装备制造产业链上下游企业集聚发展，形成区域经济新的增长极，大幅提升产业规模与核心竞争力。
（二）土地利用集约高效项目通过盘活破产企业遗留的大规模存量土地和厂房资源，节约土地收储及配套设施建设成本约 20 亿元。通过规划布局优化，将原需新增用地的试车跑道等功能调整至现有用地内，实现“零新增用地”保障重大产业项目落地，再减少新增建设用地成本约 3 亿元。同时，利用存量载体进行改造建设的周期较新增用地缩短约 2/3，土地利用效率和产出强度显著提升。
（三）社会效益持续释放项目建设运营将创造大量就业岗位，带动周边商业及生活配套完善，推动产城融合发展，同时通过功能区科学布局，有效避免生产活动对周边居民生活的影响，实现产业发展与民生改善协同推进。
（四）示范效应广泛凸显项目探索形成“司法破产资产盘活－土地二级市场转让－规划统筹优化－政策创新保障”的全流程工作机制，为同类低效工业用地再开发提供可复制、可推广的实践样本。
四、主要做法
（一）主动靠前服务，全面理清土地资产底数针对破产企业历史资料缺失、土地权属不清等问题，自然资源部门提前介入，联合破产管理人、技术单位开展全口径资产清查。调取历年用地报批、不动产登记等档案，逐宗核对土地权属来源、用途分类、出让合同及限制条件；利用国土调查成果和历史影像图，现场踏勘核实建筑物现状及土地空置年限；建立“一宗一策”问题清单，明确每宗土地的历史遗留问题类型。上述工作为后续分类处置提供了精准依据，有效消除中联重科的投资顾虑。
（二）多部门协同，依法完善工程建设及用地手续原泰富重工项目厂房存在图纸缺失、消防与竣工验收手续不全等问题，依据《湘潭市存量建筑转换利用审查暂行办法》中关于存量建筑转换利用的认定程序和规划意见出具要求，以及《湘潭市低效用地再开发项目联合审批服务机制（试行）》中关于低效用地再开发项目“一窗受理、并联审批、全程帮代办”的相关规定，自然资源部门牵头联合住建、消防等部门，通过补充测绘、结构安全鉴定、消防评估等方式补办规划核实和竣工验收手续，并将项目纳入低效用地再开发项目库，享受联合审批服务，实现“交地即交证”，大幅压缩审批时限。
（三）强化规划引领，优化功能布局破解邻避难题中联重科新项目需建设试车跑道、喷涂车间等功能区域，原选址方案紧邻居民区存在环境影响，自然资源部门提前介入，依据《湘潭市加强土地利用推进城市更新的若干措施（试行）》中关于城市更新单元管控和规划指标综合平衡的规定，将该项目纳入低效用地再开发片区统筹范围，允许在片区内综合平衡各项规划指标，将试车跑道、喷涂车间等高环境影响功能区调整至地块内部远离居民区的位置，既有效避免对群众生活的干扰，又节约新增用地 300 亩，实现土地集约利用、产业升级与产城融合协同发展。
（四）创新用地保障方式，运用低效政策解决长远发展堵点针对厂区内部管网影响重载设备运行、试车跑道用地不足等问题，一方面实施雨污水管网外迁优化，消除生产安全隐患并提升区域排水能力；另一方面创新用地保障方式，依据《湘潭市低效零星用地整合利用若干措施》相关规定对道路剩余边角地采用“近期租赁使用+远期规划调整+协议出让”模式，依法依规完善相关手续，系统性破解空间制约，为项目长期稳定发展筑牢支撑。
五、政策经验
（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）明确在符合规划的前提下，允许原国有土地使用权人可通过自主、联营、入股、转让等多种方式对其使用的国有建设用地进行改造开发，为土地规范高效转让提供了指引。
（二）
《湘潭市存量建筑转换利用审查暂行办法》（潭自然资发〔2024〕29 号）规定“利用存量建筑改为……现代服务业、小企业创新基地的，在取得自然资源主管部门同意的意见后，建设单位直接向住房和城乡建设主管部门申请办理施工许可、消防设计审查或消防验收备案手续。”第九条规定“转换利用需改变土地和建筑不动产登记用途的，参照新建项目的程序申请规划许可及土地用途变更手续。”上述条款为本项目补办存量厂房规划核实、竣工验收及消防手续提供了直接操作依据。
（三）《湘潭市低效用地再开发项目联合审批服务机制（试行）》明确低效用地再开发项目“实行一窗受理，并联审批”，推行“帮代办”和“交办制”，实现“交地即交证”“竣工即交证”。本项目纳入低效用地再开发项目库后，自然资源部门全程提供代办服务，联合住建、消防等部门开展集中会审，大幅压缩审批时限，保障项目快速落地。
（四）《湘潭市加强土地利用推进城市更新的若干措施（试行）》（潭政办发〔2023〕35 号），将老旧厂区划定为重点低效用地再开发和城市更新片区；可兼容用地性质、实行土地混合开发、空间复合利用，可适当放宽建筑高度、容积率管控，地块的绿地率、建筑密度、建筑间距等指标可适度低于我市现行技术规范；更新片区范围内用地规划及相关指标可在修建性详细规划或总图整体一次性审批、配套设施同步实施的前提下综合平衡，容积率指标可适当提高。
（五）
《湘潭市低效零星用地整合利用若干措施》，土地使用权人可以选择长期租赁、弹性年期出让、协议出让等方式办理有偿使用手续。长期租赁年限不超过 20 年。