1. Project Overview
The project is on Daqing East Road, Tinghu District, Yancheng (south of Daqing Road, west of Landun Lane). It is the old campus of Yancheng No. 8 Middle School, opened in 1984, with a site of 1.4 hectares (21.6 mu) and about 8,900 square metres of floor space in four buildings — north and south teaching blocks, a general-purpose building and a student dormitory. Preparation began in 2022, and after the plot was sold by public listing in 2024 the project opened as a start-up base for young professionals combining entrepreneurship, technology incubation, housing and social space. It now hosts 35 digital technology companies with an occupancy rate of 95% and annual output of more than CNY 20 million, turning inefficient land into a productive industrial facility. It has been named a municipal-level incubator.
2. Redevelopment Entity and Model
(1) Why the land became inefficient
After the school moved out in 2020, the old campus stood empty for a long time. The buildings were suited only to teaching and could not meet the needs of urban development or industrial upgrading. They were ageing and used inefficiently, public resources were wasted, and the land's economic and social value was not realized.
(2) Difficulties to overcome
First, reviving the idle asset lacked a professional operating concept, making it hard to shift precisely from school use to industrial use. Second, clear title and lawful transfer of the plot required a regular procedure so that the redevelopment entity was compliant. Third, renovation had to balance cost control with preserving memories of the place, avoiding the waste of large-scale demolition. Fourth, a sustainable operating model was needed to ensure long-term productivity and to preserve and increase the value of the asset.
(3) Redevelopment entity
The investor is the Tinghu District Urban Investment Group; the winning bidder is Yancheng Tinghu Qihui Asset Management Co., Ltd. (a platform under the group); and the operator is Shanghai Ruigu Chuanqi, a leading Chinese operator of innovation spaces. This forms a dual-entity model of "investment by a government platform + operation by a specialist company".
(4) Redevelopment model
The model is "government guidance + market operation + professional management". The government is responsible for top-level design, policy support and reviving the asset, and determined the redevelopment entity through public listing. The market-based operator handles investment attraction, company services, incubation and ecosystem management. Following the principles of "organic renewal and activating existing stock", the original buildings and campus fabric were retained, digital technology industries were precisely introduced, and a full-chain entrepreneurship service system was built — a three-way win of "preserving and increasing government assets + profitable market operation + support for company growth".
3. Results of the Redevelopment
(1) Better land structure and higher returns
The former school land was converted into land for digital technology and innovation, improving the local land-use structure and industrial layout. The four buildings were renewed: teaching blocks became offices and laboratories, the general-purpose building became shared services and the dormitory became talent apartments, making efficient use of the space. Tax revenue per mu increased. The 35 companies on site (including nine that returned to the area) have produced five technology-based SMEs, two high-tech enterprises and one above-designated-size company, and filed 18 core technology patents. The idle, loss-making asset has been fully turned around — "small space, high output" — greatly improving land efficiency and returns.
(2) Local economic and social development and a better environment
Focusing on digital technology, the project has formed a cluster of digital economy companies, driving upstream and downstream activity and bringing new momentum to Tinghu's digital economy. One-stop services — start-up offices, technology incubation and housing — have drawn more than 200 young people back home to start businesses, easing youth employment pressure and supporting the district's talent strategy. Avoiding large-scale demolition, the project retained campus greenery, building fabric and historical traces, improved the appearance of the area and the quality of the city, and filled local gaps in innovation services and support for young entrepreneurs.
(3) Better management processes
By regularizing public listing, consolidation of title and change of use, the project charted an effective path for reviving vacant school campuses — a practical example for revitalizing inefficient land in city cores. Approvals for planning adjustment, land supply and title registration were streamlined, market-based allocation of land was deepened, and idle assets were efficiently revived, offering management lessons for similar sites.
4. Key Practices
(1) Aligning with pilot policies to build a complete policy framework
Tinghu District closely followed national, provincial and municipal pilot policies on urban inefficient land, put the former No. 8 Middle School plot on the district's priority list, and used policy tools including planning adjustment, change of use, reuse of existing assets and public listing. In line with urban renewal and digital economy plans, education land was rezoned to business office land with defined development intensity and planning indicators. Supporting policies — retention and reuse of existing buildings, listing with a design scheme attached, and parallel approvals during a transition period — were combined with municipal incubator, youth entrepreneurship and intellectual property support. This formed a closed policy loop of "planning guidance, land guarantee, operational support and financial balance", providing a firm institutional basis for turning an idle campus into an innovation park.
(2) Full survey of inefficient assets and regular, end-to-end approvals
The natural resources, state assets and education departments and the local subdistrict jointly verified all aspects of the plot — land area, building volume, ownership, length of vacancy and functional shortcomings — identified it as inefficient land according to standard criteria, and set up a dedicated register and full-process tracking. Land and building rights were reviewed and consolidated so that title was clear and undisputed. Approvals for planning adjustment, land supply, title registration and construction were streamlined through a "green channel" for redevelopment of inefficient land, cutting steps and time, so that preparation, listing and design proceeded in parallel and approvals flowed seamlessly.
(3) Government–enterprise cooperation and market-based sale
Under the "government guidance, market operation, professional management" model, the Tinghu District Urban Investment Group, as investor, obtained the land use rights lawfully through public listing, and its subsidiary Qihui Asset Management, as implementing entity, strictly fulfils the transfer contract, including mandatory requirements to hold the retained buildings itself and to meet renovation standards, industrial positioning and operating targets. The plot was listed "with assets, with a planning scheme and with retained buildings", and the land transaction and asset handover were completed openly, fairly and impartially, with constraints on renovation investment, construction period and output. This achieved efficient market allocation of land and preserved and increased the value of state assets.
(4) Light-touch renewal to reuse existing buildings
Following the principle of "retention first, regeneration to add value", there was no large-scale demolition. The structures of the four buildings and the campus fabric were fully used, with seismic strengthening, façade refurbishment and interior reconfiguration. Teaching blocks became innovation offices and laboratories, the general-purpose building became public service space and the dormitory became talent apartments, turning a single teaching function into mixed "office + incubation + housing + services" industrial space. This greatly reduced renovation costs, shortened construction and combined efficient reuse of existing buildings with continuity of historical memory.
(5) A professional operator and a full-chain industry ecosystem
Shanghai Ruigu Chuanqi was brought in as the professional operator and built a full-chain system of "attraction — incubation — acceleration — industry". It targets high value-added sectors such as digital technology, R&D and design, digital media and blockchain, strictly selecting quality companies to build a digital economy cluster. Tenants receive one-stop support including start-up offices, R&D, intellectual property, financing matchmaking, pitch training and talent services, nurturing technology SMEs and high-tech enterprises and raising the park's industrial level and innovation — a shift from "physical renovation" to "operating an industrial ecosystem".
(6) Closed-loop supervision throughout the life cycle
A special task group led by the district government, with several departments and the operator, set up regular scheduling, joint problem-solving and milestone controls to coordinate construction, quality and safety, investment attraction, operations and policy implementation. Property registration was completed promptly after renovation to protect the entity's rights. Operational supervision was strengthened with a company service register and performance evaluation, tracking occupancy, output and taxes, innovation and job creation to achieve "small space, high output".
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) and related documents bring existing construction land with a scattered layout, extensive use or unreasonable use within the scope of redevelopment.
(2) The Jiangsu Provincial Implementation Plan for the Urban Renewal Action, the Policy Measures to Support the Urban Renewal Action (Suzhengbangui [2024] No. 3), the Jiangsu Provincial Regulations on Economical and Intensive Land Use, the Yancheng Policy Measures to Support the Urban Renewal Action (Yanzhengguifa [2024] No. 4), the Yancheng Urban Renewal Measures (Yanzhengguifa [2025] No. 11) and Yancheng's supporting policies on redeveloping inefficient land provide specific guidance and implementation paths for reviving vacant campuses, changing planned use, listing land with a design scheme, organically renewing existing buildings and regularizing property rights in Tinghu District. The project successfully transformed a vacant campus into a digital technology park, significantly improving land efficiency, optimizing the local industrial structure and improving urban functions and quality.
Show original Chinese text （中文原文）
盐城市 8 号新生·数字科技创新园功能重塑
一、项目基本情况项目位于盐城市亭湖区大庆东路（大庆路南、蓝盾巷西侧），原为盐城市第八中学老校区，1984 年建成投用，用地面积 1.4 公顷（21.6 亩），总建筑面积约 8900 平方米，包含南北教学楼、综合楼、学生公寓共 4 栋建筑。项目 2022 年启动前期筹备，2024 年完成地块挂牌出让后正式投入运营，打造集创新创业、科创孵化、乐享居住、社交娱乐于一体的青年人才创业基地，截至目前，入驻数字科技类企业 35 家，入驻率 95%，年总产值超 2000 万元，实现低效用地向高效产业载体的转型，获评“盐城市市级孵化器”。
二、改造主体和改造模式
（一）造成低效的原因2020 年盐城市第八中学整体搬迁后，老校区长期处于空置状态，原有建筑功能仅适配校园教学使用，无法满足城市发展与产业升级需求，建筑老化、空间利用效率低下，公共资源浪费严重，未能发挥土地资产的经济与社会价值。
（二）面临的困难与需解决的问题一是闲置资产盘活缺乏专业运营思路，难以实现从校园功能向产业功能的精准转型；二是地块产权明晰与合法流转需规范流程，确保改造主体合规；三是改造需兼顾成本控制与历史记忆保留，避免大拆大建造成的资源浪费；四是需构建可持续的运营模式，确保改造后地块长期高效产出，实现资产保值增值。
（三）改造主体投资主体为亭湖区城投集团，竞得主体为盐城市亭湖启汇资产管理有限公司（亭湖区城投旗下平台），运营主体为上海瑞谷传祺（国内科创运营头部企业），形成“政府平台投资+专业企业运营”的双主体模式。
（四）改造模式采用“政府引导+市场运作+专业运营”的改造模式，政府负责顶层设计、政策支持与资产盘活，通过公开挂牌出让明确改造主体；市场化专业运营商负责招商、企业服务、产业孵化与生态运营。坚持“有机更新、存量激活”理念，保留原有建筑结构与校园肌理，精准植入数字科技产业，构建全链条创业服务体系，实现“政府资产保值增值+市场运营盈利+企业发展赋能”三方共赢。
三、低效用地再开发取得的成效
（一）用地结构与布局优化及效益提升通过功能重构，将原有校园教学用地改造为数字科创产业用地，优化了区域用地结构与产业布局；对 4 栋原有建筑进行有机更新，完善了建筑功能，将教学楼改造为办公、实验室，综合楼改造为配套服务空间，学生公寓改造为人才公寓，实现地上空间高效利用。改造后亩产税收增加，入驻企业 35 家（含 9 家返乡企业），培育 5 家科技型中小企业、2家高新技术企业、1 家规上企业，申请核心技术专利 18 项，彻底扭转闲置资产亏损状态，实现“小空间、高产出”，大幅提升了土地利用效率和效益。
（二）区域经济社会发展与人居环境改善项目聚焦数字科技产业，形成数字经济企业集群，带动上下游产业链发展，为亭湖区数字经济增长注入新动能；提供创业办公、技术孵化、居住配套等一站式服务，吸引超 200名青年人才返乡创业，缓解青年就业压力，助力“人才强区”战略实施。改造过程中避免大拆大建，保留校园绿化、建筑肌理与历史印记，改善了区域环境面貌，提升了城市品质，补齐了区域科创服务与青年创业配套短板。
（三）优化管理流程通过规范挂牌出让、产权归集、用途转换等流程，探索了空置校园类低效用地盘活的有效路径，为城市核心区低效用地盘活提供了实践样本；优化了规划调整、土地供应、确权登记等审批流程，深化了土地资源市场化配置改革，实现了存量资产的高效盘活，为同类低效用地再开发提供了可借鉴的管理经验。
四、主要做法
（一）精准对接试点政策，构建全维度政策体系亭湖区紧扣国家、省、市城镇低效用地再开发试点政策，将原盐城八中地块纳入全区低效用地重点盘活清单，用好规划调整、用途转换、存量资产利用、挂牌出让等政策工具。结合城市更新与数字经济发展规划，将教育用地调整为商务办公用地，明确开发强度与规划指标；落实存量建筑保留利用、带方案挂牌出让、过渡期审批并行等支持政策，叠加市级孵化器、青年创业、知识产权扶持等配套政策，形成“规划引领、土地保障、运营赋能、资金平衡”的政策闭环，为校园闲置资产转型科创园区提供坚实制度保障。
（二）全面摸排低效资产，规范全流程审批工作自然资源、国资、教育等部门，以及属地街道联合开展地块全要素核查，摸清存量用地面积、建筑规模、产权归属、闲置时间、功能短板等信息，按标准认定低效用地，建立专项台账与全过程跟踪管理机制。全面梳理土地与房屋产权，完成产权归并整合，确保权属清晰无争议。优化规划调整、土地供应、确权登记、施工改造等审批链条，开设低效用地再开发“绿色通道”，简化环节、压缩时限，推动前期筹备、挂牌出让、改造设计同步推进，实现审批无缝衔接、高效落地。
（三）采用政企合作模式，实施市场化出让运作采用“政府引导、市场运作、专业运营”改造模式，由亭湖区城投集团作为投资主体，通过公开挂牌出让方式依法取得土地使用权，旗下启汇资产管理公司作为改造实施主体，严格履行出让合同约定，落实保留建筑自持、改造标准、产业定位、运营目标等刚性要求。坚持“带资产、带规划方案、带保留建筑”挂牌，公开、公平、公正完成土地交易与资产移交，明确改造投资、建设周期、产出效益等约束条件，实现土地资源市场化高效配置，保障国有资产保值增值。
（四）坚持微更新理念，推动既有建筑盘活利用秉持“保留优先、再生赋能”原则，不搞大拆大建，充分利用原有 4 栋教学楼、综合楼、学生公寓建筑结构与校园肌理，实施抗震加固、外立面翻新、内部空间重构。将教学楼改造为科创办公与实验室，综合楼改造为公共服务空间，学生公寓改造为人才公寓，把单一教学功能转化为“办公+孵化+居住+配套”复合型产业空间，大幅降低改造成本、缩短建设周期，实现既有建筑高效利用与历史记忆有机传承。
（五）引入专业运营机构，打造全链条产业生态引进上海瑞谷传祺作为专业运营主体，建立“招商—孵化—加速—产业”全链条运营体系。聚焦数字科技、研发设计、数字传媒、区块链等高附加值产业精准招商，严格筛选优质企业入驻，打造数字经济产业集群；为入驻企业提供创业办公、技术研发、知识产权、融资对接、路演培训、人才服务等一站式支持，培育科技型中小企业与高新技术企业，提升园区产业能级与创新活力，实现从“物理空间改造”向“产业生态运营”的深度转型。
（六）强化全周期闭环监管，保障项目高质量发展成立区政府牵头、多部门与运营企业协同的专项推进小组，建立定期调度、问题会商、节点管控机制，统筹推进改造施工、质量安全、招商运营、政策落实。改造完成后及时办理不动产登记，保障主体合法权益。强化运营监管，建立企业服务台账与效益评价机制，动态跟踪入驻率、产值税收、科技创新、就业带动等指标，实现“小空间、高产出”。
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）等相关文件，明确将布局散乱、利用粗放、用途不合理的存量建设用地纳入范围。
（二）
《江苏省城市更新行动实施方案》《关于支持城市更新行动若干政策措施》（苏政办规〔2024〕3 号）
、《江苏省节约集约用地条例》《盐城市支持城市更新行动若干政策措施》（盐政规发〔2024〕4 号）、《盐城市城市更新办法》（盐政规发〔2025〕11 号）及盐城市低效用地再开发相关配套政策，为亭湖区空置校园盘活、规划用途转换、带方案挂牌出让、存量建筑有机更新、产权规范处置提供了具体政策指引与实施路径。项目顺利完成从空置校园向数字科创园区的转型提升，显著提高土地利用效率、优化区域产业结构、完善城市功能品质，为亭湖区城市更新和经济高质量发展注入新动能。