1. Project Overview
The project was formerly the Huanghai Hotel, on Binhai Middle Road in a prime tourist location in Yantai. The original site covered 47.4 mu of land for catering and hotel use, with 8,600 square metres of buildings and a floor area ratio of 0.27. In 2022 Laishan District and Yantai Port Group, aligning with national strategy and the Belt and Road Initiative, began upgrading it into the Shandong Port International Exchange Centre. After redevelopment, excluding municipal protective green space, the actual site is 42.6 mu; the land is still for hotel use, with a floor area ratio of 0.75 and total floor space of 30,517 square metres (21,082 above ground and 9,435 below). Completed and opened in 2024, it is a mixed, high-end international exchange platform for international summits, government meetings, business events and hotel stays.
2. Redevelopment Entity and Model
(1) Why the land was inefficient. The site held the Huanghai Hotel, built in the 1980s, which mainly handled early reception duties for Shandong Port Group. Because of its age, the buildings and facilities were severely run down and could not meet the group's urgent need, as it internationalized, for high-end foreign reception, business conference and training facilities. The hotel had essentially lost its function and had been closed and vacant for years.
(2) Redevelopment entity. The project was coordinated and guided by the Laishan District government. Shandong Port Yantai Port Group Co., Ltd., as the original rights holder, carried out the redevelopment itself and was fully responsible for construction, while Shandong Port International Exchange Centre Management Co., Ltd. handles day-to-day operation — a three-level mechanism of "government coordination and guidance — self-development by the company — operation with market participation".
(3) Redevelopment model. A "government + enterprise + market" model of self-redevelopment was used: the Laishan District government provided top-level guidance, the city and district natural resources departments coordinated planning, Shandong Port Group carried out three-dimensional, above- and below-ground development itself, and market operators provide professional management.
3. Results of the Redevelopment
(1) Efficient revitalization of land. By demolishing and rebuilding and adding underground space, the project fully reawakened a prime seafront plot that had been dormant for years. Above-ground floor space increased from 8,600 to 21,100 square metres — 2.45 times the original — greatly improving land use.
(2) Strong support for the company's development. The centre has become an important window for Shandong Port Group's participation in the Belt and Road Initiative and international cooperation. Since 2024 it has hosted several international port exchange meetings and large training events, supporting the group's internationalization strategy.
(3) Significantly improved urban functions. The project completes the cluster of resort hotels along Yantai's "golden coast", fills a gap in high-end international conference facilities in Laishan District, and enhances the city's image and business services.
(4) Early operating returns. Full operation began in November 2024. Government reception, business conferences and training provide stable revenue; the centre has created 215 jobs and revenue per mu has risen to CNY 1.64 million.
4. Key Practices
(1) Government–enterprise coordination to deliver the project quickly
The project's rapid completion came from an efficient, life-cycle coordination mechanism between government and company, with both working in step so that planning, permits, construction and operation fitted together precisely. As investor and builder, Yantai Port Group set a "world-class port facility" standard, applied its mature fine-grained management experience from port infrastructure and kept tight control of quality, safety and schedule. The Laishan District government, the district natural resources bureau and Huanghai Road Subdistrict offered proactive services through a closed-loop system of "one project, one task force, one steward", drawing staff from natural resources, housing and construction, approvals and urban management into a dedicated team with a project steward providing round-the-clock support. For key steps such as planning and land approval, infrastructure provision and relocation of municipal pipelines, a green channel for key projects was opened, with parallel approvals across departments, acceptance with documents to follow and time-limited processing, resolving bottlenecks as soon as they arose. Weekly coordination meetings between government and company matched needs and solved problems in real time, shortening approval and construction and speeding completion.
(2) Three-dimensional development to use land more economically
While strictly observing territorial spatial plans, land boundaries, height limits and ecological protection, the project focused on unlocking the potential of existing land. It explored a new intensive model combining "a higher floor area ratio + three-dimensional development". Making full use of national, provincial and municipal policies on redeveloping inefficient land, and without changing the land use or the total site area, the floor area ratio was raised from 0.27 to 0.75 and above-ground floor space from 8,600 to 21,100 square metres, more than doubling land-use efficiency. Moving beyond flat, single-level development, above- and below-ground space was developed together: above ground, the core functions — an international conference centre, high-end guest rooms, dining and training rooms; below ground, smart parking, plant rooms and storage to a high standard, adding about 9,435 square metres of underground floor space. Combining horizontal expansion with vertical potential lifted both land efficiency and spatial capacity.
(3) Operations thinking from the start for long-term sustainability
The project broke with the traditional separation of "build first, operate later", building operations thinking into planning, design and construction. A dedicated management company was set up at the outset to recruit a professional team, establish management systems and build a client pipeline in parallel. The operations team took part throughout in design decisions such as functional layout and equipment selection, so that the spaces closely fit operational needs. In operation, a "public sector + commercial" twin-engine model serves Shandong Port Group's core internal needs — international exchange, training and staff recuperation — while opening high-end conferences, business accommodation, dining and events to the market. Market-based employment and performance appraisal motivate the team. Since full operation the centre has hosted several international conferences and large training events, generating stable cash flow from diverse business and a self-sustaining operating model.
5. Policy Basis
(1) The Opinions of the General Office of the Shandong Provincial Government on Promoting Redevelopment of Urban Inefficient Land (Luzhengbanzi [2020] No. 32) provide for redevelopment by original land users: except where land should be recovered by the government, original land users may redevelop by themselves, through joint ventures, equity participation or transfer. During redevelopment, the land-use nature, building volume and height may be appropriately adjusted according to plan, and land formalities may be completed by paying the land price difference on existing land or by transfer by agreement.
(2) The Implementation Opinions of the General Office of the Yantai Municipal Government on Promoting Redevelopment of Urban Inefficient Land (Yanzhengbanzi [2021] No. 8) provide that, except where the original allocation decision or transfer contract gives the government priority to recover the land, or where the government should recover the land use rights under regulations, original holders of state-owned land use rights may redevelop according to the approved plan by themselves, through joint ventures, equity participation or transfer.
Show original Chinese text （中文原文）
烟台市山东港口国际交流中心迭代更新
一、项目基本情况项目原为黄海宾馆，地处烟台市滨海中路黄金旅游地段，区位优势显著。原用地面积 47.4 亩，为餐饮旅馆业用地，总建筑规模 0.86 万平方米，容积率 0.27。2022 年，莱山区联合烟台港集团对接国家战略与“一带一路”倡议，启动提质改造建设山东港口国际交流中心。改造后剔除市政防护绿地，实际用地 42.6 亩，土地用途仍为旅馆用地，容积率 0.75，总建筑面积 30517 平方米（地上 21082 平方米、地下 9435平方米）。项目 2024 年建成投用，打造集国际峰会、政务会议、高端商务、酒店休闲于一体的复合型国际高端交流平台。
二、改造主体和改造模式
（一）低效原因。项目地块原为 20 世纪 80 年代建成的黄海宾馆，主要承担山东港口集团早期接待任务。因建成年代久远，建筑及配套设施严重老化失修，无法满足山东港口集团国际化发展对高端涉外接待、商务会议、人才培训场所的迫切需求，基本丧失使用功能，已停业多年长期空置。
（二）改造主体。项目由莱山区政府统筹指导，山东港口烟台港集团有限公司作为原权利人进行自主改造，全权负责工程建设与改造实施，由山东港口国际交流中心管理有限公司负责日常运营与管理，构建“政府统筹引导—企业自主开发—社会资本运营”三级联动工作机制。
（三）改造模式。构建“政府+企业+市场”的低效用地自主改造模式，莱山区政府负责顶层引导，市区两级自然资源部门统筹规划，山东港口集团进行“地上地下”立体复合式自主开发，市场主体开展专业化运营，多方合力推进山东港口集团国际交流中心提质升级。
三、低效用地再开发取得的成效
（一）高效盘活土地资源。项目通过拆旧建新和新增地下空间利用，彻底唤醒这片沉睡多年的滨海黄金地块，地上总建筑面积由 0.86 万平方米增至 2.11 万平方米，增幅达 2.45倍，土地综合利用率大幅提升。
（二）有力支撑企业发展。改造后成为山东港口集团对接“一带一路”倡议、开展国际合作的重要窗口，2024 年以来已承接多场国际港交流会议及大型培训活动，有力支撑了山东港口国际化战略的实施。
（三）城市功能显著提升。完善了烟台市黄金海岸度假酒店集群布局，填补了莱山区高端国际会议接待设施的空白，提升了城市整体形象和商务服务能级。
（四）运营效益初步显现。2024 年 11 月进入全面运营阶段，通过政务接待、商务会议、培训服务等多元业务实现稳定收益，提供就业岗位 215 个，亩均收益提升至 164 万元/亩。
四、主要做法
（一）政企协同联动，全力保障项目高效推进落地项目的快速建成投用，得益于政企双方构建起全周期高效协同推进机制，同频共振，同向发力，使项目从规划、许可、建设、运营精准对缝，高效实施。作为投资建设主体，山东港口烟台港集团锚定“世界一流港口配套”建设标准，全面复制港口基建领域成熟的精细化管理经验与拼搏攻坚精神，严格把控工程质量、安全与建设进度。莱山区政府、莱山区自然资源局及黄海路街道主动靠前服务，建立“一个项目、一个专班、一名管家”的闭环服务体系，抽调自然资源、住建、审批、城管等部门骨干力量成立专项工作小组，配备专属项目管家提供“零距离、全天候”保姆式保障。针对规划用地审批、基础设施配套、市政管线迁改等关键节点，开通重点项目审批绿色通道，实行多部门并联审批、容缺受理、限时办结，第一时间协调解决项目推进中的各类堵点难点。政企双方建立每周会商调度机制，实时对接需求、破解难题，有效压缩了项目审批与建设周期，加快了项目竣工投用时间，实现了政府服务效能与企业建设效率的双向提升。
（二）空间立体开发，全面提升土地节约利用水平在严格遵守国土空间规划、严守用地红线、建筑限高及生态保护等管控要求的前提下，项目以存量用地挖潜增效为核心，围绕提高资源节约集约利用水平、提升土地综合承载能力与生产效率等目标，深度挖掘存量建设用地潜力，积极探索“容积率提升+空间立体开发”相结合的集约节约用地新模式。项目充分依托国家及省市低效用地再开发相关支持政策，在不改变土地用途、总用地面积保持不变的前提下，将地块容积率由原有的 0.27 提升至 0.75，地上总建筑规模由
0.86 万平方米增加至 2.11 万平方米，实现了土地综合利用效率的翻倍提升；打破传统单一平面开发思维，同步实施“地上地下”复合式立体开发，科学统筹地上功能布局与地下空间利用，地上合理规划国际会议中心、高端客房、餐饮配套、培训教室等核心功能建筑，地下则高标准建设智能停车场、设备机房、仓储用房等配套设施，新增地下建筑面积约 9435平方米。通过平面扩容与立体挖潜的有机结合，项目实现了土地利用效率和空间承载能力的双重跃升。
（三）前置运营思维，构建长效可持续运营体系项目打破传统“先建设、后运营”的割裂模式，将运营思维贯穿规划、设计、建设全流程。在项目启动初期即成立专门运营管理公司，同步推进专业团队组建、管理制度搭建与市场客户储备，运营团队全程参与建筑功能布局、设施设备选型等设计环节，确保空间设计与后期运营需求高度契合。运营阶段采用“大政务+大商务”双轮驱动模式，既保障山东港口集团内部国际交流、人才培训、职工疗休养等核心需求，又面向市场开放高端会议、商务住宿、餐饮会展等服务，同时建立市场化用工与绩效考核机制，激发团队内生动力。该模式实现了建设与运营的无缝衔接，全面运营以来已承接多场国际级会议与大型培训活动，通过多元业务实现稳定现金流，构建了“自我造血、良性循环”的长效运营机制。
五、政策依据
（一）《山东省人民政府办公厅关于推进城镇低效用地再开发的意见》（鲁政办字〔2020〕32 号），原土地使用权人改造。除应由政府收回的外，原土地使用权人可通过自主、联营、入股、转让等多种方式改造开发。在改造过程中，允许按规划对用地性质、建筑容量、建筑高度适当调整，可通过存量补地价、协议出让方式完善用地手续。
（二）《烟台市人民政府办公室关于推进城镇低效用地再开发的实施意见》（烟政办字〔2021〕8 号），除原划拨决定书、出让合同约定由政府优先收回，或按规定应当由政府收回土地使用权外，原国有土地使用权人按照批准的规划，可通过自主、联营、入股、转让等多种方式自行改造开发。烟台港集团有限公司地块项目再开发前权属示意图烟台港集团有限公司地块项目开发情况示意图