1. Project Overview
The Bodu Xinxiang project is in the core protection zone of the Shang dynasty capital site in Guancheng Hui District, Zhengzhou, with the Shang city walls to the east and the Zhengzhou Confucian Temple to the west. It covers 46 mu with total investment of CNY 1.59 billion and about 40,000 square metres of floor space. Approved in 2016 as the first plot in the Shang capital cultural area, it went through planning, design and construction and opened on 29 September 2025. The land is mixed commercial service and cultural facility land. The design continues the city's traditional street and lane character, in keeping with the nearby Shang walls and Confucian Temple, using culture and the fusion of old and new to drive redevelopment and cultural revival and connect historical heritage with modern development.
2. Redevelopment Entity and Model
(1) Why redevelopment was needed
The area was formerly the campus and staff housing of the Zhengzhou Electric Power College. After the college moved, the education land stood empty for a long time; buildings were old, the environment poor and the layout scattered and chaotic. Heritage protection and land use were disconnected, the area's historical and cultural value was not expressed, land use was inefficient and the site was seriously out of keeping with the overall role of the Shang royal city site area. Redevelopment was urgently needed to revive existing land, improve the layout, bring heritage to life and raise quality.
(2) Redevelopment entity
A collaborative model of "government coordination, SOE leadership and market participation" was used. The government coordinated expropriation and demolition, planning approval and construction; Zhengzhou Urban Development Group Co., Ltd., as builder and operator, handled land preparation, construction, leasing and operation; and market-based companies were brought in for business planning and leasing.
(3) Redevelopment model
The project integrated existing land into the reserve, developed the area comprehensively and operates it as an integrated culture–commerce–tourism destination. Led by the government on the principle of "unified planning, unified reserve, unified development, unified supporting facilities and unified supply", it optimized land use, carried out heritage protection alongside plot redevelopment, and precisely introduced quality businesses — completing the cultural tourism services of the Shang capital historic area and carrying forward its heritage.
3. Results of the Redevelopment
(1) Better land use and resource allocation
Inefficient education and residential land has been converted to land for integrated culture, commerce and tourism, greatly raising land efficiency and rationalizing spatial allocation. With heritage protection and territorial spatial planning aligned, land value, cultural protection, urban functions and industrial development now reinforce one another, reviving existing resources and breaking the inefficiency bottleneck.
(2) Revived heritage and a much improved city image
The Shang capital's historical resources have been brought to life, linking the Shang walls and the Confucian Temple and continuing the old city's pattern of streets, lanes and courtyards. Drawing on traditional Henan courtyard types, the design forms a combined pattern of "city wall, street, lane, courtyard and landscape", integrating heritage protection with land development. Shang cultural symbols are woven into the district: 15 themed courtyards draw on Central Plains architecture and more than 2,000 building components reflect classical architecture, making the district a new historic and cultural landmark for Zhengzhou.
(3) Benefits for both business and residents
Since opening, the district has gathered diverse businesses, more than 40% of them first stores. Footfall exceeded 100,000 on opening day and 500,000 over the National Day and Mid-Autumn holidays. Annual visitors are expected to reach 4.8 million in 2026, with annual sales of CNY 450 million, boosting spending and jobs in the old city. Infrastructure and living conditions in the area have improved and the rights of displaced residents have been protected.
4. Key Practices
(1) Plan-led, implementing the area's cultural role
Planning was built on "macro direction, meso connection and micro delivery". At the macro level, the Special Plan for Redevelopment of Urban Inefficient Land in Zhengzhou's Main Urban Area linked redevelopment closely with cultural protection, matching the overall role of the Shang capital historic area. At the meso level, the Urban Design for the Shang Royal City Site, Zhengzhou traced the historical fabric and balanced heritage protection with development. At the micro level, a detailed plan optimized the land-use layout, rezoning the land as commercial land compatible with cultural facilities.
(2) A better reserve mechanism and coordinated provision across the district
Implementation followed "unified planning, unified reserve, unified development, unified supporting facilities and unified supply". Inefficient land in the area was acquired precisely for the project, with an innovative "double uplift" compensation standard and a transparent ("sunshine") expropriation process — public policies, regular procedures and open channels for complaints — that resolved disputes and cleared the way for construction. Supporting facilities and infrastructure were improved at the same time, and the spaces connecting to the Shang walls, the Confucian Temple and other heritage were upgraded, so that the district develops in step with its surroundings and the Shang royal city area as a whole is developed coherently.
(3) Mixed supply with heritage conditions bundled into the sale
Land supply and sale were innovated by supplying mixed commercial service and cultural land, breaking traditional barriers of single-use designation and "net land, blank plan" sales. Functional zones were set and the share of cultural facility land defined, giving priority to core cultural functions such as display of Shang culture and intangible heritage, with supporting retail and leisure. The land was sold with heritage conditions: mandatory requirements such as height limits and retention of the street and lane pattern, heritage responsibilities, townscape controls and the intended business mix were written into the land transfer contract, with defined liability for breach, a heritage performance bond and regular supervision. This reversed the logic of "sell first, protect later" and, through contractual obligations, ensured "protect first, develop later", keeping development in tune with the Shang capital's culture and nearby heritage.
(4) Leasing first, building second, to secure operating quality
Leasing and construction proceeded together, with leasing and operations put first to secure operating quality and the long-term success of the cultural tourism project. Focusing on living transmission of Shang culture and the Confucian culture of the temple, Zhengzhou Urban Development Group engaged quality cultural tourism operators, set operating standards, cultural positioning and business guidelines in advance, and avoided a mismatch between operations and cultural positioning. The group holds and manages the property itself, standardizing and controlling operations so that leasing, construction and operation connect seamlessly and operations are not neglected in favour of construction. Distinctive cultural IP and regular cultural events draw visitors, raise the district's profile and sustain its vitality — a virtuous circle in which "culture empowers commerce and commerce supports culture".
5. Policy Basis
(1) The Reply of the State Council on the Implementation Plan for Comprehensive Reform Pilots for Market-based Allocation of Factors in Some Regions (Guohan [2025] No. 86) encourages giving priority to cultural industries on industrial land vacated during urban transformation. The Notice of the Henan Provincial Government on Issuing the Work Plan for Zhengzhou's Comprehensive Reform Pilot for Market-based Allocation of Factors (Yuzheng [2025] No. 28) introduces policies to reduce land costs for cultural undertakings and supports upgrading old industrial areas for cultural industries.
(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 improving expropriation compensation and, where redevelopment needs to proceed mainly through government reserve, exploring "unified planning, unified reserve, unified development, unified supporting facilities and unified supply" in conjunction with regulatory detailed planning. Zhengzhou's Implementation Opinions on Expropriation and Compensation on State-owned Land (Zhengzhengwen [2014] No. 191) and Notice on Further Improving and Regulating the Purchase of State-owned Land (Zhengzhengwen [2022] No. 120) set out core requirements for unified government reserve, consolidation of rights, contiguous development, compensation standards and transparent expropriation, ensuring fair resettlement and protecting residents' rights.
(3) The Guiding Opinions of the Ministry of Natural Resources and the National Cultural Heritage Administration on Strengthening Protection and Management of Historical and Cultural Heritage in Preparing and Implementing Territorial Spatial Plans (Ziran Zifa [2021] No. 41) strengthen the preparation and approval of heritage protection plans and establish the policy of "archaeology before land sale".
(4) The Notice of the General Office of the Henan Provincial Government on the Three-year Action Plan for Key Urban Renewal Projects (2025–2027) (Yuzhengban [2025] No. 28) strengthens holistic protection of historic and cultural districts and the protective mechanisms of "survey before construction, archaeology before land sale".
Show original Chinese text （中文原文）
郑州市亳都新象历史文化街区活化利用
一、项目基本情况亳都新象项目位于郑州市管城回族区商代都城遗址核心管控区域，东依商代城垣遗址，西临郑州文庙，总用地面积 46 亩，总投资 15.9 亿元，总建筑面积约 4 万平方米，2016年启动立项，作为郑州商代都城遗址文化片区首开地块，历经规划设计与工程建设，于 2025 年 9 月 29 日正式开街运营。项目用地性质为商业服务业与文化设施混合用地，规划设计系统传承延续城市传统街巷风貌，整体风格与周边商代城垣遗址、文庙等历史遗存一脉相承，以文化赋能、新旧融合推进片区再开发与文化复兴，实现历史文脉与现代发展有机衔接。
二、改造主体和改造模式
（一）改造原因项目片区原为郑州电力高专校区及家属院，高校搬迁后教育用地长期空置，建筑老旧、环境品质不佳、布局零散混乱，文物保护利用与用地功能割裂，历史文化价值未能彰显，土地利用效率低下，与商代王城遗址片区的整体定位严重不符，亟须通过再开发盘活存量、优化布局、活化文脉、提升品质。
（二）改造主体构建政府统筹、国企主导、市场参与的协同工作模式。政府统筹征收拆迁、规划审批、项目建设等环节；郑州城市发展集团有限公司作为建设运营主体，负责土地整理、工程建设、招商运营；引入市场化企业参与业态策划与商业招商，保障项目规范高效推进。
（三）改造模式本项目采用存量用地整合收储、片区综合开发、文商旅融合运营的改造模式，由政府牵头，按照“统一规划、统一储备、统一开发、统一配套、统一供应”的原则统筹推动实施，优化土地用途，落实文物保护与地块改造工作，精准导入优质业态，实现商都历史文化片区文旅服务功能完善、历史文脉有效传承的核心目标。
三、低效用地再开发取得的成效
（一）土地利用提质增效，资源配置更加优化原低效教育、居住用地转型为文商旅融合发展用地，土地利用效率大幅提升、空间配置更趋合理。在兼顾文物保护与国土空间规划衔接的基础上，实现土地价值与文化保护、城市功能、产业发展深度协同，有效盘活存量资源、破解低效用地瓶颈。
（二）文脉活力充分激发，城市形象显著提升深度活化商都历史资源，串联商代城垣、文庙两大节点，延续老城街巷院落格局，提取河南传统院落原型，形成“城、街、巷、院、景”综合形态，实现文物保护与土地开发有机融合。将商文化符号融入街区设计，15 个主题院落萃取中原建筑特色，2000 余处建筑构件采撷古建筑精华，擦亮古都文化名片，成为郑州历史文化新地标。
（三）产业民生双向共赢，发展活力持续增强项目开街后汇聚多元业态，首店占比超四成；开业首日客流破 10 万人次，国庆双节累计客流超 50 万人次，预计 2026年客流达 480 万人次、年销售额 4.5 亿元，有效激活老城消费、带动就业增收。同时片区基础设施升级、人居环境改善，征迁群众权益得到保障，实现多方共赢。
四、主要做法
（一）坚持规划引领，落实片区文化定位以“宏观定调、中观衔接、微观落地”为主线，筑牢规划根基。宏观层面，以《郑州市主城区城镇低效用地再开发专项规划》为核心，推动低效用地再开发与文化保护深度衔接，契合商都历史文化片区整体定位；中观层面，依托《郑州市商代王城遗址城市设计》，梳理历史文脉，兼顾文物保护与用地开发需求；微观层面，编制详细规划，优化用地功能布局，将用地调整为商业兼容文化设施用地，推动规划层层落地。
（二）完善收储机制，强化街区统筹配置以“统一规划、统一储备、统一开发、统一配套、统一供应”推动实施。紧扣亳都新象项目需求，将片区内低效用地精准收储，创新推行“双上浮”补偿标准与阳光征迁模式，公开政策、规范流程、畅通诉求，妥善化解征迁矛盾，为项目建设扫清障碍；同步完善街区配套设施和基础设施，整治与商代城垣遗址、文庙等周边历史遗存衔接的空间区域，推动其与周边片区协同发展，切实保障整个商代王城遗址片区开发的整体性、系统性，让低效用地在传承商都文脉、激活片区活力中发挥实效，助力亳都·新象打造郑州城市文化名片与商都城市会客厅的目标落地。
（三）推行混合供应，文保条件捆绑出让创新用地供应与出让模式，推行商业服务与文化用地混合供应，打破单一用地性质及净地、空白规划传统壁垒，结合亳都新象及商代王城遗址片区定位，合理划分功能分区、明确文化设施用地占比，优先保障商代文化展示、非遗传承等核心文化功能，配套商业休闲业态，实现文化与商业、休闲有机融合。同步推行带文保条件出让，将建筑限高、街巷肌理保留等刚性要求及文保责任、风貌管控、业态导向纳入土地出让合同，明确违约责任并设立文保履约保证金、强化常态化监管，扭转“先出让、后保护”逻辑，以合同约束实现“先保护、后开发”，确保用地开发契合商都文化底蕴、呼应历史遗存，推动文脉活态传承、打造复合型文商旅空间。
（四）先招商、后建设，保障运营质量推行招商与建设同步模式，坚持招商前置、运营先行，筑牢项目运营质量底线，推动文旅项目长效发展。聚焦商代文化、文庙儒学文化活态传承，郑州城市发展集团精准对接优质文旅运营企业，明确运营标准、文化定位及业态导向，提前锁定运营方向，规避运营与文化定位脱节问题；实行物业自持与统一管理，规范运营流程、强化运营管控，实现招商、建设、运营无缝衔接，杜绝重建设、轻运营现象。通过打造特色文化 IP、举办常态化文化活动引流，提升街区知名度与影响力，维持街区活力，实现“文化赋能商业、商业反哺文化”的良性循环，助力片区文商旅融合发展。
五、政策依据
（一）《国务院关于全国部分地区要素市场化配置综合改革试点实施方案的批复》（国函〔2025〕86 号），鼓励将城市转型中退出的工业用地优先用于发展文化产业；《河南省人民政府关于印发郑州市要素市场化配置综合改革试点工作方案的通知》（豫政〔2025〕28 号）
，出台支持文化事业发展降低用地成本政策，支持旧工业区转型升级发展文化产业。
（二）《自然资源部关于开展低效用地再开发试点工作的通知》（自然资办发〔2023〕171 号），完善征收补偿办法；对需要以政府储备为主推进低效用地再开发项目实施的，结合国土空间控制性详细规划编制，探索以“统一规划、统一储备、统一开发、统一配套、统一供应”推动实施。《郑州市人民政府关于国有土地上征收补偿的实施意见》（郑政文〔2014〕191 号）、《郑州市人民政府关于进一步完善和规范国有土地收购工作的通知》（郑政文〔2022〕120 号）等文件，明确国有土地政府统一收储、权属整合、连片开发、补偿标准、阳光征迁等核心要求，为项目土地征收提供政策遵循，保障征迁安置规范公平、群众权益得到切实维护。
（三）
《自然资源部 国家文物局关于在国土空间规划编制和实施中加强历史文化遗产保护管理的指导意见》（自然资发〔2021〕41 号），加强历史文化保护类规划的编制和审批管理；健全“先考古，后出让”的政策机制。
（四）《河南省人民政府办公厅关于印发河南省深入实施城市更新重点工程三年行动计划（2025—2027 年）的通知》（豫政办〔2025〕28 号），强化历史文化街区整体性保护。健全先调查后建设、先考古后出让的保护前置机制。