Regenerate the Historical City

Rhetorically? --- A critique of current conservation strategies and

development control mechanism in Xi’an

ZHAI Binqing

CUPEM,

The University of Hong Kong

● Urban Renewal:

in 1958, in Den Haag (the Hague);

in 1960s and 1970s, carrying much of demolition

and bulldozing; when derelict physical environments

improved, indigenous residents in another “poverty”

(Carmon, 1997; Western, Weldon, & Haung, 1973);

From urban renewal to urban regeneration

● Urban Regeneration:

since 1990s, more sensible means and holistic

approaches, such as conservation, rehabilitation, re-

use and redevelopment (Wise, 1985);

Roberts (2000, p. 17): the aim of Urban Regeneration

“bring about a lasting improvement in the economic,

physical, social and environmental condition of an

area”.

● In 1978, economic reform; institutional transitions from

centrally-planned to market-oriented economy;

● In 1986, urban land reforms, and in 1988, housing

reforms;

● Since early 1990s, property-led redevelopment, a

dominant means of generating local revenues to solve

its tight budget problems, through public-private co-

operations;

Urban regeneration in China

In historical urban areas, pursuing maximum economic

profits arousing,

contradiction between conservation and redevelopment,

and disappearance of historical characteristics and identity.

Problem

● Master plans and conservation proposals;

● Market-forces;

● Regulations and development control mechanism;

● Indigenous communities;

Study FrameworkXi’an Case

● Xi’an urban area: about 3,582 km2, with the population

of 5,332,100 (XSB, 2005).

● Historical areas mainly within the City Wall, since Hong

Wu period (A.D. 1378), Ming dynasty. E.g. current

“check-board” urban fabrics, and many in-situ historical

monuments and precincts (XCUCRC, 2000).

Xi’an City

The Bell Tower The Drum Tower The Wild Goose Pagoda

Xi’an City Wall Area (CWA): about 12 km2, and population about 420,000 (XMPG, 2005).

Sanxuejie Area -- 1 Sanxuejie Area -- 2

Sanxuejie Area -- 3Damaishi Street

1) Evolution of Xi’an master plans

● First Master Plan (1953-1972): expand the city area

surrounding industrial development, and old urban

areas encouraged to be used entirely (XCUCRC, 2000).

● Second Master Plan (1980-2000): concept of urban

conservation put forward; revitalization in derelict

urban areas to solve the problems of dilapidated

housing, and lack of infrastructures (XCUCRC, 2000);

witnessed urban land reform, and development industries

booming since late 80s.

8022,535

5,758

11,651

33,035

55,715

0

10

20

30

40

50

60

Th

ou

san

ds

Year

GD

P

tertiary industry 196 593 1,799 5,242 16,362 25,762

secondary industry 397 1,459 3,083 5,015 12,533 24,762

primary industry 209 483 876 1,394 4,140 5,191

1957 1978 1985 1990 1995 1998

Xi’an GDP Improvement from 1957 ~ 1998 (Source: (XMG & XSB, 1999))

Average GDP increase rate: 6.0 % (1976-1980); 10.7 %

(1981-1985); and 9.3 % from 1986 to 1992 (XMG & XSB, 1999).

Existing Situation of

Xi’an City (1990)

Existing Situation of

Xi’an City (1934 &

1949)

(Source: (XCUCRC, 2000))

● Third Master Plan (1995-2010) (in current implementation):

To regenerate Xi’an through conservation, revitalization

and redevelopment efforts with economic growth;

● Conservation plan (section of Third Master Plan):

Three tiers of conservations: the archaeological sites and

their precincts; existing heritage monuments and their

settings; the city wall and entire CWA (XCPB, XACH, & XUPDI,

2005);

Conservation rhetoric --- imperial cityscapes of “Tang”

dynasty, through existing historical monuments and

massive redevelopment activities;

Redeveloped areas should contribute to an “imperial”

cityscape (XCUCRC, 2000); through co-operations with

private developers;

Indigenous historical urban fabrics are to be removed,

if not coincide with the required cityscape.

Pseudo-historical buildings in West Avenue:

Land use

Commercial, tourist and amusement

area

Residential area

Industrial area

Scientific, educational, cultural and hygienic area

Comprehensive area

Price

Land grade

I 3300 2610 1950 2265 2955

II 2535 2070 1560 1755 2310

III 1965 1620 1230 1350 1800

IV 1470 1215 870 1020 1335

V 900 765 555 660 840

VI 570 495 375 420 540

VII 435 390 300 330 405

VIII 330 300 240 270 315

VIIII 270 240 210 225 255

X 158 147 135 142 150

XI 45 40 36 39 44

XII 28 26 22 24 27The base price for state owned land in Xi’an city (2007) (Source: Xi’an National Land and Resources Bureau)

2) Market-forces

State owned land-grade in Xi’an city (2007) (Source: (MLR, 2003))

At the beginning of 1990s, with private developers,

the 49 blocks of low-lying residential sites ( 低洼地 ),

just exchange of land-use rights with economic

profits (He, 2002).

In 2004, the city’s GDP: 109.587 billion RMB, and

22.79 billion from real estate projects and

construction;

Municipal government’s income from the lease land

reached 1.44 billion;

3) Conservation regulations and legislations

● In 1993, Regulations on

the Urban Building-Height

Control《控制市區建築高度的規定》 : steps-shape height

control

Today Xi’an South Avenue

Urban Height-control System

(XCPB, 1993)

● In 2002, Conservation Regulations on Xi’an Historic and

Cultural City《歷史文化名城保護條例》 :

● In 2005, Xi’an Urban Planning Management

Regulations《城市規劃管理條例》 :

Land uses follow master plan, district and detailed plans;

Potential land value; massive property-led redevelopment;

Local development control and management mechanism

One Proposal and Two Permits (Source: revised from (H. Y. Li, 2002))

Site Selection Proposal for Development Projects

(SSPDP)One proposal

Planning Permit for Construction Projects

(PPCP)

Land Use Permit (LUP)

Planning Permit for Construction Land (PPCL)

Two permits

Xi’an National Land and Resources Bureau (XNLRB)

Xi’an City Planning Bureau (XCPB)

Administration and Management System on the Conservation of Chinese Historical and Cultural Heritage (Source: (Wang, Ruan, & Wang, 1999a))

Administration of Cultural Heritage

Conservation of historical and cultural areas, and Historic and

Cultural Cities; and city planning related controlled

constructions

Preservation of Antiques

Department of Urban Construction and City Planning Management

Municipal Government

State Bureau of Antiquities

Council of State

Ministry of Construction (Urban Planning)

4) Local community and indigenous residents

Roles: forming local custom and traditions (their daily

lives and group activities);

Activities: private-properties reclaimed and relocated;

Choices for them?

1> Full compensations: the quality and areas of their

properties;

2> In-situ new apartments after redevelopment: worries

and distrust to private developers and local

government;

Social and economic conflicts between local communities

and governments.

Governmental relocation

compensation

Local second-hand housing price

Market-price of local apartments

Private-owned residential

housing

1,680-2,180 RMB yuan/M2

3,000-3,500 RMB yuan/M2

4,000-5,000 RMB yuan/M2

Private-owned commercial

property

3,800-4,000 RMB yuan/M2

10,000 RMB yuan/M2

30,000 RMB yuan/M2 (including

47% share expenses)

Public-owned residential

housing

800-1,000 RMB yuan/M2

Public-owned commercial

property

About 2,000 RMB yuan/M2

Property Categories

Price Types

Comparison between Relocation Compensation and Market-price of Local Housing in Sajinqiao Area, Xi’an (Source: provided by Sajinqiao local Muslim residents during the field study)

ARGUMENT:

Current plans: undermining substantial values physically,

culturally and socially:

Ignoring historical physical urban patter; hampering social

connections through relocation, and cultural significance

in terms of “living heritage”.

Existing “black-box” development control mechanism:

difficult to convince people the conservation or

redevelopment efforts for the public interests.

Conclusion

SUGGESTION:

Local communities: role in plan-making process, and as

substantial part in conservation components.

Institutional changes: legitimation of plan-making and

decision-making participants; revaluation of political-

economic compositions and local “living heritages”.

Thank you!Beiyuanmen Street;

zhaibinqing@hku.hk