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JANUARYCITIES
URBAN REVITALISATION IN CHINESE 2010
RICSRESEARCH
Urban revitalization
in traditional
neighbourhoods in
Chinese cities
Elisabete A. Silva, Nan Song and Ning Wu
University of Cambridge, United Kingdom
Research
1
About the authors
Dr Elisabete A. Silva
is at the Department of Land Economy of the University of Cambridge and is a Fellow of
Robinson College. With more than 100 publications in peer review journals, books/books
chapters, conference proceedings, and a research track record of approximately 16 years,
(both at the public and private sector), her research interests are centred on the application
of new technologies to spatial planning in particular city and metropolitan dynamic
modelling through time.
Ms Nan Song
is currently a PhD student in Department of Land Economy, University of Cambridge.
She was awarded her bachelors’ degrees in Urban and Regional Planning and Economics
in Beijing University, and then went on to study for her MPhil and PhD in Department of
Land Economy, University of Cambridge. Her research interests are urban regeneration,
inter-city competition and collaboration in China and European countries.
Mr Ning Wu
is a full time PhD student in department of Land Economy, Cambridge University. Mr. Wu
got his Masters in computer application, and his BA in computer science, both in China. His
research interests explore artificial intelligence solutions for urban land dynamics, particularly
in cellular automata, agent based models and genetic algorithm-based urban modeling.
Published by:
RICS
Parliament Square
London SW1P 3AD
United Kingdom
Acknowledgements
We are very thankful to the following researchers: We are also very thankful to the following students who kindly
helped us with the questionnaire surveys:
Tongji University (architecture and urban planning college)
WANG Qian
Professor ZHANG Guanzeng
ZHANG Beirong
Professor PENG Zhenwei
HUANG Qiong
Professor SONG Xiaodong
XIA Wannuo
Dr. PANG Lei
ZHOU Hemeng
03
Contents
Executive summary 05
01 Introduction 06
References 50
04
URBAN REVITALISATION IN CHINESE CITIES
Executive summary
05
01 Introduction
There has been a tradition in many Chinese cities that the sector and individual houses were assigned by work units.
older city areas have been preserved during the course of With the administrative decentralisation and the establishment
development and re-development. These areas are generally of the land market structure during the reform era, the
located in the downtown areas and efforts have been made ownership of and rights to land were separated. The state
to maintain the traditional architectural styles. Some of the retained the ownership of land, with local governments
existing structures, such as ancient city gates, lanes and responsible for leasing the use rights of the land to the private
buildings are indeed still used by local residents. In these sector, which could then be traded in the secondary land
areas, the predominant housing type tends to be a traditional market. The use rights of houses that had already been
style of low-rise building, which is associated with lower quality assigned were released to individuals at lower than the market
housing conditions and public facilities. A large proportion of price. However, the use rights of older houses, most of which
this housing is owned by the local housing bureau and assigned were owned by the housing bureaus, were not sold to
to individual households. These traditional areas are also individuals, but were made available as rental properties to
characterised by an ageing, disadvantaged and often less the existing occupiers, at a significant discount to market rents,
wealthy population, with a high degree of stability of the enabling people who could not afford to buy houses to stay in
population. It is often the case that a number of generations their original homes. The ownership of some private houses,
of the same family live in the same traditional area. As a result, which had been taken into state ownership during the Cultural
there is a strong sense of ‘community’ in these areas. Revolution, was returned to the former landowners.
A major trend in urban development in China has been the The process of land leasing has been viewed as a means of
growth of property-led regeneration, where the state relies generating government revenue, and this has greatly stimulated
on the private sector to provide the driving force for urban the development of the real estate industry. The resultant
regeneration (Turok, 1992). This represents a fundamental increase in land prices has led to a dramatic boom in property
change from the past, where the state had a far greater role in development projects, and has made them increasingly market-
urban regeneration, to the current situation where property-led driven. Not surprisingly, given their central location in cities,
generation supported by the private sector has instead become traditional areas turned out to have relatively high land values.
the dominant approach. According to the Beijing Construction Committee (2002),
between January to September 2001, 36 urban renewal
Before the 1990s, most regeneration projects were funded by projects, amounting to an investment of 11.35 billion Yuan
the government or, in some cases, by state-owned enterprises, ($1.64 billion at October 2007 prices), were launched in eight
but by the 1990s, the financial demands on the state were inner city districts. About 2,450 thousand m2 of new property
becoming too great and, as a result, the projects were often was constructed over an area of 7,956.7 thousand m2. Some
insufficiently funded and poorly executed (Liu and Wu, 2006). 93,000 households were rehoused. In 1994, the Shanghai
Largely as a result of this lack of investment, many of these municipality launched a large-scale downtown regeneration
older urban areas did not see substantial change and began to programme – the ‘‘365 plan’’- aimed at regenerating 365
fall into decline. hectares of run-down urban areas by 2000. The Shanghai
Construction Report showed that 56 urban renewal projects
As a consequence of the wider adoption of market mechanisms, were finished in 2006, and that the total construction area
the 1990s saw a change in the nature of state-led urban reached 7,280 thousand m2. The number of households affected
development, whereby market forces were used to identify by these projects was over 154,000 (Shanghai Construction
the most appropriate land use and functional structures. Committee, 2007).
Before this period, China had a typical centrally planned
economy, in which urban land was owned by the state and
there was no land market by which market values could be
identified. Housebuilding was financed largely by the public
06
URBAN REVITALISATION IN CHINESE CITIES
As well as the potential increase in land values in inner city 2003). This was followed by a ‘New Round Urban Redevelopment
areas, government policies were also fuelled by the increasing Scheme’ which enriched the incentive package to developers,
involvement of private developers in traditional area by providing exemption from land leasing costs and
regeneration projects. Local government believed that this administrative fees.
approach had many advantages. First and foremost, private
sector investment can alleviate the heavy financial burden of It was also the case that local governments often focused on
regeneration projects. Moreover, the renewed and revitalised profit making opportunities rather than seeking to ensure that
physical appearance can transform run-down areas into more the government’s local development plans and regional
certain economic opportunities, thus generating economic strategic plans for urban development were properly enforced
growth. The role of government was therefore to reduce the (Mee Kam, 2003). Planning controls have been streamlined to
barriers to private investment, through land release and satisfy the demands of investors and, as a result, the urban
infrastructure provision. A case in point is the authority of regeneration of traditional areas in Chinese cities has often
Xicheng District (one of the eighteen administrative sub- placed greater emphasis on economic benefits, while neglecting
divisions of Beijing Municipality), which put forward an ‘‘old city environmental and social issues.
area regeneration scheme’’ in 1998. This included a number of
policy priorities, such as reducing land leasing costs and Market-led commercial real estate development aims to
administrative fees. Similar policies were also put forward in maximise the return on investment, which may very well not be
Shanghai to attract private developers into regeneration consistent with social benefits, or with conserving the culture
process. The report “Accelerating Regeneration of The and historical heritage of the city. In addition, land use changes
Dilapidated Buildings in Central Urban Scheme” issued in and household relocations are two main visible characteristics
1996, whose aim is to reduce the complicated project approval of this kind of urban regeneration (Logan, 2005). Household
procedure for private developers, is a good example of such displacements are an inevitable consequence of land use
an initiative to de-regulate some of the former obstacles to change in traditional urban areas. Thus, while the profitability
the involvement of the private sector. In 2001, the Shanghai of real estate development has enabled the redevelopment in
government reiterated the principles behind the regeneration the inner city, it has also led to the development of commodity
of old city areas – the government offered support, the market housing in the urban periphery (Liu and Wu, 2006).
operated, and the public participated (Real estate newspaper,
07
Introduction
To fulfil the significant demand for commercial and residential These were often constructed as gated communities, with
space in the down-town areas, which is generally considered to some cultural and physical facilities being provided, but they
be the prime location, most property-led regeneration projects lacked the previous sense of place, as the new residents of
construct high-rise commercial buildings or luxury apartments these communities had no previous knowledge of each other.
to replace the existing low-rise, old-style houses. Consequently, The other option was to provide households with monetary
many traditional areas have seen a great change in land use. compensation to purchase new accommodation without any
For instance, the regeneration projects around the Baoguo specific constraint on location. However, the subsidy was
Temple and Taoyuan in Beijing were no longer based on usually too small for the original residents to purchase houses
residential redevelopment but, instead, accommodated mainly in the same areas as where they used to live. To illustrate the
commercial uses, such as office and retail. Few, if any original scale of this residential displacement caused by inner city
residents were able to move back following redevelopment (Wu, regeneration, Fang (2000a) estimated that 4.2 million m2 of
1999). These same changes were also found in many other cities housing was demolished in the old city of Beijing between 1990
such as Shanghai (He and Wu, 2005), Tianjin (Logan et al., 1999), and 1998. Approximately 32,000 families, comprising about
and Guangzhou (Yeh et al., 1995). 100,000 people, were displaced, some of them having to wait
up to five years before they were re-housed. From 1995 to 2004,
These land use changes have led to inner city gentrification, over 745,000 households were relocated, and more than 33
as a result of the existing low-income residents moving out and million m2 of housing were demolished in Shanghai (Shanghai
being replaced by middle- and high-income households, who Statistical Bureau, 2006). In summary, through the regeneration
can afford the high prices charged for the newly-developed of traditional areas, the profile of some traditional urban
luxury apartments. The original residents were re-housed, either neighbourhoods has changed significantly.
through being provided with new housing or through cash
payments. Where they were provided with new housing, this
was normally built on the outskirts of the city, with the location
of the new housing largely determined on cost grounds.
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URBAN REVITALISATION IN CHINESE CITIES
Local governments have gradually become aware of the While issues relating to the financing of development are
negative impacts on the image of the city as a result of the recognized as a key issue, this study has not explicitly
regeneration of traditional areas, and have developed and addressed them due to limitation of information and data.
implemented policies to deal with this. For example, in 2002,
the Beijing Municipal Government issued Protection Layout for The study is organised as follows:
25 Pieces of Protected Historical and Cultural Blocks, which set
The social impact of urban regeneration and the concept of
boundaries and new conservation rules of the protected blocks.
neighbourhood in western countries and in China will be briefly
As a consequence, the rate of regeneration of the traditional
reviewed in chapter 2. Chapter 3 introduces and describes the
areas slowed down to some extent. However, property-led
six studied neighbourhoods in Beijing and Shanghai, and the
regeneration has continued apace in many traditional areas
methodology of the study. Chapter 4 will look at changes in the
outside the protected blocks.
social and spatial structures of the neighbourhoods in Beijing and
Shanghai. Changes in life-styles, looking in particular at issues
Although urban regeneration in China was not officially named
relating to access to amenities and safety and security issues
as property-led regeneration, its characteristics reveal that there
are dealt with in chapter 5. Chapter 6 then looks at the interaction
was a shift from a government-financed process to a property-led
between neighbours and their sense of attachment to their
process. By focusing on physical regeneration and generating
neighbourhood. Finally, the findings of this study and lessons
economic profits, social objectives have been ignored in the
for urban regeneration in China are summarised in Chapter 7.
traditional area regeneration in China in recent years.
09
02 Social impacts of urban regeneration
Social impacts of urban regeneration and the concept This approach to urban renewal weakens the vitality of urban life,
of neighbourhood in the West and in China creates inhuman urban spaces, and ruins healthy communities.
This chapter addresses the background of the study. It first To the extent that planners did consider the social environment
reviews the literature on the social impact of urban regeneration, in their decision-making, they wrongly assumed that the shape
and the concept of ‘neighbourhood’ in the west. This will help of the physical environment determined the social environment,
us to understand why it is important to study the social impact but the reality that emerged is that social neighbourhoods within
of urban regeneration, particularly at the neighbourhood level. which people lived are much more complex and overlapping
Then we look at similar studies in China, exploring in particular than the planning idea of clean, physically distinct neighbourhood
some of the limitations of that work. areas. As a result, it has been accepted that the long-run social
costs caused by the urban destruction and the relocation
2.1 Studies of social impacts of urban regeneration in movement are too high a price to pay.
the west
In the 1960s, there was an important improvement in the
Large scale urban renewal originated in the United Kingdom,
processes of urban renewal, in that far greater emphasis was
the United States of America, and other western countries in
placed on public participation. It was expected that introducing
the 1930s, as a means of enhancing living conditions in
public participation into the planning system would have many
deprived urban areas and meeting the needs of an increasing
advantages. One of these was that by enabling the public to
population. It was initially characterised by slum clearances
participate in decision-making processes, redevelopment
and residential displacements and, although this process played
programmes could pay more attention to local people’s needs
an important role in renewing the urban physical environment,
and avoid focusing purely on the reconstruction of the physical
it has been criticised for generating negative social impacts.
environment. Many new programmes during that time adopted
For one thing, it focused solely upon physical regeneration
this new approach, such as ‘community architecture’ in the
and neglected the social environment where people lived.
United Kingdom and ‘community development’ in the United
Young and Willmott (1957) found that many of the relocated
States. The targets of these projects were to redevelop the
residents ended up living in a better physical environment
original houses and environment within a particular locale
but had lost elements of their previous social environment.
(usually community-based), instead of rebuilding them.
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URBAN REVITALISATION IN CHINESE CITIES
11
Social impacts of urban regeneration
Since the 1990s, there have been ongoing efforts in western Moreover, neighbourhoods are a suitable level at which to view
countries to use planning policies to alleviate these negative social impacts and changes in people’s daily lives as a result of
social impacts. There has been a recognition that the physical planning. The literature clearly shows us that the neighbourhood
planning and the provision of amenities within a neighbourhood is an ideal unit at which to study and assess quality of life,
alone cannot lead to a good neighbourhood. The view now social ties, identity, well-being and territoriality (NEHOM, 2004).
is that neighbourhood planning and redevelopment should In addition, neighbourhood changes could fuel other urban
primarily be about helping people create and improve issues. These neighbourhood changes are unpredictable and
communities (Kennedy, 1996; Peterman, 2000). As a result, have resulted in ever-widening differences in prosperity between
a greater policy emphasis was placed on area-based and places within single regions and countries (Kearns and Parkinson,
local initiatives, public-private partnerships, and community 2001). As a result, neighbourhood has become a key focus of
involvement. For instance, a comprehensive approach that urban planning studies over recent years.
highlighted community needs was adopted by the Social
Exclusion Unit (SEU) of the UK government, to improve public However, in order to improve the quality of neighbourhoods,
services and build inclusive partnerships. Similarly, the we need to understand more clearly the characteristics of
US government initiated a plan for reconstructing poor neighbourhoods. A ‘good neighbourhood’ has been described
neighbourhoods in the early 1990s (Wallace, 2001). ‘The as ‘a home area that can serve several functions, most notably
Neighbourhood Renewal Strategy in general and New Deal those of relaxation and re-creation of self; making connections
for Communities in particular, represented a reaction against with others; fostering attachment and belonging; and
“bricks and mortar” regeneration to focus on people, attempting demonstrating or reflecting one’s own values’ (Brower, 1996).
to improve life opportunities through self-improvement and In another definition,, a sustainable neighbourhood has been
community development of the existing population in deprived described as one where ‘people are provided adequate and
neighbourhoods (Cameron, 2006) In addition, neighbourhood appropriate shelter from their neighbourhood; enjoy a sense
rehabilitations and the creation of socially mixed communities of belonging; be assured of mutual social support from their
have been encouraged by urban redevelopment policies. neighbourhoods; enjoy freedom from fear and security of
person; and participate actively in civic affairs’ (BCRTEE, 1993).
To sum up, social objectives were not initially considered as an Both of these concepts stress the psycho-social benefits of
objective of urban renewal and property-led regeneration in the neighbourhoods.
West. However, social problems, especially local neighbourhood
issues, arose in these processes and more and more attention Good neighbourhoods can also be thought of in terms of
has been paid to them. Although not all the problems have been social capital. Coleman (1988) suggests that social capital
solved, much progress has been made. The basis of urban is ‘the shared knowledge, understandings, and patterns of
regeneration has switched from physical renewal to interactions that a group of people bring to any productive
comprehensive social and economic regeneration. activity’. According to Putman (1995), social capital refers to
‘the collective value of all “social networks” and the inclinations
2.2 The concept of neighbourhood in the west that arise from these networks to do things for each other’.
It has also been described as ‘the relationship, networks and
In order to explain why it is worth studying the social impact of
norms that facilitate collective actions’ (OECD, 2001). From
urban regeneration at the neighbourhood level, we need to think
these points of view, social capital is embedded within social
about the concept of neighbourhood and its relationship with
relationships; in other words, an individual cannot increase his
urban planning. The concept of neighbourhood is intrinsically
or her social capital without being involved in a social network.
related to its specific urban structure. According to Keller (1968),
Therefore, it is likely that good neighbourhoods tend to have
neighbourhood is a ‘place with physical and symbolic boundaries’;
high social capital.
Schoenberg (1979) defines the neighbourhood’s characteristics
as: ‘common named boundaries, more than one institution
disentitled with the area and more than one tie of shared public
space or social network’; according to Hallman (1984),
neighbourhood is a ‘limited territory within a larger urban area,
where people inhabit dwellings and interact socially’. Although
these concepts are mainly drawn from ecological or sociological
disciplines, they all have geographical or spatial characteristics.
Implicit in many definitions is the notion that the type and even
the existence of neighbourhoods can and often does vary
across urban space (Galster, 2001). Therefore, urban dynamics
and urban governance could be one of the fundamental drivers
of neighbourhood changes.
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URBAN REVITALISATION IN CHINESE CITIES
Social capital is seen as a fundamental determinant of person’s On the other hand, great changes in both physical and social
well-being. It is extensively used by social scientists to explain aspects have led to many adverse outcomes. There are many
social phenomena, from children’s welfare, educational consequences: certainly one of the most important ones is the
performance, economic prosperity, democracy to ‘health fact that the identification of the historic cultural city has been
and happiness’ (e.g. Putnam, 2000; Lupton, 2003). Thus weakened along with the clearance of courtyard houses and
strengthening or maintaining social capital is now recognised as Hutongs (Zhou, 2002). Although some historical heritage
a critical objective in urban regeneration, especially in housing buildings have survived, a large number of modern buildings,
renewal. The creation of mixed or balanced communities has similar to those in countries around the world, have replaced
now been recognised as an important strategy in strengthening the traditional style of buildings which stood at the heart of the
social capital in urban neighbourhoods (Veldboer et al., 2002). capital city for five dynasties. Moreover, the traditional cultural
image carried by the local neighbourhood has been demolished
In conclusion, due to the nature and scope of neighbourhoods, by the housing displacement process (Shao, 2001; Zhang and
social impacts, especially the development of social capital as a Fang, 2004). Therefore, the key characteristic of the historic
result of urban structural changes, can be effectively illustrated image of Beijing has been disappearing with the regeneration
at the neighbourhood scale. of the traditional areas.
2.3 The social impacts of urban regeneration in China The study of the displacement of residential areas is a relatively
As a result of the regeneration of traditional areas, many new phenomenon in China. On-site relocation projects are not
courtyard houses, Hutongs (narrow streets or alleys) and favoured by developers since the need to accommodate the
Linongs (a type of lane-and-community based urban dwelling existing population could reduce their profit margins, given the
form) have been replaced by luxury apartments, high-quality high population density in these areas (Wu, 2004a). Fang (2000b)
commercial facilities and office buildings. Low-income residents described the intensive resistance from relocated residents
have been displaced by the middle-income and high-income as a dilemma of urban redevelopment. Zhang (2002) also
households who can afford the high price of houses in the newly used displacement as a critical indicator to measure negative
regenerated areas. outcomes of redevelopment. Property-led regeneration has
accelerated social problems such as social inequity. For
There have been mixed views on this process. On the one hand, instance, middle- and high-income families move into the
it cannot be denied that this approach has effectively solved the regenerated area, while low-income households are forced
problem of how to finance urban redevelopment, which has to move out, which led to the segregation of different income
been a problem for local government for some time, and it has groups (Geng, 1999; Shan, 2001). Besides, as for the residents
definitely encouraged economic growth (e.g. Wu, 2001; He and who have been relocated to outer areas, they are deprived of
Wu, 2007; Hsing, 2005). In addition, it played an important role their convenient access to facilities, and experience the decline
in reshaping the city. For instance, the renewed appearance of of community interactions and social networks (Wu, 2004b).
the inner city areas in Beijing, such as the development of a Conservation of the social network has been proposed as of
world-class central business district (CBD), has reinforced the outmost importance to in the regeneration process, because rich
image of Beijing as an emerging global city (Wei and Yu, 2006). social networks are generated through long-term interactions
Furthermore, infrastructure has been upgraded in some of the and communications among local residents, being crucial to the
more deprived old city areas, and the physical conditions of living of local residents and the stability of communities (Yang
the housing of some of the original residents has been improved and Wu, 1999; He et al., 2001; Zhang and Fang, 2004). However,
(e.g. Zhou, 2002; Shao, 2001). Shanghai is somewhat different the understanding of what has been changed at the
to Beijing in both regeneration and protection. Most Linong neighbourhood with these residential replacements and
buildings in the central area had not been maintained by fundamental changes in the urban fabric is far from clear.
the government since they were built, so they were in a poor
physical condition and, as they were difficult to preserve,
demolition seemed to be the only realistic option for them.
The local government considered a small number of well-
maintained houses suitable for preservation, and in 2004,
over 600 buildings in 235 locations were listed by the
Shanghai Cultural Heritage Bureau for preservation. The old
houses in Huaihai Road were protected, and nowadays this
area is very famous for its bars and typical historical styles
of Shanghai buildings.
13
Social impacts of urban regeneration
2.4 The concept of neighbourhood in China Studies of neighbourhood relationships in China have generally
The definition of neighbourhood in China is similar to that in adopted a sociological approach and have not drawn on
the West. ‘Neighbourhood’ in the ‘Chinese Encyclopaedia’ approaches from urban planning research. Ruan et al., (1997;
(Chinese Encyclopaedia Press, 2006) is defined as: ‘relatively 2003) studied the ‘resident discussion network on important
independent small groups shaped by tight interactive topics’ in Tianjing and concluded that shared roots and
relationship, significant identification and emotional connection occupational relations have a fairly high importance in the
developed by people lived nearby.’ categorisation of social networks. Through a survey of 1,000
households in Shanghai, Wu and Hu (2002) found that elderly
Consequently, neighbourhoods have the following basic people tend to be more satisfied with neighbourhood
characteristics. Firstly, there is a territorial differentiation - the relationships, and that the educational level has an inverse
formation of neighbourhoods, as a kind of primary social group, ratio with the appreciation of the neighbourhood relationships.
depends on the location. Second is the social character of the In addition to this, a neighbourhood investigation in Nanjing
neighbourhoods - the social character is very much influenced showed that males are more likely to be satisfied with the status
by the degree of proximity and familiarity between families. quo of neighbourhoods, and that the higher the residential
Communications and assistance are the simplest functions that building is, the worse its neighbourhood relationship will be.
take place between neighbours, which do not require any formal A large proportion of people in this survey (78.9%) believed that
public assistance. What might be thought of as the mental neighbourhood relationships are important for them (Li, 2005).
context is the third characteristic of neighbourhoods – work by It was only very recently that Chinese scholars began to pay
He (2003) and Yang and Li (2004) shows that neighbourhoods attention to the neighbourhood scale in urban planning (e.g.
can be identified according to the cohesion and similarity in He and Wu, 2007; Liu and Wu, 2006; Wu and He, 2005), but
their shared goals and ideals. This is a self-reinforcing process, what happened at the neighbourhood level in the process of
in which the identity of neighbourhoods maintains and urban regeneration is still unclear.
strengthens the social cohesion.
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URBAN REVITALISATION IN CHINESE CITIES
15
03 The study areas and methodology
In this chapter, the case study areas and the research method Property-led regeneration in the traditional areas of Beijing
are briefly introduced. and Shanghai has been a significant phenomenon. In the 1990s,
a huge emphasis was placed on economic development in
3.1 An introduction of the study areas China and the scale of the resultant construction in Beijing
Beijing is an ancient city, with a 3050-year history since its was unprecedented. According to Wang (2003), 50 million
foundation, and it is 852 years since it was first chosen as the households were affected by redevelopment projects between
capital of China. Not surprisingly, as a result of its long history, 1991 and 2002. Since 1995, an area of over 3 million m2 is
it contains many traditional areas, with the ancient city redeveloped every year in Shanghai (Shanghai statistical
remaining comparatively intact through the evolution from the bureau, 2007). Included within this are many of the traditional
‘Dadu’ in Yuan Dynasty, the city of Beijing in the Ming and areas of Shanghai.
Qing Dynasty, and from the Republic of China to the People’s
In order to explore neighbourhood changes before and after the
Republic of China nowadays. It had developed as one of the
regeneration of traditional areas, three types of neighbourhoods
industrial centres of China. It used to be the economic centre
in each city were selected (Figures 1 and 2 illustrate their
of China before the 1980s, although Shanghai is now the
locations for both Beijing and Shanghai):
predominant economic centre, and Beijing is now positioning
itself as the political and cultural centre in China, although it still
maintains a significant economic influence, especially in North
China, having developed numerous large-scale state-owned
industrial enterprises. Many of the workers in these state-owned Type One is a traditional neighbourhood which has
enterprises lived in state-owned courtyards in old city areas. not been redeveloped
Each work unit had its own designated accommodation area so
Type Two is a peripheral community which was
that people in the same work unit could live close to each other.
developed in order to house residents who had been
However, this pattern began to change with the growth of new displaced by urban redevelopment in the city centre
industries and the decline or relocation of many of the state-
owned enterprises in the manufacturing sector. As a result, Type Three is a city-centre residential community
many industrial workers living in the old city areas were laid off. which has been developed within a regeneration project
Generally, the local housing bureau allowed them to live in their to replace the existing poor-quality traditional housing
former houses, only charging them relatively low rents.
Shanghai was voted in 2005 as the city with the most overall
real restate investment potential in China, but there is still a
fairly large traditional area in the Shanghai. Linongs and their
architecture is typical of Shanghai: small lanes crammed together
in a way that deeply reflects Shanghai’s 19th-century colonial
past. Industrial workers were housed there by their work units, but
a lack of maintenance resulted in housing conditions deteriorating.
Having a long and rich history as an international trading port,
Shanghai is now aiming to re-emerge as a global city, but the
dilapidated urban areas are not seen to fit in with this image.
Thus demolishing these buildings, improving infrastructure and
increasing green spaces have become the major tasks for the
municipal government (He and Wu, 2007)
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URBAN REVITALISATION IN CHINESE CITIES
17
The study areas and methodology
18
URBAN REVITALISATION IN CHINESE CITIES
19
The study areas and methodology
20
URBAN REVITALISATION IN CHINESE CITIES
21
The study areas and methodology
Neighbourhood Committee Informing the constitution, laws, rules and national policies; defending residents’ legal rights;
educating residents in carrying out their legal duties; and initiating various social activities
Transacting public affairs and common welfare undertakings within the community
Mediating conflicts between residents
Assisting in the maintenance of public security
Assisting governments or other relevant departments in serving the residents’ benefits,
including common sanitation, birth control, and social relief, and teenage education
Reflecting residents’ opinions, requests and suggestions to governments or other
relevant departments;
Initiating activities in public services and running relevant non-profit organisations.
Property Management Company The repair, maintenance, and management of buildings and equipment
The repair, maintenance, and management of public facilities
The operation, maintenance and management of public spaces and service facilities
The maintenance of public green spaces, environmental sanitation and security
Other proceedings consigned by property owners or occupiers.
Neighbourhood Communist Disseminating and implementing the guidelines and strategies of the party, and decisions
Party Branch of the central committee and other upper level party divisions
Organising party members to learn communist theories, policies of the party, and
acquainting members with new knowledge
Educating, supervising and managing members to secure their responsibilities
and rights
Linking the party work with the community; gathering comments and suggestions from
the community; helping the community to secure their rights and responsibility
Developing new members of the party; educating and cultivating the candidates
Guiding party members and the mass in challenging all forms of illegal activities.
Source: www.hutong.com
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URBAN REVITALISATION IN CHINESE CITIES
23
04 Physical characteristics and socio-economic profile
4.1 The physical environment Figure 6: Local amenities in Kangjia Nong, Shanghai
What has been the impact of different patterns of the urban
fabric on social and spatial structures? Clearly, one of the
major differences is that the physical environment in those
neighbourhoods that have been re-developed, either in the
city–centre or on the peripheries, saw great improvements
compared to the traditional neighbourhoods. Meanwhile, the
services and amenities that are now being provided in and
around the newly-redeveloped areas are responding to the
needs of middle and higher socio-economic groups rather
than the original less well-off residents.
24
URBAN REVITALISATION IN CHINESE CITIES
Figure 8: Narrow outdoor spaces in Kangjia Nong, Shanghai (left) and South Luoguxiang, Beijing (right)
25
Physical characteristics and socio-economic profile
In terms of housing conditions, there are dramatic differences conditions, and have enlarged their housing space by occupying
between the three types of communities in each city. The public spaces. However, these renovations and repairs were
housing in the traditional neighbourhoods of South Luoguxiang always poorly done and inconsistent with the original building
and Kangjia Nong were showing their age and were in need of style. Figure 11 shows the general housing condition in the
repair. More than half of the houses were built before 1910, and courtyards in South Luoguxiang, while Figure 12 illustrates the
it was not unusual for between six and ten families to share one Linongs in Kangjia Nong.
large courtyard which would have accommodated just one rich
family in the past. They would normally have to share kitchen Furthermore, the infrastructure in these neighbourhoods is also
and bathroom facilities – indeed, some courtyards do not even out of date. More than half of the residents were still using small
have any bathrooms, so they had to use public toilets on the coal furnaces to warm themselves in the winter. Alongside this,
street. The situation in Kangjia Nong in Shanghai is particularly new technology such as cable television, telecommunication
bad - the average floorspace per person is less than 5.6 m2, and broadband are gradually entering into households, but, due
which is much less than the average floorspace in Shanghai in to the poor infrastructure there are more and more ‘electrical
2006 of 15.5 m2. It is not unknown for one family to have to wires in air’ interlaced vertically and horizontally, and this has
share a kitchen with 7 to 15 neighbouring families. There are become a hidden problem. In Beijing, only a small proportion of
no often no sanitary facilities in their houses. This is a serious wealthy households owned entire courtyards with well-equipped
inconvenience to the residents, and can actually be very modern living facilities (Figure 9). With an overall average floor
dangerous to older people, who form a relatively large part space of approximately 10 m2 per person (including both single
of the population of Kangjia Nong. Water heaters, which are family and multi family occupation of these courtyards), what
commonplace in most houses in Beijing and Shanghai, were still this means for the low income groups in these courtyard areas
a luxury for most households. Some residents have carried out is that their average floor space per person is much lower, at
small-scale renovations or repairs to improve their housing about 6 m2 of floor space.
Figure 9: Open spaces in Shibo Jiayuan, Shanghai (left) and North Shaoyaoju, Beijing (right)
26
URBAN REVITALISATION IN CHINESE CITIES
Figure 10: Open spaces in Yangguang Cuizhuyuan, Shanghai (left) and Ju’er Hutong, Beijing (right)
27
Physical characteristics and socio-economic profile
28
URBAN REVITALISATION IN CHINESE CITIES
29
Physical characteristics and socio-economic profile
As far as the neighbourhoods in the periphery are concerned, 4.2 The profile of the residents
the average floor space per person is about 23 m2 in North When we look at age structure, education level, occupation, and
Shaoyaoju in Beijing and 75 m2 in Shibo Jiayuan in Shanghai. the family annual income, we can see clear differences between
As well as being much larger, the quality and the facilities are the various neighbourhoods.
also superior to the traditional neighbourhoods (Figure 14).
The most common housing type is a two-bedroom apartment. Regarding the age structure of the areas, interesting patterns
Each apartment has its own kitchen and toilet. Infrastructure emerge. In the newly-developed area in Beijing, the development
and public amenities are generally of a high quality in this area. has accommodated a significant proportion of the existing
Electricity, water, drainage, telecommunication, cable TV, coal residents, as well as providing apartments to new residents,
gas are available at each apartment unit. Generally speaking, who tend to be younger and wealthier than the existing
they provide all that is needed for modern life. residents who have stayed. As a consequence, the age-mix
is quite large.
Housing in Yangguang Cuizhuyuan, the newly re-developed
city centre neighbourhood in Shanghai is predominantly based However, the overall pattern is that newly developed in-situ
around high-rise modern apartments, which provide all the neighbourhoods has a younger age-profile than the other
requirements of modern life. In contrast, housing in Ju’er neighbourhoods with, not surprisingly, the traditional
Hutong, the equivalent neighbourhood in Beijing, is not only neighbourhoods having the largest proportion of elderly people
able to provide all the necessary infrastructure, but also than the average. As can be seen from chart 1, the proportion
manages to maintain some of the advantages of the traditional of elder people (above 60 years old) in the South Luoguxiang
courtyard structure. The housing types vary between two- and in Beijing and Kangjia Nong in Shanghai were higher than the
three-storey types, as increasing housing density was one of the average level of Beijing and Shanghai (Beijing Statistical Bureau,
aims, but terraces and galleries allow much more outdoor space 2007 Shanghai Statistical Bureau, 2007). The age-profile of the
than the traditional courtyard. Interlocked and varied layout peripheral neighbourhoods was close to the average, and the
plans for the apartments allow for a mix of accommodation, newly re-developed city centre neighbourhoods in Shanghai
and has enabled the inclusion of a range of courtyard sizes had higher than average number of younger people, although
respect preserved trees and buildings (Wu, 1999). The design this was not the case in Beijing.
of the two- and three-storey buildings allow lofts under the
pitched roofs to be converted into rooms and basements to
be converted to multiple uses, including bicycle stores, offices.
30
URBAN REVITALISATION IN CHINESE CITIES
31
Physical characteristics and socio-economic profile
0.6
0.5
0.4
0.3
0.2
0.1
0
Southern Luoguxiang Northern Shaoyaoju Ju'er Beijing
32
URBAN REVITALISATION IN CHINESE CITIES
Similarly, the unemployment rate in the traditional the industrial sectors and their housing was assigned by their
neighbourhoods was higher than in the newly-developed work units. During the period of industrial restructuring, many
peripheral communities and the newly re-developed city manufacturing workers were laid off and were unable to relocate
centre areas. However what was clear was that there was far to other areas because of their low incomes. This has resulted in
less unemployment in the newly redeveloped areas and the unemployment in the traditional areas such as South Luoguxiang
difference between the other two areas was far less noticeable. and Kangjia Nong being higher compared with other areas,
The primary reason for the high level of unemployment in the which house people from a much wider range of occupations
traditional neighbourhoods is that most residents used to work in and professions.
0.5
0.4
0.3
0.2
0.1
0
Southern Luoguxiang Northern Shaoyaoju Ju'er
0.5
0.4
0.3
0.2
0.1
0
Kangjianong Shibo Jiayuan Yangguang Cuizhuyuan
33
Physical characteristics and socio-economic profile
With regard to economic status, the three types of Shanghai is 5,816 Yuan. However, three-quarters of the
neighbourhood also showed differences. The traditional respondents in Kangjia Nong said that their monthly family
communities, Kangjia Nong in Shanghai and South Luoguxiang income was below 3,000 Yuan. The situation was slightly better
in Beijing, had high concentrations of low-income residents. in the new neighbourhoods in the peripheries. Looking first at
According to a survey by Credit Suisse of eight major Chinese Beijing, only 59.38% of those responding in North Shaoyaoju
cities in 2007, the average family monthly income in Beijing was
had family monthly income below 3,000 Yuan, However, the
5,528 Yuan. However, three-quarters of those surveyed in South
highest levels of income were in the newly re-developed city
Luoguxiang said that their monthly family income was below
3,000 Yuan, and a quarter of the households had a monthly centre neighbourhoods, with 45% of respondents having a
income of less than 1,500 Yuan (Figure 14). The same situation monthly income of over 6,000 Yuan per month per family in
occurs in Shanghai as well, where in 2007 the Credit Suisse Yangguang Cuizhuyuan in Shanghai, and 25% in Ju’er Hutong
survey reported that the average family monthly income in in Beijing.
0.5
0.4
0.3
0.2
0.1
0
Southern Luoguxiang Northern Shaoyaoju Ju'er
34
URBAN REVITALISATION IN CHINESE CITIES
35
05 Access to amenities and sense of safety
Another important aspect of the urban fabric is the ability of of time. In the newly-developed city-centre neighbourhoods,
residents to access and make use of local amenities in the the view is that access to entertainment and shops is not so
neighbourhood and the degree to which they feel safe and easy, which may reflect the willingness of younger and more
secure in their neighbourhood. affluent residents to travel to make use of such facilities over
a much wider area of the city. The residents of the peripheral
5.1 Ease of access to important city amenities neighbourhoods seem to fare worse and, while they have
As can be seen from chart 5, in both Beijing and Shanghai, the relatively easy access to shops and other services, they are
traditional neighbourhoods scored highest in every category generally not of such good quality as those enjoyed by the
for ease of access to local amenities and services. The residents city centre residents.
of the areas of city-centre re-development also seemed happy
with the provision of local amenities and services, but it Meanwhile, significant differences emerge when we look at
emerges that the residents of the newly-developed peripheral the accessibility to the workplace or school, to entertainment
areas are not well-served. facilities, and to government and other public services between
city centre and peripheral locations, with the situation being
The most significant distinctions occurred when residents were much worse for the peripheral locations. The exception to this
asked about whether they had good access to health service is when we look at access to such amenities as stores and
providers. In Beijing, access to health care was worst in the restaurants, where there is little difference – this is probably
peripheral communities, and the best access to health care due to the fact that the peripheral development in Beijing was
was actually enjoyed by the traditional communities. established some 15 years ago, so these amenities have had
time to develop. Other aspects of the community are not so
The same story emerges in Shanghai, where the peripheral well-provided for. The nearest green space for the residents
neighbourhoods also have the worst access to health care and of North Shaoyaoju in Beijing is some 2 kilometres away, and
the traditional neighbourhoods the best. Indeed, a major scenes of thousands of residents walking to this area was
complaint of the residents of the new communities to their reported by the popular TV programme ‘Special Attention’
Neighbourhood Committee in the peripheries in both Beijing on Beijing TV Channel 3 last year.
and Shanghai was the lack of access to doctors. Even for those
having some kind of health support in the neighbourhood clinic, In Shanghai, access to work place/school and to amenities is
they had to wait in long queues. Good access to health services considerably different between the central and the peripheral
is an indispensable component of a high quality of life, communities, although the access to entertainment facilities and
especially for the aging people who make up a relative higher to government and other public service in the peripheral areas is
proportion of the population of these areas than the average not much worse than for the central neighbourhoods. A three-
in both Beijing and Shanghai as a whole. storey multifunctional building for the residents, providing indoor
sports facilities and entertainment had been built in Shibo Jiayuan.
The picture that emerges from the responses is that the views
of the residents are influenced by their socio-economic and Nevertheless, residents who moved to the peripheral
cultural status. In traditional neighbourhoods, which have a neighbourhoods in both Shanghai and Beijing found they had to
very stable and long-standing population, they feel that they spend far longer travelling to work. Only 30.5% residents in the
are well-served by the immediate local area and have a full peripheral neighbourhoods could get to their workplace within
range of amenities and services easily available to them. This half an hour, while 40% of the residents spent between half an
reflects the long-standing nature of the community, in which hour and hour, with the remainder having to spend over an hour
many amenities and services have developed over a long period getting to work.
36
URBAN REVITALISATION IN CHINESE CITIES
0.4
0.2
0
Southern Luoguxiang Northern Shaoyaoju Ju'er
37
Access to amenities and sense of safety
38
URBAN REVITALISATION IN CHINESE CITIES
0.4
0.2
0
Southern Luoguxiang Northern Shaoyaoju Ju'er
0.3
0.2
0.1
0
Kangjianong Shibo Jiayuan Yangguang Cuizhuyuan
39
Access to amenities and sense of safety
40
URBAN REVITALISATION IN CHINESE CITIES
41
06 Neighbourhood interaction and sense of community
42
URBAN REVITALISATION IN CHINESE CITIES
0.2
0.1
0
Southern Luoguxiang Northern Shaoyaoju Ju'er
0.2
0.1
0
Kangjianong Shibo Jiayuan Yangguang Cuizhuyuan
43
Neighbourhood interaction and sense of community
6.2 Attachment of people to the neighbourhood of Beijing, not only through the physical built environment,
When we looked at the degree of attachment that residents but also by the traditional customs that they had kept, such as
had to their neighbourhood, it was no surprise to find that the singing in local operas and making special food for traditional
residents of the newly-developed peripheral neighbourhoods festivals. Residents preferred to live there mainly because of
had the lowest attachments to their neighbourhood, in both their close relationship and attachments towards their
Beijing and Shanghai, although it was far more noticeable in neighbours and the communities.
Beijing than in Shanghai. While the area with the lowest level
of attachment was the same for both cities, the results for the As far as the newly re-developed inner-city neighbourhoods
area with the most level of neighbourhood attachment differed are concerned, the situation differs in some aspects between
between the cities. Residents of traditional areas of Shanghai Beijing and Shanghai. In the Ju’er Hutong community in Beijing,
feel more sense of attachment than those of the re-developed people tended to live there for a long time not because of a
inner city areas, with the result in Beijing reversed. feeling that their neighbourhood was important to them, but
because of the good location and housing condition. When
Most residents in the new peripheral neighbourhoods in Beijing asked in the survey, ‘Prefer a long-term residence’, ‘Unwilling
displayed no particular attachment to their neighbourhood. to move out even able to afford more modern apartments’, and
For them, the community was just a place to live, without any ‘Feel attached to this neighbourhood’ the highest response was
special meaning. If they could afford to move to a house with in Ju’er Hutong. However, when asked if ‘People in this area
better conditions and in a better location elsewhere, they were have lots of community spirit’, ‘Prefer to move to a different
happy to move. Aside from the old neighbours, they seldom location but close to today’s neighbours if it is necessary to
asked for new neighbours’ help or offer help to neighbours. move’ they were nowhere near as positive. Equally, when asked
In case of emergency, they preferred to contact their relatives if ‘I would not mind moving to a different location far away from
or friends since in their opinion, the relationships with their today’s neighbours’ the residents agreed with that sentiment.
neighbours was not close enough to make them feel at ease to In Shanghai, on the other hand, residents do not seem to be any
ask for help, and was not deep enough to enable them to totally more attached to the area than the residents of the other areas in
trust neighbours. Therefore, when asked whether ‘I would not Shanghai, and did not seem to have any particular attachment
mind moving to a different location far away from today’s to their own neighbourhood.
neighbours’ the residents in North Shaoyaoju, the peripheral
neighbourhood of Beijing, most of the residents agreed, and
when asked if they would ‘prefer to move to a different location
but close to today’s neighbours if it is necessary to move’ few
of them agreed. These results were largely similar for Shanghai.
44
URBAN REVITALISATION IN CHINESE CITIES
0.1
0
Southern Luoguxiang Northern Shaoyaoju Ju'er
0.1
0
Kangjianong Shibo Jiayuan Yangguang Cuizhuyuan
45
Neighbourhood interaction and sense of community
6.3 Sense of public participation The situation in Shanghai was different. What we found was
The response to the questions about public participation turned that the greatest enthusiasm for public participation and for
out to be quite diverse, not only between different cities, but environmental and historic improvement was in Shibo Jiayuan,
also between different types of neighbourhoods. However, one the new development on the periphery, although they had little
common factor to emerge was the fact that people showed actual experience of this. While the residents of Yangguang
a great willingness to participate in urban regeneration in the Cuizhuyuan, the newly re-developed neighbourhood in the
areas that we looked at. Although residents in all the six city centre, had more experience than the residents of Shibo
communities have limited experiences of public participation, Jiayuan, what emerged was that it was the residents of Kangjia
they were willing to be involved in and to present their opinions, Nong, the traditional city-centre neighbourhood, who were the
given the opportunity. most experienced in public participation. They showed a high
concern for historical and cultural issues, but were not so
In Beijing, the residents of Ju’er Hutong, the newly re-developed concerned about environmental issues in construction. The
area, who generally had more experience of participation, were interviews also found that, even when they were presented with
the most positive when they were asked, ‘Have you ever the idea of ‘community-led regeneration’, residents in Kangjia
participated in regeneration activities?’, and ‘Have you ever Nong, the traditional neighbourhood in Shanghai, did not show
presented your opinion in regeneration decision-making any great willingness to remain in their existing houses. They
processes?’ compared with the other neighbourhoods. seemed more willing to simply move out, rather than continue
Meanwhile, it also had the highest agreement rate on ‘Feel to stay in their homes after the area had been regenerated.
responsible for doing something to improve my community’, This attitude is quite different to that in South Luoguxiang, the
‘Willing to contribute to supporting and maintaining a good local equivalent neighbourhood in Beijing.
environment’, and ‘Willing to support and participate in local
cultural and historical activities’.
46
URBAN REVITALISATION IN CHINESE CITIES
0
Southern Luoguxiang Northern Shaoyaoju Ju'er
0
Kangjianong Shibo Jiayuan Yangguang Cuizhuyuan
47
07 Conclusions and discussion
In conclusion, while most attention has been paid to the Based on these findings, this study emphasises the necessity
physical appearance of traditional areas, we found that those for improving the regeneration approach adopted in traditional
issues that support a healthy neighbourhood and rich social areas so as to improve the social well-being of local residents.
capital - crucial elements of the well-being of residents - were Suggestions are as follows:
neglected. Moreover, the decline in social capital among the less
advantaged people concentrated in traditional areas could lead Firstly, there should be greater involvement of government
to other social issues, such as social exclusion. Although there organisations at the local and regional scale in the
was a pressing need to improve physical housing conditions in regeneration of traditional areas, as well as universities
traditional areas, regeneration activities progressed slowly in and other relevant organizations. This would mean that the
the early 1980s due to the limited financial resources of the government and other stakeholders, together with real estate
local government. After the establishment of land markets in developers, should be fully involved in the regeneration
the late 1980s, property-led regeneration has since the 1990s activities, as leaving everything to real estate developers may
become the dominant approach to the redevelopment of lead to future problems. However, in this, the role of the market
traditional areas, largely stimulated by huge profits and cannot be ignored.
government encouragement. As a consequence, large-scale
reconstruction projects were launched. This study was aimed Secondly, while an overall master plan is important to
at tracing what happened as a result of the break-up and coordinate approaches, an incremental approach to the
displacement of neighbourhoods in this process. regeneration of traditional areas should be adopted. Houses in
traditional areas should not be simply demolished and rebuilt on a
Property-led redevelopment has encouraged downtown large scale. Instead, it is better to repair and reconstruct them
gentrification in both Beijing and Shanghai. In central areas, according to individual conditions on a case by case basis.
as the condition of housing and public space is improved after
regeneration, housing prices tend to increase significantly. Thirdly, the rhythm and rate of the regeneration of
Consequently, only a limited number of the original residents traditional areas should be controlled. Since property-led
could afford to continue to live in the same area after regeneration was introduced at a dramatic rate during the
redevelopment, even with the discounted price or 1990s, local government did not have enough time to react
compensation offered by the developer. Therefore, most to the unpredicted problems that arose from the process.
residents had to move to the periphery. Therefore, a long-term plan should be mapped out to control
the regeneration process, which can take account of the
Looking at the six case studies, what have been the physical, interests of all stakeholders.
social and community impacts? Property-led regeneration
projects have undoubtedly provided people with modern Fourthly, re-housing a neighbourhood in its original
apartments, but at the same time it has reduced their ease location is seen as the most effective and acceptable way
of access to work and other activities. At the same time, the of regenerating traditional areas. Social structures can be
former intensive neighbourhood interactions and sense of maintained with the original households and traditional
attachment to place have reduced significantly, implying a appearances. Therefore, efforts should be made to develop
decrease of neighbourhood social capital. financial structures that allow developers to make redevelopment
and re-construction of these areas cost-effective. However, if it
However, the study also found that it is possible to maintain is impossible to keep everyone together in their original location,
and enhance neighbourhood relationships and quality of life it is better to relocate them to locations that are as close as
not just in the traditional neighbourhoods but also, with possible to their original location.
provision of public space and good amenities, in the newly
redeveloped areas. These new communities, with more public
space and good exercise facilities, showed high levels of
neighbourhood interaction and attachment.
48
URBAN REVITALISATION IN CHINESE CITIES
49
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52
URBAN REVITALISATION IN CHINESE CITIES
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1
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