Page 80 - JCAU-5-4

Journal of Chinese
Architecture and Urbanism The role of planning

widespread demolition and relocation (Jiang et al., 2018). One of the critical differences between the two
Collaborations between real estate developers and local categories of redevelopment, apart from the project size and
state entrepreneurs played a pivotal role in steering urban orientations, is their relations with the existing planning
transformation (Zhang & Fang, 2004; Guo et al., 2018). The system. While comprehensive redevelopment projects are
financing of these projects was often facilitated through guided by master plans produced by the local planning
the increased land value resulting from intensified land authorities and follow rigid planning determination
use (Gyourko et al., 2022). Driven by land finance, urban procedures, incremental redevelopment projects might
redevelopment projects tended to be performed on a large encounter legitimacy issues due to their difficulties in
scale, narrated as “property-led redevelopment” since the complying with existing planning regulations. To be more
late 1990s (He & Wu, 2005; 2009). This particular form specific, because the existing planning system operates
of redevelopment finds legitimacy through statutory with the presumption that land (re)development captures
urban planning, complemented by corresponding formal significant land value, and the local government — as
regulations encompassing planning-related laws, property the de facto owner of urban land — takes huge revenue
rights, and other relevant aspects. Urban planning operates out of the process through land leasing (Wu, 2015), the
as a governance activity characterized by a policy-driven redevelopment projects would not be financially feasible
approach (Healey, 1997, p. 205–242). without large-scale demolition and reconstruction to
comprehensively improve the physical environment,
However, the sole approach to urban redevelopment increase building volumes, and shift the image of the urban
has shifted toward multi-approaches since the late 2000s. blocks. As a result, incremental redevelopment is left to be
The state’s motivation for initiating redevelopment extends achieved through informal or semi-informal approaches.
far beyond land profiting and real estate speculation
(Wu et al., 2021). First, since the global financial crisis in This study examines the difference between the two
2008, economic restructuring has been harnessed with categories of redevelopment. It addresses how existing
urban redevelopment to boost sustainable development incremental redevelopment projects have dealt with the
(He, 2019a; Wu, 2016). Multiple dimensions of economic legitimacy issues in urban planning and what role urban
forms have received increased attention. Meanwhile, planning plays in this process. Through a comparison
social tensions escalated alongside large-scale demolition between comprehensive redevelopment and incremental
and relocation of residents since the 2000s. The slogan redevelopment of former industrial sites in inner Shanghai,
“Building a Harmonious Society” was introduced at the this study depicts the critical features and procedures of the
Chinese Communist Party National Congresses in 2002 emerging industrial redevelopment approach. It provides
and 2007 to respond to the escalating social instability. insights into how industrial redevelopment’s emerging
On residential land, the central government mandated a demands and approaches interact with the existing
more considerate compensation strategy for dislocated planning system.
residents to maintain social stability (Shih, 2017). In 3. Methods
addition, appeals for heritage conservation have been
widely reported through social media, coinciding with 3.1. Sample selection and data collection
the growing influence of civil societies and the middle This study commences with an investigation into
classes. This macro-political-economic environment industrial redevelopment projects within four districts in
calls for alternatives to urban redevelopment beyond the inner Shanghai: Putuo District, Jing’an District, Hongkou
property-led approach. Wu et al. (2021) have observed District, and Yangpu District. These districts are located
three types of non-property-led redevelopment, that along either Suzhou Creek or Huangpu River and have a
is, rural vitalization in villages, heritage preservation in historical concentration of manufacturing sites. As urban
traditional neighborhoods, and community participation sprawl continued and Shanghai underwent consistent
in regenerating dilapidated neighborhoods, collectively deindustrialization, numerous industrial sites in these
narrated as “incremental regeneration.” districts were abandoned, leading to redevelopment
Accordingly, this study adopts the categorization that projects.
there are comprehensive redevelopment and incremental Three hundred and ninety-five industrial land
redevelopment. The former refers to conventional redevelopment/reuse projects undertaken between 2000
property-led redevelopment involving large-scale and 2020 were investigated using Google Earth and Baidu
demolition and relocation, and the latter refers to small- Map. Subsequent site investigations were conducted
scale progressive redevelopment with more extensive local in October 2019 and October 2022. Interviews were
community involvement. conducted with various stakeholders, including urban

Volume 5 Issue 4 (2023) 3 https://doi.org/10.36922/jcau.0433