Delicate balance

Delicate Balance What I have learned from Portland

Xinyang Li CAUPD • Shanghai 2014.05

A Story Began From One Year Before‌

Great Figures‌

Great Theories‌

Great Cities‌

Poor Environment‌

Unstable Society

Fake building

Restroom in Anhui

Huge and Strange Building

Huainan Gym Center

Vision: International City Over 200 Cities High building Elevated road

Sep 2013 - Dec 2013

USP 540 History and Theory of Planning Dr. Sy Adler

USP 614 History and Theory of Urban Studies Dr. Carl Abbott

Great Figures full of controversy Mo th

er J aco bs Hom eR em edi es

Metro

VS s t s i n a t i l o p

ts s i l a n o i g e R

Great Idea Engulfed by Urban Sprawl

Or, Look Ordinary compared with China

Orecon Station. Portland Higher Density, Good Landscape

Great Cities

Having Experienced Same Problem‌

Symbols of community success

1930s, dozens of smaller cities were as eager to boast of their own towers as symbols of community success: Buffalo, Los Angeles, Baltimore, Pittsburgh, Columbus, Des Moines “Urban America in the Modern Age: 1920 to the Present�

Pollution

1940s, Willamette River Pollution

Convention Center, Ball Stadium, Culture facilities

Cleveland, 1907

Detroit Renaissance Center, 1977

Convention center: Chicago, New Orleans, Washington, Las Vegas, and San Francisco, Columbus, Charlotte, Kansas city, Memphis, St. Louis, Seattle, Salt Lake City Ball stadium, ball park: Phoenix (1998), Seattle (1999), Detroit and San Francisco (2000), San Diego and Cincinnati (2004)

Unstable Society

1965: Watts Riot

1967: Detroit Riot

Global City In the 1980s and 1990s, it was not only New York that went global.

Ambitious urban leaders around the country increasingly measured their cities against the ill-defined but even broader standard of the “word-class” city. City after city advertised itself as a new international leader … Cartographic boosters revived “metro-centric” map projections that place their city at the center of the world.

Carl Abbott. Urban America in the Modern Age: 1920 to the Present

Modern Urban Plan is NOT a indigenous thing in USA and China

1904: Portland

1901: Qingdao

Past, USA learned from Europe Zoning, New Town, City beautiful movement, City park system‌

Today, China learn from USA Urban renewal, City axis, show-off building, regulatory plan‌

Because of the similar development phase

We are facing the similar problem

Now, USA have changed a lot

Portland transit mall

The way to treat people‌

Now, USA have changed a lot

Portland Green Streets

Or the way to treat nature‌

Of course, we can learn the exterior quickly Hangzhou East Railway Station Plaza

New York High Line

What is the ESSENCE in USA planning we should learn

?

USP 541 Dynamics of Planning Practice Dr. Connie Ozawa USP 630 Research Design Dr. Loren Lutzenhiser USP 570 Transportation and Land Use Dr. Liming Wang USP 527 Downtown Revitalization Dr. Matthew Gebhardt

Federal Government Oregon State Government Metro Government Comprehe nsive Plan

Downtown Plan

Climate Plan

Public

‌‌

1. Balance between Different Plans 2. Balance between Different Level of Governments 3. Balance between Government and Public

1. Balance between Different Plans

Portland Vision Plan

Comprehensive Plan

Concept Plan

Design Guideline

Community Plan Neighborhood Plan Area Plan

Natural Resource Plan

Zoning

Portland

• Overlapping • Policy Zone • Different Level • Time Sequence • Different departments • How to COORDINATE?

1. Two plans that cover all jurisdiction area

Connection between comprehensive plan and zoning •  Same category

Comprehensive Plan General Commercial Urban Commercial Neighborhood Commercial Office Commercial Central Commercial Mixed Employment Central Employment Industrial Sanctuary Institutional Residential Open Space Medium Density MD 1000 Low Density MD 2000 Residential 2500 Residential MD3000 Residential 5000 Residential 7000 Residential 10000 Residential 20000 Residential Farming High Density Residential Central Residential

Zoning General Commercial Mixed Commercial/Residential Storefront Commercial Neighborhood Commercial 1 Neighborhood Commercial 2 Office Commercial 1 Office Commercial 2 Central Commercial General Employment 1 General Employment 2 Central Employment General Industrial 1 General Industrial 2 Heavy Industrial Institutional Residential Open Space Residential 1000 Residential 2000 Residential 2500 Residential 3000 Residential 5000 Residential 7000 Residential 10000 Residential 20000 Residential Farm/Forest High Density Residential Central Residential

CG CM CS CN1 CN2 CO1 CO2 CX EG1 EG2 EX IG1 IG2 IH IR OS R1 R2 R2.5 R3 R5 R7 R10 R20 RF RH RX

Connection between comprehensive plan and zoning • Zoning must comply with the limits set by a comprehensive plan.

•

the Oregon Supreme Court, Baker vs. the City of Milwaukie Legislatively

Automatically Changed

Downzoned Quasi-judicial

Upzoned

Change as review Case by Case

2. Plan how to do plans 2005

2006

VisionPDX

2007

2008

2009

2010

2011

2012

2013

2014

2015

Portland Plan Background Reports

Comprehensive Plan Update

Issues and Goals Concept Plan Quadrant Plans Final Central City 2035 Plan

3. Cooperate with other departments Design

SE Quadrant Plan Transportation Working Group Meeting #3 Staff from Portland Bureau of Transportation

3. Cooperate with other departments Implement

Central City Plan 1988

4. Periodical Review Metro: every 5 years

4. Periodical Review PlaNYC: Updated every 5 years Annual progress report

5. Gradual, not complete amendment

5. Gradual, not complete amendment

5. Gradual, not complete amendment

Major UGB amendments procedure

Legislative UGB amendments procedure

Minor UGB amendments procedure

In China : Inconsistent Plans • Vision • Scale • Layout • Inconsistent planning thinking • Waste of time, fund and energy

Economy and social development plan

Urban plan

Land use plan

In China: Inconsistent Plans

Comprehensive Plan: 150 km2

Sub-division Plan : 253 km2

In China : Inconsistent Plans

Comprehensive Plan

Sub-division Plan

Why1: Constrained Comprehensive Plan Constrained Scale

Construction land distribution in Hunan Province Construction Land in 2005

Construction Land in 2020

Increase from 2005 to 2020

ha

Occupation

ha

Occupation

ha

Occupation

Total

1338730

100.0%

1525800

100.0%

187070

100.0%

Changsha

134257

10.0%

183851

12.0%

49594

26.5%

Zhuzhou

83832

6.3%

100084

6.6%

16252

8.7%

Xiangtan

67422

5.0%

81365

5.3%

13943

7.5%

Hengyang

130840

9.8%

148475

9.7%

17635

9.4%

Shaoyang

104249

7.8%

116275

7.6%

12026

6.4%

Yueyang

126538

9.5%

137717

9.0%

11179

6.0%

Changde

175143

13.1%

186414

12.2%

11271

6.0%

Zhangjiajie

37999

2.8%

42784

2.8%

4785

2.6%

Yiyang

90518

6.8%

99757

6.5%

9239

4.9%

Binzhou

98795

7.4%

109532

7.2%

10737

5.7%

Yongzhou

95066

7.1%

104059

6.8%

8993

4.8%

Huaihua

80404

6.0%

88698

5.8%

8294

4.4%

Loudi

72746

5.4%

80136

5.3%

7390

4.0%

Xiangxi

40921

3.1%

46653

3.1%

5732

3.1%

City

Why1: Constrained Comprehensive Plan Constrained Scale

State Metro City Council

Bureau of Planning & Sustainability

Portland Development Commission

Bureau of Transportation

Environmental Services

‌

“Legacy� by planned economy: for goods distribution Limited Power of planning department Nation

Construction Ministry

Development and Reform Commission

Land Ministry

Environment Ministry

Transportation Ministry

Provin ce

Construction Department

Development and Reform Commission

Land Department

Environment Department

Transportation Department

City

Planning Bureau

Development and Reform Commission

Land Bureau

Environment Bureau

Transportation Bureau

Improvement Take active in the plan appointed by other department Enrich the knowledge of other aspects ! Urban Plan ! Transportation ! Environment ! Finance ! Economy ! Social ! Policy

Transportation and Land Use

Downtown Revitalization

• UGB • Complete Streets

• Urban Design • Brownfield Redevelopment

• Location efficient mortgages • Jobs Access Reverse Commute (JARC) programs • Travel Demand Management Programs • CRC impact study

• Tax Increment Financing • Business Improvement Districts • Community Development Corporations • “Friends of” Organization • Community Development Financial Institution • Enterprise Zones

Why1: Constrained Comprehensive Plan Constrained Boundary JurisdicFon Area City/Town System Plan Structure, Scale, Function Urban Planning Area Plan Control Area for Construction Outside: No Plan Control Central City Area Land Use Plan Outside: need not approved by the upper government

Improvement: Plan in all jurisdiction area Zhejiang Province

Improvement Combine the Jurisdiction Area and the Urban Planning Area

Reduce boundary levels

Why2: Abstract Comprehensive Plan Structure

36km 17km

Why2: Abstract Comprehensive Plan Structure

57km

49km

Improvement: More detailed structure but NOT in comprehensive planning Slogan more than Practical

Improvement: More detailed structure but NOT in comprehensive planning Slogan more than Practical

Add a level between structure and land use in comprehensive planning

Why2: Abstract Comprehensive Plan Land Use

NOT based on GIS No sense of land property

Why2: Abstract Comprehensive Plan Land Use Classification, No Strict Corresponding Relationship R

Residential Land

Residential Land Group 1

House Service

Residential Land Group 2

House Service

Residential Land Group 3

House Service … … … … … … … … … …

A

Administration and Public Services Land

B

Commercial and Business Land

Land for Administration Cultual Facility Land for Education and Scientific Research Land for Sport Land for Health Care Social Welfare Facility Heritage Land for Foreign Affairs Religion Facility …

M

Industrial, Manufacturing Land

…

…

W

Logistics and Warehouse Land

…

…

S

Road, Street and Transportation

…

…

U

Public Utilities

…

…

G

Green Space and Square

…

…

Structure rather than Land Use

Improvement

More detailed land use in existing area “Structure� land use in future developed area What is the meaning of land use?

Detailed structure is more important than land use in future developed area Build the intense relationship between comprehensive plan and regulatory plan

Why3: Static Comprehensive Plan No change, or upheaval change

1990

1984

2003

1997

2004

1999

2006

Why3: Static Comprehensive Plan No change, or upheaval change Population in Beijing

!  !  ! 

Future population cannot be estimated with certainty Limited to a best effort evaluation of whether the areas identified for further urban development are necessary A constant monitoring process

Improvement: Periodical Review But for amendment

Urban and Rural Plan Law: 46. Periodical review is needed for comprehensive plan and provincial urban system plan 47. Comprehensive plan and provincial urban system plan can only be amended under the circumstances below: 4) Amendment conclusion got by plan review

Province Urban and Rural Plan Regulation: Periodical Review: Sichuan (2011.9), Shanghai (2010.11), Beijing (2009.10), Jilin (2012.3) No Periodical Review: Guangdong (2012.11), Zhejiang (2010.5), Yunnan (2012.9)

2. Balance between Different Level of Governments

Portland: an intended city

San Francisco: a vigorous city

Seattle an amiable city

Los Angeles: a collage city

San Diego: a leisure city

Santa Monica: an edge city

Seaside: a tourism city

95 Days 3 Countries 10 National Parks 31 States and Provinces 27 states in USA 4 provinces in Canada

55 Cities 5 Transportation Modes Car Airline Cruise Greyhound VIA Rail

5 Accommodation Modes Airbnb Hotel Inn Motel Camp

Different Planning System Content rather than form

San Diego

Portland

Seattle

Different Planning System Principle rather than standard

Metro: Boundary, Structure

Local: Land Use

National Policy’s Failure in USA 1808: Albert Gallatin’s plan for a federal system of canals and roads 1908: Theodore Roosevelt’s proposals for a nationwide program of conservation and development 1917 National Waterways Commission 1933: Tennessee Valley Authority 1933: National Planning Board 1934: National Resources Board 1935: National Resources Committee 1939: Natural Resources Planning Board 1930s: Public Works Administration 1965: Water Resources Planning Act 1966 Model City Programme 1968: Water Resources Council 1968: New Community Act: help to develop “new towns” 1950s-1973: Urban renewal program

1970s: policymakers at the highest levels effectively abandoned federal efforts to deal with cities as social problems

Federal: Fund 1968 Urban Mass transit Administration 1977 Urban Development Action Grant program 1980 Federal Superfund program 1997 Temporary Assistance to Needy Families (TANF) 1992 Hope VI program 2002 Small Business Liability Relief and Brownfields Revitalization Act

Federal: Preserve 1973 Endangered Species Act 1976 Resource Conservation and Recovery Act

National Park System

Federal: Equity

In China: Local City Land Use Plan need to be Approved by Upper Government Routine Documents 1, Approve the comprehensive plan. The principle of implementation 2, balancing urban and rural development 3, Urban population scale 4, Infrastructure 5, Energy-saving and environment-friendly city 6, Livable environment 7, Historical preserve and Landscape protection 8, Implementation

Time-consuming Shanghai: 10 years

In China: Local City Land Use Plan need to comply a lot of standards

Although we have a lot of great cities in the past

Beijing

Although we have a lot of great cities in the past

Suzhou

Although we have a lot of great cities in the past

Lijiang

They gradually lost their own character

Beijing

They gradually lost their own character

Suzhou

They gradually lost their own character

Lijiang

In China: Useless Urban and Town System Plan Structure: can not coordination with other jurisdiction area Advanced area: do not want to connect to less-advanced area Less-advanced area: want to connect to advanced area

What is the meaning of so many axis?

Upper Gov: Focus more on policy and project rather than structure

In China: Useless Urban and Town System Plan Poor policy direction Goal 14 UrbanizaFon

UrbanizaFon Strategy

Urban Growth Boundaries Urban growth boundaries shall be established and maintained by ciFes, counFes and regional governments

Principle Combine the city with industry Coordinate with region Guide in category Livable and environment-­‐friendly Embody culture

Land Need Establishment and change of urban growth boundaries shall be based on the following: Boundary Loca6on The locaFon of the urban growth boundary and changes to the boundary shall be determined by evaluaFng alternaFve boundary locaFons consistent with ORS 197.298 and with consideraFon of the following factors Urbanizable Land Land within urban growth boundaries shall be considered available for urban development consistent with plans for the provision of urban faciliFes and services.

Unincorporated Communi6es Single-­‐Family Dwellings in Excep6on Areas Rural Industrial Development

Upper Gov: Focus on more definite policies

Strategy Enforce the accumulaFon Coordinate with region Develop in category Urbaniza6on Rate 58% in 2020, 70-­‐73% in 2030 Urbaniza6on Index

In China: Useless Urban and Town System Plan No strict limit: preserve area

In China: Useless Urban and Town System Plan No strict limit: preserve area

Upper Gov: Focus on more specific preservation boundaries

In China: Useless Urban and Town System Plan Scale: plan or market?

City Projected in 2010 Actual in 2010 Hefei 280-300 310 Huainan 130 124 Wuhu 130 111 Benbu 115 79 Huaibei 93-95 85 Maanshan 90-95 66 Anqing 95 57 Suzhou 57-60 74 Fuyang 70-80 78 Tongling 60 44 Chuzhou 60 39 Bozhou 45-46 47 Luan 42 66 Chaohu 35-40 40 Mingguang 20-25 20 Huangshan 34 29 Jieshou 24-26 21 Xuancheng 35-40 32 Chizhou 18 29 Tongcheng 18 27 Ningguo 16 23 Tianchang 18-20 32 County 40-50 30-40 20-30 10-20 5-10

Projected Number

Times 1.03 0.95 0.85 0.69 0.90 0.69 0.60 1.23 0.98 0.73 0.65 1.02 1.57 1.00 0.80 0.85 0.81 0.80 1.61 1.50 1.44 1.60

Actual Number

35 18

2 6 18 21 9

Upper Gov: Focus less on distribution

What should really be concerned by the upper government?

Goal 1: Citizen Involvement Goal 2: Land Use Planning Goal 3: Agricultural Lands Goal 4: Forest Lands Goal 5:Open spaces, Scenic and Historic Areas and Natural Resources Goal 6: Air, Water and Land Resources Quality Goal 13: Energy Goal 14: Urbanization Goal 7: Areas Subject to Natural Disasters and Hazards Goal 8: Recreation Needs Goal 9: Economy of the State Goal 10: Housing Goal 11: Public Facilities and Services Goal 12: Transportation Goal 15: Willamette Greenway Goal 16: Estuarine Resources Goal 17: Coastal Shorelands Goal 18: Beaches and Duns Goal 19: Ocean Resources

Procedure & Content Preservation & Conservation

Safety Prosperity & Welfare Equity & Livable Connection Specific Area

In China: Central Gov National Strategies

In China: Central Gov New Towns

Shanghai Pudong

Zhoushan

Tianjin Binhai

Lanzhou

Chongqin Liangjiang

Xian XiXian

Guangzhou Nansha

Guiyang Guian

In China: Central Gov National Plans

National Urbanization Plan: Correct Nonsense

In China: Central Gov: Balance rather than Guide National Plans

Turn “Plan” to “Research” to avoid benefit conflict Focus more national policies on connection, protection and equity

In China: Central Gov: Economic rather than administration

Project-led, economic-incentive policies

3. Balance between Government and Public

9 5 re

cogn ized 7 neigh neighbo 42 a ctive r b o a r b o rh o o d h o o d a s s ds, c d omm istrict co ociations ali ittees and tion co mm issio ns

N/NE Quadrant Plan Bureau of Planning and Sustainability

Portland Bureau of Transportation

Oregon Department of Transportation

Stakeholder Advisory Committee 30 voting members

Transportation Subcommittee

non-voting members

Land Use Subcommittee

Public

Urban Design Subcommittee

Technical Advisory Committee

N/NE Quadrant Plan SAC Workshop Charettes Open Houses Community Walks Community Group Meeting Community Brief and Public hearing

TAC 2010

2011

2012

SE Quadrant Plan:

Transportation Working Group Meeting #3

Stakeholder Advisory Committee Meeting #6

Community Walks

Investigation with public

Stakeholder Advisory Committee Workshop/Charettes Community Group Meeting

Design with public

Open Houses Technical Advisory Committee

Supervised by expertise

Community Brief and Public hearing

Approved by public

Arnstein’s participation ladder

In China Investigation

Public

Design

Expertise

Approve

Arnstein’s participation ladder

Turn one-way to two-way involvement

Difficulty 1: Conflict between low efficiency of public involvement and high rapid of urbanization

Beijing: 615 thousand annually Shanghai: 599 thousand annually Portland in 2010: 583 thousand

National: 21.1 million annually Top 7 Cities in USA: 21.1 million New York, LA, Chicago, Houston, Philadelphia, Phoenix, San Antonio

Difficulty 1: Conflict between low efficiency of public involvement and high rapid of urbanization

National: 20 million annually from 2010 to 2020 13 million annually from 2020 to 2030

Difficulty 1: Conflict between low efficiency of public involvement and high rapid of urbanization

PlaNYC (2007-­‐2030): More than one year Portland Comprehensive Plan: 2012-­‐2015

Focus more Bottom-up than Top-down

Xinxiang (2011-­‐2020) :2006-­‐2013 Shijiazhuang (2011-­‐2020): 2004-­‐2013 Changzhou (2011-­‐2020): 2002-­‐2013 Guiyang (2009-­‐2020): 2006-­‐2013 Xiangyang(2011-­‐2020): 2005-­‐2013 Shaoxin (2008-­‐2020): 2005-­‐2012 Luoyang (2011-­‐2020): 2007-­‐2012 Handan (2008-­‐2020): 2004-­‐2012 Huizhou (2006-­‐2020): 2004-­‐2012

Difficulty 2: Indirect connection between planner and public

USA

China

City Council

Planner

Public

Planner

Government

Public

Field study Interview Questionnaire Colloquia Exhibition Resident meeting

Try to connect to public directly

Conclusion

It is the best of times

It is the worst of times

We inherit from the past

We draw from the out

But plan must be locality

Plan must be publicity

It should be strict to basic things

It should be tolerant to changable things

We should hold the boundary

We should keep the balance