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