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1. "City of overnight growth"--A brief introduction

Separated only by a river from Hong Kong, Shenzhen used to be a small frontier town with a population of less than 30,000. The China Central Government established the Shenzhen Special Economic Zone (SSEZ) in 1980 as one of the four testing grounds for the importation of foreign capital and integration with the world economy. With rapid growth and modernization during the past two decades, Shenzhen grew to a population of 7 million--a city of immigrants. The region, which covered about 2000 km², has changed from a farming region to highly urbanized area with a build-up area of 470 km². Shenzhen’s current output per capita is among the highest in China. As a result of the speed at which the city developed, Shenzhen earned the nickname "City of overnight growth".

Shenzhen’s rapid growth and achievements are attributed to China’s "opening-up" policy and a transition from a centrally planned economy to a market economy. Shenzhen’s proximity to Hong Kong is also considered to be a factor for its amazing growth. Some scholars have noted that Shenzhen’s dramatic development was substantially influenced by the decisions and actions of China’s Central Government; the local government has played an increasing important role in the context of politico-economic transition (Tang, 1998).

NG, Tang and Xu (2001) have pointed out that the development process in the SSEZ has three aspects: economic and political transition, increasing integration with the world economy and planning the urbanization of a rural region. During the process of dramatic development, urban planning has played an important role in the city’s development. Shenzhen was awarded the UIA Prize for Town Planning at the 20^th UIA congress in 1999.

2. Planning with Rapid Growth

Table 1 shows part of Shenzhen’s Comprehensive Plan during the process of rapid growth. Note changes made in planning with urban growth in Shenzhen. At almost all the important turning points, the Comprehensive Plan was adjusted to serve a new development, goal or target.

Table 1: Comprehensive Plans Made for Shenzhen

Year	Planning Document	Boundary of (km2)	Planning Area (km2)	Planning population
First Phase: 1980-1984 (the founding stage) Border town service Outward processing industrial activities
1979	City & Town Development Plan	Bao’an county was turned into Shenzhen city 2020	10.65	Short term:100,000 Long-term: 200,000 -300,000
1980	Draft Comprehensive Plan	SSEZ: 327.5	60.0	Short term:300,000 Long-term: 600,000
1982	Social-Economic Development Plan for the SSEZ (First Comprehensive Plan)	SSEZ: 327.5	110.0	1985: 250,000 1990: 400,000 2000: 800,000
Second Phase: 1985-1992 (From Industrialization to Economic Restructuring) Export-oriented economy To attract foreign investment.
1986	Second Comprehensive Plan	SSEZ: 327.5	123.0	1990: 600,000 2000: 1,100,000
1989	The Modification to the Second Comprehensive Plan	SSEZ: 327.5	150.0	2000:1,300,000 -1,500,000
Third Phase: 1993-present (Economic Restructuring and Environment Improvement) Development of New Economy and High-tech industries. To Build an International City.
1993	Bao’an and Longang districts were established. The whole area of the city including both inside and outside of the SSEZ was planned to have a coordinated development.
1996	Third Comprehensive Plan (approved by the State Council in 2000)	The whole area of the city: 2020	2000: 380 (SSEZ:130) 2010: 480 (SSEZ 160)	2000: 4,000,000 -4,200,000 (SSEZ:1,730,000 —1,800,000) 2010: 4,300,000- 5,100,000 (SSEZ 1,800,000- 2,200,000)
2002	Modification to the Third Comprehensive Plan (going on)	The whole area of the city: 2020

Source: Gu, 1998; NG, Tang and Xu, 2001.

2.1 1980-1985: From a Border Town to the First Special Economic Zone

The SSEZ with a total area of 327.5 km² was built on a green-field with a few small towns. The most important of which was Luohu, 3 km² in size and the main customs checkpoint on the border between the mainland of China and Hong Kong. At the very early stage of development, the general target was "to develop Shenzhen into an industry-led modernized SEZ, based on the integration of agricultural and industrial development" (Gu, 1998). Urban development was mainly in industrial zones, similar to early manufacturing industrial parks in the West. One of the spin-offs of the industrial zones was the need for housing, shopping and entertainment. Hence Luohu was designated as the comprehensive center for the SEZ, while Shatoujiao to the east and Shekou to the west developed into industrial districts. According to the first Comprehensive Plan made in 1982, Shenzhen would be developed into a linear city stretched along the border between Shenzhen and Hong Kong.

2.2 1985-1992: From Industrialization to Economic Restructuring

After five years of city construction, Shezhen realized its economic potential. Hong Kong investors crossed the border to resettle or establish their factories in Shenzhen. At the end of the 1980s, the industrial development reached its tide, which had not only brought vitality to the SSEZ, but also to the towns surrounding it. And following the market laws, some industrial enterprises even started to move from the SSEZ to surrounding areas. This enforced the multi-functional development within the SSEZ instead of industrialization only. In 1997, the introduction of land market in Shenzhen led to a boom of property development and increased extra-budgetary capital for the local government to improve infrastructure and implement plans (NG, et. al., 2000.)

The Second Comprehensive Plan for Shenzhen SEZ was completed in 1986, where the "linear clustered city plan" was fully fleshed out. This allowed the government to develop the city and its clusters with confidence. The Comprehensive Plan also pegged Futian as the city’s new downtown, leased real estate in outlying areas to state-owned enterprises and then built Shekou Industrial Zone, Nanyou Development Area, Scientific Industrial Park, Overseas Chinese Town, Liantang Industrial Zone, and Yantian Port City, etc. During this phase, the Regulatory Plan was the most important tool for shaping the city. In the latter years of the phase, the District Plans were applied and covered most of Shenzhen by 1989, effectively creating a relatively wide ranging yet detailed planning system that satisfied Shenzhen’s development needs at that time.

2.3 1993-present: Re-adjustment and Improvement

When Chinese leader Deng Xiaoping toured southern China in 1992, he encouraged the mayors of Shenzhen and Guangzhou to speed up the formation of a market economy and soon that encouragement spread throughout China. Under the circumstances, the city government put forward the goal of shaping Shenzhen into an international city within 20 years (Wang et al., 2000). To reach this goal, the Bao’an County outside the SEZ was merged into Shenzhen and split into two districts named Bao’an and Longgang in 1993, which resembled the first step of the coordinated construction of the whole city. After which the third Comprehensive Plan---"Shenzhen Comprehensive Plan (1996-2010)" was drafted.

In the "Shenzhen Comprehensive Plan (1996-2010)", the planned area was extended beyond the SEZ to cover the entire metropolitan region. It aimed to build Shenzhen into a major city that offers finance, commerce, trade, information technology, transportation services and high technology. Shenzhen was expected to be a prosperous and well-managed city that is attractive to tourists and a comfortable place to live (Wang et al., 2000).

During this phase, using Hong Kong for reference, Shenzhen began to draft the Urban Planning Ordinances from 1995, in which a new planning system was brought forward. The Regulatory Planning & Ordinance was then regarded as the key and connection between urban planning theory and its practice (Xue and Zhou, 1999). The Ordinance took effect in 1998 and led urban planning in Shenzhen down a legal road. A new Urban Planning Board was also established according to the Ordinance. In 1999, the first 11 "regulatory plans and ordinances" were put into effect in accordance with the statutory procedure.

3. What can be learned?

As one of the fasted growing cities in the world, Shenzhen’s experience or lessons in planning during its dramatic development process may be good reference for other cities. Based on a general approach to the planning process and initiatives adopted by the local government or planners in Shenzhen, some recommendations or suggestions are concluded as follows:

3.1 Local governors desire planning experts’ advice

In a fast growing region, governors are usually eager to know more about planning because planning is very important for a rapid growth area. In Shenzhen, almost after the founding of the SSEZ, a few prominent planners from around the country were invited by the Municipal Government to contribute their knowledge about how to plan for Shenzhen. Latter, planning experts from around the country and from abroad were invited as planning consultants to the municipal government. These planning consultants have made great contributions to Shenzhen’s planning.

3.2 Planning requires government financial support

It is essential for the local government to provide sufficient financial support to planning. During the past two decades, Shenzhen’s municipal government had little reluctance to spend money on planning. Especially after 1989, when Shenzhen merged planning, land administration and housing into one single bureau. It is regulated that as much as 5% of the land revenue may be used as planning expenditures (Wang & Li, 2000).

3.3 It is necessary to modify plans as quickly as required

Along with economic development, it is necessary to modify plans periodically. Plans are usually divided into three types: target-driven, condition-driven and problem-driven plans. At the beginning of rapid growth, planning is target-driven, and the target often changes dramatically, just as reflected in Shenzhen’s master plan. Under this situation, plans become outdated very quickly and modifications should be made on time.

3.4 It is essential to coordinate urban development with the natural environment

Shenzhen’s environment today benefits from the natural landscape of hills scattered in the region. The liner clustered urban form of Shenzhen was basically determined with respect to its natural landscape, which helped Shenzhen keep the integrity and orderliness of the municipal framework while facing high-speed construction and fast-conversion of land uses.

3.5 Comprehensive development of large pieces of land should be encouraged

Shenzhen has shown that comprehensive development of comparatively large pieces of land is important for a well-constructed environment, especially at the beginning when land is open. Otherwise, it would be difficult to keep open spaces and to site public facilities, even to implement effectively the master plans. Shenzhen’s Overseas Chinese Town is a successful and good example in this sense.

3.6 To lead planning towards the way of legalization

Although this may be not a problem in the U.S.A anymore, there is still a long way to go in China to lead planning towards legalization. Since1982, however, Shenzhen has played a leading role in the country’s legalization of planning. Shenzhen has released a series of legal documents concerning the standardization of planning practices, including the Shenzhen Urban Planning Ordinance that specifies the proper planning procedures and appeals process.

3.7 To preserve spaces for public facilities and future development

The master plan of Shenzhen has done much to shape the city. In the 1986 Comprehensive Plan, for example, Shenzhen decided to keep a 4-km² site in Futian for its future CBD development. This site has to fully develop. It provides space for future development. To reserve land for future public facilities is also enforced in Shenzhen’s planning.

4. Conclusion

During the last two decades, Shenzhen has experienced a rapid growth in both economic and urban development. Meanwhile, urban planning has played an important role in shaping the urban form as well as keeping a good urban environment. The achievements made by Shenzhen in planning are greatly attributed to the initiatives adopted by the municipal government as well as the efforts made by planners.

However, planning is a dynamic process. In the way of planning, there is no end and no final stop. In terms of planning for Shenzhen, there are still more questions than answers. We continue to learn from the city itself as well as from others.

Reference:

1. Wang, Fuhai, etc., From planning system to planning institution––the development of urban planning for Shenzhen, Urban Planning No.1, 2000. (in Chinese)
2. NG Mee Kam; TANG Wing-Shing and XU Jiang, Planning and development of a modern socialist city in Shenzhen, People’s Republic of China, Paper for the 34^th EAROPH Meeting, Novetel Batam, Indonesia, July 2001.
3. TANG W-S, An inquiry into urban land system reforms in Shenzhen, in Y-m. Yeung (ed.) Urban Development in Asia: retrospect and Prospect. Hong Kong Institute of Asia-Pacific Studies, The Chinese University of Hong Kong, Hong Kong, 307-40.
4. Gu, H., Review and prospect of urban planning in Shenzhen, in the Essays by the Urban Planning and Design Institute of Shenzhen, 1998 (in Chinese).
5. Shenzhen Urban Planning & Land Administration Bureau, Search for a Balance in the Dynamic Change----the Evolving History of Shenzhen Planning, document prepared for the application for the UIA Prize for Town Planning of the 20^th UIA Congress 1999.
6. The government of Shenzhen, Shenzhen Comprehensive Plan (1996-2010), 1997. (in Chinese)
7. Wang Fuhai, Zhu Xiaobao and Michael Gallagher, The Road to Urban Planning in Shenzhen, (unpublished paper).
8. Wang Fuhai and Li Guicai, Some points about the characteristics of planning in Shenzhen and its future development: 20^th anniversary of SSEZ, in City Planning Review, Vol.24, No.8, Pp 24-27 (in Chinese) .
9. Xue Feng, Zhou Jin, On the reform of urban planning––the establishment of Regulatory Plan & Ordinance in Shenzhen, Urban Planning Forum, No.4, 1999. (in Chinese)

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Author and Copyright Information

Copyright 2002 by author

Huien Niu
Shenzhen Urban Planning & Design Institute,
Zhenxing Rd., Shenzhen, P.R.China
Phone: 0086 755 3788342
E-mail: niuhuien@163.net