Evaluation of plan implementation

Since the 1980s China has experienced unprecedented urbanisation as a result of a series of reforms promoting rapid economic development. Shanghai, like the other big cities along China’s coastline, has witnessed extraordinary growth in its economy and population with industrial development and rural-to-urban migration generating extensive urban expansion. Shanghai’s GDP growth rate has been over 10 per cent for more than 15 years. Its population in 2013 was estimated at 23.47 million, which is double its size in 1979. The urban area enlarged by four times from 644 to 2,860 km2 between 1977 and 2010.

Such demanding growth and dramatic changes present big challenges for urban planning practice in Shanghai. Plans have not kept up with development and the mismatch between the proposals in plans and the actual spatial development has gradually increased, reaching a critical level since 2000. The mismatch in the periurban areas is more notable than that in the existing urban area, but there has not been a systematic review of the relationship between plan and implementation. Indeed, there are few studies on the evaluation of plan implementation in China generally. Although many plans at numerous spatial levels are successively prepared and revised, only few of them have been evaluated in terms of their effectiveness and implementation. 

This particularly demanding context for planning where spatial development becomes increasingly unpredictable and more difficult to influence presents an opportunity to investigate the role of plans under conditions of rapid urbanisation. The research project asks to what extent have spatial plans influenced the actual spatial development in the peri-urban areas of Shanghai? The research pays particular attention to the role of the Shanghai Master Plan 1999-2020 (Plan 1999). By answering the main research question this study seeks to contribute to a better understanding of present planning practice in Shanghai from a plan implementation perspective, and to establish an analytical framework for the study of the role of plans that fits the Chinese context. The findings may also help planners, policy makers and private developers to adjust urban planning within the implementation process in order to meet planning objectives at different levels.