baoji

I [ ' ~ U T T I ~ R W O R T H I ~ E I N E M A N N 0264-2751(95)00052-6

City profile Baoji

Cities, Vol. 12, No. 5, pp. 361-368, 1995 Copyright © 1995 Elsevier Science Ltd

Printed in Great Britain. All rights reserved 0264-2751/95 $10.00 + 0.00

Ya Ping Wang and Cliff Hague School of Planning and Housing, Edinburgh College of Art/Heriot-Watt University, Lauriston Place, Edinburgh EH3 9DF, UK

Baoji was a historical town with about 7 000 people at the beginning of this century. The strategic location made it an important transport and communication node in central China. Since 1949 it has attracted many government funded industrial and transport-related projects. By the early 1990s it has become the second largest city and a regional political and economic centre in Shaanxi Province with a population of 450 000. Under the current economic reform, the city faces new challenges and has to compete with other places for private investment. The city planners are seeking new approaches to shape the future development.

Baoji is an industrial city in Shaanxi Province in central China. It is located at the western end of the Guanzhong (Weihe) valley about 150 km west from the historical city Xian (Figure 1) (Bren t Hall and Zhang , 1988). Although it was not classified as a large or extra-large city (with a population of 500 000 people or more) in the Chinese urban hierarchy, it is the second largest city in the province after Xian- the provincial capital in Shaanxi Province. Within the current administrative system, Baoji is one of the 10 important regional political, economic and administrative centres in Shaanxi Province.

Baoji is surrounded by mountains and plateau in the north, the west and the south. Only the east is open toward the lower reach of the Weihe River -a major branch of the Yellow River in Shaanxi Province. The Qinlin Mountain in the south is a major physical barrier between North China and the South China. The highest peak of the Qinlin mountain in Baoji

The field work for this research was carried out in August 1993 and was supported by a Faculty Research Grant of Edinburgh College of Art.

region is over 3760 metres above sea level. The north of the city is bounded by the south edge of the loess land plateau over 800 metres above sea level. The Weihe River runs through the city from the west to the east. The city itself is located on the river banks about 500 metres above sea level. The immediate surrounding areas of the city, particularly toward the east, are good quality agricultural land with rich soil developed from the river de- posits.

History and population Baoji, originally named Chengcang, with its neighbour town Yunzhou (now Fengxiang), played an important role in early Chinese civilization. In the Zhou dynasty (about 1027 to 221 BC), the Baoji-Fengxiang area was the political, economic and cultural centre in China. It was also the home- land of the ancestors of the First Emperor of the Qin Dynasty (221-206 BC). After Qin, the political centre moved eastward to the Xian area in the centre of the Weihe plain. Baoji and Fengxiang, because of their strategic location, were important towns for all following feudal powers.

During the Tang dynasty (618-917) the name of the town was changed from Chengcang to Baoji. It was a subordinate to Fengxiang, the larger town of the two in the feudal administrative hierarchy, until the beginning of this century (Liang, 1990).

The old town area of Baoji has had about 1200 years of history. Because of its strategic location, the Baoji area has witnessed many military opera- tions. The most recent one was between 1910 and 1930. During this period the town and its surrounding areas were devastated by constant fighting between different warlords. The population of the town was very small during this period, between 6 000-7 000 people. Since the arrival of the Long-Hai railways which linked the western provinces to the coast in 1937, a small number of industrial establishments have been set up in the suburbs of the town. During the Anti- Japanese War between 1937 and 1945, the nationalist government moved its capital from Nanjing to Chongqing in Sichuan Province. Baoji was an important town on the communication route between the provisional capital and the eastern front line. During this period, there was a steady increase of

361

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economic activity and population in Baoji. A new industrial district was set up at the east suburb about 5 km away from the old town. Between them was the new railway station. By the end of the 1940s, the population in the town was about 75 000 (Zheng, 1984).

In July 1949, the Communists took

over Baoji from the Nationalists. A city status was granted and a city government was established (152 set- tlements in China had city status in 1952). Baoji has superseded Feng- xiang and become the administrative centre in the area. Since then Baoji has experienced steady population in-

crease. In the early 1950s about 100 000 people were living in the city• The central built up area was 6.7 km 2. By the end of 1990, the population had increased to 442 000. The central built up areas had expanded to over 27 km 2 (Baoji City Statistics Bureau, 1991)•

Transport and communication Baoji City is well situated on one of the most important communication routes in the country• Before the development of modern transport, this area was the north end of the historical Qinlin Route which linked Sichuan Province and the south-west with the north. Baoji was also the starting point of a long difficult journey to the minority areas in Qinghai, Gansu, Nixia, Xiangjiang and Tibet• The historical Silk Road from Xian (then Changan, the Tang dynasty capital) to the central Asia and Europe went through here. Its importance and strategic position have been further developed by the arrival of modern transport, particularly the railways.

Baoji is now one of the most important railway exchanges in China• It is on the major west-east route, Long- Hai railway, that was first developed during the 1930s and further upgraded after 1949. Along this line trains could go to Beijing, Shanghai and Guang- zhou in the east, and to Xiangjiang, Gansu, Qinhai Autonomous Regions and provinces in the west. This east- west rail link is also the spine inside China in a proposed Europe-Asia land bridge project. The important position of Baoji was further developed between 1954 and 1965 by the construction of the Bao-Cheng (Baoji to Chengdu) railway that links Baoji and the sou th-wes t p rov inces , Sichuan, Yunnan and Guizhou. Dur- ing the 1970s and 1980s both the Boa- Cheng and Long-Hal railway in Baoji region have been electrified• In China railways are still the most importanat transport and communication routes. In 1990 alone 3.8 million people and 3 million tonnes of goods travelled by train through the region (Baoji Re- gional Planning Group, 1991)• A new railway to the north that will link Baoji and Zhongwei, a town in Ningx-

362 Cities 1995 Volume 12 Number 5

ia autonomous region, is now under construction. This project is funded by central government; the section in Baoji is due to come into service by 1995 (Shanxi Territory Planning Com- mittee, 1989).

Baoji City and the surrounding areas are also well served by national and local road networks. To the east, there are currently three major high- ways (the North Line, the Middle Line and the South Line) between Baoji and Xian. A fourth line, Xian-Baoji motorway under construction, will be available in 1995. As with its rail links, Baoji is also the communication node for roads to the west, south-west and north-west.

Economy and industrial development Like other deep inland areas in China Baoji was in a very early stage of industrialization in the first half of this century. Apart from a few handcraft workshops there were no modern industrial factories. In 1937, when the railway arrived, a locomotive repair- ing factory was set up. This marked the beginning of modern industrial development in the city. During the Anti-Japanese War, many industrial firms located in the coastal areas moved inland. Baoji with the new rail link was one of the receiving towns. Between 1937 and 1949 various industries were developed, such as manufacturing, textiles, electricity generat- ing, paper making, agricultural prod- uct processing, printing and tobacco. By the end of the 1940s, about 4% (3 000) of the city's population were industrial workers.

After 1949 China developed a cen- t rai l ) p lanned economy in which urban development in different regions of the country came under the government's control. The years from 1949 through the period of the First Five-Year Plan (195.3-57) were char- acterized by national policies aimed at reconstruction and urban-based industrial development, particularly in the inland areas. Under this policy, Baoji became an important industrial city in north-west China. The existing industries originally located in the city were upgraded. At the same time new

industries such as manufacturing, electronics, energy and transport had been introduced. During the first national Five-Year Plan (1953--57) period, 3 of the 156 Soviet-supported key industrial projects were placed in Baoji by central government. These include a manufacturer for precision equip- ments, a manufacturer for machineries and a steel pipe factory for the oil industry (Baoji Regional Planning Group, 1991).

From 1960 to the early 1970s the decision makers in central government pursued a third line development policy. Growth in cities, particularly large cities, was halted. Industrial projects were directed to the rural inland areas away from the coast and the north border between China and the then USSR. Baoji, because it was small and located in the inland area, was one of the receiving areas for the defence, electronics and mechanical industries. Apart from these centrally managed factories, the province and city governments have also invested in the development of other local industries such as e l e c t ron i c s , ag r icu l tu ra l machinery, textile, fertilizers etc. By the end of the 1970s, Baoji had developed five industrial districts in its suburbs.

Since 1978, China has revised its urban development policy with emph- asis on better living conditions for urban residents and the necessity of environmental protection. Cities, particularly large ones, became the foci for economic development. This soon caused concerns over the imbalance of large cities and small cities. In the early 1980s the urban planners in central government introduced a national urban development policy that aimed to control the development of large cities, to develop middle-size cities rationally and small cities vigorously. Within Shaanxi Province, Baoji, with its good industrial base, was selected for further expansion in industries and population. More central and local investments went to the improvement of the performance of existing factories. Numerous modern technologies and automatic lines were introduced to replace the old machinery. There was also a major expansion in the p roduc t ion of modern consumer

City profile goods such as refrigerators, air con- ditioners, tape recorders. By 1990 the city had become a major comprehensive industrial base in the province. Among the 40 different types of indust r ia l sectors classif ied by the Chinese government, 35 could be found in the city in 1990, which pro- duce over 300 different products (Baoji Regional Planning Group , 1991).

The heavy dependence of the city on industries and transportation is best described by the employment pattern of the population (Table 1). In 1990, a non-agricultural population of 344 500 lived in the built-up areas in the city; 251)200 (over 72%) were economically active. Among this economically active group over half were employed by industrial factories. Con- struction and transport industries are the other two major economic sectors, employ 13.2% and 10.3% of the economically active population respec- tively (Baoji City Statistics Bureau, 1991).

Administration Baoji has been under the control of the Shaanxi Province government since 1949. Its jurisdiction boundary was changed from time to time between 1949 and 1980 to reflect national and local political and economic development strategies. The current administrative system was the result of the most recent government reorga- nization in 1980 which established city regions. Baoji is now the central city of a large territorial area designated Baoji Region. There are two main levels or tiers of local government. At the upper level, the Baoji City government (Baojishi zhengfu) is, in spite of its name, responsible for the whole region. At the lower level, the region is subdivided into 12 areas, comprising two urban districts (weibing qu and jintai qu) and 10 rural counties (xian) (Figure 2). The urban districts cover mainly the central built-up areas and the inner suburbs: the 10 rural counties range from 750 to 3170 km 2 of land areas and from 48 000 to 650 000 people (Table 2). In both the urban districts and rural counties there are further divisions (Baoji City Statistics

('itie.s 199.5 Volume 12 Number 5 363

City profile Table 1 Economic activities and employment pattern in Baoji City in 1990

Population Employment sectors 1000 persons %

Total population Non-agricultural (NA) population Economically active NA population

Industry Construction Transport and communication Commercial and other service industries Property and infrastructure management Health, social work and recreation Education, culture and media Research Finance and insurance Government administration and related

organizations Geological exploring and surveying Other sectors

Agricultural population Economically active agricultural population

449.5 344.5 250.2 129.2 33.1 25.8 24.1 5.5 5.1 7.1 1.8 2.2 8.2

1.4 6.7

105.0 34.9

Sources: Baoji City Statistics Bureau, Baoji City Statistics 1991 pp 6-7

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Source: Baoji Regional Planning Group (1991) Baoji Regional Plan 1991-2000

Bureau, 1991). The districts and the counties all have their own local governments which report to the city government. These governments have independent powers in the management of local economic and development

100.0 51.6 matters, but they are supervised by 13.2 the city government. Small-scale de- 10.3 velopment located in each district or 9.6 county could be decided by the district 2.2 2.0 or county government. Larger pro- 2.8 jects need to be approved by the city 0.7 government. The city government it- 0.9 self, under the supervision of the pro- 3.3 vinciai government in Xian, exercises 0.6 political, economic and personnel con- 2.7 trol over the district and county gov-

ernments.

Land-use planning Early development in Baoji was limited by the local landscape. Before the arrival of the railways the city was technically only one major street lying from the east to the west at the foot of a steep loess slope in the north. Since then the city has expanded along the railway, particularly toward the east. After the communists took over, the city was selected for industrial development. City plans were prepared at various periods to guide the expansion and land use.

The first major planning initiative in Baoji came in 1956. The then Urban Planning and Design Institute in the Ministry of City Construction prepared a plan for the city, which was finalized in 1958 as the first overall plan. The main objective of this plan was to develop the city into a manufacturing industrial city and a major transport node in the north-west of China. The plan aimed to cover the next 20 years and provided an overall blueprint for land use in the city. It p r o j e c t e d a to ta l p o p u l a t i o n of 350 000 people at the end of the planning period. To accommodate this population, 45 km 2 of land (including the original central area) was to be designated as urban built-up area. ~ Apart from these policy statements, the plan also had proposals on indust-

~This ratio of population and land use was derived from a centrally decided land use index which permitted small cities to plan 129 m 2 of land per person.


Table 2 Population in Baoji Region

Non Number of Total agricultural households population population a Area (1000) (1000) (1000) (kin 2)

Total (region) 804 3339.8 635.1 18196 Districts (central city) 130 449.5 344.5 459

Weibing 68 242.4 168.4 406 Jintai 82 207.1 176.1 53

Counties (rural hinterland) Baoji 153 676.3 77.2 3171 Fengxiang 109 480.5 31.7 1226 Qishan 111 433.5 59.4 857 Fufeng 98 426.6 25.7 749 Meixian 66 281.2 19.0 859 Longxian 53 229.6 19.5 2286 Qianyang 29 123.3 11.3 1004 Linyou 17 79.6 6.4 1705 Fengxian 27 110.3 31.6 3164 Taibai 11 49.4 8.8 2718

Sources: Baoji City Statistics Bureau (1991) Baoli City Statistics 1991, 45; Baoji City Plan- ing Commission (1987) Land Resources in Baoji, Shannxi People's Publishing House, Xian, 17. aNon-agricultural population includes people living in the built-up areas of a city or town and officially registered as urban residents.

rial location, distribution of functional areas and road/street systems. Despite many implementation problems in the following years, the plan did lay down a basic structure for the city (Figure 3) (Zheng, 1984).

This overall plan was made under the spirit of the first Five-Year Plan

(1953-57) in which central government pursued careful economic planning centred on major industrial projects. Unfortunately 1958 saw a major developmental policy shift in the central government. Facing the problems of diminishing financial and technical aid from the USSR, central govern-

City profile ment found difficult to maintain the planned industrial development. Loc- al initiatives in economic development were encouraged under the political slogan Great Leap Forward. This policy change had a major effect on the implementation of the new overall plan for Baoji. Some originally planned and centrally funded industrial projects were cancelled. Although more local funded factories were built, between 1958 and 1963 the development scale was smaller than antici- pated in the plan.

In the following years, the third line development policy was pursued. Baoji was a receiving city for industry. This was perceived as the second major development in the city. During the early years of the Cultural Revolu- tion period, many Chinese cities stag- nated but Baoji continuously expanded. However, as in all other cities in the country, city planning was aban- doned. As a result, many problems appeared. They included environmental pollution, particularly pollution to the water system in the region, integration of various industrial areas in the city, unbalanced development in industry, infrastructure and housing. By the end of the 1970s there were

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Figure 3 Land use in central built-up area of Baoji

Source: Baoji Regional Planning Group (1991) Baoji Regional Plan 1991-2000

Cities 1995 Volume 12 Number 5 365

City profile nine areas in the city separated from each other by rivers, railways etc. These areas were all semi- independent in terms of basic infrastructure. In 1983 the total non- agricultural population in the city was about 269 000, well short of the planned target.

After the Cultural Revolution, city planning authority was reestablished in the city. Between 1979 and 1981 the Planning and Management Bureau in the City Construction Commission prepared the second overall plan for 1981-2000. This plan, approved in De- cember 1983, aimed to develop the city into a middle-sized industrial city as a major railway node. It has both a short- (1985) and a long-term (2000) target. The population projection was 284 000 in 1985, and 350 000 in 2000. The built-up area was to expand to 23.5 km 2 by 1985 and 36.4 km 2 by 2000. The main shape of the city was to follow the existing pattern established by the 1958 plan, a belt city, divided by rivers and mountains into nine areas: a primary central area, a secondary central area, a higher education and cultural area, a warehouse area and five industrial areas (Huang, 1984). This new plan paid particular attention to infrastructure development between these areas and to their integration.

During the 1980s, many infrastructure projects proposed in the plan were successfully implemented. The central business area of the city was moved from the old town area (Zhongshan Road) to a newer street at the south next to the original one. This has reduced the level of over- crowding in the city centre, and provided better space for commercial and office development. There was no large-scale demolition in the old area. Along the new central street many office blocks and department stores were built. At the west end of this street there is a concentration of cultural and recreation facilities such as theatre, cinema, central parks. At the east end of the central street, the old railway station was redeveloped and enlarged to accommodate the ever- increasing number of passengers. As well as the railway station, a square with a number of buildings for com-

mercial and business were con- structed. The design of the station and the square was the result of a competition held in 1984 in which 17 proposals were received (Baoji Town and Coun- try Construction and Environmental Protection Bureau, 1984). To improve communication between the north and the south banks, three new bridges were planned over the Weihe River. During the 1980s, the first, Weihe Bridge, was built. This bridge along with two old bridges in the west have formed parts of an inner ring road system. A new large public park was developed on the south bank just inside the inner ring road.

The population increase between 1981 and 1985 was almost according to the plan. At the end of 1985 the non-agricultural population in the city was 286 000. This also reflects the political and economic situation in China. From 1978 onward, China for- mally pulled itself out of years of political change. The focus has shifted to economic developed. At first major changes and reform were carried out only in the rural areas. Reform in the urban areas did not begin until late 1984. Established public and collective sectors dominated the urban economy. The economic planning system introduced in the early 1950s played a major role in shaping urban development. Under this system, population movement and food supply in urban areas were under strict state control, which limited the urban population expansion. Since the introduction of urban economic system reform in October 1984, the private sector has been encouraged to make an important contribution to city development. Starting with small street corner shops, private and international coop- erations now play an important role in most Chinese cities. Together with this reform, the government has relaxed the control on population movement and gradually abolished state-controlled supply of most food products in the cities. Many cities have experienced rapid population expansion. Between 1986 and 1987, population in Baoji increased by 20 000. By the end of 1991 the non-agricultural population in the city had nearly reached the long-term target, with

344 500 people. (In 1988 there was a small adjustment of the administrative area. This has brought a small number of people into the city area.) A major source for population increase has been rural to urban migration. With this speedy expansion, the existing overall plan seems outdated (Baoji Regional Planning Group, 1991).

Future Two recent regional plans, Shaanxi Province territory plan (published in 1989) (Wang and Hague, 1993), and Baoji City territory plan (Baoji City Planning Commission, 1993) will have important effects on development of the city in the future. The Shaanxi Province territory plan covers the province as a whole and includes proposals for railway, road, communication and other basic infrastructure. Some current major railway and road development mentioned in previous sec- tions in Baoji Region were according to this plan. Baoji, along with Xian, was included in the most important comprehensive development area in the plan. Among many proposals, the most important to the city is the province's intention to maintain Baoji as its second largest urban centre. The plan proposed to develop Baoji into a middle-sized city by 2000 with a non- agricultural population up to 500 000, and a large city by 2050 with a population over one million.

Baoji City territory plan, to be approved by the province in 1993, laid down policies on the development and utilization of local natural resources; structural distribution of industries and agriculture, framework of infrastructure construction; development of science, technology and education; population and urbanization; land and river conservation. The plan has adopted the province policy, and proposed to expand the population in Baoji to over 500 000 by the year 2000. At the same time the plan has adopted a comprehensive approach in the development of other towns in the region. Caijiapo, currently a small town in the east of Baoji on the railway and major road to Xian, will be developed into a middle-sized city during the first 10 years of the plan. In


City profile

Figure 4 View of Baoji northwards across the Weihe river

the first decade of the 20th century, Fengxiang, Longzhou and Fengzhou will be developed into middle-sized cit ies. O the r towns will also be allowed to expand slightly. By the beginning of the next century, the central corridor along the railway will have become an urban industrial belt. The policy will increase the urbanization level in the region substantially, but will reduce the pressure on the central city itself.

Most of these policies have been adopted by the City Construction Commission, a government department in the city which prepares city overall plans and coordinates infrastructure development (Figure 4). This Commission produced a Baoji regional plan in 1991; this offer more detailed development policies than the Baoji territory plan. The section on the central city plan is an update to the 1981 overall plan. This has taken into consideration all major policies on road and railway expansions and current industrial development trends. It has called for the merging of the central city with a county town, Guizhen, in the east. The two are independent administrative entities only separated by a river. The plan has projected that the population in

the city will be around 700 000 in 2020 and 1.2 million in 2050.

The growth of Baoji is a good exam- ple of the planning and development of middle-sized cities in China since 1949. Until the mid 1980s, the city was shaped by the national economic development strategies and relied heavily on centrally funded industries and communication establishments. The major characteristics of the economic development and land-use planning were affected by the importance of the location. This strategic location of the city will be an advantage in the future development. The expansion of rail and road networks in the region will bring new employment and industrial opportunities. The current trend of rapid increase of population and industrial production will be sustained. However , new initiative and approaches are essential to achieve a heal- thy and coherent development. First, the city has passed the stage of a specialized industrial town or a pure communication node. It is now a middle-sized comprehensive regional city. As such it will need to develop a more complex industrial base rather than relying heavily on central ly funded projects. This will require an increase of service industries.

Second, the development strategy of central government in the 1990s has changed dramatically from that in the 1980s. In the 1980s, major economic reform p rog ra mme s were implemented in the special economic zones, the open cities in the coastal area, and then in the eastern coastal provinces. The majority inland areas were still under the planned economic system. In these areas major investment came from central or provincial governments. In Baoji most of the largest industrial employers are still owned by central and provincial governments. Since 1992 economic reform has been extended inland from the coastal areas. Preferential economic reform policies (eg tax relief) have been applied to all major cities in the country. This has brought very important changes to the country's economic geography. Apart from coastal areas, the borders in the north, the west and the southwest are now all open. Commercial and trade activities between local Chinese and the neighbouring countries are increasing day by day, Inside the country, the central planning role of the government is shrinking. More and more economic decisions are determined by the market. Competition for investment between provinces and between

Cities 1995 Volume I2 Number 5 367

City profile cities has become a dominant phenom- enon in the Chinese economy. The changing economic situation has also creased a new relationship between central and local governments. Local governments have become more and more reluctant to hand over their economic profits to central government; this has limited its investment power and has led to new legislation in 1993 to establish a new tax regime. All these policy changes have implica- tions for the future of Baoji. Under the current economic situation, central investments in national communication networks in the region will continue, but the continuance of central funds for other industrial developments is now problematic. The city needs to develop its own strategies to attract investment. In 1992 the city government established a High-Tech Indus- trial Development District of 5.8 km 2

for that purpose. This approach is similar to that being adopted by planners in all Chinese cities and even all over the world. The results of this approach are to be seen. A more creative and coherent policy is needed to address the local economy, land- use, living environment problems in the whole city, even the region, in order to establish its competitive position.

References Baoji City Planning Commission (1987)

Land Resources in Baoji Shannxi Peo- ple's Publishing House, Xian

Baoji City Planning Commission (1993) Baoji Regional Territory Development and Innovation Comprehensive Plan consultation draft, June

Baoji City Statistics Bureau (1991) Baoji City Statistics 1991, mimeo, 6-7

Baoji Regional Planning Group (1991)

Baoji Regional Plan 1991-2000, mimeo, 15

Baoji Town and Country Construction and Environmental Protection Bureau (ed) (1984) Planning in Baoji Propaganda Materials 1, 21-31

Brent Hall, G and Zhang, Ji Dong (1988) "Xian' Cities May

Huang, Bao (1984) 'Overall structure of Baoji' in Baoji Town and Country Con- struction and Environmental Protection Bureau (ed) Planning in Baojir Prop- aganda Materials 1, 7-9

Liang, Fuyi (1990) History o f Baoji Shaanxi Tourism Press, Xian

Shaanxi Territory Planning Committee (1989) Shaanxi Province Overall Terri- tory Plan, Shaanxi People's Publishing House, Xian

Wang, Ya Ping and Hague, Cliff (1993) 'Territory planning in China: a new regional approach' Regional Studies 27 (6) 561-573

Zheng, Shenghua (1984) 'Baoji in Prog- ress' in Baoji Town and Country Con- struction and Environmental Protection Bureau (ed) Planning in Baoji Prop- aganda Materials 1, 2-4


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