Exploring the Innovation Path for Historic Building Conservation and Utilization from the Perspective of Planning Governance:A Practical Research Study Based on National Pilot Cities

SHEN Yijia; LI Ziyan; YI Zhaozhao; YANG Hua

doi:10.3969/j.issn.1000-0232.2025.10.002

Abstract：This study addresses common challenges in the conservation of historic buildings in megacities,including fragmented property rights,financial constraints,and technological lag.A case study based on Guangzhou,a national pilot city for historic building conservation,was carried out to explore the innovation path and practice paradigms for the conservation and utilization of historic buildings from the perspective of planning governance.On this basis,a transferable institutional design framework and technical implementation system were developed. The multidimensional methodology used in this study consists of the following elements:(1)A policy text analysis was conducted using 16 core policy documents issued between 2018 and 2025,including Guangzhou Historic and Culturally Significant City Protection Regulations.These policy documents were reviewed systematically.(2)Empirical case studies were chosen to analyze adaptive reuse models and economic performance.These case studies focused on 12 representative projects,including Duobao Road,Baoyuan Road,and the Chengzhitang Warehouse.(3)A technical evaluation of the effectiveness of the digital management system was conducted.The evaluation was verified through quantitative indicators,including 3D survey data of 841 historic buildings and 237 intelligent early-warning records. Guangzhou exemplifies the significance of institutional innovation for historic building conservation practices.The city established the first dual-track subsidy system of"annual maintenance+restoration"in China,with maximum subsidies of RMB 1 million per non-state-owned building,and introduced flexible use management through the Implementation Measures for Promoting the Reasonable Utilization of Historic Buildings in Guangzhou to extend lease terms up to 20 years for projects such as Shawan Ancient Town.With respect to social collaboration,12 co-creation committees were formed.Furthermore,the City Guardians program received recognition from UNESCO,and the Old City,New Vitality partnership initiative selected more than 20 projects.In the area of policy incentives,multiple funding channels were created,including central government budget allocations(RMB 376 million in 2024),local special bonds(RMB 2 billion in Liwan District),and private capital(the build-operate-transfer(BOT)model in Yongqingfang).In the domain of digital management,three major breakthroughs were achieved:(1)A digital 3D archive of 841 historic buildings was created by collecting integrated aerial-terrestrial data,and a Heritage Building Information Modeling(HBIM)database of historic buildings was established.(2)Based on the City Intelligent Model(CIM)+Historic City system,intelligent scheme comparisons and 3D approval processes were developed and applied to projects such as Yongqingfang.(3)A multimodal monitoring system was deployed,which reached an accuracy of 98.2％in fire detection.Empirical evidence highlights further innovative practices.For example,the Chengzhitang Warehouse was adapted into a kindergarten through reversible vertical extension technology,thus expanding usable space.In addition,the Duobao Road project deployed a"spatial GIS+real-time loT+AI early warning"system to avoid fire hazards effectively,while the Baoyuan Road project enhanced ventilation through cavity system guidance technology. The experience in Guangzhou sheds light on three dimensions of innovation value.First,with respect to institutional design,a multilevel regulatory framework balancing incentives and constraints was built.Second,for the city's governance model,a pluralistic co-governance mechanism integrating government leadership,market operation,and public participation was set up.This mechanism helped reconcile conservation-development tensions through flexible use management,property-rights swap agreements,and other means.Third,in the area of technological pathways,an end-to-end digital management system for data collection-modelling-monitoring-decision-making was established,enhancing protection precision and management efficiency. Overall this study proved that it is necessary to realize three shifts in historic building conservation from the perspective of planning governance:from single-building protection to district-wide regeneration,from government-centered management to multi-stakeholder co-governance,and from static preservation to functional continuity.The resulting model provides a transferable institutional design framework and technological implementation system for the effective governance of historic buildings in megacities.