Old lanes, new urban economy
Today, the shopping area is centered around two main trunk streets, Shida Rd. and Longquan St., and occupies about 18.5 hectares bordered by Heping E. Rd. to the north, Pucheng St. to the west, Taishun St. to the east, and Roosevelt Rd. to the south. In the map below, it is the area in red plus the area in yellow. However, only one hectare, marked in red, is actually zoned for “commercial use.” (The orange is National Taiwan Normal University, known as “Shida,” which gives the shopping area its name.)
Under the law that provides the basis for Taipei’s land use system, except for that one hectare, the remainder of the area around Shida Rd. is zoned as a “Type 3 residential area.” It is by no means completely illegal to open a place of business in an area of this category, but there are limiting conditions. Specifically, if the road onto which a property faces is eight meters wide or more, it is legal to open a restaurant, coffee shop, clothing store, convenience store, and the like. Along roads six to eight meters wide, it is legal to open a shop providing basic services for daily life (such as hair cutting or shoe repair) so long as the premises are smaller than 150 square meters. Theoretically, no commercial activity of any kind is permitted in lanes narrower than six meters.
Statistics from the Taipei City Office of Commerce show that in 2009 there were between 400 and 500 registered stores in the Shida shopping area. By early 2012 this number had grown to almost 700, some of which were located in the one hectare zoned for “commercial use,” and others of which conformed to the requirements for Type 3 residential areas, but over 350 of which were in violation of zoning regulations. In other words, at that time, already more than half of all the businesses in the area were illegal.
How is it that the Shida shopping area grew so rapidly?
Lin Chien-yuan, a former vice-mayor of Taipei City and now a professor in the Graduate Institute of Building and Planning at National Taiwan University, notes that the shop owners are simply responding to the presence of shoppers—demand—in the neighborhood. Any neighborhood that is currently attracting shoppers will inevitably attract more businesses. Secondly, the Shida shopping area is also a night market, and in urban areas people increasingly move their leisure behavior from the daytime later and later into the night, meaning night markets are likely to have an ever-larger consumer base. Third, the expansion of the MRT system has also made it easy for people who live outside of the downtown area to stay there after work, or to come in from the suburbs, for food, shopping, and leisure. Finally, central and local government tourism bureaus have been promoting night markets and cultural zones to tourists (both terms apply to the Shida shopping area), further stimulating growth in such neighborhoods.
It is nothing new to Taiwanese to have convenience-chain outlets, mom-and-pop stores, bakeries, and the like little more than a short walk from their front doors. Almost all neighborhoods in Taiwanese cities are “mixed” districts in this sense. The Taiwanese lifestyle built around mixed zoning has provided fertile ground for the rise of shangquan, including the Shida shopping area. But this factor alone cannot explain how businesses have saturated every lane and alley in entire neighborhoods.
The regulatory regime has also been permissive. The Ministry of Economic Affairs used to have a unified system for issuing a permit to open a profit-making enterprise, under which the owner of a shop would first have to get approval in the areas of urban planning, architectural coherence, fire safety, and so on, before permission would be granted. However, because this was seen as too complicated and time-consuming and therefore a hindrance to economic development, in 2009 the Legislative Yuan revised the law to separate the registration of businesses from government oversight, so that shop owners could simply register as a company, rent a space, and go into operation without any official personage ever setting eyes on the place of business.
This reform measure created a window of opportunity for entrepreneurs. If it turns out that the space for a new shop is not zoned for commercial purposes, the shop owners simply ignore the law and open for business. In their minds, what other choice do they have? Many of them are young creative types with few resources—they couldn’t survive except in a situation like this.
In late 2011, seeing the need to rein in the Blob-like expansion of the Shida shopping area, the city government created a one-stop window where citizens could find out whether a given business location conformed to zoning regulations. But this did not resolve the problem for businesses that were already open.
The contradictions to be found in the Shida shopping area can be traced not only to a lack of consistency in the government’s regulatory policies, but also to the fact that capital flows in recent years have driven up the price of real estate, bringing changes to the types of businesses operating in shopping areas.
“Rent for first floor space is about NT$10,000 per ping [3.3 square meters]—it’s really at the point of being out of control,” observes Chen Junhong, manager at the Shida–Yongkang branch of Sinyi Real Estate. This has produced various effects. For one thing, many of the traditional shops serving the local residents and university community—like bookshops and cheap restaurants—have been forced to move out because they lack high profit margins. They have been replaced by boutiques and other stores with higher profit margins that will attract more outside shoppers. Where once the neighborhood had a “university town” feel, it now feels more like a bazaar. The new stores also have to stay open as late as possible to make enough money to pay the rent.
To make the situation more complex, these shops are not necessarily illegal. The city government manages zoning based on a simple list of categories of stores that are allowed in Type 3 residential neighborhoods. Clothing stores are on the list, so are legal. The problem is that the rules governing Type 3 neighborhoods are supposed to serve the interests of residents, and were drafted with the idea that only one or two shops of each category would open on each street. The rules were not intended to legalize the transformation of every first floor space in an entire residential district into boutiques selling fashions and accessories! The problem, then, is not that zoning laws do not in principle separate commercial and residential districts, but that there is no overall regulation or implementation of the intent of the laws on a neighborhood scale.
The controversy over the Shida shopping area has brought to the surface many problems that had long remained hidden. It is symptomatic of the kinds of challenges faced when people’s actual behavior no longer fits easily within city planning rules. Many of Taipei City’s best known shopping neighborhoods, including Yongkang St., Zhongxiao E. Rd. Sec. 4 (the “East District”), the area around Zhongshan MRT Station, and Tonghua St., are likewise Type 3 residential areas. So what can be done now?
The biggest winners in the Blob-like growth of the Shida shopping area have been owners of first-floor properties and real estate agents. People living on the second floor or higher have, on the contrary, seen their lives disrupted and the resale value of their homes drop. (facing page, middle and bottom) The Shida shopping area boasts a huge variety of cool foods, and has attracted a large number of hip young entrepreneurs looking for relatively inexpensive space.