Research on the Spatial Perception of Stakeholders in Brownfield Redevelopment Based on Value Compatibility Analysis

Abstract

Under the current urban renewal background, the subjective attitude of stakeholders directly affects the feasibility of planning projects in the development or protection activities related to brownfield redevelopment. It is key that the public effectively participates in planning and decision-making to explore the suitable expression method of public attitude. In this paper, Jigang, Jinan, Shandong Province is taken as an example. By using participatory mapping and semi-structural interviews, the landscape perceived value of 365 (342 valid) stakeholders in the original site of Jigang is investigated. By using hot spot analysis, correspondence analysis and compatibility index analysis, the spatial composition of public perceived landscape value, the correspondence between landscape value and land use and its compatibility with existing conservation and renewal schemes are revealed. On this basis, three types of brownfield land redevelopment attitude areas are identified. The results show that: 1. The attitude of Jinan Iron and Steel Group’s renewal based on the degree of compatibility is location-dependent, and the spatial difference analysis of this attitude provides more detailed data support for the protection and renewal design, planning management and conflict control; 2. The landscape perceived value of case stakeholders has regularity in spatial distribution and is related to a certain material landscape foundation (land use), which is beneficial in explaining the possible social phenomena caused by landscape change; 3. Participatory cartography combined with landscape value investigation provides an effective method for the study of perceived landscape. Through cartographic visualization, statistical analysis and index model construction, the spatial structure characteristics of perceived landscape value can be revealed. It can provide effective decision support for brownfield urban renewal projects, solve the problem that the current upper-level planning of such renewal is not matched with the actual demand, and improve the vitality of brownfield sites in the development area.

1. Introduction

Social development, economic growth, urban expansion and increasing rates of urbanization are making rapid changes in Chinese cities. At the end of 2021, the urbanization rate of permanent residents in China was 64.72%. According to the estimation of the United Nations, the urbanization rate of developed countries in the world will reach 86% in 2050, and that of China will reach 71.2% in 2050 [1]. In this process of change, the renewal and redevelopment of brownfield land have become a new growth point in the development of urban public spaces [2]. In the redevelopment projects using brownfield sites, due to low public participation, the top-down government and development management departments often collide with the needs of the public, and conflicts occur from time to time, which lead to the redevelopment of brownfield land becoming a hot issue at present [3]. Although more and more attention has been paid to public participation in redevelopment or protection projects relating to brownfield sites, due to the relatively weak position of the public and the lack of consistent views and language with other groups, there are many obstacles to the expression of opinions, such as the way of expression is not clear and cannot be quantified, which makes it difficult to achieve effective participation [4]. Establishing a platform for public opinion expression from the technical level which promotes mutual understanding among different interest groups is a problem faced by public participation.

Geographic Information System (GIS) has powerful data storage, analysis and display functions. It is a powerful tool assisting spatial planning and management, and also a tool to support public participation [5]. However, for a long time, GIS mainly relies upon objective observation data, such as remote sensing, to study the characteristics and changes in physical landscapes such as environment and ecology (such as land use and cover changes), and it is difficult to bring the phenomena related to people’s subjective activities (such as values, attitudes, preferences and experiences) into the analysis category [6]. In fact, in the development or protection projects involving public interests, public attitude is often the direct factor that causes social contradictions and conflicts, and it is also the key to the success or failure of the project [4,7]. Incorporating the subjective activities of the public into the analysis of GIS can greatly enhance its ability to explain complex social phenomena [8]. The expression and analysis methods of public subject activities based on GIS are of great significance to promote public participation and regional harmonious development [9]. Landscape analysis provides a theoretical method for understanding the subjective attitude of the public [10], while GIS, especially the Public Participation GIS (PPGIS) platform, provides a tool for the quantitative expression of public participation activities and the establishment of direct contact with space [6].

There is very little research on community and public participation in the process of brownfield redevelopment by analysis and decision support combined with the GIS system [11]. The research on public participation relating to brownfield redevelopment is mainly concentrated in the fields related to brownfield governance, development and PPGIS, among which the fields with higher correlation are those related to the environment, such as environmental protection, environmental management, etc. [12]. Another relatively concentrated focus is in the field of urban planning, and another related field is the related research on decision support systems combining GIS and public participation [6].

This paper aims to explore the quantitative analysis of brownfield redevelopment stakeholders’ attitudes based on landscape value theory and how it can play a role in supporting decision-making in the brownfield redevelopment process. Using PPGIS as a technical platform combined with the landscape value analysis method, this article selects the Jigang industrial zone site in Jinan, Shandong Province as a case study to explore the composition of brownfield landscape values and the fit between landscape values and conservation, renewal and redevelopment proposals, to obtain the distribution of value compatibility and the spatial characteristics of public attitudes, which provide decision support and development for the smooth implementation of the conservation and renewal planning of the Jigang site. This will provide a decision support and development reference for the successful implementation of the conservation and regeneration plan for the Jigang site.

2. Study Area

The study area is located in the overlap zone between the main urban area and the new kinetic energy conversion pilot zone, the east extends the linkage to the high-tech zone, and the north connects the new kinetic energy conversion pilot zone and the airport. In the future, the Jinan Iron and Steel area and the New East Railway Station will be developed in a coordinated way (Figure 1).

The Jinan Iron and Steel Group Co., Ltd. (hereinafter referred to as Jigang) is located at 21, Industrial North Road, Jinan city, Shandong province. The west side of the Jinan Iron and Steel Group is close to the core area of the New East Railway Station, about 10 km from Yaoqiang International Airport and the Prior Zone for Replacing Old Growth Drivers with New Ones to the north, and about 8 km from Jinan CBD to the south. It will become an important engine of the urban sub-center, driving the development of the eastern region in the future. The surrounding area is the hot spot of Jinan’s development and construction at present. The New East Railway Station to the northwest is under construction, and an urban design plan is being prepared for its core area; construction has started on the new rural city and Wangsheren village resettlement area on the east side, and planning conditions have begun for the Zhangmatun area adjacent to the Bai Quan Wetland Park in the north; the new village of Jigang and other living areas are adjacent to the south.

3. Theoretical Study

3.1. Landscape Value Analysis

Landscape value analysis provides a way to understand the subjective attitude of the community. The theoretical basis of this analysis is rooted in transactionalism, which holds that people, as active landscape factors, interact with landscape (thinking, experiencing and activities), and endow landscape value with perception through a certain social and cultural background [4]. On the other hand, people are attached to this kind of landscape and value system which realizes personal efficiency and identity, and influences people’s attitudes, choices and behavior orientation [13]. As landscape value relates human value assignment with space and reflects human subjective importance and its spatial distribution, it is beneficial to reveal the social suitability of a given project from the perspective of spatial planning and management and to help understand the public attitude toward a given project and potential conflict points of different interest groups [14].

Landscape value analysis technology (LVM) is used to map the landscape value perceived by the public and to analyze its spatial characteristics, to find the possible land use mode coordinated with the landscape value [14]. In the past ten years, landscape value analysis has been used in various fields of natural resources protection to improve the quality of planning and management, such as in national forest management [15,16], the management of national parks and protected areas [17,18], the management of coastal zones [19,20], urban parks [21], river wetlands [22], etc. Brown and others have made useful explorations in this field. Based on previous studies, Brown summarized 12 basic landscape value types for natural landscapes (forests and national parks), including aesthetics, economy, recreation and environmental support, which made the landscape value types more comprehensive and universal [23]. In recent years, Brown et al. discussed the suitability of the spatial layout of two kinds of motor vehicle tourism projects in Mt. Hood National Forest Park and evaluated the management departments’ rationality of the tourism planning of the space [24].

For the value types used by the Jinan Iron and Steel Group’s public participation from the Brownfield Redevelopment Research Institute, reference is made to Brown’s classification of landscape values [23]. Although the classification has certain universality, some types are not suitable for the Jinan Iron and Steel Group’s research. The Jinan Iron and Steel Group’s industrial zone is located in the eastern part of Jinan city in Shandong province. The main land types are industrial site protection, urban public space construction, commercial development and residential land. According to the actual situation in this area and the evaluation and classification of industrial heritage value in combination with the “Nizhny Tagil Charter” [25], the value selected in this study includes six types of value. The historical value, cultural value and artistic value are considered at the level of site protection, and the social value and environmental consideration and leisure value are considered at the level of public demand. It basically covers the value composition of the main industrial sites in the research area. According to the “Nizhny Tagil Charter” [25], “Wuxi Suggestion” [26] and“Hangzhou Consensus” [27], the detailed criteria and basis is designed for this research (see

Table 1. The description of brownfield landscape value and brownfield redevelopment preferences.

Value Types	Description
Historical value	Has certain historical significance, has certain popularity in the production history, and is closely related to historical events, relevant figures, production and life.
Cultural value	It has a certain popularity in industrial culture, bears the memory of industrial culture, and is conducive to the science, education and dissemination of industrial development history.
Artistic value	Buildings, structures and production facilities have distinct industrial characteristics and post-industrial aesthetic values.
Social value	Contribute to regional development and develop and help to improve social resource conflicts.
Environmental value	It is helpful in the restoration of the polluted environment.
Leisure value	Within the scope of the survey, places that can make people relax and feel happy have the potential to form a public space.

). The contents of the survey are mainly used to explain the distribution characteristics of the redevelopment value of the brownfield land.

3.2. Geographical Information System

GIS is considered a powerful tool to assist spatial planning and management because of its powerful data storage, analysis and display functions, and it is also considered to support public participation. However, for a long time, GIS mainly relies on remote sensing and other objective observation data to study the characteristics and changes in physical landscapes, such as environment and ecology (such as land use and cover changes), and it is difficult to bring phenomena related to people’s subjective activities (such as values, attitudes, preferences and experiences) into the analysis category [2,3]. In fact, in the development or protection projects related to public interests, the public attitude is often the direct factor causing social contradictions and conflicts, and also the key to the success or failure of the project [4,28]. If GIS can bring the subjective activities of the public into its analysis, it will greatly enhance its ability to explain complex social phenomena. Therefore, exploring a representation and analysis method of public subjective activities based on GIS is of great significance in the promotion of public participation and harmonious regional development.

4. Data Acquisition and Processing

The research uses a map-based questionnaire to obtain public perception data. It involves participatory mapping, questionnaires and semi-structured interviews.

The participatory mapping (PM) method is the main method of data acquisition in the participatory geographic information system (PPGIS) [29]. Mapping data obtained by the PM method focuses on the active expression of the community peoples’ perception of community land use, development planning, landscape change and ecological protection through mapping, emphasizing the formation of understanding of local knowledge, and social or cultural phenomena from bottom to top [14]. The semi-structured interview is a typical qualitative data collection method. it conducts flexible interviews around certain topics, leaving sufficient room for interviewees to express their ideas in their own language [30], which helps to further understand the interviewee’s views thereby improving the richness of the interview data.

The core of this method requires the interviewee to mark the place or area that he thinks has some value with numbered marking points on the survey map prepared in advance, and to state the reason.

The survey uses maps with detailed marks as the basic layer to analyze, classify and code points or areas with different values in the site, and attach corresponding value type options. At the same time, the survey questionnaire is used to record the demographic characteristics of the interviewees. In addition, the interest demands of stakeholders are recorded by semi-structured interviews.

4.1. Identification of Interviewees

In order to make the sampling more accurate, the tested population was first classified, and then random sampling was conducted from each category. Therefore, the survey adopted a stratified random sampling design to select the interviewees. Samples were taken according to different levels of participants. For the level of site protection, experts in relevant fields were taken as the main survey objects. The experts involved here included government management personnel, professional appraisers in the field of site protection and researchers in relevant aspects of colleges and universities (environmental research, brownfield management, industrial heritage, building renovation, etc.); according to the public demand level, all kinds of stakeholders in the site are taken as the survey objects for sampling.

Sampling should pay attention to demographic characteristics to ensure balance (e.g., male–female ratio, age groups, cultural level, etc.), and for local residents, a relatively uniform distribution around the site should be ensured.

4.2. Survey Process

Firstly, the interviewee was shown a map, and map information and main surface features were introduced through a three-dimensional model and a panoramic scene display mode to help the interviewee establish a spatial concept and form an intuitive impression of a spatial scene, and, at the same time, a schematic diagram of the current site pollution distribution was displayed, to help the interviewee understand the current site pollution situation.

Secondly, the meaning of different brownfield landscape values and preference types was introduced to the interviewees. The interviewee was required to mark the places of personal value and preferences with marked points on the map, and each value or preference type was marked with a point, and according to the degree of importance, and where appropriate, scores out of 100 were given.

Thirdly, the current regional planning scheme was introduced and the interviewees were asked to evaluate the impact of the current scheme against their marked values in combination with the site pollution situation and personal opinions.

It can be seen from Figure 2, 365 basic samples were collected and 342 valid questionnaires were obtained through preliminary screening. In total, 6010 POIs were collected through the map-based questionnaire survey.

5. Analysis and Results

5.1. Characteristics of Samples

A total of 342 valid questionnaires were obtained. From the sample composition, the ratio of males to females was 44.87% and 55.13%, respectively, which is basically balanced; In terms of age composition, the respondents aged 26–30 accounted for 3.51%, those aged 31–40 accounted for 9.94%, those aged 41–50 accounted for 51.17%, and those aged 51–60 accounted for 18.42% (

Table 2. The proportional distribution of respondent age.

Age	Subtotal	Proportion
18~25	58	16.96%
26~30	12	3.51%
31~40	34	9.94%
41~50	175	51.17%
51~60	63	18.42%
Number of valid person-times	342

). White-collar workers represented 7.6% of the respondents, 19.88% were blue-collar workers in Jigang, 17.25% were nearby residents, 11.7% were related freelancers, and 25.73% were nearby retirees (

Table 3. Population structure of respondents.

Option	Subtotal	Proportion
White-collar office staff (including Jinan Iron and Steel factory staff)	26	7.6%
Blue-collar staff (including Jinan Iron and Steel Factory staff)	68	19.88%
Academic researcher/teacher	11	3.22%
Civil servants/government official	5	1.46%
University student	45	13.16%
Jinan Iron and Steel and Factory district zone resident	59	17.25%
Freelancer	40	11.7%
Retirees	88	25.73%
Number of valid person-times	342

).

5.2. Spatial Cognitive Distribution of Landscape Value

The point density mapping analysis was carried out for the preparation of the value compatibility analysis (VCA). The density of discrete value points is estimated to obtain smooth and continuous data for correspondence analysis and consistency analysis. Using the Kernel Density tool [22] in ArcGIS software, the value point weight is used as the input field, and the analytic hierarchy process (AHP) method is used to calculate the weight of each value point. Through experiments and referring to relevant research [20], the size and search radius of the output grid are set to generate grid density layers of relevant values.

5.2.1. Historical Value

According to the distribution of historical value points (Figure 3a), it was known that the largest 3200 m³ steelmaking blast furnace in the Jinan Iron and Steel Group Co., Ltd. and its landmark equipment in its affiliated area, including the largest gas storage tank, have become the most popular landmark equipment in the site as the largest and highest production equipment in the base, bearing the historical memory of the Jinan Iron and Steel Group Co., Ltd.’s production and development, deservedly becoming one of the most historical industrial heritages. In addition, the interviewees agreed that the Arc de Triomphe-like main gate of the factory bears a high historical memory and becomes an industrial heritage with extremely high historical value, which is similar to the status of the big blast furnace. In addition, the row of silos of the wide and thick plate plants, steel rolling plants and coking plants close to the office area, the streamlined steelmaking processing built in the later period, and some finished product processing workshops have also been endowed with higher historical value.

5.2.2. Culture Value

In terms of cultural value (Figure 3b), the 3200 m³ blast furnace and its affiliated parts and the Arc de Triomphe-like south gate are also considered to have extremely high cultural value. On one hand, the Arc de Triomphe-like gate is beautifully made with rich ornamentation and relief, bearing the cultural memory in the process of plant development; on the other hand, the most important equipment and a key link in the steelmaking process, the blast furnace is an important carrier of the inheritance of industrial culture and has a profound cultural connotation. In addition, the row of coking plants silos, power plant cooling towers and some finished product processing plants, especially the wide and thick plate plants and small rolling mills near the office area, also reflect certain cultural values because they include some traditional Chinese architectural elements.

5.2.3. Social Value

In terms of the social value of Jigang (Figure 3c), it is mainly concentrated in the 3200 m³ blast furnace and its auxiliary equipment, the office area, the nearby wide and thick plate factory and other factories in good condition, as well as the steelmaking workshop along the urban expressway. Among them, the blast furnace and steelmaking workshop contain the almost-complete streamlined steelmaking process, except for the raw material processing, which is the most important streamlined process in the steelmaking process; In addition, buildings such as the office area and the nearby wide and thick plate factory are intact and have distinct Chinese elements which have witnessed great changes in Jinan’s industrial development and have extremely high social value.

5.2.4. Aesthetic Value

In the investigation of the aesthetic value of Jigang (Figure 3d), the 3200 m³ blast furnace and its affiliated structure have been recognized by the vast majority of people. Its unique position and unique image in the steelmaking process have become the most distinctive symbol of Jigang, a landmark in the area, and the best monument bearing the development memory of the Jinan Iron and Steel industry. Secondly, the silo building of the coking plant and the Arc de Triomphe at the south main gate are also considered to have high industrial aesthetics with their unique forms. In addition, several other ironmaking blast furnaces and power plant cooling towers are also considered to have certain aesthetic value because of their special image.

5.2.5. Environmental Value

It can be seen from Figure 3e that Jinan Iron and Steel Co., Ltd. has high potential ecological and environmental value. From the perspective of people’s perception, it is of great significance to upgrade the three large stockyards of Jinan Iron and Steel Co., Ltd. for improving their environmental conditions. In addition, three blast furnaces including the 3200 m³ blast furnaces and coking plant silos were also considered for rectification, which will obviously improve the surrounding environment of the site. In addition, the renovation and management of gas treatment companies would help improve the environment here.

5.2.6. Leisure Value

Jinan Iron and Steel Co., Ltd. has high leisure value (Figure 3f), which is mainly reflected in the fact that buildings, production equipment and venues on its site can be used to provide leisure and entertainment functions after renovation. Most interviewees believe that the square around the blast furnace is suitable for being transformed into an art performance venue for local community activities, the old air tank can be used as a place for art exhibitions and activities, and the tall factory buildings and outdoor venues along the main roads in the south of the site can provide leisure and entertainment venues for the surrounding communities. The original wide and thick plate factory could be used as a public leisure place such as a concert hall because of its good quality.

5.3. Correspondence Analysis of Landscape Values and Land Use Types

Correspondence Analysis was used to analyze the relationship between the perceived value of the landscape and the objective elements of the landscape in spatial distribution, and to help explain the spatial characteristics of compatibility. The land use type map was overlayed with the Kernel Density raster layer, and the regional statistical tools in ArcGIS software were used to count the density values of six landscape values in three land use types. SPSS software was used to carry out correspondence analysis and generate scatter diagrams of the correspondence analysis.

According to the regulatory detailed planning and urban design scheme, the research analyzes three land use types: public space, commercial land and residential land, and analyzes their spatial distribution relationship with six landscape values. Using the correspondence analysis method, the corresponding relationship between the six types of landscape values and the three types of land use involved in this study was studied. The dimension was selected as two, the row variable (landscape value) and column variable (land use type) were set, then, SPSS was used to obtain the coordinate values in the two dimensions, and the corresponding analysis chart (Figure 4) was drawn. According to the distance between the scatter points and the origin and the distance between the scatter points, we can see that there are many corresponding relationships between the six landscape values and land use types, but each has its own emphasis.

Among the six landscape values, leisure value and social value are located in the first quadrant. It can be seen that the places with higher leisure value perceived by residents are closely related to commercial land in land use types. Artistic values and cultural values are located in the second quadrant, which is mainly related to public space. In addition, the historical value is distributed in the third quadrant, which corresponds to public space as well as artistic value and cultural value, reflecting that these three landscape values are closely related to public space. The environmental value is distributed in the fourth quadrant, and the corresponding land use type is residential land, which reflects the increasing demand from residents for the environmental quality of living space, and a good environment is beneficial to living space.

5.4. Value Compatibility Analysis

The VCA calculation was carried out. According to Brown’s VCA [23], the landscape value compatibility index (LVCI) is introduced [5] to reveal the overall compatibility of brownfield redevelopment value with given planning, pollution distribution, management projects and related policies, and to judge community attitudes and their spatial distribution characteristics. The formula for calculating the degree of compatibility [23] is as follows (the grid is used for calculation):

$$LVCI=\frac{R}{R_{max}}\times 10$$

(1)

$$R={\displaystyle \sum }_{i=0}^n{C}_i{V}_i$$

(2)

where LVCI represents the compatibility value of a grid; R represents (i = 0) the aggregate value of a grid value density; R_max represents the highest density aggregate value in all grids; n represents the number of landscape value types owned in the grid; C_i indicates the compatibility coefficient of a Class I landscape value with planning and management projects, ranging −5 to 5; and V_i represents the density value of the Class i landscape value in the grid.

During the interview and investigation, the interviewees were asked to describe the impact of the current brownfield redevelopment plan on its marked values to understand their views on redevelopment. Based on the analysis of the interview content, the compatibility coefficient between the six landscape values of community residents and the redevelopment plan is determined through comprehensive judgment. Interviewees were asked to assign a compatibility score for each value relationship on a scale that ranged from −5 (the brownfield landscape value from interviewees and current planning are highly incompatible) to +5 (the brownfield landscape value from interviewees and current planning are highly compatible) based on the definition of the brownfield landscape value and the likely effects of the activity. An assigned score of 0 would indicate no apparent or obvious relationship between the brownfield landscape value and the interviewee. Each of the value relationship scores represents a subjective judgment on the part of the rater. The compatibility coefficients of six landscape values are shown in

Table 4. Compatibility coefficient in redevelopment preferences.

Values	History Value	Culture Value	Leisure Value	Social Value	Aesthetic Value	Environmental Value
Compatibility coefficient	2.94	2.87	2.13	2.16	2.03	1.81

.

The degree of value compatibility reflects the comprehensive compatibility relationship between the six landscape values perceived by stakeholders and the renovation and renewal scheme, thus helping to judge the attitude of stakeholders in Jigang toward the renovation and renewal scheme and its spatial change characteristics. As shown in Figure 5, the degree of compatibility is divided into 10 grades from −1.5 to 10, forming obvious spatial differentiation characteristics in the whole study area, first by forming a positive compatibility distribution center. The degree of compatibility of the 3200 m³ blast furnace and the south gate area is greater than 5.00. This area is mainly protected land and green space, and historical value, artistic value, social value, leisure value and cultural value are concentrated in this area, forming a high-value center. Secondly, the distribution center for the negative degree of compatibility is formed. In the site area, the compatibility of several stacking areas, stockyards, gas processing, storage and chemical plants where coal mines, iron ore and other related raw materials were stacked is negative (−1.5~−0.4), showing incompatibility and forming a center. Because this area is the core area of industrial production in Jigang and its pollution degree is high, the landscape value of this area is negatively compatible with renovation and renewal. Thirdly, the positive low-value degree of compatibility region is formed. On the periphery of the two positive compatibility centers, a positive low-value degree of compatibility region (0.5~2.4) is formed. These areas are in a position of excessively high value to low value, and there are few perceived value points, resulting in low compatibility; the area along the east–west urban expressway and viaduct on the south side of the base has a degree of compatibility of 0.1–2.0. Because of its convenience along the street, it is basically far away from the core zone of industrial production, and in addition, the positive value and negative value are mixed and replaced, so it also forms a belt area with a positive low-value degree of compatibility. From the degree of compatibility, four potential public attitude distribution areas can be distinguished: the 3200 m³ blast furnace and south gate area with support as the main attitude area; chemical plants, coal mine storage areas, iron ore stockyards and silos are mainly conflict-oriented attitude areas; the surrounding area of the blast furnace and south gate and the area along the south main road belong to the mixed attitude area of support and conflict; and other low-value areas are areas where attitudes are not obvious.

6. Discussion

The continuous development of urban industrial areas and socio-economic changes have highlighted and complicated the contradictions in urban development, especially in the regeneration and redevelopment of brownfield sites. Scientific knowledge and rational descriptions often do not exclude different stakeholder groups from questioning the rationality of development, and the groups concerned judge and act on the phenomenon based on their own values, local perceptions and interests, often making urban brownfield regeneration and development decisions controversial and causing conflicts. While the importance of establishing a common ground for multiple groups in the development decision-making process has been widely recognized, in practice, understanding differences and conflicts can be even more helpful in understanding the communities involved in brownfield site developments, and thus in reaching an agreement on management decisions.

This paper uses participatory mapping to obtain subjective data, combined with GIS for spatial visualization and modeling analysis to reveal the spatial characteristics of conflict tendencies in the study area based on demonstrating differences in perceived brownfield landscape values. From the results of the study, potential conflict sites were identified, all of which had multi-population differences in value perceptions.

The perception of landscape value reflects the importance of locations. From this paper, the distribution of landscape value in the study area shows a significant concentration and there is a high overlap between the high-value locations of landscape value and the high-value points of attitudes and their overall differences, and this overlap makes some areas potential conflict areas. The overlap between attitudes and importance suggests that the two are intrinsically linked, which is consistent with the findings of established studies that locations of common interest to multiple populations are also locations where multiple values and use expectations converge and are prone to attitudinal clustering, variation and conflict [31,32].

The compatibility distribution is influenced by the compatibility relationships and spatial distribution characteristics of the six landscape values and conservation and regeneration options. The results of the corresponding analysis show that the cultural, social, aesthetic and historical values in the study area are mainly distributed around the public space land type, which is characterized by a spatially clustered distribution, mainly in the 3200 m³ blast furnace and south gate areas, which results in a high concentration of positive compatibility and larger values. The recreational and environmental values correspond to commercial and residential land uses. These land types are characterized by a dispersed distribution in space, which makes the absolute value of negative compatibility low. Although the absolute values of positive and negative compatibility differ, they generally reflect the spatially variable characteristics of community attitudes.

From the results of the study, stakeholders’ perceived landscape values are spatially in the form of aggregated distribution, mainly around their relevant spaces and spreading to the periphery, forming value hotspots in some places, such as around blast furnaces and gates. Perceived value is the result of long-term interaction between stakeholders and the environment. Industrial production sites are closely associated with people. Therefore, it becomes a concentrated distribution area of local perceived values [3]. In addition, some special places, as icons of the local environment, influence the formation of residents’ sense of place and become hotspots of perception, such as the 3200 m³ blast furnace area and the gate area. There is an inherent relationship between land use types and landscape values in the study area. There are many correspondences between the six landscape values and the land use types, but each has its own focus. The landscape values carried by different land use types influence residents’ sense of place, personal identity and community identity, so changes in landscape values resulting from changes in land use may be resisted by the community and may lead to attitudinal conflicts and social tensions. This logical relationship between planning and management, land use, landscape values, attitudes and behavior offer a new way of thinking about understanding community issues.

GIS spatial analysis has been criticized for its difficulty in dealing with subjective data [28]. Some scholars have attributed the reasons for this to two things: firstly, the lack of methods to obtain spatially accurate subjective data; and secondly, the spatially variable nature of subjective data makes it difficult to integrate and analyze with traditional objective data [14]. Participatory mapping technology, which collects structured spatial information of attitudes and value types by means of point data and mapping, has better solved the problem of obtaining subjective data. In the case of Jigang, the control of data accuracy becomes the key to the work due to public participation in the mapping process. In this paper, some aspects were found that may affect the accuracy of the data: firstly, the uneven map reading ability of the participants may produce errors; secondly, there are many landmarks in some parts of the study area, where point-like features are obvious and easy to identify, and the accuracy of filling in the map is high, while there are few landmarks in other relatively open areas, which are surface work areas, and the interviewees fill in the map in a more variable position, which may underestimate the concentration of attitudes and values. Both of these problems require more careful map reading and map preparation, an in-depth interview-style survey process, richly annotated and visualized maps or images, and the use of other supporting images or textual information would help to improve this situation.

7. Conclusions

This paper examines the redevelopment of urban brownfield sites from the perspective of public participation, taking the Jigang industrial zone in Jinan, Shandong province, China, as an example. Based on the theory of landscape value analysis, the public’s attitudes toward development were quantified, the corresponding attitudes were integrated with spatial information using the PPGIS tool, then the correspondence between landscape values and development attitudes was analyzed, and finally, a value compatibility analysis was conducted to analyze the relationship between the planning scheme and public attitudes and their distribution in space, resulting in three main conclusions. First, the public attitude toward the Jinan Iron and Steel industrial site based on the degree of compatibility was location-dependent, which can be divided into four attitude types. This spatial difference in attitude provides more detailed social data support for urban planning management and conflict control. Secondly, the landscape perceived value of stakeholders in the case community has regularity in spatial distribution and is related to a certain material landscape foundation. The understanding of the relevance of a certain region is conducive to explaining the possible social phenomena caused by landscape change. Thirdly, participatory cartography combined with landscape value investigation provides an effective method for the study of perceived landscape. Through cartographic visualization, statistical analysis and the construction of an index model, the spatial structure characteristics of perceived landscape values are revealed. It provides effective decision-making support for brownfield urban regeneration projects, solves, to a certain extent, the current problem of mismatch between upper-level planning and actual needs and improves the vitality of redevelopment areas.