In 2004, “Ordinance Regarding the Preservation of Historical and Cultural Cities, Towns and Villages (ORPHCC) as liased as a remedy which including the key planning guidelines instructions as follows: (1) preservation of the overall style and featured townscape of conservation areas; (2) preservation of authentic historical features and heritage; (3) incremental renovation; (4) improvement of environmental quality and infrastructure as well as residents’ living standard; (5) encouragement of public participation in conservation… fall short of clarity and specification of how, this illegibility will certainly lead to a uneven consequences. For example, Xi’an municipality promulgated and implemented the ORPHCC program", which regards the heights, FAR, restoration styles (material, color, elevations) and so on for regeneration in depilated housing districts. Under the slogan “reestablish the old as ancient (xiu jiu ru jiu) ” as a vividly description. It in a way emphasizes the architectural language only, but neglects the local residents and business as the matrix of culture\cite{Zhang2008}. At the same time, regulations the ordinances transformed from the national level are rather general literal instructions, when they are interpreted by the comprehensive plan in the local level, it creates the real gap between the general goal to the actually result. (According to incomplete statistics, in China, there are 83 kinds of statutory planning compiled by the governments at various levels as authorized by law, of which the economic and social development planning (National Development and Reform Commission is the competent authority at national level), overall land use planning (Ministry of Land Resources is competent authority at national level) have the closest relationship with the urban planning.) (Fig.10)