Evolution of Japan s National Development Plan

Transcription

1 Evolution of Japan s National 1. History of National Japan s National, a fundamental document for the use, development and conservation of the land of Japan, was formulated under the Comprehensive National Land Act enacted in 1950 and executed in Since 1962, five National s have been formulated at approximately 10-year intervals. The first National was prepared in 1962 during the time when Japan was verging on rapid economic growth. The target of doubling the national income introduced by the then Prime Minister Hayato Ikeda was the main pillar of the plan. With the basic agendas of preventing over-expansion of cities, efficient utilization of natural resources, and optimal regional allocation of capital, labor and technology, balanced development among regions was set as the objective. To realize this, the concept of growth poles was adopted whereby the development of core areas/cities caused a positive chain-reaction with surrounding areas and cities. The New (2nd) National of 1969 advocated the creation of healthy environment for humans, encompassing harmonization between humans and nature, realization of a safe and comfortable environment, and nationwide grass-roots development. Priority was placed on promoting large projects such as the Shinkansen super rapid train and expressways, as large projects were thought to lead to balanced national land use and resolve overcrowdedness and depopulation issues. The third National of 1977 aimed to lead Japan to stabilized growth, at a time when resources and energies were recognized as finite. The basic objective improvement of total environment for human habitation stemmed from goals to improve the quality of life as well as conserve national land. Through the concept of balanced settlement, control of the concentration of population and industry in large cities were clearly stated. The fourth National was created amid excessive concentration in Tokyo, industrial restructuring and globalization. The basic objective establishment of multipolar national land structure was intended to revitalize regions, create safe and high-quality national land as well as reformulate world city functions. Local initiatives and creativity were stressed in the concept network of interaction. 1

2 Year of Cabinet Approval Target Year Basic Objective Concept Investment amount 1 st National New (2 nd ) National 3 rd National 4 th National Grand Design for the 21st Century (5 th National ) Balanced development among regions Growth pole Creation of healthy environment for humans Large projects Approximately trillion yen for 20-year period (1965 money value) Improvement of total environment for human habitation Balanced settlement Approximately 370 trillion yen for 15-year period (1975 money value) Establishment of multipolar national land structure Network of interaction Approximately 1,000 trillion for 15-year period (1980 money value) Initiation of multiaxial national land structure Participation and partnership Figure: Comparison of Five National s 2. Grand Design for the 21st Century (5th National ) The latest plan, entitled Grand Design for the 21st Century, was prepared in 1998 at a time when stagflation still gripped Japan after the early nineties bubble economy, and depopulation and an aged society were not far away. Advances in information and communication technology in the 90s dramatically changed the style of life and business. At the same time, global environmental issues had become an inescapable problem. In a significant shift from the previous plans, the investment amount was not indicated in the Grand Design for the 21st Century. Instead, initiating multiaxial national land structure was stressed with the phrase grand design. Local decision-making and responsibility is to be achieved through the participation of various parties and partnership among regions and with overseas countries. The Grand Design comprises four themes. The first is habitation in rich nature, focusing on revitalizing small cities, agricultural and fishing villages, and mountainous areas. The second is urban renovation aimed at restoring and utilizing urban spaces, especially of 2

3 large cities. The third is a proposal to create national axial zones for regional partnership. In addition to the dominating Western Japan national axial zone (or Pacific Ocean Coastal National Belt) covering all three of the largest megalopolises of Tokyo, Nagoya and Osaka, the creation of three new axial zones was proposed. The fourth is to establish international interaction areas in which each area communicates with the world directly rather than via Japan s mega cities. Japan Sea Coastal Northeastern New Pacific Ocean Coastal Western Japan (Source) Ministry of Land, Infrastructure and Transport Figure: Image of the Four s Topics for Discussion 1. Does your country have a national development plan? 2. How does your country balance national land use as well as regional economy, especially in the context of large cities versus small cities? 3. How is local initiative and creativity induced in your country? 3

4 Decline of City Centers 1. Present status of city centers Japanese cities have traditionally developed with a strong core in the central area, the location for everything necessary for daily living, from grocery stores to shopping centers, from public facilities to community facilities. The typical scenery comprised vibrant commercial strips stretching from every train station. However, motorization changed this basic city structure. People with cars moved to the outskirts of cities and roadside stores offering easy car access quickly became popular. Public facilities, including city halls, cultural and sports centers, hospitals and universities, also moved out of the crowded central area, which spurred its general decline. As the following table shows, the number of residents in city centers and the proportion to total residents in the city have continually decreased, irrespective of city population. Many stores have closed down and the once vigorous commercial strips are now referred to as shutter streets. The increase in aged population is also apparent in city centers. (Thousand persons) (Share in entire city) , , , ,000 Over 500,000 Over 500,000 Number of residents Share (Source) Ministry of Land, Infrastructure, and Transportation Figure: Number of residents in city centers 4

5 2. Issues in planning system Urban sprawl, or the unplanned spread of urbanized areas, is the main culprit behind the decline of city centers. Thanks to motorization, wider areas have become accessible. The relatively low price of land in the suburbs has attracted private development as well as public facilities. As for retail, small sleepy towns generally welcome large shopping malls, anticipating a boost to the local economy. This is typical fiscalization of land use. Thus, the intention of local authorities often conflicts with that of upper-level authorities (prefectural and central governments) who approach urban structure from a wider geographical perspective. The present Japanese planning system has little impact on regulating the location of regional shopping centers. As indicated below, local authorities basically choose from two zoning patterns: one with an urbanization restricted area that is meant to prevent urban encroachment, and one that leaves a so-called white area in which almost any land use is allowed. The white area has been left unrestrictive in terms of land use because it is remote and sparsely populated. Today, however, motorization has made it possible to drive to white areas. Construction of bypass arterial roads has made agricultural areas on city fringes suitable for commercial developments. Developers approach agricultural landowners who may opt to rent their properties for urban-type development that generates higher yields than with agriculture. In addition, a number of loopholes allow the development of urban facilities in urbanization restricted areas. Pattern 1 Pattern 2 Urbanization restricted area Use districts City planning area Outside city planning area Outside city planning area White area Use districts City planning area Figure: Basic land use regulation in Japan With the exception of some low-rise residential zones, regulations inside use districts are quite lucrative. The number of shopping centers located in commercial zones has decreased in the three major metropolitan areas (Tokyo, Osaka and Nagoya) as well as outside these areas. The number of shopping centers in white areas outside the three 5

6 metropolitan areas has increased considerably (17% for the period of compared to 3% before 1980). 0% 20% 40% 60% 80% 100% Residential Commercial Industrial Urbanization reserved area "Not-lined white area" Outside city planning area Three metropolitan areas (Tokyo, Osaka and Nagoya) 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% Residential Commercial Industrial Urbanization reserved area "Not-lined white area" Outside city planning area Outside the three metropolitan areas (Source) Ministry of Land, Infrastructure, and Transportation Figure: Zoning of locations for regional shopping centers (over 3,000 m 2 ) As for public and quasi-public facilities outside the three major urban areas, approximately 40% of hospitals and 70% of welfare facilities are located outside use districts. In response to such issues, revision of the City ning Law is being discussed as of this writing in order to restrict large shopping centers in the zoning of white areas as well as to tighten actual development approval practices in urbanization restricted areas. Additionally, a number of prefectures are endeavoring to exert more control over local land-use issues. 6

7 3. Example of city center revitalization Making the once expansive urban areas more compact and revitalizing the city centers are two difficult tasks. However, a group of concerned persons took on the challenge of revitalization. In Hikone City, Shiga (population 114,000), an old market and a residential area in the city center has been revived through the initiative of local residents. A huge redevelopment project had been planned since the bubble economy of the early 1990s, but it never came to fruition. The leaders of the residents gave up on the plan and shifted the focus to creating a livable area through land readjustment, a traditional Japanese city planning scheme whereby public roads are widened and reconfigured by exchanging public and private properties as well as by reducing private properties. Exchange between private tracts is also possible in this scheme so as to ensure a well-built environment. First, a survey was conducted to grasp the intentions of landowners: did they want to continue living in the area? Would they be willing to rent the first floor of their house to commercial tenants and live on the upper floor(s)? Did they want to lease or sell their properties? The survey results were categorized and the tracts were organized according to the intentions of the landowners. The leaders established a town planning company that purchased property for building a parking lot and developed a core commercial facility with the concept of offering local foods. They cooperatively poured building remedial compensation incomes earned in the land adjustment project into the company. As for townscape, they adopted design guidelines with a historical motif and the local landowners constructed harmonious buildings. Most of the buildings are no more than three stories high, which fit in with the local context and financially feasible volume, and universal design for the elderly and handicapped was realized. Topics for Discussion 1. How has motorization influenced the urban structure in your country? 2. Does your country have many out-of-town big box-type shopping centers? 3. Which region has more serious issues of urban sprawl in your country, metropolises or small/mid-sized cities? 4. How do the interests of local jurisdiction and geographically larger jurisdiction(s) (i.e. county, province and state) conflict with each other regarding urban development and land use? How do they cooperate to solve the issues? 7