New Town Development and Practices

New Town Development and Practices - Cases from Japan 日本案例 : 新城镇的发展和实践 Shige SAKAKI ( 榊茂之 ) Sr. Urban Transport Specialist GTIDR South Asia 世界银行城市高级交通专家

Contents of this presentation 目录 1. New Town Development in Japan 日本的新城镇发展 a) Overview 概述 b) Examples 案例 c) The good, the bad, and the (not-beautiful) 好的 坏的和没那么美的 2. What Worked and What Didn t 成功和失败 a) Planning 规划 b) Implementation 执行 c) Management after completion 建成后的管理 3. Conclusion 结论 2

Section 1 NEW TOWN DEVELOPMENT IN JAPAN 日本的新城镇发展 3

1. New Town Development in Japan: a) Overview 概述 Rapid expansion took place first before WWII, and then in 50s and 60s. Tokyo stabilized then, but the suburbs kept growing. 城镇化出现在二战前和五六十年代, 之后东京趋于稳定, 周边地区继续成长 Population of Tokyo and 3 surrounding prefectures 东京和周边三县人口 4

1. New Town Development in Japan: a) Overview 概述 Private railways actively developed their network in the suburbs and the land around the routes from early 1900s. 从 20 世纪初叶开始, 日本私营铁路在郊区迅速扩张, 并带动周边地块发展 Private Railway Companies in Tokyo 东京私营铁路公司 Seibu Tobu Keisei Tobu started operation in 1899 for 40km section. By the end of WWII, Tobu had more than 550km network. The network has popular tourist spots and hot springs on one end, and department store on the other end. 东武铁路公司 Keio Odakyu Tokyu Keikyu Seibu started in 1894 and developed 1,172ha of residential land by the end of WWII. It was a child company of one of the largest real estate developers in Japan. 西武铁路公司 http://www.travel-around-japan.com/j15-private-railroad.html Source: Wikipedia, Yajima and Ieda, 2014. Global City Tokyo Developed by Railway 5

1. New Town Development in Japan: a) Overview 概述 Hankyu Railway undertook a combination of urban development along its suburban line construction in early 20c. 阪急电铁公司在 20 年代城郊铁路的建设中融合了城市规划 Opera House 1910 Railway opened (25km + 4km) 1910 Ikeda Development (10ha, 200 units) 1911 Takarazuka Spa and Minoh Zoo 1914 Takarazuka Opera 1915 Umeda Terminal Department Store Zoo Ikeda Residential Development Department Store 6

1. New Town Development in Japan: a) Overview 概述 Tama Garden City is a half-century rail corridor TOD project of 5,000 ha forming the passenger base of Tokyu Railway. 覆盖面积 5000 公顷 花费半个世纪才建成的多摩田园城市是典型的公共交通导向发展项目, 也为东急线铁路提供了乘客基础 Tokyu Tama Garden City Line and Garden City Development (5,000ha) From webcatalog Development Area With historical order Area: 5,000 ha Population: 600,000 (as of 2011) Map: Tokyu Corp. Web The development is located 15 to 35 km to the south west of downtown Tokyo and was undertaken while Tokyo went through rapid urbanization. The projects were done mostly through Land Readjustment project scheme. 7

1. New Town Development in Japan: a) Overview 概述 Major New Towns in Tokyo Metropolitan Area consist of both private and public development projects. 日本大都市地区的新城镇发展基本都包括公营和私立开发项目 Private Railway 私营铁路 Public Railway (fully or almost fully owned by government) 公营铁路 Private Development 私营 Expanded after Kanto Earth Quake (1925), WWII (1945)and in 60s-70s For upper-middle income Den-en-Chofu (1922) Tokiwa-dai (1936) Tama Garden City (1960s-) Many examples following the success of railway-led development (1920s-) Public Development 公营 Expanded after Japan Housing Corporation established in 1955 Tokiwa-daira (1957) Tama NT (1971) Some were large enough to be planned with a new rail line Kohoku NT (1983) Chiba NT (1984) Tsukuba Express Towns (2005) 8

1. New Town Development in Japan: b) Example 1 Tama New Town 案例 1 多摩新城 Tama NT is the best-known NT, planned to address housing shortage in Tokyo in 1960s. 多摩新城是日本最著名的新城建设项目, 目的是为了解决六十年代东京的住房紧缺 Slide from Kiyoshi Shimizu, City Bureau, MLIT, GoJ 9

1. New Town Development in Japan: b) Example 2 Kohoku New Town 案例 2 港北新城 Kohoku NT is another large scale NT development. Municipal Subway connects the site with major railway network. 港北新城也是另外一个大型新城计划, 都市地铁将港北新城与主要铁道干线连接 Slide from Mr. Sakurai of Urban Renaissance Agency (UR), May 2016 10

1. New Town Development in Japan: c)the Good 优点 Dense rail network in downtown Tokyo strongly supports public transport and TOD s in the suburbs. 东京市中心的密集铁路强力支撑公共交通和近郊以公共交通导向开放项目 5 Minutes Walk (400m) 10 Minutes Walk (800m) Yamanote Loop Railway Other Railway Line Railway under construction 11

1. New Town Development in Japan: c)the Good 优点 Tokyo and its surrounding areas are highly reliant on public transport. 东京和周边地区高度依赖公共交通 Modes of Commute Travel in Tokyo Metropolitan Area (2008 and 1998) Tokyo Wards Metropolitan Area Total Walk Bicycle Motorcycle Car Bus [Charts: Left 1998/ Right 2008 in %] Railway Even in the metropolitan area (34M population), more than 50% of commuters use railway. The mode share is about 80% within the wards of Tokyo (8M population). 12

1. New Town Development in Japan: c)the bad 不足 While congestion has declined through rail capacity increase efforts, the average rate is still higher than the target of 150%. 尽管铁道运力增加让拥堵得以缓解, 但平均拥堵率依然高于 150% Average congestion rate for the major sections in Tokyo is 165 in 2016 Congestion Rate (%) Passenger Capacity (1975 = 100) Passenger Carried (1975 = 100) 13

Share 1. New Town Development in Japan: c)the bad 不足 Long commute time is quite common due to high cost of housing near the center. 由于市中心居住成本太高, 长时间通勤成为常态 Average commute time for work in Tokyo Metropolitan Area is 68 min, and average commute time for school is 78 min. 东京都市圈上班平均通勤 68 分钟, 上学 78 分钟 63% of commuters spend 60 minutes or more, 22% spend 90 minutes or more, and 5% spend 120 minutes or more. (2017.3 MLIT) 63% 的通勤人士要花 60 分钟,22% 需要 90 分钟,5% 需要 120 分钟 Work School Total (2015 Survey) 14

1. New Town Development in Japan: c)the (non-beautiful) With outstanding loan of JPY 12.7 T (USD 113B), Urban Renaissance Agency (UR) decided close NT business by 2018. 由于未偿贷款达到 1130 亿美元, 日本都市再生机构宣布在 2018 年停止新城建设 Unsold land area in NT projects in Tokyo Metropolitan Area (in ha (0.01 km 2 ), 2013) Unsold land area for UR s NT Projects Developed Acquired, not Developed Acquired, not Developed Developed 15

1. New Town Development in Japan: c)the (non-beautiful) Delayed implementation has led to repeated fare increase and even stopping of rail operation. 执行的延误导致票价反复上涨甚至是铁道停止运营 Tokadai New Town Project 1971 Tokadai NT Plan (New Urban Residential Area Development scheme) 16km North East of Nagoya (3 rd largest metropolitan area in Japan) Planned population of 54,000 for 322ha. Originally planned to complete by 1979, extended to 1986, to 1991, to 1996, and completed in 1999. NT pullulation stabilized at 28,000, about half of original plan. Tokadai New Transit Peach Liner 1979 Company established 1991 Operation of Peach Liner started Passenger/day was at 25% of estimate. Accumulated loss reached JPY 6.1B in 2004 (USD 55M) and continued to increase. 2006 Operation stopped. 16

Section 2 WHAT WORKED WELL AND WHAT DIDN T 成功和失败 17

Municipal Level Input Input Prefecture Level Input National Level Policies and Plans 2. What worked and not: a) Planning - Capital Region Development Plan Coordinated plans in different levels govern the development and conservation of national land. 多层面的协调机制管理着国有土地的开发和保护 Ministry of Land, Infrastructure, Transport and Tourism (MLIT) Infrastructure Development Council Scope: Urban Development, Housing, Road, River, etc National Land Council Scope: National Land Use / Development, Water Resource Development National Spatial Strategy Regional Plans Development Plans for Less Developed Areas Transport Policy Council Scope: Railway, Air and Maritime Transport, Port Shinkansen (High-Speed Rail) Metropolitan level railway network National Highway Network Committee National Highway network Metropolitan Master Plan for City Planning City Plan (covering multiple municipalities) Municipal Master Plan for City Planning City Plan (covering single municipalities) Comply Comply Comply 18

2. What worked and not: a) Planning - Capital Region Development Plan 3 areas irrespective of prefecture boundary were designated, and policy directions and support measures were provided. 打破县 ( 省 ) 边界划定 3 个区域, 提供政策引导和支持 Urban Development Area Zoning Develop industrial and residential cities Suburban Development and Redevelopment Area Systematically develop and redevelop urban area, as well as to preserve green zone Build-up Area Maintain urban functions while preventing excessive concentration 50km 19

2. What worked and not: a) Planning - Capital Region Development Plan Through the Plans, various measures have been proposed and implemented to address the problem of concentration. 在规划过程中建议和提出了多种方案, 以有效解决集中化问题 1 st Plan (1958): 1) Establish a 10km wide Green Belt; 2) Develop satellite cities for industry development; 3) Restrict new factories and universities in Tokyo wards. Green Belt didn t happen. 2 nd Plan (1968): 1) Designate Suburban Development Area to control disorderly development and preserve green space. 2) Develop research and logistics cities in the outer area, Urban Development Area. 3 rd Plan (1976), following the establishment of National Land Agency in 1974: 1) Selective decentralization of central functions; 2) Strengthen business, education, and culture functions at core satellite cities. 4 th Plan (1986): 1) Correct monocentric dependence by developing a polycentric pattern through strengthening Business Core Cities; 2) Develop information industry and research and development functions Monocentric Region Polycentric Region 20

2. What worked and not: a) Planning - Capital Region Development Plan Following the 4 th Plan, Act for Forming Polycentric National Land was enacted in 1986. 1986 年, 建设多中心国土法案通过 Business Core City is a concept of the Act that can become recipients of business and other functions decentralized from Tokyo s CBD. Saitama City - Government offices - Business facilities Tama City - Residential area - Educational facilities Tsukuba City - R&D institutes Chiba City - Convention complex - Business facilities 50km Central Business District Business Core Cities 21

2. What worked and not: b) Implementation (schemes) Two key project schemes for new town development. 两项关于新城发展的关键规划 1. New Urban Residential Area Development Project Scheme 1. 新都市居住区发展项目规划 Objective: To develop good-quality urban residential area and provide substantial scale of residential land in areas with high demand for residence Enacted: 1963 Modality: All land in the project area will be acquired to be developed and sold. The implementing body can exercise the power of eminent domain. Size: About 300 ha (average of 51 projects, the largest being 2,217 ha) 2. Land Readjustment Project Scheme 2. 土地重划项目规划 Objective: To develop good-quality urban area Enacted: 1954 (633 projects in Tokyo (23,000 ha)) Modality: All land plots in the project area will be replotted and returned back to the original owner after taking out contribution for infrastructure land and reserved land to fund project cost. The implementing body can exercise compulsory replotting power. 22

2. What worked and not: b) Implementation (New Urban Area Development) 新都市区开发 New Urban Residential Area Development Scheme supported new town development mainly in 1960s and 70s. 新都市居住区发展项目规划主要支持六七十年代的新城开发 Summary of New Urban Residential Area Development Projects The largest was Tama New Town of 2,217 ha for 282,000 planned population. Projects can be implemented by Prefectures, Municipalities, Housing Supply Public Corporations, and Urban Renaissance Agency (UR). 23

2. What worked and not: b) Implementation (New Urban Area Development) 新都市区开发 New Urban Residential Area Development Project supported new town development mainly in 1960s and 70s. 新都市居住区发展项目规划主要支持六七十年代的新城开发 Planned at 25-40km northeast of Tokyo towards Narita Airport, Chiba New Town was built through the New Urban Residential Area Development Project scheme. The project area was 1,930ha for a planned population of 143,300. Started in 1969 and completed in 2014. Project cost was JPY 1190.3 Billion (USD 11B). https://www.pref.chiba.lg.jp/kigyo u/nt/documents/keikakuzuall2.pdf https://www.pref.chiba.lg.jp/kigyou/ nt/documents/h27-2-cnt-front.pdf 24

2. What worked and not: b) Implementation (New Urban Area Development) 新都市区开发 Hokuso line was established jointly by Keisei Railway and public entities. 北总线由京成电铁公司和公营机构联合开发 Hokuso Line 32.3 km A 32.3 km section on a new line connecting Narita Airport and Keisei Ueno terminal. Hokuso Railway was established by: Keisei Railway (50.0%) Chiba Pref (22.3%) Urban Renaissance Agency (UR) (17.3%) Matsudo City (1.4%) Shiroi City (1.0%) Due to the delay of the Chiba New Town development, the railway has suffered from low ridership. 25

2. What worked and not: b) Implementation (Land Readjustment) 土地重划 Land owners receive smaller land in better shape and with infrastructure, making the land value the same or more. 土地重划后虽然面积减小 但形状规整且带有基础设施 对拥有者来说, 土地价值保持原样甚至不减反增 26

2. What worked and not: b) Implementation (Land Readjustment) 土地重划 Land for tracks and stations were acquired through LR for TX Town projects. 筑波快线轨道和车站的土地通过重划项目获得 Tsukuba Express Town Projects 17 LR projects totaling 3,000ha in 4 prefectures. Tsukuba Express (TX) Project 2005 Operation of TX started with 20 stations in 58km route length. 326k (Passenger/day in 2014) exceeding the estimate (270k). Source: Saitama Prefecture Source: Ibraki Prefecture 27

2. What worked and not: c) Management after Completion 建成后管理 Population decrease, particularly in age group 15-64, is a serious long term risk for railway operators. 人口减少, 特别是 15 到 64 年龄组, 对铁道运营者来说是严重的长期风险 Source: Tokyu Corporation, Fact Book 2017 Whole Japan Municipalities along Tokyu line Tokyo + 3 Pref Age 65- Age 15-64 Age 0-14 28

2. What worked and not: c) Management after Completion 建成后管理 JR East raises 31% of total revenue from non-transport business, and Tokyu has 65% from nontransport. JR 东日本公司总收入的 31% 来自非交通项目, 东急电铁的这一比例高达 65% JR East (JR 東日本 ) Revenue % Income % (1) Transportation $18.0B 69% $3.0B 71% (2) Retail & Services $4.5B 17% $0.3B 8% (3) Real Estate & Hotels $2.9B 11% $0.7B 17% (4) Other Business Lines $0.6B 2% $0.1B 4% Total $26.0B 100% $4.2B 100% Source: JR East, 2016 Fact Sheets Tokyu Railway ( 東急電鉄 ) Revenue % (1) Transportation $28,000M 35% (2) Real Estate $30,900M 39% (3) Retail/ICT $14,900M 19% (4) Hotel/Resort $6,000M 8% Total $80,000M 100% Source: Tokyu Corporation, Fact Book 2017 29

2. What worked and not: Management after Completion 建成后管理 Dependence on operational subsidy and outstanding debt is a long term concern for public-run railways. 对公营铁道来说, 对运营补贴和贷款的依赖是长期的风险 Case: Kyoto Municipal Subway Started operation in 1981 2 routes, 31km network FY2016, they had an operational profit of JPY 1.6B (USD 14M) after JPY 2.6B subsidy (USD 23M) from the municipality s general account It has an outstanding loan of JPY 376B (USD 3.4B) Minimum fare is JPY 210, which is comparatively high other other Reversal of advance Municipal subsidy Operational revenue Interest paid Depreciation Operational Cost (energy, maintenance) Operational Cost (staff) 30

2. What work and not: Old New Towns 新城衰老 Old New Town problems or Old-Towning is seen at almost all the early new towns. 早年开发的新城项目出现 新城衰老 问题 Demographic change of Tama NT (developed in 60s) 多摩新城人口变化 (1,000) 231k Ratio of 65+ population Age 75- Age 65-74 Age 15-64 Age 0-14 Source: Tokyo Metropolitan Government 31

2. What worked and not: Old New Towns 新城衰老 As the residents of new towns age, there is a reinforcing cycle of Old-Towning, which creates further problems. 随着居住在新城的居民变老, 出现了老城逐渐失去生气, 并造成更多问题 Negative reinforcing cycle of Old-Towning: More elderly population 老年人增多 More services for the elderly 更多针对老人的服务 School Closing 学校关闭 Weakened Community Ties 社区连接弱化 Less capacity on security, disaster preparedness 安保和应对灾难能力减弱 Neighborhood Store Closing 社区商店关闭 Public Transport costly to maintain 公共交通运营成本增高 Less attractive for young families 对年轻家庭失去吸引力 No access to shopping for nondrivers 不开车人群无法购物 32

2. What worked and not: Old New Towns 新城衰老 Old New Towns can be prevented. Here are lessons learned through tackling Old New Towns. 解决新城衰老问题的经验 1. Promote age-group diversity when developing and maintaining. 在开发和维护时有意识促进不同年龄段的多样性 2. Keep flexibility in site plans and unit designs so that renovation can happen to adjust to changing needs. 在选址和设计房屋时保持一定程度的灵活, 为未来改造以适应新的需求保留余地 3. Build a strong community. This helps tackle issues not only when old-towning sets in, but also when planning redevelopment. 打造强大的社区, 这有助于解决新城老化和再开发问题 4. Design an asset ownership that supports redevelopment. In cases of Japanese New Towns, the joint ownership of land by all the apartment unit owners turned out to be a major obstacle for redevelopment. 设计支持再开发的资产所有权制度 日本新城让所有单元业主同时具有土地拥有权的实践后来被证明是再开发的一大障碍 33

2. What worked and not: Stranded Commuters 被困的通勤者 In the event of disasters, commuters can be stranded at city centers. 灾难发生的时候, 通勤者会被困在城市中心 Stranded Commuter : On the day of East Japan Great Earthquake on March 11, 2011, an estimated 5.2M people had difficulties going back home. 2011 年 3 月 11 日东日本大地震当天,520 万人发现自己难以回家 Source: Asahi Newspaper 34

2. What worked and not: Stranded Commuters 被困的通勤者 Large cities should be prepared for stranded commuters. Here are Lessons learned through the 2011 experience. 大城市应该就 被困的通勤者 问题做好预案 2011 年带来的教训包括 : 1. Make the transit network redundant. More people would go home especially when there is no information on safety of his/her family. 车站运力应做好应急 在未知家人安全时, 更多乘客愿意回家 2. Stations need to be prepared to provide initial relief. Operators should be responsible to stock relief goods. 车站需要准备最初的救援 运营方有责任存储救援物资 3. Transit infrastructure may create bottlenecks for pedestrian flow. Atgrade rail tracks, walkway under viaduct, and passageways inside stations need carefully designed. 交通设施可能出现人流拥堵和淤塞 因此车站内部的通道应小心设计 4. Secure space to accommodate stranded commuters for 3 days. Not going home is the recommended first step as massive pedestrian flows may impede relief efforts. The guidance is to have 3.3 m 2 for 2 people. 确保能为 被困的通勤者 提供应急 3 天的场地 35

Section 3 CONCLUSION 总结 36

3. Conclusion/Takeaways 主要结论 1. Private Railways have played an active role in new town development in Japan. Good railway connection was the key enabler for both private and public development. High public transport mode share is a great achievement of integrated planning. 私营铁路在日本新城开发中扮演了积极的作用 优质的铁道网络对私营和公营开发都是良好的促进 发达的公共交通体系是整合规划开发的成就 2. Framework for planning coordination and strong implementation schemes were provided. Being able to keep landowners within the site, LR played an important role in NT development in Japan. 政府就规划协调和强力执行提供了框架 土地重划项目在日本新城开发扮演重要作用 3. Financial sustainability of transit systems is an important long term risk. Private railways tend to perform better through non-transport revenue generation. 交通系统的经济可持续性是一项重要的长期风险 私营铁路公司有通过非交通项目获得更好财政营收的趋势 4. After decades, unexpected problems surfaced in New Towns, such as about Old New Town and Stranded Commuter. Appropriate measures should be taken to prevent such problems. 几十年后, 新城开发出现了没有预想到的问题, 比如新城老化和 被困的通勤者 应该采取适当的措施防范这类问题 37

謝謝. ssakaki@worldbank.org