Ministry of Land, Infrastrucutre and Transport
The 5th Comprehensive National Development Plan "Grand Design for the 21st Century"

PART I

Basis of the Planned National Land Development

Chapter II

Objectives and Strategies

This plan sets out objectives and develops strategic measures that meet the demands of the age. Targeting the years 2010 through 2015, it aims at establishing the basis for attainment of the goals set out in the "Grand Design for the 21st Century," a long-term plan for restructuring the country.

In the targeted period, people's ways of thinking will further change and there will be more restrictions on human and financial resources imposed by an aging society with fewer children. To restructure the country under these circumstances, each region must make its own efforts towards a unique and autonomous regional development. Not only the central government and local governments, but also private companies, volunteer organizations, and local citizens should all be encouraged to positively participate in regional development based on mutual cooperation that will enable each of the entities to display their capabilities. This plan, with its emphasis on autonomous regional development based on each region's decision and responsibilities, reveals new guidelines for national land development through participation and mutual cooperation among the different entities.

Section 1
Basic objectives

To establish the basis for implementing the "Grand Design for the 21st Century," the following fundamental issues should be tackled comprehensively in restructuring the country.

(Create regions that are independent and that residents can take pride in)

First, encourage each region to develop independently and to find its own identity as a region rich in nature and culture that residents can be proud of.

To restructure the country around more than one axis, to provide people with more freedom to follow their own lifestyles, and to provide the country with more diversity, it is important to encourage autonomous regional development. Each region needs to develop itself as a place where people can lead fulfilling lives in a high-quality working environment, making full use of its regional characteristics including history, climate, and cultural traditions. This development should be the autonomous efforts of each region, based on its options and responsibilities.

For each region to promote its independence under its own efforts, it is necessary to improve the institutional framework, including further decentralization. It is also necessary to bring improvements to people's lives and the overall infrastructure of the country within a certain range, in order to give equal opportunity to each of the regions. With establishment of equal opportunities, it is expected that each of the regions will creatively and wisely develop itself into an attractive region, making the most of its own individual characteristics.

(Make Japan a safe and comfortable place to live)

Second, improve safety measures against a range of natural disasters including large-scale earthquakes, and guarantee people's safety in a society that will have more old people and a smaller population in the face of global climate changes and reductions in global resources.

The major earthquake that struck the Hanshin and Awaji areas forcibly reminded people of the importance of emergency preparedness, and there are loud calls for increased safeguards and improvements to the country's risk management systems. Natural disasters are fairly prevalent in Japan, and it is important for the country to be able to respond with purposeful but flexible measures that give people greater protection against disasters while not disturbing the natural environment unduly. The Hanshin and Awaji areas must be steadily rebuilt to serve as models in the national and regional development of a safe country.

With the increasing number of old people and the decreasing number of children, people's values and lifestyles are diversifying more and more, and they are calling for development of the regions that will enable each citizen to participate fully in society and to lead a meaningful life regardless of gender or age. Furthermore, to deal with global climate changes and tightening supplies of food and energy, it is necessary to ensure stable supplies of water, food, energy and other essentials.

(Enjoy and nourish sound nature's blessing)

Third, recognize that the environment and its resources that form an indispensable part of the basis for human existence are limited. From this recognition, enjoy the blessings of nature (both spiritual and physical) in sustainable styles and nourish them for future generations.

A natural environment is an indispensable part of a comfortable and attractive lifestyle, because it provides both spiritual and physical benefits. Japan's natural environment is an integral part of the global environment, and common basis for human existence. Japanese citizens should be able to enjoy the abundance of nature's blessing, but they need to pass on to the future generations the attractive and well-conserved environment.

Responding to quantitative and qualitative degradation of the natural environment, it is important to try to conserve and restore attractive rural areas, forests, rivers and coasts, building up the structure of the country around a network of nature areas with the standpoint of securing biological diversity. It is also important to reorganize the relationship between human activities and the natural environment. Socioeconomic activities and accompanying lifestyles that cause damage to the global environment as a result of mass production, mass consumption and mass waste should be stopped, and recycling and the efficient use of resources and energies should be promoted, making use of nature's own powers of purifying and recovery. Japan needs to build a land structure that is environmentally friendly, based upon the natural circulation of materials.

(Build a vigorous economic society)

Fourth, in the intensified regional competition both inside and outside Japan, promote economic structural reform and build a vigorous economy that ensures a high standard of living and stable employment.

In accordance with the further globalization and rapid growth of the Asian economies, regional competition is intensifying beyond national boundaries, and private companies are starting to be selective about the countries and regions where they do business. With the increase in the number of old people and the decreasing number of children, there is concern that Japan's economic vitality will diminish. To build the basis of a suitable land structure, a vigorous economic society must be established by developing highly value-added industries that use regional resources and that create new industries to match new lifestyles.

It is therefore important to promote deregulation and create a less restrictive business environment, change the high-cost structure, and improve commodity distribution systems, information and communications, and international exchange including software aspects. These measures will ensure that Japan is able to provide an internationally-attractive industrial environment and that companies locating to this country will be able to become internationally competitive. It is also important to improve facilities for research, technological development, and manpower development, to create new industries, and upgrade existing ones based on cooperation between the industrial, academic and governmental sectors.

(Make the nation open to the world)

Fifth, to make every part of Japan open to the world, encourage each region to play an international role and use its individual characteristics in making exchanges with the world.

As a result it is expected that regional exchange will become more active in numerous fields including economics, science, culture, sport, and tourism beyond national boundaries. It is also expected that, in addition to increases in overseas activities by Japanese companies and individuals, more foreign companies and individuals will visit Japan for a variety of activities. In the global age, Japan needs to establish an identity that it can be proud of, with each of its regions constituting part of the global society. It is important to provide the regions with what they need to enable them to make use of their own resources and appeal in playing an international role, and to build the basis for a country that is truly open to the Asian Pacific region and the world.

In addition to establishing and improving the systems and infrastructure for international exchange, it is also important to have a world-class scientific and medical infrastructure that is beneficial to the global society, and especially to the peoples of the Asian Pacific region. On global issues including those related to the environment and disaster prevention, Japan and its regions need to participate aggressively and contribute their technology and experience to international activities.

Section 2
Strategies

The following strategies will be adopted to attain the basic objectives and to open a way to restructure the country to form the proposed regionally-distributed structure, while promoting public participation and regional cooperation.

As the strategies targeting specific areas, develop communities in rural villages and small and medium-sized towns that are independent and that residents can feel proud of, where the rich natural environment and unique traditions are preserved despite the trend towards depopulation and aging. Also in the metropolitan areas, which have led national economic development, renovate urban space to develop safer living environment, to restore natures, and to establish a more vibrant economic society.

As the strategies targeting wider areas, encourage the spread of inter-regional cooperation and exchange to help each region to develop itself into a unique and independent community, in order to increase inter-regional competition both inside and outside the country. Also create large-scale interaction spheres to assist each region to become internationally independent in order to make Japan more open to the world.

Build and improve the information and communications and transportation infrastructures to facilitate inter-regional cooperation and exchange, and to give each region equal access to the range of functions.

(Build nature-rich residential areas)

Create a web of communities rich in nature as the frontiers of a new way of living for the 21st century. These areas will include small and medium-sized towns and rural communities including hilly and mountainous areas. Further cooperation within and between areas will allow them to develop as independent "nature-rich residential areas," in which people can live with dignity and comforts and enjoy rural lives and urban services.

Nature-rich residential areas will be formed autonomously by regional cooperation. The areas will be comprised of small and medium-sized towns functioning as their centers, and of surrounding rural communities. The towns, as the centers of the areas, will provide the surrounding rural communities with basic medical and welfare services, educational and cultural facilities and other urban services including services for consumers, together with employment opportunities. In the nature-rich residential areas, high quality of life and work will result from the following measures. Establish new industrial systems based on agriculture, forestry and fishery and on the comprehensive utilization of natural and cultural resources in the area. Develop new industries that are not dependent on the location by using advanced information and communications technologies. Improve the living conditions and infrastructure in the area. Or protect and manage the natural environment in rural areas, forests, rivers and coastline to provide the area with attractive amenities.

Further, improve the transportation and information and communications infrastructures to encourage exchange and cooperation between nature-rich residential areas and larger cities. Based on this exchange and cooperation, the nature-rich residential areas will be able to provide its residents with the advanced medical and cultural services of the cities, and more people will visit or move to the areas. At the same time, encourage people to adopt a "multi-habitation" (more than one residence) lifestyle and to choose "teleworking" (remote working using information and communications networks) to further stimulate the areas. Make the areas into international sightseeing areas or routes that represent Japan to make residents feel proud and develop "small world cities."

(Renovate metropolitan areas)

Metropolitan areas that have generated numerous problems related to overpopulation and overconcentration of functions will be made into places where people can live full and comfortable lives, where the human dimension has been restored. At the same time, to aggressively contribute to the maintenance of Japan's economic vitality, sophisticated functions that only metropolitan areas can offer will be put to efficient use, and their spaces will be renovated and utilized effectively.

To renovate the areas into comfortable urban places, solve problems relating to long commuting time and traffic jams. Redevelop areas in which old wooden houses are built close together and establish centers for disaster relief. Improve urban communities, placing importance on environment, amenities and scenery, and restore and preserve the natural environment along the bay areas in these metropolitan areas. Furthermore, distribute the numerous functions concentrated in the central districts among the areas. Efficiently utilize large tracts of land that have not been fully utilized because of the changes in the industrial structure, and improve the basic urban functions as part of a drastic restructuring of urban areas.

To respond to changes in social needs and to progress in the international division of labor, consolidate and further develop advanced technologies and skills accumulated in industrial sectors that have supported Japan's economy. At the same time, taking advantage of the urban facilities and easy access to accumulated industrial assets, promote new businesses and enterprises in these areas.

While making efforts to improve urban functions and quality of industry, establish "major core city areas" throughout the country as centers of advanced urban functions and as international spheres of interaction. "Major core city areas" include the three metropolitan areas, hub cities acting as provincial centers and prefectural hub cities of similar scale and importance. The "major core city areas" will share roles and mutually cooperate to reduce the loads on metropolitan areas and to contribute to the renovation of these areas.

(Form regional cooperation corridors)

Municipalities that have different characteristics will mutually cooperate widely even beyond prefectural boundaries to develop independent and dynamic regional communities. These "regional cooperation corridors" will form in range with each other throughout the country.

In the regional cooperation corridors, each of the municipalities will share regional resources and attractive features widely, and share roles based on cooperation that they see fit.

Transportation and information and communications infrastructures in the regional cooperation corridors will form the basis for active exchange of people, materials, and information. Cultural, industrial and other activities will be conducted widely, beyond the ordinary living areas, giving people more options in their lives. Inter-regional cooperation will promote efficient locating and effective use of various facilities among regions. In addition, tourism and other regional industries will be promoted and active regional communities will be formed. The regional cooperation corridors will provide space in which each region, with its different history and culture, can cooperate and conduct exchanges to enhance recognition of the unique characteristics of the region and to create new cultural experiences and values.

The formation of attractive and unique regional cooperation corridors throughout the country will contribute to active and independent regional development.

(Form international spheres of interaction on a large scale)

Form international spheres of interaction on a large scale in multiple parts of Japan to enable every part of the country to survive regional competition and promote inter-regional cooperation beyond national boundaries. These spheres will be independent of large cities such as Tokyo and make their own autonomous international exchanges.

The international spheres of interaction on a large scale will have world-class infrastructures for exchange. Designed around Japan's geographical features and socioeconomic situation, the spheres will be a little larger than regional blocks and will be formed around major core city areas, based on inter-regional cooperation.

In these spheres, numerous facilities will be established and made use of for international exchange based on the transportation infrastructure-including airports and harbors that provide easier access to other countries such as the Asian Pacific region-and the information and communications infrastructure. In addition, people will be encouraged to develop the skills needed to improve international communications. As a result, more international exchanges will be made in diverse fields including economics, science, culture, sports and tourism. Through such international cooperation and exchange, each region will develop its own internationally-attractive environment that the residents can take pride in.

The formation of international spheres of interaction on a large scale will stimulate the establishment of Japan's new dynamic regional economic structure, and will be the basis for creating a country that is open to the world through numerous international exchanges.

The strategies described above will promote the achievement of the basic objectives and will form the basis for further efforts towards the implementation of the Grand Design for the 21st Century. The creation of nature-rich residential areas will promote regional linkage in areas located outside the urban areas including the Pacific belt, assist regional independence, and will contribute to nature conservation. As a result, attractive regions that residents can take pride in will develop throughout the country, and the formation of the proposed regionally-distributed structure will be promoted. The renovation of metropolitan areas will contribute to solving problems related to overpopulation in these areas including Tokyo, where population and functions are concentrated. Safe and amenable living space will be provided with the most advanced urban services. The industrial structure will be changed and the Pacific belt and its surrounding areas will be redeveloped into the Western Japan National Axial Zone. The formation of major core city areas will contribute to changing the hierarchical structure between the cities and towns into a flattened network structure.

The creation of regional cooperation corridors will activate the communities through inter-regional cooperation and exchanges. Multiple regional cooperation corridors in the north-south direction will be grouped into four national axial zones. Also corridors formed in the east-west direction will help the zones to mutually supplement and cooperate with each other. Furthermore the creation of international spheres of interaction throughout the country will dramatically increase the opportunities for global international exchange. As a result, all parts of Japan will be open to the world, grouped into national axial zones that have unique international capabilities.

Section 3
Specific tasks and their accomplishment

In the course of implementing the Grand Design for the 21st Century, it is important to tackle the following two themes as specific tasks. The first theme is "Metropolitan functions and problems related to Tokyo," which must be dealt with to change Japan's structure from that of the single hub of Tokyo. The second theme is "Revitalizing Okinawa, and the problems related to US military bases." To restructure Japan into a multiaxial country that is more open to the world, it is necessary to give Okinawa a new role in the relationship with the Asian Pacific region.

1.Metropolitan functions and problems related to Tokyo

The concentration of population and functions in the Tokyo metropolitan area seems to have been somewhat mitigated in recent years. However, human and other resources are still heavily concentrated in the area, which is a serious problem in the structure of the country. Tokyo can no longer provide efficient urban services to its citizens, and the city is not fulfilling its economic and cultural functions smoothly. In addition, there are numerous problems in the city connected with long commuting times, traffic jams, the city's vulnerability to disasters, air and water pollution, tight water supply, and disposal of waste.

Tokyo, the capital of Japan, contains the world's largest metropolitan area, with a population exceeding 30 million. It is also one of the world's major cities. In order to redistribute the concentration of functions on the city, and to enable Tokyo to fulfill its role in providing advanced services and the dynamism that accompanies the shift to the 21st century, the following comprehensive measures need to be taken.

First, in order to restructure the country around more than one axis from the long-term view, efforts should be made to prevent excessive concentration of advanced urban functions in the central parts of Tokyo. Following the concept of regional role-sharing and cooperation throughout the country, these functions need to be redistributed among the regions, and the regions must be aggressively developed in a way that gives a good balance between work areas and residential areas.

Specifically, based on a wide-area view of the whole country, correct the hierarchical structure of cities, with Tokyo at the top. To achieve this, redistribute functions and promote mutual cooperation between the Tokyo metropolitan area and other central urban areas to establish a national network of advanced urban functions. In the Tokyo metropolitan area, develop comprehensive business centers that play multiple roles and encourage people to live in the city center. At the same time, make the city safe against large-scale earthquakes, secure stable sources for the water supply, and improve the environment and amenities so that the inhabitants of Tokyo, Japan's flagship city, can live full lives in a comfortable environment.

Second, it is important to think realistically about how to start to transfer the functions of the capital from Tokyo to the other regions. The transfer, which is now being studied by the Council for Relocation of the National Diet and Other Organizations, will physically separate the center of politics and administration from the center of the economy and culture. Such separation is very important in relieving the concentration on Tokyo because it will take away the city's dominance.

The transfer will have a wide range of results, and in restructuring the country it will:

1)Create new cities that are qualitatively different from Tokyo, and will stimulate many kinds of cooperation between central urban areas using transportation and information and communications networks. This will effectively remove Tokyo from its position at the head of the current structure of the country.

2)Separate politics from the economy, which will enable the development of new cities on the same scale of prosperity as Tokyo. By sharing functions and cooperating closely to solve the problems associated with large cities, these new cities (centers of politics and administration) and Tokyo (center of economy and culture) will be able to fulfill their roles more smoothly.

3)Improve the county's risk management; its ability to survive disasters including major earthquakes. Even if disaster strikes Tokyo, the new cities will not be affected by the disaster. Also, effective use of the land where the governmental functions used to be will further strengthen Tokyo's ability to cope with disasters.

As explained above, the transfer of the functions of the capital will be an extremely effective national development policy. Presently the Council for Relocation of the National Diet and Other Organizations is deciding on target areas in order to select candidates for the new capital, and examining specific areas. It is necessary to conduct studies aggressively for the actual transfer of the capital, while steadily promoting political reforms that include decentralization, deregulation and administrative and fiscal reform.

The transfer of the capital will have a major influence on Japan's politics, economy and culture in the 21st century, being closely related to people's ways of thinking and values. It is therefore necessary to reach a national consensus under open and fair procedures, based on the Act for Relocation of the National Diet and Other Organizations.

2.Revitalizing Okinawa, and problems related to US military bases

More than 25 years have passed since Okinawa, which suffered great human and material losses in World War II, was returned to Japan in 1972. For more than 26 years before it was returned to Japan, Okinawa was outside the territorial jurisdiction of the Japanese government. The government, since its return, has spent vast amounts of the national budget in improving Okinawa's basic infrastructure and in promoting the natural and geographic characteristics of the region. As a result, the differences between Okinawa and the rest of Japan have been gradually reduced. Despite stable growth, Okinawa still has disadvantages, including the fact that it comprises numerous isolated islands, far from the rest of the country. In addition, under the US- Japan Security Treaty that plays a central role in the peace and stability of the Asian Pacific region, 75% of the US military facilities and bases existing in Japan are located in Okinawa, which accounts for only 0.6% of the land. Okinawa has had to endure a heavy burden, and this fact has created situations different from those observed in the rest of the country.

However, it is expected that Japan and other countries including those in the Asian Pacific region will become more mutually dependent and that more exchanges will be made in terms of people, materials, money and information. Under such circumstances, it is important to develop Okinawa, with its problems related to US military bases, into a unique region. Because of its geographical and natural characteristics, its unique traditions and international character, the region will be expected to contribute to the socioeconomic and cultural development of not only Japan, but also of the entire Asian Pacific region.

Okinawa is located on the node that connects the New Pacific Ocean Coastal National Axial Zone with the tropical and subtropical zones of Southeast Asian countries. In addition to this geographical feature, it is the only region in Japan that has a subtropical oceanic climate. Okinawa is surrounded by vast seas and has precious regional resources including a rich natural environment and a unique cultural heritage. It has developed into an attractive region, characterized by the residents' international outlook that welcomes diversity, and by a spirit of mutual support.

Okinawa is expected to become a center for peaceful exchanges and international cooperation; a place where many exchanges will take place. For Okinawa to live up to this expectation, it is important for the region to develop tourism as its basic industry. Making good use of its regional resources including the subtropical climate, rich natural environment and unique history and culture, Okinawa also needs to provide attractive international sightseeing spots and recreational facilities. It is also expected that the region will develop as a trade center, with new industrial development including the establishment of a special free trade area. Furthermore, the use of highly advanced information and communications facilities and expansion of transportation facilities will lead to the creation of nature-rich residential areas that overcome the disadvantages experienced as isolated islands. By living up to its role, Okinawa will open the way to forming a New Pacific Ocean Coastal National Axial Zone that contributes to socioeconomic and cultural development both in Japan and in the whole Asian Pacific region.

These potentials for development position Okinawa as a "Pacific Crossroads."

With the concepts described here as the base, the government should carry out policies that support Okinawa in making autonomous efforts towards economic development and solution of the problems related to US military bases.

US military facilities and bases greatly restrict the use of land in Okinawa, and in this regard, the plan described in the final report of the Special Action Committee on Okinawa (SACO) in December 1996 should be steadily implemented. Included in the plan is a reduction of US military facilities and bases in Okinawa by 5,002 hectares (about 21%), including the return of Futenma Airport. As this plan is implemented, plans should be made for the use of the returned land.

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