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

PART II

The Basis for Development in Different Fields

Chapter I

National Land Conservation and Management

We need to make Japan a safe country, with a well-preserved natural environment. However, we should keep in mind that while nature is benevolent, it can also bring danger to our lives. Japan is blessed with a wide variety of natural habitats, which are home to a wide variety of animals and plants. On the other hand the country is exposed to natural disasters including earthquakes, and damage from typhoons and floods. To cope with these special conditions, the people of Japan have, since old times, built up a multi-faceted relationship with the natural environment. In day-to-day activities, they have acquired the wisdom to make effective use of natural resources while continuously preserving the natural environment. And they have developed the ability to protect themselves against the elements, and to help each other when regional disasters strike, building up a reservoir of "disaster know-how." However, contact with the natural environment has been decreasing in the process of modernization and urbanization, and people are becoming less aware of nature's role as lifestyles continue to change. We must reestablish the relationship between people and nature as we move into the 21st century, keeping in mind both nature's benevolence and its force for destruction.

1)Implement measures to make Japan safer to live in, learning from the disastrous Hanshin-Awaji earthquake. These measures should include improvements to risk management systems, recognition of the roles of individuals and regional communities, and measures for the unavoidable aspects of disasters.

2)Take aggressive action to preserve the country's natural environment for future generations and for the entire world as a shared asset. For example, take the preservation and habitat of wildlife into consideration when developing land. Take action to preserve the environment when implementing development projects, prevent global warming, and reduce the load on nature's cycles by recycling waste, etc.

3)Improve actions to preserve and recover the hydrological cycle and raise land management standards to support the development of a safe and nature-rich country of "basins" that comprise natural river systems and their forests, farmland and urban areas. In the process, cooperation between areas and within administrative agencies will be promoted based on the creation of a horizontally-linked organization.

4)Encourage regional cooperation for the comprehensive conservation and use of coastal areas that have common natural characteristics.

Section 1
Making the country safer to live in

1.Establishing disaster-preparedness systems to maximize safety

(1)Focus on measures to limit the damage caused by disasters

Strengthen preparations for disasters including large-scale natural disasters such as the Hanshin-Awaji earthquake. The focus should be placed on preparedness, represented by a flexible response, and minimizing the damage caused by disasters.

Preparedness measures include a transportation and information and communications infrastructures that can respond to emergencies, and the introduction of design criteria for buildings based on their importance. Ensure that structures are capable of resisting disasters including earthquakes that are few and far between but that apply enormous forces to the structures. Also improve the system of monitoring disasters including the earthquake observation network. Promote research into natural disaster prediction techniques and disaster preparedness. Evaluate the disaster risks in each area, make the results available to the general public, and use the evaluations in planning regional development and land use.

Encourage each area, company and administrative agency to prepare disaster manuals for different kinds and degrees of disaster. Furthermore improve the following systems to allow proper responses to disasters. They are the systems for providing information, evacuation, rescue operations and first-aid activities, assignment of volunteers, and back-up services for administrative functions and corporate activities. In the process, special attention should be paid to people who are most vulnerable to disasters, and wide-area systems of cooperation should be established between prefectures and municipalities.

(2)The importance of the roles of individuals and communities in creating "disaster-proof living zones"

In implementing disaster-preparedness, it is important to encourage regional communities and residents to take independent action in protecting themselves and their areas. This encouragement should take the form of building "disaster-proof living zones" based on regional disaster mitigation centers, and the disaster risks of each area should be published so that citizens can be aware of the dangers and feel encouraged to participate in disaster-preparedness training. This will provide residents with the means to cope with potential disasters as part of their daily activities. Furthermore, educate children in the vulnerability of regions to disasters and the history of disasters at school. Train members of the fire service to be leaders in regional disaster preparedness, and encourage regional voluntary disaster-preparedness organizations to play a bigger role. Support their activities by establishing regional disaster mitigation centers and evacuation areas, and improve the facilities at schools, public halls and in administrative agencies' buildings so that they can be used as evacuation centers in the event of emergencies. Promote cooperation between disaster mitigation centers and other bodies.

For each "disaster-proof living zones" to cooperate over a wide area for disaster mitigation, encourage the disaster centers to make contact with and cooperate with each other, and establish wide-area disaster centers. Also encourage local public entities to make agreements with local companies and organizations such as medical associations so that the power of the private sector can be utilized in emergencies.

(3)Responding to different types of disaster and improving risk management systems

Because of the nature of the changes affecting urban areas, including the concentration of population and services, the increasing dependence on the social infrastructure in day-to-day life, the development of informatization, the aging of society, and internationalization, disasters can take many forms, not only from natural causes. Once a disaster strikes, the effects can multiply, and Japan is becoming more and more vulnerable to disasters.

To reverse this vulnerability, identify the different types of potential disaster and make comprehensive preparedness plans including concrete facilities planning. These plans should include improving disaster mitigation facilities and equipment used to minimize damage, improvement of safety criteria and disaster plans, disaster preparedness training, and distributing financial risk. Furthermore, develop advanced and highly specialized techniques to mitigate the effects of natural disasters that can affect wide areas and large-scale disasters from artificial causes. Improving disaster preparedness in this way will also lead to improvement in risk management systems and a safer infrastructure both at the regional and national levels. Also distribute appropriate disaster preparedness information in response to the changes in people's lifestyles, develop new disaster mitigation technologies, build up experience for dealing with disasters, and establish an international network of cooperation to be used in the event of a disaster.

(4)Rebuilding devastated areas

Restore services and functions to devastated areas speedily, incorporating disaster-proof measures that take the surrounding environment into account. Improve the systems for restoring and rebuilding to cope with larger disasters.

2.Rebuilding the Hanshin-Awaji area

In rebuilding the Hanshin-Awaji area, efforts are being directed towards three basic objectives: restoring services and functions for everyday life, rebuilding the local economy, and making regional communities safe. The resulting experience should be utilized in many ways to make Japan and its regions safer to live in. The area will provide an example of how to rebuild a large and densely-populated city and industrial center after a major earthquake. Long-term measures will be implemented for the recovery of the Hanshin-Awaji area based on a close working relationship between the public and private sectors and incorporating regional ideas and interests.

In restoring the services and functions necessary for everyday life, provide the victims of the earthquake who lost their houses and are living in temporary housing with an environment where they can settle back into normal life. Ensure stable employment and support for the victims in finding new jobs, increase the support to elderly victims who need care, including psychological support in their daily lives, establish medical services that will function well in times of disasters, and rebuild educational facilities. Also give more support to cultural activities directed towards rebuilding a happy and comfortable living environment. In rebuilding the local economy, rebuild the transportation and information and communications infrastructures that are basic to the recovery of the entire area, and improve the systems for supporting industries in economic recovery. In making regional communities safe, build safe and comfortable communities that have both open space and a backup transportation infrastructure, establish disaster-proof public utilities (water, gas and electricity) and improve public facilities so that they can serve as temporary evacuation centers during a disaster.

Study the special recovery projects proposed by the Committee for the Recovery and Rebuilding of the Hanshin-Awaji Area, with a view to implementation.

3.Better disaster control

To protect the land from potential disaster-related damage, encourage more afforestation and flood prevention measures. Improve national land conservation facilities including those located in coastal areas to make regional communities more able to cope with disasters. In the improvement process, take the natural environment into account, encourage use of facilities in normal times, and make the facilities comfortable and blend in with the natural scenery. Also improve the information and communications infrastructure so that information on disaster preparedness can be distributed using advanced information and communications technologies. To predict and be prepared for disasters caused by volcanic eruptions, strengthen development of technologies for monitoring and predicting volcanic activity, and carry out research. Improve volcanic and erosion control measures, and improve measures to prevent secondary disasters.

Section 2
Conserving and enjoying nature's blessing

To pass on to the future generations a beauty and well-conserved natural environment of national land, different entities including the national government, local public entities, businesses, other private organizations, and individual citizens should participate in and cooperate with implementing in combination different types of measures including environmental assessment, improvement of social capital, environmental awareness, provision of information, economic measures, and regulatory measures, according to the nature of the problems incurred. In the process, a basis of scientific knowledge in developing technologies will be built. To make implementation of the measures effective, the national government should develop guidelines for the long-term objectives of the environmental policies, and plan and implement measures to achieve the objectives set for each of the tasks, including the policies on global warming and waste.

1.Conserving the natural environment

Responding to the general public's desire for nature and demand for securing biological diversity, and taking into consideration the natural and social characteristics of the regions and international agreements including the Ramsar Convention, conserve and manage closely interrelated natural environments such as national parks, which provide abundant and attractive areas of nature. They will serve as the basis for developing Japan into a more attractive country. Encourage the maintenance and expansion of the secondary nature through agriculture, forestry and fishery. Encourage the improvement of forests located in villages in cooperation with citizen groups. In urban or coastal areas where nature has been seriously damaged, create and recover forests and waterside areas as projects to improve public facilities. Also create green spaces and habitats for wildlife, even using artificial structures to provide quasi-natural environments.

(1)Creating an ecological network on a national scale

In conserving and restoring the natural environment, balanced and stable ecosystems should be established based on the idea of coexistence with wildlife. It is necessary to consider ecosystems at different levels including at global, national and regional levels, and to ensure that wildlife habitats are interconnected and fully-integrated. In other words, an ecological network should be created on a national scale. Use this as a basis for maintaining and creating systematic, basic and continuous networks of natural habitats for various species of wildlife in the mountain range, river basins and coastal areas. Based on these networks and the characteristics of the region, wildlife habitats of each area should be maintained and created.

Conserve existing natural environments if they are sound, and make improvements in areas that need them, so that they can form habitats for wildlife. In constructing artificial structures, give due consideration to preserving the connections between the natural habitats. As a basis for these activities, prepare a plan (Eco-Net Map) for maintaining and creating wildlife habitats using organized information about wildlife. At the same time, to maintain a balanced ecosystem and to help people towards a deeper understanding, control population in some species, establish structures to prevent wildlife causing damage, improve conditions for admitting visitors, such as construction of more informative centers, and development of talent.

(2)Improving conditions for recreational use of nature

For people to have more contact with nature and come to a deeper understanding of the role of nature, implement the following measures for conserving and restoring the natural environment, taking into consideration the characteristics of the nature maintenance areas, such as national parks, rural areas or urban areas. Plan and build facilities for recreation, for observation of nature, for outdoor activities and for experiencing agriculture, forestry and fishery, or construct a wide-area network of walking trails. Furthermore to encourage people to participate in nature-conservation activities, provide education and more information. Moreover the management systems including payment by visitors will be improved.

(3)Mitigation (Avoiding, minimizing and compensating for negative influences on the environment)

When implementing land development projects, it is necessary to take proper measures to conserve the natural environment by carrying out environmental assessments, preferentially to avoid or minimize changes to places where the natural environment needs to be protected.

For this purpose, implement the following.

1)Systematically collect environmental information as the basis for avoiding or minimizing the changes, and establish a system to distribute the information widely.

2)Conduct surveys and studies for environmental conservation at an early stage of land development, including selecting the site for the development, while encouraging citizens and experts to participate in the process.

If it is difficult to avoid or minimize the effects on the environment by the development project, a quasi-natural environment should be planned as an alternative to a natural environment, and it should be established and constantly managed based on regional characteristics of natural environment. To achieve this, make further studies into the following.

1)How to provide satisfactory compensation, conduct monitoring surveys, and properly implement additional measures after them.

2)How to share the costs for environmental conservation between the project entities and the entities that provide compensative schemes.

2.Decreasing the load on the cycles of nature

To recover a sound and attractive natural environment, it is vital to decrease the load on the cycles of nature. This load is the result of business activities and everyday life activities of people throughout the country. Promote environmental conservation measures to help to decrease the load.

(1)Prevention of global warming

Global warming is one of the most important environmental issues that threatens the lives of human beings. Because it is too late to take action after the damage has been done, the present generation should make aggressive efforts to restrain emissions of greenhouse gases including carbon dioxide in order to fulfill its responsibilities to the welfare of future generations.

Establish the basic facilities required to build urban or regional structures, transportation systems, production structures and energy supply systems that reduce greenhouse gas emissions. Educate and encourage each person to review their lifestyle and participate in the efforts to reduce emissions. To absorb carbon dioxide, conserve and expand forest areas and woods in urban areas, and promote the use of trees. Concurrently study, develop and distribute the necessary technologies. To decrease the load on the cycle of nature, comprehensively examine action to be taken against global warming, and take necessary action to implement requirements of the Kyoto Protocol that was adopted at COP 3 consistently. In addition, conduct further research and studies into economic measures for the prevention of global warming.

(2)Reducing and recycling waste

To respond to the increase in the volume and type of waste and the overloading of landfill sites, reduce the amount of waste, and reuse or regenerate raw materials or energy resources. Properly dispose of waste that cannot be recycled.

Establish and improve a system to collect resources from each kind of wastes or from construction byproducts and use them. Also establish recycling facilities and facilities that can utilize the heat produced by incineration. Ensure that a sufficient number of landfill sites will be constructed in cooperation with the regions, in a way that will conserve the environment, and particularly promote wide-area waste disposal systems in large urban areas. In addition, improve regulations and procedures concerning the construction and management of landfill sites. Take stronger action against the illegal dumping of waste, implement measures to restore the environment, and construct and involve public entities in constructing disposal facilities for industrial waste.

(3)Putting to work nature's purifying capacity

In areas with nature's purifying capacity or where natural energies are available, these advantages should be utilized to reduce the loads on the cycle of nature by implementing the following measures.

1)Conserve and manage forests, paddy fields, rivers, seaweed beds and tidelands.

2)Reduce the use of chemical fertilizers or pesticides, and recycle animal dung.

3)Establish new and improve existing sewage treatment facilities.

4)Establish facilities for the effective use of regional energy, such as wind power, geothermal energy and energy produced from waste.

Moreover, to make efficient use of recycled resources obtained from garbage or sludge, improve the conditions for cooperation between urban and rural areas.

(4)Responding to urban pollution

In the areas suffering from degradation of the environment due to over-concentration of population and services, great efforts should be made to restore the environment.

To solve air pollution due to nitrous oxide and other gases, problems from traffic noise, and water pollution in closed water systems, implement comprehensive measures and take action. Maintain the quality of the underground water. Furthermore, make efforts to maintain clean air and attractive water areas.

Also implement measures to reduce environmental risks caused by chemical substances that may have a harmful influence on people's health and the ecosystem, including dioxin and endocrine disruptors (environmental hormones).

3.International cooperation for environmental conservation in the global age

Japan needs to take a leadership role in international society in solving global environmental problems and in establishing and strengthening international cooperation with other countries, in view of its geographical characteristics (located in the monsoon area of East Asia).

To deepen mutual understanding on the environment, conduct exchanges and cooperation beyond national boundaries at each of grass-roots, regional and national levels. Furthermore, based on these exchanges and cooperation, promote cooperation in each region in reduction of greenhouse gas emissions and substances that cause acid rain, afforestation, and conservation of wetlands, keeping international agreements and using the environmental technologies and experience that Japan has accumulated. It is also necessary for Japan to participate aggressively in international discussions concerning the prevention of global warming, etc.

Section 3
National land conservation and management focusing on basin areas

1.Comprehensive measures focusing on river basin spheres

In accordance with the urbanization and changes in lifestyle in Japanese society, river basins are undergoing great changes and the beneficial hydrologic cycle is being lost. At the same time, depopulation and aging are under way especially in hilly areas. Under these circumstances, it is becoming more and more difficult to maintain forests and farmland in good condition. To enable sustainable land use and recovery of the hydrologic cycle in the 21st century, define a river basin sphere to include the areas that each basin supplies with water and the river's flood plain. Study records on the climate and pay special attention to the individual roles of rivers, forests and farmland in order to develop comprehensive measures for national land management.

(1)Comprehensive measures for river basin spheres

Basin areas characterized by a hydrologic cycle involve problems related to water, soil and sand. In these areas, water quality, afforestation, flooding, and erosion should be well-controlled over a wide area using a multi-layer or multi-field approach beyond administrative boundaries. This also applies to problems related to good management of forests and farmland, which form the biggest ratio of land use and which are expected to play useful roles in the public interest. The basin areas are comprised of natural water areas and related forests, farmland and urban areas. They form basic units for national land conservation and management. Study and make specific plans to form horizontally-linked councils and similar bodies for coordination and cooperation to respond to related problems. Also study the mechanism of the hydrologic cycle thoroughly, and look at the necessity and methods for controlling and conserving river water and groundwater, since they are closely related in the hydrologic cycle.

(2)Preserving and restoring the hydrologic cycle

Problems around riverheads must be solved not only for the upstream areas, but in concert with the downstream areas that the river serves. Based on a correspondence between upstream and downstream areas, plant more forests to re-establish and consolidate the riverhead. Improve the national management of riverhead areas by taking effective action that includes allowing public entities to use funds for afforestation. In the downstream areas and hilly areas, encourage a range of entities to increase the buildup of groundwater by stopping rainwater runoff, and return highly-treated sewage to rivers to recover the hydrologic cycle.

(3)Raising awareness of people in upstream and downstream areas

People are paying more attention to water-related problems and are becoming more interested in nature. In this respect, numerous civil and municipal activities are being conducted in connection with river basins such as the "river basin summit," events sited near forests, farmland and rivers, research on water culture and nature, and preservation of water quality. Support these activities to help people to recognize the importance of both upstream and downstream areas of river basins in their lives. To raise awareness among the general public, support the related governmental agencies in cooperating to establish centers that allow people to come into contact with forests and river areas and in constructing urban facilities in upstream areas. Also encourage citizens to network their activities and to participate more in activities to preserve rivers and forests.

(4)Maintaining a clean, good-tasting water supply

In response to increasing demands for clean and good-tasting water, establish new and improve existing sewage treatment plants, and maintain the quality of water in irrigation/drainage canals for agricultural use, and reservoirs at dams, rivers and lakes. For efficient and effective implementation of purification projects in all the river basin areas, encourage inter-project cooperation and coordination while targeting general pollution sources such as urban areas and farmland, and encouraging the participation and cooperation of citizens, companies and NPOs. For the drinking water supply, improve the capability of water purification plants and strengthen control over water quality including measures to destroy infectious microbes.

Moreover, for areas that need solutions other than the establishment of sewage treatment plants, and for enclosed water areas such as lakes and marshes, develop water purification technologies that use natural purifying methods to improve water quality. Also implement more safeguards against accidents caused by poor water quality, and introduce other water-related risk management measures.

2.Ensuring stable supply and effective use of water resources

Because of unstable patterns of rainfall in recent years, it has been becoming difficult to ensure a stable supply of water, which often causes water shortages. Furthermore, the frequent use of water for industry, changes in people's lifestyles, etc. are increasing the effect that water shortages have on society. In addition, because water resources are concentrated in particular areas, there are areas that tend to suffer from water shortages. To solve these problems, comprehensive action should be taken in river basin areas.

(1)Effective use of water resources

To make Japanese society conscious of conserving water, encourage the use of rainwater and the recycling of sewage in urban areas. At the same time, make people more aware of the importance of saving water, introduce water-saving commodities to more households, reduce leakage at water supply pumps, and improve the recovery rate of water used by industry. To prevent groundwater-related problems including subsidence, maintain levels of groundwater and make proper use of it. Obtain clear data on the present use of water, determine the changes in the demand for the different uses of water including water for agricultural use, for drinking, and for industrial use, and try to meet the new water demand in order to maintain and improve the water environment. Based on the results, study and prepare for the construction of rational water supply systems that meet regional requirements and the present needs of society.

(2)Strengthening measures against water shortages and developing new water resources

To strengthen measures against water shortages, use the council to solve the drought-related problems, etc. and establish the necessary facilities. In the event of extreme shortage of water, examine how to effectively coordinate the use of water between different consumers and areas and between related consumers, including methods of compensation.

In areas that have unstable supplies of water because of increasing demands for water for urban use and delays in the development of new water resources, stabilize the water supply by developing new water resources. For isolated islands or peninsulas that do not have enough water, ensure stable supplies of water by a variety of methods including the construction of reservoirs, desalination, and the construction of underground dams. In the process, it is also necessary to make effective use of existing facilities including rebuilding existing dams and cooperation between reservoirs. For water used in agriculture, review the usage before upgrading water supply facilities so that any surplus water can be used effectively. To enable limited water resources to be managed effectively, establish wide-area water supply systems by improving the connections between rivers and by building facilities that supply water to wide areas.

3.Improving river basin spheres in a comprehensive manner

Changes in land/water use in river basin spheres are causing a range of problems. For example, urbanization has caused an increase in flooding and deterioration of the water quality in rivers, and the drying up of springs has led to a decrease in the volume of water in rivers and to changes in the amounts of alluvial soil and sand in the basins. To solve these concrete problems, encourage river basin spheres to cooperate in taking comprehensive action. Also improve the natural functions of rivers to rebuild the relationship between people and rivers.

(1)Flood control targeting both the river basins and the flood plains

To ensure safety against floods and landslides, encourage each river basin area to make comprehensive efforts towards the development of communities that are more able to deal with floods and that can survive without damage even in the case of floods on a scale exceeding the design levels of the flood control structures. To minimize the damage when rivers flood, conserve forests located around rivers, make dangerous areas and evacuation routes in the event of flood and landslides clear to the general public, and carry out other measures centered on the flood plains. Furthermore, in order to manage structures connected with floods and landslides, build landslide barriers to control erosion effectively. Improve rivers, sewage systems, dams and drainage canals so that they fit in with the life of the communities in the river basin areas. Also build new and improve existing structures to prevent landslides and avalanches of rocks and soil and conserve forests located on slopes at the foot of mountains adjacent to city areas. Build an advanced information and communications infrastructure for disaster prevention and river management. Take a long-term view of improving rivers, and from the beginning of the 21st century, make improvements to large rivers every 30 to 40 years, and to small and medium-sized rivers every five to 10 years based on calculated rainfall amounts.

In large city areas, carry out improvements to rivers as soon as possible because floods in these areas will cause serious and extensive damage. At the same time, build sturdy embankments to prevent flooding under the regional community development plan in preparation for large-scale floods that exceed the design levels of the flood control structures. Or strengthen existing embankments to make them stronger against large floods and earthquakes. Also improve sewage systems and flood control facilities including drainage systems, to solve the problem of frequent flooding in some areas.

With the high possibility that hilly areas could become cut off in the event of floods or landslides, build more flood/landslide control structures to ensure the safety of the residents.

(2)Comprehensive erosion control targeting river basins and coastal areas

In response to lowered riverbeds and retreating coastal lines, carry out surveys and studies on the flow of sand and soil from mountainside to seaside to provide comprehensive erosion control that takes the ecosystem into consideration. In the river basins, build structures to remove sand in reservoir dams, and develop erosion control dams that do not stop the flow of sand and soil in the event of small and medium-scale floods. In coastal areas, ensure a proper flow of sand along the coastlines, and develop methods to recover and maintain sandy beaches. To ensure safety in coastal areas, construct new and improve existing structures that provide safety against high tides, tidal waves and stormy seas according to the degree of coastal erosion and the state of the hinterland.

(3)Preserving nature and improving the environment along rivers

To preserve nature and improve the environment along rivers, conserve natural riverbanks and forests around rivers, revitalize river channels, develop river areas into nature-rich places by building fish ladders, etc. Build disaster-proof structures and develop new materials that are in harmony with nature along rivers. Also improve the waterside environment so that people including the elderly and the handicapped can have more contact with rivers in their daily lives. Improve the environment around dams to provide local people with access to the reservoirs, ensure stable water levels by building sub dams, and improve the waterside environment by planting trees along the lakefronts. In urban areas, build networks of water and greenery, and encourage extensive afforestation and improve watercourses and rivers as one measure for disaster preparedness.

4.Forest management

(1)Basic forest management policies

Forests cover two thirds of Japan. It is important to ensure that they can continue to be used for public welfare in terms of national safety and water resources. They should be utilized in a sustainable manner as renewable resources.

Recently, however, the traditional forest management system has not been working satisfactorily due to stagnation in the forestry and wood industry, falling numbers and aging of people engaged in forest management, and the subsequent lowering of the management level. On the other hand, in accordance with the increasing concern over natural disasters and water shortages, people are paying more attention to forests located in upstream areas. They regard forests as important in the conservation of a natural and living environment, and are more eager to take part in forest nurturing activities. There are also rising demands for the use of forests as places for events, or for health, cultural and educational purposes.

Based on local conditions, forests will be managed according to the following basic policies.

(Promotion of sustainable forest management)

As one step in the solution of global environmental problems, efforts are being made all over the world towards attaining "sustainable forest management." Promote "sustainable forest management" in Japan too, through technical cooperation with overseas countries and centered around the concept that Japan's forests belong to the world. With this as Japan's basic forest management policy, plan qualitative improvements in forest resources by combining different improvement projects and conservation measures in an organic manner.

(Developing a new culture around forest use in the 21st century)

Japan is blessed with forests; its people have had deep contacts with the numerous aspects of forests, affecting their daily lives, industry, architecture, religion, and art, and this has created a "forest culture." In historical times, Japan established a forest management system to ensure a constant supply of firewood and charcoal, and to ensure a stable supply of water and manure that are indispensable in growing rice in paddy fields. In this system, forests in upstream areas or next to villages were conserved and the benefits of the forest effectively enjoyed. This system has formed the basis of the "forest culture." From this point, encourage more people to recognize the importance of forests and rebuild the forest management system by promoting exchanges and cooperation between urban and rural communities aimed at more contact with forests and increasing afforestation. By taking these measures, establish lifestyles that will enable sustainable and stable use of recyclable forest resources to form a new culture centered around forest use in the 21st century.

(Improving forest management)

Forests represent ecosystems centered around air, water, soil, trees and other plants, and animals. Forests affect the lives of people, including those living in downstream areas and the overall ecological sustainability. If the use of locally produced lumber is encouraged, forestry will be reinvigorated and local forest management will further improve. Based on this idea, pursue consensus and further cooperation between a wide range of related persons (between private and national forests, between forestry and wood industry, and between upstream and downstream areas). Improve forests and reinvigorate forestry by establishing forest management systems suited to each region's characteristics, based on river basin as a unit. Also make efforts to reinvigorate mountain villages as a prerequisite to encouraging citizens to take part in forest nurturing activities, to maintain and strengthen the public role of forests, and to improve forest management.

Change the focus of management of national forests from lumber production to the maintenance of public functions for national safety and to the conservation of primeval forest ecosystems. Sound national forest operation will ensure that forests fulfill their public functions. Develop new projects in response to people's demands and changes in the needs of the times.

(2)Forest management for the 21st century

(Extensive and new uses of forests)

Give the general public a greater awareness of the role of forests, improve the forest environment so that people can use the forest in many different ways, and encourage the use of forests for many purposes. Establish a system that enables each age group including young people to learn about and experience the relationship between human beings and forests, forest ecosystems and the role of the forest through experience in local forests and green tourism. Provide many different entities with the opportunity to experience life in a mountain village, to take part in forest nurturing activities, and to share in the creation of a "forest culture." As a basis for this, improve forests and promote the use of forests including trails for a walk in forest. In addition, train forest instructors, utilizing the skills of local people, provide more information on forests over the Internet, and make improvements in "software" aspects.

As one new use of forests, study the creation of residential or business space in the forest environment.

(Encouraging more entities to be involved with forest management)

Encourage more people to participate in afforestation. Promote cooperation between upstream and downstream areas and further utilize funds for profit-sharing afforestation and for the forest improvement towards the diverse development of forest management. Based on the concept that forest possessors and forestry enterprises should first of all be self-supporting, provide them with proper support, further utilize the third sector engaged in forest management, and give comprehensive support to propellers of forest management including new participants based on cooperation among related persons. Furthermore promote exchanges and cooperation between urban areas and mountain villages so that people who want to take part in forest nurturing activities can actually contribute to forest management. Also forests that can no longer be managed because the owners have moved to other areas should be placed under proper management by forestry enterprises, forest owners' associations or by public agencies.

(Planning forest improvements)

While promoting participation and cooperation among numerous entities, determine the present structure of forestry and clarify requests related to forest management. Then make long-term forest management plans as shown below.

1)Promote planting on wasteland, thinning and tending for multi-storied forest improvement. Establish facilities to conserve forests. These measures are to provide forests with high levels of water and soil conservation.

2)Create attractive and sound forests that preserve bio-diversity and that are easily accessible. This will be achieved by conserving diverse ecosystems and networking them, planting different kinds of trees, conserving forests located in the suburbs of urban areas and villages, improving forest scenic beauty, conserving and tending broadleaf trees and by improving recreational facilities.

3)Promote the comprehensive recycling of forest resources to make them sustainable, while strengthening the functioning of forests as carbon dioxide sinks.

Improve forest road networks, which are indispensable for forest management. To protect the forests, maintain and strengthen their functions by improving forest conservation facilities. Furthermore, conduct more surveys and studies on sustainable forest management and distribute the results. In addition, provide more information about forest resources, something that is indispensable for proper forest management. In areas that suffer from the aging of forestry workers, clarify ownership and boundaries where necessary.

5.Management of farmland

About 14% of Japan is farmland, consisting of networks of agricultural irrigation and drainage canals and irrigation ponds. Farmland is the basis of food production and supports our high standard of living. Proper maintenance and management of farmland can contribute to public welfare by providing the following benefits. First, terraced paddy fields located on the slopes of mountains serve as reservoirs for rainfall and prevent landslides. Paddy fields located on flat ground also serve as reservoirs and these fields, together with agricultural irrigation and drainage canals and irrigation ponds, provide a pleasant water environment and beautiful views. They provide opportunities for recreation, for children to cultivate aesthetic sensitivities, and for social education in a rich national environment. Recently, however, more and more arable land is being abandoned in hilly areas and it is becoming difficult to manage farmland properly.

In view of these facts, implement the following measures.

(1)Comprehensive management of farmland

Promote comprehensive measures for sound agricultural development and to maintain and secure rich farmland. In particular, improve the agricultural infrastructure including paths between fields and carry out disaster prevention measures as one condition for the proper conservation and management of farmland. In hilly areas, improve farmland according to local conditions. Furthermore, give more support to local citizens to improve the farmland management system, and also support improvement of the local environment based on a strengthened partnership between local citizens, local public entities and private companies. In hilly areas suffering from depopulation, to avoid the farmland including terraced paddy fields from becoming overgrown, implement the following measures for the proper management of farmland and for human development.

1)Promote exchanges and cooperation between rural and urban areas and between farmers and consumers.

2)Give public support according to regional situations with the approval of the people concerned, and encourage the related municipalities, agricultural cooperatives, public associations for land improvement and third sectors to be more actively engaged in farmland management and improving the land.

(2)Utilization of farmland

Support regional activities towards proper farmland management throughout the nation, and promote green tourism and develop attractive rural communities to provide people with more opportunities to visit farmland. For this purpose, plant trees or flowers on abandoned arable land, and establish a bio-tope network to conserve and recover a rich natural environment. Provide urban residents with the opportunities to experience farm work on "citizens' farms," and improve the facilities and support systems that use the experience of farm work as recreation. The continuation of proper agricultural activities and the appropriate management of farmland will also contribute to the conservation of river basin spheres including the maintenance of water quality, and to an increase in waterside amenities.

Section 4
Conservation and utilization of the ocean and coastal areas

Noting the rise in people's awareness of the importance of the global environment, and based on Japan's rights and obligations provided in the UN Convention on the Law of the Sea, it is essential to regard the ocean and coastal areas as common assets of humanity and as a valuable part of the country to be handed on to future generations in good condition. These areas will be utilized in multiple ways but should be properly looked after for future generations.

Japan's ocean and coastal areas are in two groups. Included in the first group are the Kuroshio current, the Oyashio current and the Tsushima current areas, and in the second group are the three largest bay areas and the Seto Inland Sea area. The second group of areas are within the Western Japan National Axial Zone and the first group areas are within the remaining three new National Axial Zones. In keeping with the characteristics of each area, implement the following measures to develop the structure of the country in a desirable way.

1.Enabling diversified contacts between people and the sea

Japan's coastal areas are in severe natural conditions, but the country's population and assets are concentrated in these areas. It is therefore necessary to protect people's lives and property and to improve and develop coastal areas into safer areas, providing against natural disasters such as flood tides and tsunamis, and in response to the coastal erosions that can be observed throughout the country. For this, implement urgent countermeasures against earthquakes and tsunamis, strengthen coastal protection structures, improve their durability by complex types of coastal protection, and upgrade the systems that monitor flood tides or tsunamis and provide information on their movements.

In coastal areas where there is interaction between the sea and the land, the natural cycles and the reproductive capacity and diversity of nature are being damaged. This is causing numerous problems including coastal erosion, eutrophication and red tides, and a decrease in places suitable for the many creatures to breed and grow. Depending on the characteristics of each coastal area, prevent erosion, improve the quality of the water and the ocean floor, promote quantitative and qualitative recovery of shoal areas such as tidelands, reed beds and sandy beaches and restore the land's natural purifying power. By taking these measures extensively and comprehensively, recover and create attractive and sound coastal environments where people and nature can coexist.

Furthermore, develop seaside and coastal areas into multi-functional spaces that provide attractive views, public access and attractive waterfronts. Also promote cooperation and exchange among projects related to the seas. For example, promote exchanges for relaxation, study, etc. to provide people with opportunities to experience the nature of the ocean, and the life and communities that are centered around the seas. Exchanges will take place concerning the researches and technologies on marine themes among the industries including fishing. Events focusing on the oceans will be held and wide-area travel routes will be formed by the use of a marine transportation network. Targeting people who use seaside recreational facilities, establish users' organizations and make rules for their use, ensure that there is a sufficient number of moorings for pleasure boats and build a wide-area network for pleasure boats.

2.Promoting comprehensive plans for the management of coastal areas

Clarify the state of the natural environment in coastal areas in order to keep safety of the areas, make multiple use of them, and create desirable environments and autonomous attractive communities. Local public entities will take the lead in drawing up comprehensive management plans for coastal areas and will implement carefully a range of projects and measures according to a schedule in a comprehensive manner. The national government will set clear guidelines for drawing up such plans and support local public entities through national projects and by encouraging private and non-profit organizations to cooperate with the local entities. If a coastal area belongs to more than one local public entity, the related entities, and if necessary the national government, should cooperate in making and promoting plans for the area.

To improve the coastal environment, it is necessary to make long-term targets and step-by-step plans taking a wide view towards the recovery and creation of a favorable environment. It is also important to coordinate projects and plans between various entities. Each entity should plan and promote cooperation between the leaders of the related entities.

3.Establishing an international oceanic order, and promoting technological development

For proper execution of rights and fulfillment of obligations on fishery resources within the exclusive economic zone, promote proper resource management depending on the characteristics of reproduction resources through the TAC (total allowable catch) system. Protect and recover fishing grounds such as reed beds by reducing the effects of development, and also promote sea-farming and conduct surveys and research for well-planned and sustainable use of resources. To make further use of the sea as the frontier of the 21st century, develop new vessels and floating structures. Improve basic marine productivity and promote technological development and the practical use of new technologies for the use of fishery resources. Conduct research and development into petroleum and natural gas on the continental shelf as well as other mineral resources on the deep sea floor. Also conduct R&D into tide and wave energy generation. In order to protect and conserve the marine environment, and to clarify the causes of and make accurate predictions on global phenomena such as global warming and climate changes, and also to deal properly with marine and coastal accidents, encourage marine studies, surveys, R&D, and data collection in cooperation with international organizations. It is necessary to establish an international system of cooperation to implement marine resources development, management, surveys and research.

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