The spatial planning in the affected areas after the

2011 Japan tsunami

HIRANO, Katsuya

Disaster Information Management and Public Collaboration Division

IRIDeS, Tohoku University

Who am I ?
I have taken part in reconstruction
planning for the city of Ishinomaki
and the town of Minamisanriku,
both in Miyagi Prefecture, and in a
visual quality assessment of the
new coastal embankment of
Miyagi and Iwate prefectures, as
an expert in urban design and
architecture for infrastructure.

Comprehensive Planning Issues In Rural Areas

Population decline and a super-aging society

Based on the latest population projection for 2012, the total

population of Japan will decrease from 128 million in 2010 to 87
million in 2060. In addition, the ratio of high-aged people, taken as
over 65 years old, will increase from 23% in 2010 to 40% in 2060.

Decline of city/town centre

In rural areas, a low population density means a low service level of

public transport, a low service level of public transport means high
vehicle owner-ship rates, and a high vehicle ownership rate causes
the service level go even lower. As a result of this vicious circle,
nearly every adult person has one vehicle in rural areas in Japan.
Needless to say, this vicious circle drives retail parks in the suburbs
to prosperity, while on the other hand, the city/town centre declines.

Shutter Street
As a result of decline, shutter
street was born as a new term in
Japan. It means that closed shops
(shuttered shops) can be found in
rows on the street. Almost all
cities and towns in rural areas in
Japan have several shutter streets
in the city centre.

Comprehensive direction of city/town/village in

rural areas of Japan
compact city/town/village

The compact city/town/village becomes not a preferable direction but a

minimum requirement, because sustainability for municipal finance,
public transport, community activity and so on is a more critical
problem. Therefore, the compact city should be materializing in the rural
areas in Japan. It is possible to say that this is a common thought
between city planners in Japan.

The Smart-Shrinking City/Town is needed for rural areas of Japan.

Dilemmas And Difficulties In Reconstruction Planning

The Central Disaster Prevention Council (CDPC) of Japan decided the new
standard for tsunami prevention.

!
Tsunami Level One (L1)

The frequency of L1 is once per several decades to 150 years.

Against L1, a principle for countermeasures is to use coastal protection

facilities, such as a coastal levee.

!
Tsunami Level Two (L2)

The frequency of L2 is once every 500 years or longer.

Against L2, a principle for countermeasures is not protection but

evacuation of local residents.

The tsunami on 11 March 2011 is included under L2.

Decision Procedure of L1 and L2

Distribution Figure: Historical Tsunami Hight on Time axis

Once per 500 years vs. Actual Experience

The Decision of CDPC is Clear and Rational

Life of Protectional Structure, such as a coastal levee, is not so long

Protection level for major Japanese rivers is planned from 30-years flood
to 200-years flood

!
However

!
From a view point of survivors, L2 is not a Once per 500 years but a Actual
experienced one.

!
This dierence in sense of time is quite critical and essential for reconstruction
planning.

Municipal Governments seek a solution to protect a L2.

Three Principles for L2 Protection

Principle of moving to higher ground (for Ria Coast)

Principle of Multi-layer Protection (for Plain Coast)

Principle of 2-2 rules (skip to explain because of time)

Moving to Higher
Ground

Successful Example of Historical

Moving to Higher Ground

at Yoshihama, Iwate

Moving to Higher Ground

Fishing Village will divide into

two parts in actual plan.

Problem of Moving to Higher Ground

No one will be able to clearly explain how many people will live in the newly
developed higher ground after 30 years and how many people will move in as
the next generation.

The residences are located in the mountains and the workplace, such as a
fish-processing factory, is located behind the fishing port. This is directly
contrary to the concept of a compact city.
The tsunami washed out the historically
cultivated rural landscape. It is a severe
break in the regional tradition of the
landscape. However, Moving to Higher
Ground will abandon remained Streets,
views from streets, a shrine on the
hillside, and the composition or relation
of facility and nature.

Photo by Asia Air Survey

Multi-layer Protection

High Embanked Motor Way

Stopped The Tsunami

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Multi-layer Protection

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Re-construction plan of
Ishinomaki has a second Levee

Problem of Multi-Layer Protection

The life of second levee (High banked Road) will be shorter than 500 years.
According to engineering aspect, it will be strange solution.

In fact, National government and Municipal government had a severe conflict

to construct second levee

Concluding Remarks
Re-construction planning has several dilemmas.

To rebirth a tsunami aected city/town/village as a sustainable one, we have

no eective method, because of lack of preparation.

The reconstruction planning in developing phase is very easy. Disaster will

become a great opportunity to make a infrastructure to support a
developing.

There is no comprehensive project scheme for a smart-shrink in Japan, in

spite of Japan has turn into shrinking phase. If we had a such scheme, Reconstruction plan would be much easier than actual situation.

These consideration will published in Division D, Journal of Japan Society for Civil Engineers (JSCE) on
next month

Title is DIFFICULTIES IN POST-TSUNAMI RECONSTRUCTION PLAN FOLLOWING JAPANS 3.11

MEGA DISASTER:DILEMMA BETWEEN PROTECTION AND SUSTAINABILITY