Proceedings of International Symposium on Planning 2013 The Planning Process of the Restoration from the Great East Japan Earthquake for Resilient and Region in Miyagi-Pref. Mikiko Ishikawa* Abstract Two years and four months have passed since the Great East Japan Earthquake had occurred on March 11 in 2011. The dead are 15,879 and the missing are 2,712. Up until the end of March, 2012, most of the municipalities established the restoration plan. However, the actual planning process and the implementation differ a lot, and it caused distinctive disparities between municipalities. Based on the recognition of the above situation, this paper clarifies the following three points. The first is to analyze the characteristics of the restoration plan of 15 cities and towns in Miyagi Pref., from the point of view of sustainability. The second is to review the planning process from March 11in 2011 to June 11 in 2013. The third is, by comparing the gap between the target and existing conditions, the issues of the restoration would be analyzed. The fourth is to discuss about the structure of resilient city and region from the point of view of the planning process with refugees. In this paper, for analyzing sustainability of the restoration, the three points were set up, environmental sustainability, social sustainability and cultural sustainability. It becomes clear that as for environmental sustainability, basic reconstruction had decided, but the implementation is very slow, because of the difficulties of decision making process between municipality and refugees, and budget constrains for the reconstruction of tiny communities. As for social sustainability, it becomes clear that the ratio of decrease of population and increase of elderly people have been accelerated compared with that of before the tsunami, and in some communities, social sustainability faced to the crisis. Cultural sustainability is very weak to be recognized, since few municipalities set up the goal of the restoration from this aspect. The precise analysis of the reconstruction process in Iwanuma would give the some insight that the citizen participation from the beginning have been taking important role in the process of the restoration. Key words: Great East Japan Earthquake, Tunami, Restoration, citizen participation * Professor of Chuo University, Faculty of Science and Engineering Dept. of Integrated Science and Engineering for Sustainable Society Email: ishikawa.27w@g.chuo-u.ac.jp - 1 -
1. Social Changes of Miyagi Pref. before and after the tsunami Table 1 is damages of Miyagi Pref., caused by the Great East Japan Earthquake. The Number of deaths is 10,436 and the missing is 1,308. The completely collapsed buildings are 82,889 and half collapsed are 155,107. Table 1: Damages of Miyagi Pref. caused by the Great East Japan Earthquake Damages and the changes of population and the ratio of elderly people Local goverment of suffering from tsunami in Miyagi Pref. Sendai Ishinomaki Shiogama Kesennnuma Natori Tagajyo Iwanuma Higashi- Matsushima Watari Yamamoto Matsushima Shichigahama Rifu Onagawa Minami- Sanriku 1,045,986 1,066,079 1.9% 18.3% 52 907 30 30,034 109,608 21,339 162,822 150,697-7.4% 26.8% 73 3,507 450 19,957 13,114 26,178 56,490 56,309-0.3% 27.4% 6 44 0 655 3,188 1,470 74,247 68,766-7.4% 30.8% 19 1,184 239 8,483 2,571 10,880 73,134 73,763 0.9% 18.9% 27 951 41 2,801 1,129 3,809 63,060 62,455-1.0% 18.3% 6 218 0 1,746 3,730 3,026 44,128 43,640-1.1% 20.0% 29 186 1 736 1,606 2,192 43,142 40,358-6.5% 22.9% 37 1,125 26 5,507 5,560 6,335 34,845 33,976-2.5% 23.2% 35 281 6 2,389 1,150 3,097 16,704 13,498-19.2% 31.6% 24 697 18 2,217 1,085 2,446 15,085 15,255 1.1% 30.9% 2 7 0 221 1,785 382 20,416 19,830-2.9% 21.6% 5 75 3 674 649 1,133 33,994 35,765 5.2% 16.3% 1 1 0 56 900 403 10,051 7,776-22.6% 33.4% 3 607 265 2,924 347 3,121 17,429 14,957-14.2% 30.1% 10 617 222 3,143 178 5,811 Total 1,711,533 1,703,124 - - 328 10,407 1,301 81,543 146,600 91,622 Whole Miyagi Pref. Before Earthquake (Oct., 2010) Population Damage Number of resident Rate of people in Population Flooded Number Number Rate of Complete Half temporary Increase area of of Elderly collapse collapse housing (2010 to (km2) deaths missing (May, 2013) 2013) After Earthquake (May, 2013) 2,348,165 2,326,702-0.9% 22.3% 328 10,436 1,308 82,889 155,107 96,741 Data Source Section of Crisis Measures, General Affairs Department, Miyagi Prefecture June 2013 National Census 2010-2 -
Proceedings of International Symposium on Planning 2013 The population of Miyagi Pref. is 2,326,702, whereas 1,703,124 people are living in the coastal area in 2013. The city of Sendai has a population of over 1,000,000 people. Other cities are Ishinomaki (160,000), Kesen-numa (73,000), and Natori (73,000). There were numerous fishing villages along rias coastal area from Kesennuma, Minami-sanriku, Ishinokaki and Onagawa,where tsunami destroyed the community completely.. Cities and towns in the central and southern areas of Miyagi Prefecture are basically agricultural areas of rice fields, but because of the rapid urbanization beginning in the 1960s, housing and industrial developments occurred in metropolitan Sendai. Cities such as Tagajyo, Rifu, Natori, and Iwanuma, located within the metropolitan Sendai region, have experienced population increase. The ratio of elderly people are high in rias cosatal zone area, whereas metropolitan Sendai are relatively low.(below 20 %) The Fig.1,2 shows the population increase and the ratio of elderly people including Iwate Pref. and Fukushima Pref. It becomes clear that the Sendai Metropolitan area is the only area which has the potential of the growth. Fig, 1 Population increase of Tsunami Damaged Area Fig.2 The ratio of elderly people of Tsunami Damaged Area - 3 -
Sendai Ishinomaki Shiogama Kesennnuma Natori Tagajyo Iwanuma Higashi Matsushima Watari Yamamoto Matsushima Sichirigahama Rifu Onagawa Mimami Sanriku 18.3% 19.1% 18.3% 19.7% 23.1% 23.2% 21.6% 16.3% Fig.3 Ratio of elderly people of Miyagi Pref. 27.2% 27.4% 30.8% 31.6% 30.9% 33.4% 30.1% 0.0% 5.0% 10.0% 15.0% 20.0% 25.0% 30.0% 35.0% 40.0% Rate of Elderly Population Fig. 4 shows the changes of population increase before and after tsunami in Miyagi Pref. We could find that the rapid decrease of population had occurred in Onagawa (-22.6%), Yamamoto(-19.26%), and Minami-sanriku(-14.26%). We carried out the hearing of each municipality in June, 2013, and they said that the actual number of population decrease is more, because many refugees remain there registration as before, in order to receive the subsidies from the municipality. These statistics gave us the fundamental issues of the restoration planning about the future perspectives, since every municipality had set up the restoration plan based on the stable situation of population changes. 2. Restoration Planning Process The process of restoration following the Great East Japan Earthquake has been very slow. It took three months for the Fundamental Law of the Restoration to be enforced (23 June 2012). Based on this law, the roles of the national and local municipal governments were established and initial financing for the restoration was secured. Also, a special district was introduced, and a Ministry of Restoration was decided. - 4 -
Proceedings of International Symposium on Planning 2013 Sendai Ishinomaki Shiogama Kesennnuma Natori Tagajyo Iwanuma Higashi Matsushima Watari Yamamoto Matsushima Sichirigahama Rifu Onagawa Mimami Sanriku 2005 to 2010 2010 to 2013 19.2% 22.6% 14.2% 3.9% 5.9% 4.8% 0.3% 5.8% 6.5% 1.0% 1.2% 0.8% 5.9% 0.8% 2.5% 5.7% 6.8% 3.1% 2.9% 6.3% 6.5% 2.0% 1.9% 6.5% 0.9% 0.5% 0.6% 1.1% 5.4% 5.2% 30.0% 20.0% 10.0% 0.0% 10.0% Rate of Population Increase Fig.4 Rate of Population Increase from 2005 to 2013 Based on this Fundamental Law, strategies for restoration implementation were established on 29 July 2011. Fig.5 shows the date when each restoration plan was established. Even in this crisis, some municipalities started to make their own restoration plan, without waiting for help from the national government. Onagawa and Iwanuma city established their restoration plan within 6 months following the tsunami. The leaders of those cities considered that the safety of refugees lives required immediate action. They decided to plan their own restoration first and establish goals for implementation, without waiting for decisions from the national government. - 5 -
Fig. 5 Date of restoration plan implementation Restoration methods are classified into three basic types. The first type is the coastal areas characterized by rias, where the seashore area would be designated as a disaster danger area and housing would be prohibited. Figure 6 shows a diagram depicting a Community Removal Project (CRP) for preventing disasters in such regions. In a CRP, new residential areas are expected to be built in higher areas. However, in this region the actual adjacent hillsides are very steep, and flat building sites are not common. Therefore, certain areas currently lying within the seashore area will have to be raised up to form land that will be used as a residential zone. In this case, because the raised area has a complicated existing land use, so called Land Readjustment Project (LRP) would be introduced. - 6 -
Proceedings of International Symposium on Planning 2013 Village Removal New Village Removal Project Area Fig. 6 Community Removal Project Source: Ministry of Restoration, the existing Conditions of the Restoration, Dec.2012 Figure 7 shows a second pattern for the restoration. This method has been introduced to the alluvial flats area in Miyagi Prefecture, where no higher land exists adjacent to the damaged city. In this case, to secure the future city from tsunami, a secondary embankment would be necessary. A technical problem lies in the lack of an adequate technical standard for secondary embankments. The municipality must consider the cost and effectiveness of a secondary embankment. Leveling up area for Housing Dangerous Area for Housing Land Use Sea Embankment Land Readjustment Project Construction of the secondary embankment Fig.7 Land Readjustment Project involving the introduction of a secondary embankment - 7 -
Figure 8 shows a third pattern for tsunami restoration, which is being introduced to the alluvial flats area of Miyagi Prefecture. In this case, the damaged community decided to move from the seashore and build new villages adjacent to an existing community that the tsunami had affected, but not destroyed. To ensure the future safety of the community, the municipality decided to develop a multiple defense system including a canal, sand dunes, seashore forest, shrine forest, and an agricultural village forest. By undertaking an extensive survey, they came to understand that these assets, passed on from previous generations in the area, effectively weakened the impact of a tsunami. Community Relocation New Residential Area Multiple Defense Systems for Tsunami Dangerous area for Housing Sea Embankment Develop multiple defense systems by creating new seashore forests that have various hills for weakening the power of tsunami Fig. 8 Community Removal Project involving the development of a multiple defense systems for the tsunami Table 2 is the summary of the above restoration projects in Miyagi Pref. in June, 2013. There are 191 CRP and 44 had started to construct. The difficulties of the implementation are lying especially on the small communities in rias. For example, in Minami-sanriku there are 27 projects, but only 3 had started. Also in Kesen-numa, there are 47 projects, and only 5 projects had started. As for LRP, 32 projects are planned, and 16 projects are approved by the Ministry of Land use and Transportation, but it will take a long time, because of the complicated landownerships. Since the dead line of special financial support would be ended in 2015, the municipalities where are facing the difficulties of agreements or suffering from the decrease of population have to think about the appropriate way for the implementation. - 8 -
Proceedings of International Symposium on Planning 2013 Table 2 Restoration Projects in Miyagi-Pref. Projections of Reconstructed Community Planning from Great East Japan Earthquake and Tsunami Community Removal Project Land Readjustment Project Improvementt project of reconstructed Base from Tsunami Strengthening Project for Disaster Protection Function in Fishing Settlement Sendai Ishinomaki Shiogama Kesennnuma Natori Tagajyo Iwanuma HigashiMatsus hima Watari Yamamoto Matsushima Shichigahama Rifu Onagawa MinamiSanriku Number Agreement of Planning with District minister Number Start of of Constru Planning tion District Decision to urban planning Project approval Number of Planning District Decision to urban planning Project approval Number of Planning District 14 14 7 - - - - - - - - Measures for Business Expenditures of Reconstruction Grants 56 53 13 15 10 4 - - - 47 4 2 2 0 2 2 2 - - - 3 3 47 46 5 3 3 2 1 1 1 38 4 1 1 0 1 1 0 - - - - - - - - - - - - - - - - 2 2 2 - - - - - - - - 7 7 7 5 2 2 - - - 4 4 5 5 1 - - - 2 2 2 - - 3 3 2 - - - 2 2 2 - - - - - - - - - - - - - 5 5 0 4 4 4 - - - - - - - - - - - - - - - - 22 22 4 1 1 1 1 1 1 2 2 27 27 3 1 1 1 2 2 2 1 1 Total 191 187 44 32 24 16 8 8 8 95 18 Data Source Section of Crisis Measures, General Affairs Department, Miyagi Prefecture June 2013-9 -
3. Goals of Restoration plan in Miyagi Pref. Table 3 is the goals of restoration plan which is mentioned in the restoration plan of each municipality in Miyagi Pref. The author introduced three aspects, environmental sustainability, social sustainability, and cultural sustainability. As for environmental sustainability, there are planning diverse strategies, reflecting the geological characteristics. However, as I mentioned above, it is a kind of ideal plan, without considering the population decrease or budget constrains. The main focus of social sustainability of municipality is the enlargement of the possibility of employments. To support the existing fishery and agriculture is the basic strategy. However, the new strategies, considering international economic dynamism, are very weak. As for cultural sustainability, few municipalities proposed in this aspect. Probably, since damages are huge, they did not have enough power to think about the cultural sustainability. 4. Discussion about the planning process together with refugees In ordinal case of community and city planning, the citizen participation is common. When huge disaster occurred, how it would work, is a very important issue to consider. The restorations are now in a process, it is difficult to clarify these activities in this point, therefore, in this paper, I would like to introduce the case of Iwanuma, since CRP had started and decision making had done based on the refugees participation. The city of Iwanuma developed the cross roads of Oshu kaido and Rikuzen-hama kaido. Its population of 44,000 is spread over 60 km 2. Six villages on the edge of the city were located along the coast and were completely destroyed by the tsunami. 182 people died and 5426 buildings were destroyed. In contrast with the rias coastal area, the tsunami here overran extensive paddy fields, eventually leading to salt damage. The first step for restoration was to find safe refuge for the survivors. The six affected communities decided that they would not to return their villages on the seashore which had been maintained for 400 years. However, they wanted to maintain the strong ties to their former homes. This vision was declared in April 2011, very early in the restoration process. Based on this declaration, the city of Iwanuma established a restoration committee on 25 April 2011, consisting of refugees, scholars, agricultural and industrial leaders, younger residents, and the mayor. This committee established seven goals and initiated an implementation process to accomplish them. The seven goals are: - 10 -
Proceedings of International Symposium on Planning 2013 Table3 The goals of restoration plan Sendai Ishinomaki Shiogama Kesennnuma Natori Iwanuma Higashi- Matsushima Watari Yamamoto Coastal Topography alluvial plain rias coast rias coast, islands rias coast alluvial plain alluvial plain alluvial plain alluvial plain alluvial plain Matsushima rias coast, islands Shichigahama Key industry tertiary industry fisheries industry fisheries industry fisheries industry agriculture agriculture agriculture agriculture agriculture sightseeing fisheries industry Rifu Onagawa Minami- Sanriku rias coast alluvial plain rias coast rias coast commerce and industry fisheries industry, nuclear plant fisheries industry Date of restoration plan November, 2011 December, 2011 December, 2011 October, 2011 October, 2011 September, 2011 December, 2011 December, 2011 December, 2011 December, 2011 December, 2011 December, 2011 September, 2011 December, 2011 Enviromental Sustainable Seaside exchange restore project Introduction of new energy and the recycling - energy (eg. Biomass) Conservation of natural environments and Landscape Realization of Smart Maintenance of the natural experience-based park Defense from a tsunami by creating A Hill of a Thousand Hopes Community planning for disasterresistant from application of seaside forest Ensuring security and safety from multiple defense of application of seaside forest Promotion of the ecotown Maintenance of the disaster prevention open space Utilized a natural energy in consideration for environment Applicationof the natural energy Creating open space for disaster protection Tenacious disaster prevention to Natural symbiosis Promotion of the ecotown Applicationof the natural energy Introduction of the independence type energy Beautiful beach for sightseeing Community plan for Natural symbiosis disaster mitigation from tide embankment and open space Social Sustainable Frontier project for agriculture and food Energy saving, new energy project Sendai economic development project Reproduce of community Restoration of fisheries industry Restoration of fisheries industry Restoration of fisheries industry and marine product processing industry Reproduction of the sightseeing Realization of a fisheries city filled with the best vigor in Japan Support for Community formation Community planning cherished for substantivity of village and community Community plannig from unification medical care Revitalize agriculture as a first priority Maintenance of the Natural symbiosis and international medical industry city Sextiary Sector of Agricultur Community planning for continued living with security Reproduction of the occupation and creating variety of work Creation of advanced agriculture and fisheries industry Restoration of industry of bland of town of Yamamoto Restoration of "Sendai strawberry" (Bland of town of Yamamoto) Sightseeing of driving the Miyagi Pref. Sextiary Sector of Agriculture Reproduce of Community The industrial activation from application town characteristic Promotion of the commerce and industry Rebuilding of the attractive fisheries industry Restore of agriculture Reproduction of the sightseeing Reproduction and development of the port town industry Community planning for health of both mind and body Bring up spiritually rich person Community planning for continued living with security Community planning for occupation and prosperity Cultural Sustainable Revival and cultural Tidal by the with agency Regeneration of Gamo promotion of the Protected Flat tangible and assets Mention to Igune intangible cultural cooperation (Traditional Homestead asset pertinent Woodland) Protected - cultural assets Succession of Cultureal Landscape Conservation and reproduction of Cultural Landscapefrom Agriculture, Teizanbori (canal), and Coastal Pine Forest - - - Succession and creation of the Landscape of Matsushima, "Three Views of Japan" Beautiful Landscape and cityscape in succession to the culture of the town Consider a Landscape of Matsushima - - Environment Renewable energy Seaside Protection Forest Creation of the hill Promotion of Fisheries Promotion of Agriculture Cultural Properties Protection Cultural Landscape - 11 -
1. To set up temporary houses as soon as possible for the refugees, 2. To create a safe city and find a suitable location for the re-establishment of the six villages, 3. To revitalize agriculture as a first priority, 4. To create new employment, utilizing the advantages of the city s airport, 5. To promote natural energy projects, 6. To develop a system of multiple lines of defense from a tsunami by creating A Hill of a Thousand Hopes along the seashore, 7. To revitalize the cultural landscape as the identity of the city. Fig.9 shows the locations and populations of the six coastal villages and the new settlement areas. In total, 1500 people, encompassing 268 households from the six villages, and 150 households from other parts of the Tama-ura area are involved in the relocation. Table 4 summarizes the two years of restoration planning since April 2011, which can be divided into four stages. The first stage includes emergency action undertaken from 11 March until April 2011.The second stage was a period of grand design from April to August 2011. In Iwanuma as mentioned above, the plan was to establish ideal goals for rebuilding the city at the very beginning of the restoration. Once this grand design was in place, difficulties in decision making could be dealt with by returning to the essential principals and guidelines for the restoration. The third stage is the process of citizen participation and involvement. Cultureal Landscape Preservation Area Abukuma-River Aino-Kama 63 Household Fuji-Sone 7 Household Nino-Kura 60 Household Hase-Kama 50 Household Kaba-Saki 64 Household Shin-Bama 24 Household Fig. 9 Community Removal Project of Iwanuma - 12 -
Proceedings of International Symposium on Planning 2013 Table 4 process of restoration planning in Iwanuma Date National Gov. & Miyagi Pref. Date Stage Iwanuma 2011 3.11 Great East Japan Earthquake 3.11 Great East Japan Earthquake 3.17 Emergency Actions; Water, Food, Medical 3.12 Support ~ Pairing Support start 4.25 Iwanuma Restoration Committee No. 1 5.2 First Law for the budget for East Japan The Promoting Office of Restoration 5.1 Earthquake established opened First budget (4,015,300,000,000 ) 5.29 Iwanuma Restoration Committee No. 2 6.24 Fundamental Law of the Restoration Principals, Responsibility of National Government and Municipality, Budget, Special District 6.3 Grand Design All Refugees moved to the Temporary House. 7.25 Second Budget (1,910,600,000,000 ) 7.3 Iwanuma Restoration Committee No. 3 Fundamental policy for the compensation to the damage by the nuclear accident 7.29 Fundamental Strategy of the Restoration 8.5 Special Law for the Refugees from the Grand Design of the Restoration, 8.7 Nuclear Accident established 8.17 Restoration Plan of Miyagi Pref. (Final Version) 9.1 Master Plan Master Plan of the Restoration established Iwanuma designated as Environmental 10.19 Restoration Plan of Miyagi Pref. established 10.25 11.12 Citizen Workshop No. 1 11.21 Third Budget (9,243,800,000,000 ) 11.21 11.30 Law of the Budget for Restoration 12.7 Special District for Restoration 12.3 Citizen Workshop No. 2 12.9 Law for Ministry of Restoration 12.4 Citizen Workshop No. 3 1.22 Citizen Workshop No. 4 2.17 The committee of Restoration of Iwanuma No. 1 2.19 Citizen Workshop No. 5 2012 2.10 Establishment of Min. of Restoration 3.23 Committee of Restoration of Iwanuma No. 2 3.28 Vision of Miyagi 3.27 Development Plan of Restoration 3.30 Special Law for the Restoration of Fukushima 4.5 The budget in 2012 for Restoration 5.19 Workshop No. 6 5.22 Citizen workshops Community Removal Project Committee of Restoration of Iwanuma No. 3 6.03 Workshop No. 7 6.21 Law for Supporting Children suffered from Tsunami 6.11 Machizukuri Committee in Tama-ura 6.17 Workshop No. 8 7.13 Fundamental Strategy for Fukushima 7.8 7.21 Machizukuri Committee Workshop No. 9 Workshop No.10 8.6 Construction of CRP in Tama-ura begun 9.20 Evaluation of Future Miyagi 9.24 Land use plan in CRP established 2013 2.06 Fundamental Plan for Parks Open Spaces in CRP - 13 -
5 Conclusions In this paper, the existing conditions of population dynamics and the implementation of restoration planning were examined. The following three points were clarified. The first is distinctive population changes had occurred, and some municipalities are facing the crisis of sustainability. However, the restoration plans were set up between Aug. 2011 to March 2012, they are not corresponding with the rapid changes of population. It is essential to check the restoration plan at this point and consider the appropriate way to choose. The second is, by analyzing the sustainability of the restoration plan from three aspects, environmental sustainability, social sustainability, and cultural sustainability, it becomes clear that the considerations of cultural sustainability is very weak. The each municipality has a long history and different characteristics. It is important to set up the goal for cultural restoration at the point of this time. Finally, the participation of refugees for the restoration process would be essential. In this paper, I introduced the case of Iwanuma, and analyzed that there existed four stages up until today. Finally, the restorations are in a process, the flexibility of planning is important to be considered. References Ministry of Restoration (2013) The existing conditions of the restoration, June 2013. Miyagi Pref. (2013) The existing Conditions of the restoration in Miyagi Pref., June 2013. Committee of restoration in Iwanuma (2011) the grand design of the restoration in Iwanuma, Aug.7, 2011-14 -