Planning and Conflict: The Story of Otaru, Japan
by Kunio Yamaguchi

Japanese planner Kunio Yamaguchi describes how the issue of growth versus preservation brought conflict, and then consensus, to the small city of Otaru.

... Recently, the small city of Otaru, has been attracting the attention of planners and, more importantly, the attention of tourists. Why? What happened?

By strengthening its own unique character and geography, Otaru has become one of Japan's most promising cities. This success story, whatever else one might say, began after years of conflict. ...

Most local governments in Japan have sought to stimulate economic development by focusing on developing strong highway networks. Major roadway projects have often been planned with the belief that large enterprises and economic development will follow. Little consideration has been given to the impact these projects will have on the city's character. This was the approach taken by the Otaru government when it released the city's new plan for development.

The Otaru plan called for "reclaiming" the land on which the city's historic canals and stone-warehouses were located in order to build roadways. The government believed that completing the roadways was necessary for Otaru to become a modern, well-functioning metropolis. Unfortunately, the historical features in the waterfront area stood in the way.

Many citizens opposed the plan after it was disclosed. They believed that the inherent character of Otaru was in the environment created by canals and stone-warehouses. They felt that economic development policy should coexist with the nature of the city's own character. Citizens who loved Otaru's character became preservationists. ...

The debate in Otaru continued for more than ten years between the development side and the preservation side, including citizens groups, business communities, and government.

Eventually, the Governor of Hokkaido called for a round table conference where both sides conferred at the same table. The participants concluded it was necessary to try to develop a new plan for Otaru by working together. After the conference, the planning process became clearer and a new planning organization, the "110 Citizen Advisory Committee" was set up. See Sidebar Citizen Planners in Japan. ...

Now, with the implementation of the new urban regeneration plan, there is a working partnership of all sectors. The old plan that proposed reclaiming the canals and destroying stone warehouses was altered. As a result, Otaru today can boast of a beautiful street environment on the waterfront, in which modern features coexist with historical stone-warehouses. ...