BROWNFIELD AND POST INDUSTRIAL SITE IN OSAKA PERFECTURE -...

BROWNFIELD AND POST INDUSTRIAL SITE IN OSAKA PERFECTURE

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nfield Sites in England and Japan

-Regenerating Hardcore Brownfield Sites in England and Japan -

9 September 2009Professor Hirokazu Abe, Osaka University

Dr. Noriko Otsuka

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1. BACKGROUND

2. BROWINFIELD AND ‘HARDCORE’ SITES

3. NATIONAL POLICY FRAMEWORKS

4. OSAKA PREFECTURE

5. PRELIMINARY SURVEY OF BROWNFIELD SITES IN 3 DISTRICTS IN OSAKA PREFECTURE

6. CONCLUSIONS AND FUTURE PLAN

CONTENTS

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1. BACKGROUND

• In Japan, the regeneration of brownfield (BF) is a new urban agenda.

• Increasing awareness of BF issues by the Government, practitioners and research communities through the introduction of UK/ USA examples and the launch of a new legislation (the Soil Contamination Countermeasures Act 2003).

• Japan had two recessions (1995-2004; 2008-prersent).

England• A strong link with housing/

sustainable development• Succeeded in re-branding

BF• Positive implication for

BF development

Japan• A close link between BF &

contamination• Adverting environmental

risks• Negative implication for

the management of BF

Key differences between England and Japan

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2. BROWNFIELD AND ‘HARDCORE’ SITES

In England, brownfield is defined as previously developed land (PDL)

“which is or was occupied by a permanent structure including the curtilage of the developed land and any associated fixed surface infrastructure” (DCLG, 2006)

In Japan, brownfield is considered aspotentially contaminated site (PCS)

“lands which are unused or with extremely limited use compared to their intrinsic value because of existence or potential existence of soil contamination” (MoE, 2007)

Definition of brownfield:

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“ Land that has persistently remained vacant or derelict for nineor more years” (English Partnerships, 2003)

Figure 1. Categories of PDL (Sources: EPs, 2003, p12.)

Definition of ‘hardcore sites’ in England

16,523ha of ‘hardcore’ site(EPs, 2003)

= one quarter of the total stock of PDL.

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Condition for being considered as Potentially Contaminated Site (PCS): the presence of a contaminated soil, but only 1 or 2 % of PCS has been investigated since the launch of the Soil Contamination Countermeasures Act (SCCA) in 2003. The figures seems to be not reliable.

PCSs where remediation cost per land area exceeds 30 percent of land price in a site, MoE calls as Potentially Brownfield Site (PBS) (MoE and Yasutaka, 2007).

Figure2. Key conditions for Potentially Brownfield site (MoE and Yasutaka, et. al 2007)

How has ‘hardcore site’ been interpreted in Japan?

28,000ha of PBS (MoE, 2007) = one quarter of the total stock of PCS.

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A PhD thesis (Yasutaka, 2007) and an interim report by MoE (2007)

National Land Use Database:http://www.nlud.org.uk/

Data sources for brownfield

approx. 28,000 hectares(MoE and Yasutaka,2007)

(PBS: Potential brownfield site)

One quarter of the estimated sites: approx. 16,523 hectares (EPs, 2003)

Hardcore sites

331,000 sites (*4)(PCS)

100,000 sites (*2)(PDL)

Potential number of brownfield sites

113,000 hectares (*3)(PCS : Potentially Contaminated Site )

62,730 hectares (*1)(PDL: Previously Developed Land)

Estimated total area of brownfield sites

343 383Density (Population/ km2)

122,779,000 49, 130, 000 Population

Approx. 378,000 km2Approx. 130,000 km2Total Land Area

JapanEnglandCharacteristics

Table 1. Comparative characteristics – England and Japan

(*1) EPs, 2007; (*2) Ferber, et.al., 2006; (*3) MoE, 2007; (*4) Yasutaka, et. al., 2007

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‘Hardcore Sites’ in England seems to correspond to ‘Potential Brownfield Sites’ in Japan, but ways of calculating the amount of BF are different.

England

Hardcore site(16,523 ha)

Previously Developed Land(62,730 ha)

Japan

Potentially Contaminated Site (113,000 ha)

Potential Brownfield Site(28,000 ha)

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UK government strategically placed brownfield regeneration as a key delivery mechanism for a new urban renaissance and sustainable development agenda

In Japan, economic recovery was the key agenda:• The Urban Renaissance Headquarters were established in 2001

• The Urban Renaissance Special Measure Law was launched in 2002 -designation of the priority urban development areas.

• Use of Private Finance Initiatives (PFI)

• Highly-economic driven & property-led regeneration

BF was only considered as one of indicators for designating the priority areas.

• Japanese Policy on Urban Renaissance had not addressed the agenda of ‘Sustainable Development’.

• Japan’s strategic propositions to handling risks has been risk-averse based in comparison to risk-based in England.

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SOIL CONTAMINATION COUNTERMEASURES ACT (SCCA) IN JAPAN

• In Japan, the Soil Contamination Countermeasures Act (SCCA) was launched in 2003

• the first legislation to provide a set of indicators to measure soil contamination for the purpose of preventing adverse effects on public health

• the focus was placed on ways of tackling the soil contamination rather than on proposing beneficial uses on brownfield sites in contrast to the UK.

• The obligation to investigate occurs when ‘specified factories’ using hazardous substances are closed down (Article 3). However Article 3 has additional regulations that the investigation is exempt when the owner is expected to resume operations in the future.

• According to recent Japanese research, only 1 or 2 per cent of potentially contaminated sites had been investigated under the SCCA.

• From 2002 to 2007, 3,313 (77.8%) factories managed to avoid the investigation because of the Article 3.


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A Study group led by Ministry of Land, Infrastructure, Transport and Tourism (MLIT) has been exploring types of database required for Potentially Contaminated Site (PCS).

Brownfield Database:

• In the first phase, a map of “plots requiring soil contamination investigation” has been generated in limited piloting areas.

• Methodology of data collection: in respect of each site, history of the site has been traced. If a factory was located in the past, there is a high probability of the existence of contaminant substances, then the site is plotted on the map.

• Classification of sites: types of contaminant substances

• Database on under-used land (development plan/ land price) by MLIT

A link required??

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• OSAKA PREFECTURE

• PRELIMINARY SURVEY

• CONCLUSION

the context of Osaka Prefecture in Japan with focus on potentialbrownfield sites.

We have conducted a preliminary investigation in three case areas in Osaka.

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4. OSAKA PREFECTURE

Osaka City

Osaka Prefecture

Osaka City

Area : 221 km2

Population : 2.7 million

Osaka was named ‘Manchester of Japan’ or ‘Manchester of the Orient in the 1930s. At that time, it was the biggest city in Japan. However, as commerce and industry began concentrating in the Tokyo area, the major role of Osaka in these industries began to decline.

Osaka Prefecture

Area : 1,897 km2

Population : 8.84 million

Tokyo

Osaka

PACIFIC OCEAN

CHINA

KOREA

Kinki Region

Osaka City is the third-largest city in Japan, with a population of 2.7 million following Tokyo and Yokohama.

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4. OSAKA PREFECTURE

According to Yasutaka (2007), an estimated 36,000 sites are potentially soil contaminated in Osaka Prefecture. This figure exceeds all other parts of Japan except for Tokyo (44,000).

On the other hand, the average land cost in Osaka is a third lower than that of Tokyo, but the ratio of remediation cost for land cost in Osaka is higher.

the possibility of sites reverting to brownfields is much higher in Osaka than in Tokyo.

1,500 ha28,300 ha

3,000 sites80,000 sitesPBF (Potentially Brownfield Site)

6,100 ha113,000 ha

36,000 sites

Osaka

331,000 sites

Japan

PCS ((high) Potentially Contaminated Site)

( MoE, Yasutaka et, al. 2007)

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4. OSAKA PREFECTURE

0

10000

20000

30000

40000

50000

60000

1971

1973

1975

1977

1979

1981

1983

1985

1987

1989

1991

1993

1995

1997

1999

2001

2003

2005

Year

Num

ber o

f fac

torie

s

Food Textile mill productsLumber and wood products Furniture and fixturesPublishing, Printing Fabricated metal productsGeneral machinery Electronic parts and devices

Trend in number of manufacturing factory in Japan during past 35 years (MoETI, 2006)

All industries are showing decreases. The number of textile industry especially declined rapidly and intensely during past 35 years. It suggests that many sites of Textile industry had turned to brownfield through the rapidly decline

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4. OSAKA PREFECTURE

0 200,000 400,000 600,000 800,000

Osaka Senshu

Southern Kyoto

Owari

Osaka Central

Fukui

Touban

Nishi Mikawa

Tokyo Central

Ishikawa Central

Nanwa

Dist

rict (

in d

esce

ndin

g or

der)

Value (in millions of yen)

Shipment value ofmanufactured goods

Amount of Value of manufacturing shipments of textile industry in each Local District in Japan (MoETI, 1980)

Osaka Senshu

Owari

Southern Kyoto

Fukui

Osaka Senshu district had the highest shipment value of manufactured goods in Japan in 1980

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4. OSAKA PREFECTURE Number of manufacturing factories in Japan (MoETI, 2006)

Tokyo

Osaka

Aichi

Saitama

Shizuoka

Hyogo

05000

100001500020000250003000035000400004500050000

Toky

oO

saka

Aich

iSa

itam

aSh

izuo

kaH

yogo

Kana

gaw

aG

ifuKy

oto

Niig

ata

Gun

ma

Nag

ano

Huk

uoka

num

ber o

f fac

torie

s

ALL

small and medium-sized (4 to 30employees)

Osaka Prefecture contains nearly 45,000 factories in 2006, which is the second largest after Tokyo. In contrast, Osaka Prefecture has the largest number of small and medium-sized (4 to 30 employees) factories in Japan.

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4. OSAKA PREFECTURE Number of small and medium-sized manufacturing factories in Osaka City by area (MoETI, 2006)

East Osaka District

Centre of Osaka City

Osaka City

10km

5km

2.5km

0 500 1000 1500

MiyakojimaFukushima

HigashiyodogawaYodogawa

Ashahi

KonohanaNishiyodogawa

MinatoTaisho

NishiTennojiNaniwa

KitaTyuo

HigashinariIkunoJyoto

HiranoTurumi

AbenoSimiyoshi

HigasisumiyoshiNishinariSuminoe

War

d an

d Di

stric

t in

Osa

ka C

ity

Number of factories

[Nor

th]

[Wes

t][C

entr

al]

[Eas

t][S

outh

]

small and medium-sized manufacturing factories were located and concentrated in the East Osaka district.

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4. OSAKA PREFECTURE Tangible fixed assets of factories in Osaka City (MoETI, 2006)

0 50000 100000 150000

MiyakojimaFukushima

HigashiyodogawaYodogawa

Ashahi

KonohanaNishiyodogawa

MinatoTaisho

NishiTennojiNaniwa

KitaTyuo

HigashinariIkunoJyoto

HiranoTurumi

AbenoSimiyoshi

HigasisumiyoshiNishinariSuminoe

War

d an

d Di

stric

t in

Osa

ka C

ity

Tangible fixed assets (millionJPE)

[Nor

th]

[Wes

t][C

entr

al]

[Eas

t][S

outh

]

West Osaka District


Osaka City

10km

5km

2.5km

amount of that were concentrated in the West Osaka district

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4. OSAKA PREFECTURE

Three research areas in Osaka prefecture

1. Osaka Senshu: located in a more rural area far from the centre of Osaka, where its industrial infrastructure has greatly changed with the decline in the textile industry.

2. East Osaka District: a heavily industrialized area with many small and medium-sized manufacturing factories

3. West Osaka District: an industrialized area where many factories have relatively large properties, buildings and equipments.

Osaka Senshu

West Osaka

EastOsaka

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5. SURVEY OF BROWNFIELD SITES IN 3 DISTRICTS IN OSAKA PREFECTURE5.1. Senshu District (Kaizuka)

The first area was Kaizuka City in the centre of the Senshu district, approximately 30km away from the central Osaka. In the past it had one of the biggest textile manufacturing factories in Japan.

Map of Kaizuka in Osaka Senshu District

Osaka Senshu District

Kaizuka

15km

30km

45km


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5.1. Senshu District (Kaizuka City)

Number of sites by the scale of the plottage.

- 0.5ha47%

0.5- 1ha16%

1- 5ha29%

5- 10ha6%

10ha-2%

Land Area numbe of site-0.5ha 240.5- 1ha 81- 5ha 155-10ha 310ha- 1total 51

The largest site with 10 ha or more, and half number of sites with less than 0.5ha.

There were 51 textile manufacturing factories in Kaizuka City, according to the Industrial Statistics in1976(MoETI, 1978)

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×Investigationcommercial, housing, vacantCurrent usage

1000-10000Employee2288.3Capital (mil yen)18 haArea (ha)

cotton yarn and fabricPrevious factory

Site No. 01

No.01, previous land use was cotton yarn and fabric industry until 1995. West half of this site had been redeveloped into two large shopping centers, while the other east half of this site remains vacant. It is supposed that the east half of this site may be contaminated as the former factory had been located there.

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×InvestigationhousingCurrent usage200-300Employee

325.0Capital (mil yen)5.0 haArea (ha)

synthetic fiber ropePrevious factory

Site No. 03

No.3 and No.4, previous land use was cotton yarn and synthetic fibre rope until 1990. These two sites are neighbouringacross the road.

The site No.3 had been redeveloped into housings. However, this site was not investigated for soil contamination too. It had completed the development before the launch of the SCCA.

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(contaminated)InvestigationvacantCurrent usage

200-300Employee325.0Capital (mil yen)6.6 haArea (ha)

synthetic fiber ropePrevious factory

Site No. 04

No.4 remains vacant. It was investigated under the SCCA, including hazardous substances (such as cis-1, 2-dichloroethylene, trichloroethylene and tetra-chloro-ethylene). The site No.4 have been vacant for nine or more years.

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Current condition and land use of the sites

17

75

4

2

2

37

5

11

0 2 4 6 8 10 12 14 16 18

Housing

Commercial

Factory (not including textil mill)

Warehouse

Office

Hospital

Parking lot

Vacant

Others

not changed

the post-textile industrial sites have been successfully regenerated to housings or commercial buildings. However, there are a few cases in large scale sites where redevelopment has discontinued.

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12

23

6

0 5 10 15 20 25

1977-1989

1990-2003

2004- ▲SCCA

1062312

not changed2004-1990-20031977-1989

When Redeveloping

45 cases out of 51sites completed the redevelopment before the introduction of the SCCA in 2003. (Soil contaminated countermeasure act, 2003).

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1. Many post-textile industrial sites in Kaizuka city had been already redeveloped.

2. Many redevelopments had completed before the launch of the SCCA without investigation of soil contamination.

3. In some post-textile industrial sites, it has become difficult to redevelop after the launch of SCCA and other relevant Acts.

4. Sites No.01 and No.04 should be selected for the further investigation. The regeneration of these two sites seems to be hindered by the SCCA.

Summary of Kaizuka City Case Study

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The second case study area is East Osaka district.

In 2008, 51 factories using hazardous substances had been closed down in this district.

East Osaka District


Osaka City

10km

5km

2.5km

5.2. East Osaka District

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Number of sites by various plot size in East Osaka District

Land Area numbe of site～0.01ha 17

　　0.01～0.05ha 19　　　0.05～0.1ha 5

0.1ha～ 6unknown 6

total 53

～0.01ha32%

　　0.01～0.05ha

37%

　　　0.05～0.1ha

9%

0.1ha～11%

unknown11%


Relatively large 6 sites are 0.1 ha or more. However, 70% of these sites are less than 0.05 ha in this district.

Metal smelting and platingPrevious Factory

houseCurrent conditionnoneInvestigation2005.Closure date 300㎡Area size

Site No. HG-1

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HG-1, previous land use was Metal smelting and plating until 2005. Then the site has been changed into housings (detached houses). And it have been investigated by the SCCA and confirmed not to have contamination.

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Metal smelting and platingPrevious Factory

Vacant building Current condition：PendingInvestigation2007.Closure date800㎡Area size

Site No. HG-5


HG-5 and HR-6, previous land use was Metal smelting and plating (HG5) until 2007, and printing and ink manufacture (HR6) until 2005.

Paper and printing worksPrevious factory

Vacant land and buildingCurrent condition：

ConductedInvestigation2005.Closure date1020㎡Area size

Site No. HR-6

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both sites have remained as vacant building or vacant land. And they have not been investigated or confirmed to have soil contamination.

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Current land use of the sites in East Osaka District5.2. East Osaka District

22

6

2

5

9

6

3

0 5 10 15 20 25

vacant building

vacant lnad

parking

other factory

houses

operating

other

The half number of the sites is vacant building or vacant land. And some sites were redeveloped to housings or other factories

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Summary of East Osaka District Case Study

1. Many small sites in Higashi Osaka had remained vacant land and vacant buildings.

2. Investigation of soil contamination of these sites has not been conducted.

3. Primary barrier of redevelopment in this district is the SCCA or other relevant Acts.

4. Although a nearly half of the former factory sites are now vacant building or land, the scale of each site is extremely small. Thus, we think that East Osaka District should be excluded from the case study selection as it might not be comparative to the Manchester case.

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5.3. West Osaka District

The third area is West Osaka district, since there are many factories which have relatively large properties, buildings and equipments. We selected 31 sites which have been changed from the industrial use into other land use or vacant, according to database of Osaka City (1970-2008).

West Osaka District


Osaka City

10km

5km

2.5km

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5.3. West Osaka District (4 Wards)

～0.5ha3%

0.5～1ha19%

1～5ha45%

5～10ha10%

10ha～23%Land Area numbe of site

～0.5ha 10.5～1ha 61～5ha 145～10ha 310ha～ 7total 31

A half of sites is more than 1ha, there are 10 large-scale sites over 5ha.

Number of sites by various plot size in West Osaka

Iron and steel worksPrevious factory

Amusement ParkCurrent condition1998Closure dateContaminatedInvestigation19.5haArea size

Site No. K9

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K9, previous land use was Iron and steel works until 1997. Then it had been developed into a Large Amusement Park (Universal Studio Japan).

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Electricity generatingPrevious factory

vacant landCurrent condition：PendingInvestigation2002Closure date17.6 haArea size

Site No. S1

S1, previous land use was electricity generating until 2002. Then it remains as vacant land.

Gas worksPrevious factory

1997Closure date

vacantCurrent conditionContaminatedInvestigation

4.82haArea size

Site No. K3

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K3, previous land use was Gas works until 1997. Then it remains as vacant land and buildings.

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current land use of 31 sites in this area.

3

1

2

2

4

15

2

2

0 5 10 15 20

Housing

Amusement Park

Community Park

Shoppng Centre

Warehouse

Vacant land

Car Park

Other factories

The majority were redeveloped as housings or commercial buildings. However, there are some large sites which are under-used compared to their intrinsic value in this district.

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5.3. West Osaka DistrictSummary of West Osaka District Case Study

1. Many large sites in West Osaka had been developed into housings and commercial buildings. However, since the second wave of recession in 2008, the redevelopment has been stagnated.

2. The primary barrier of the redevelopment in this district seems not to be the SCCA until 2007. The land price of this district is high enough to cover the cost resulted from the SCCA.

3. Some sites are not effectively used compared to their intrinsic value in this district. Some factories in the district are only partially working.

4. While many sites have been successfully regenerated to housings or commercial buildings, Site S1 and K3 present unsuccessful examples.

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1. CONCLUSION AND FUTURE PLAN

1. Potential Brownfield Sites in the Japanese context seems to correspond to ‘hardcore sites’ in the English context.

2. Findings of the preliminary investigation conducted in Osaka areas. • Senshu District – The SCCA seems to hinder the regeneration process which

was evident from the two cases. • East Osaka District – Although a nearly half of the former factory sites are now

vacant building or land, the scale of each site is extremely small. This area should be excluded from the case study selection since it might not be comparative to the Manchester case.

• West Osaka District – While many cases have been successfully regenerated to housings or commercial buildings, the two cases have shown unsuccessful examples.

3. The SCCA seems to have hindered the redevelopment of PBS (Potentially Brown Field Site).

4. The lack of accurate database for PBS had made this research less accurate.

FUTURE PLANTo carry out a limited number of case studies for the further investigation inparallel with the Manchester study.

THANK YOU FOR ATTENTION

APPENDIX

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4. OSAKA PREFECTURE

Number of small and medium-sized manufacturing factories in Osaka Prefecture (MoETI, 2006)

0 2,000 4,000 6,000 8,000

OsakaHigashi Osaka

YaoSakai

ToyonakaDaito

MoriguchiMatsubara

SettuKadoma

IzumiKisiwada

NeyagawaIzumisanoKashiwara

City

(in

desc

endin

g or

der)

Number of factories

Number of factories

Osaka Higashi Osaka

Yao

Sakai

Toyonaka

Daito

1980Closure date

Paint and ink manufacturePrevious factory

HousingCurrent conditionContaminatedInvestigation

19.2haArea size

Site No. K1

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Case : Ikuno-JArea size ：2380㎡Closure date ：2008.09.01Investigation ：PendingResult ：unconfirmedPotential risk ：B, F, PbCurrent condition：vacant land

5.2. East Osaka District (4 Wards without Tsurumi )

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Case : Ikuno-CArea size ：280㎡Closure date ：2008.01.31Investigation ：ConductedResult ：not foundPotential risk ：PbCurrent condition：parking


Fresh Warf Barking London approximately 5ha

Barking riverside London approximately 110ha

Manchester approximately 45ha

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usage history of sites

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Current conditions of 14 sites of closed specified factories in Higashinari Ward


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BROWNFIELD AND POST INDUSTRIAL SITE IN OSAKA PERFECTURE -...

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