Policies Governing the Integrated Management of …...Yamaguni River & Nakatsu coastal areas Basic...

Policies Governing the Integrated Management of Forests, River

Basins and Coasts in Japan

Aiko ENDO, PhD ([email protected])Shizuka KAWATSU and Kazuyuki MAIWA

Research Fellow of the Policy Research Department Ocean Policy Research Foundation (OPRF)

Aug 30, 2011 in Baltimore in US

2

Background: Problems for Forests, River Basins and Coasts

-flood hazard, water shortage, sediment runoff, water pollution from

industrial drains, degradation of agriculture production capacity, and

fisheries and aquaculture damages occurred frequently in Japanese coastal

areas

-as a result of environmental deterioration, conflicts between industries that

promoted development and citizens who tried to protect their communities

and environment occurred and citizen movements developed

-without considering the fact that land-based human activities in forests and

river basins are having an impact on coastal resources and the natural

environment

-forests and river basins and coasts have been sectorally developed and

utilized separately

From mid 1950s to mid 1970s (Period of High Economic Growth )

Development and industrialization by large-scale logging of natural forests,

river development and dam construction, coastal land reclamation

Results

Factors

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After 1980s

- sustainable development & resource use based on

environmental conservation gained global consensus

- besides economic values of local resources in the forests,

rivers and coasts, multifunctionality such as social/cultural

values has been reviewed

- awareness of integrated management of forests, river

basins and coasts has been increased

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However

- as a result of depopulation and aging societies in forested and agricultural lands,

under-use results in abandonment and ruin of formerly cultivated land

- because of depopulation in the upper stream area and population density in the

down stream area, marine debris through runoff via rivers and streams is further

aggravated

- loss of mudflats and shallow sea areas due to reclamation and over-exploitation

reduce fisheries production

Necessity of integrated management of land and coastal areas

-forests⇒Forestry Agency

-rivers⇒River Bureau of MLIT

-water quality⇒MOE

-agriculture⇒MAFF

-fisheries ⇒Fisheries Agency

-coasts⇒River Bureau & Port and Harbour

Bureau of MLIT, Rural Development

Bureau of MAFF, Fisheries Agency

Sectoral management, lack of cooperation and coordination, sectoral

and national legislation which cannot solve the local problems

For instance

4

But

Main Objective and Sub Topics

Objective

To clarify the necessity for integrated management of forest, river basins

and coastal areas by considering needs and measures, and to

contribute to the formulation of policy for securing functional integrity

and sustainable use of coastal areas by sharing and disseminating

research results.

However, local problems vary based on local characteristics!

- is the approach for building a network of stakeholders to solve the problems top down or bottom up?

- are there differences in stakeholder participant processes between the local

people in upstream, midstream and downstream areas, and forests, river basins

and coastal areas?

- is local citizens’ awareness of the problems historically high or low ?

- are there legislative limits and local government activities beyond administrative

boundaries?

- how to form a partnership between citizens and local government?

- what is process for building an integrated management system through

stakeholders’ networks and participation? 55

Main Objective and Sub Topics

Sub Topic 1

Sub Topic 2

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In order to learn about current integrated management

activities for forests, river basins and coastal areas at national

and local levels, we have been conducting interviews with

stakeholders and reviewing the scientific literature

Selecting 20 good practices to identify local problems,

necessary measures for solving problems and future issues

through field research and reviewing the scientific literature

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○○ River Basin

Basic Information

Motivation Factors Initiate Activities for Integrated Management

Identified Problems

Initiatives

Activities

Conclusion and Results - Solving the Problems

■ Limits of existing laws

■ Laws for Integrated Management

■Stakeholders’ cooperation and

participation beyond administrative boundaries

■System for Integrated Management

Issues

References

77

1. Legislation etc.

establishing and adopting plans, ordinances, etc., through an integrated approach

2. Institutional arrangement

multi-stakeholders’ participation and multi-lateral administrative coordination (meetings, committees, conferences, etc.)

3. System

continuous employment of an integrated management system

■Others: strong leadership, capacity building, information management, financial management

Definition of “Good Practice”

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“multi-lateral administrative coordination”

① horizontal coordination of strong sectoral ministries

② vertical coordination among national, prefectural and city governments

③ vertical coordination beyond administrative boundaries

④ multi-sectoral coordinating body inside various levels of governments

“multi—stakeholders”

① national or local government bodies

② private sectors and/or NPOs operating within the framework of local or national government

Definition of “Good Practice”

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20 Research Sites

Region No. River basin Prefecture Environmental Problems

Hokkaido 1 Ishikari River Hokkaido Fishery degradation

Tohoku

2 Kitakami River Iwate

Precaution against

eutrophication & decline

of public functions of

forests

3Gakko River & Shonai

coastal areas Yamagata

Water quality, marine

debris, accident at sea

4Mase River & Futatsumori

coastal areas Akita

Industrial development,

fisheries

Hokuriku

5 Agano River Niigata Water pollution

6Sho & Oyabe River &

Toyama BayToyama Marine debris

Kanto

7 Naka River Ibaragi Water quality

8Obitsu River & Banzu tidal

flatChiba

Development of

upstream industry,

Marine debris

9Sagami River and Katsura

River

Yamanashi &

Kanagawa

Development of

upstream industry1010

20 Research Sites

Region No. River basin Prefecture Problems

Chubu

10 Yahagi River Aichi Water pollution

11 Ago Bay Shima City of MieSeabed environment, loss of

mudflats, local development

12 Miya River Mie Local development

Kinki13 Biwa Lake & Yodo River Shiga & Osaka

Water use coordination,

water quality

Chugoku 14 Ota River & Hiroshima Bay Hiroshima Water pollution

15Takahashi River &

Mizushima coastal areasOkayama Seaweed aquaculture

16Fushino River &

Yamaguchi Bay Yamaguchi

Development of upstream

industry, loss of mudflat

habitat

Shikoku17

Yoshino River & Okinosu

Marine-pier artificial beachTokushima Water use coordination

18Shimanto River & Tosa

BayKochi

Protection of ecosystem and

landscape

Kyushu19

Yamaguni River & Nakatsu

coastal areasOita Fisheries, Marin debris

Okinawa 20 Todoroki River Okinawa Red clay pollution, coral reef1111

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Location of 20 Research Sites

Ishikari River

Mase RiverGakko River

Kitakami River

Naka River

Obitsu River

Agano River

Sho/Oyabe River

Yahagi River

Ago Bay

Ota River

Fushino River

Yamaguni River

Biwa Lake/ YodoRiver

Sagami/Katsura River

Miya RiverShimanto River

Yoshino River

Takahashi River

Todoroki River

Subtopic 1

Activities at National Level

Fisheries Agency, Forestry Agency, MLIT

2003 Multiple-purpose land-development project

MOE

2007 Strategy for an Environmental Nation in the 21st

Century

2007 National Strategy for the Conservation and

Sustainable Use of Biological Diversity 2007

Version

2008～2010 Satoumi project

2010 National Strategy for the Conservation and

Sustainable Use of Biological Diversity 2010

2010～2012 Project for restoring and promoting nutrient cycle

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MAFF, Forestry Agency

2007 MAFF Conservation and Sustainable Use of Biological

Diversity

2002～2007 Project for restoring the biodiversity from upstream to

downstream

2003～ Project for restoring forests by fishermen

2009～2010 Study committee on ocean and coastal environment

MLIT, Japan Coast Guard

1998 “An Exploration into Japanese Grand Design in the 21st

Century” in the 5th Comprehensive National

Development Plan” decided by the cabinet

2000 “Guideline for formulating integrated coastal

management plan”

2002〜 Bay Renaissance Project Japan

2003 MLIT established the proposal of study group for

integrated coastal management 15


Article 25 (Integrated Management of the coastal zone)

“The State shall take necessary measures for the coastal sea

areas and land areas, where recognized suitable for the

measures to be implemented in a unified manner upon the

natural and social conditions, to be managed properly, by the

regulatory, and other measures to the activities implemented

in the integrated manner, in consideration of the fact that there

are difficulties in keeping on enjoying the benefit brought by

the resources, natural environment and others of the coastal

sea areas in the future only by implementing the measures

with respect to the coastal sea areas when issues in the

coastal sea areas are originated by the activities on land.”

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■Basic Act on Ocean Policy

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This Act was the first to formally recognize the need for

implementation of ICM.


Chapter 2: Measures that the Government should take

comprehensively and systematically with regards to the sea

9 Comprehensive management of the coastal zone

1) Management of coastal zones carried out in an integrated manner with land

area

-promoting efforts for comprehensive sediment control

-promoting measures to prevent red clay in Okinawa and other zones

-properly managing nutrient salts and pollutant load, and restoring and

promoting cycles

-promoting countermeasures against wastes drifting or washed ashore

-creating nature-friendly seashore that is accessible to the people

b) Coordination of activities at coastal zones

c) Construction of a coordinating system concerning coastal zone

management

Essential of integrated management of land and coastal areas17

■Basic Plan on Ocean Policy

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Contents Leading Ministries

1) Management of coastal zones carried out

in an integrated manner with land areas

i) Promoting efforts for comprehensive

sediment control

ii) Promoting measures to prevent red clay

outflow in Okinawa and other zones

iii) properly managing nutrient salts and

pollutant load and restoring and promoting

cycles

iv) Promoting countermeasures against

wastes drifting or washed ashore

v) Creating nature-friendly seashore that is

accessible to the people

MLIT

MAFF

MLIT, MOE, Fisheries

Agency

MOE, MLIT, Fisheries

Agency

MLIT

The

Secretariat of

the

Headquarters

for Ocean

Policy,

Cabinet

Secretariat

Multi-sector

coordinating

body

2) Coordination of activities at coastal zones MLIT、Fisheries

Agency, Japan Coast

Guard

3) Construction of a coordination system

concerning coastal zone management

Ministries concerned

■Ministries activities under the Basic Plan on Ocean Policy

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Activities at Local Level

Ordinances on forests, river basins and coastal areas

1995 Okinawa pref.

2001 Kyotango city, Kyoto pref.

2001 Aomori pref.

2002 Hyogo pref.

2003 Akita pref.

2003 Iwate pref.

2009 Iwate pref. (more focused on water circulation)

2010 Yamaguchi pref.

Ordinances on forests and river basins

2001 Kochi pref. & river basins cities

2005 Miyagi pref.

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Ordinances on river basins

1988 Motegi town, Tochigi pref.

1990 Yuza town, Yamagata pref.

1990 Kochi city, Kochi pref.

1992 Matudo city, Chiba pref.

1996 Kainan town, Tokushima pref.

2000 Sendai city, Miyagi pref.

2004 Saijo city, Ehime pref.

2005 Towada city, Aomori pref.

2005 Karatsu city, Saga pref.

2005 Sojya city, Okayama pref.

2006 Shizuoka city, Shizuoka pref.

2007 Yanagawa city, Fukuoka pref.20

The local government which

have river ordinances are

cities and towns


Ordinances on coastal areas

1969 Hiroshima pref.

1974 Kamakura city, Kanagawa pref.

1995 Ehime pref.

1998 Yamaguchi pref.

2000 Kagawa pref.

2001 Saga pref.

2008 Shirahama town, Wakayama pref.

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Ordinances on coastal areas were enacted mainly by

prefectures facing the Seto Inland Sea.

Subtopic 2

Yamaguni River & Nakatsu coastal areas

Basic Information

・Main stream of the Yamaguni River system, 1nd class river

・Stream length: 56 km

・Area of basin: 540 km2

・Source of river: Mt. Hikosan in prefectural border between Oita pref.

and Fukuoka pref.

・Estuary: the sea of Suo in Seto inland sea

・Source of river: Mt. Hiko located in prefectural border between Oita

and Fukuoka pref.

・Estuary: Suo nada of Seto inland sea

・Affected prefectures: Oita and Fukuoka pref.

・Population of the basin： 36,000

・Number of dams: 1 dam and 9 barrages

・Industries: automobile industries in the coastal industrial area and

orchard and grain field

・Coastal information: large-scale tidal fat with habitats of horseshoe

crab and other wildlife

・Historical information

Sustainable fisheries such as “Sasahibi” and “Ishihibi” was conducted

until the 1920s. The method is to drive and catch fish using the

difference of sea level


・marine debris such as wood in the seabed affects the activities of

small-scale trawling fisheries

・Sediment flow through Yamaguni river from underused mountain

Identified Problems

There was no system to deal with the marine debris which local

fishermen collected

Initiatives

Local small-scale trawling fishermen started to collect marine debris in

the seabed

Activities

・Oita prefecture fisheries cooperative association started to plant in

the mountain areas using Forest environmental local tax (1999)

・marine debris collecting system was established (2009)

・Association for Nakatsu tidal flat conservation was established

(2009)

・the 3 year campaign of “bring back trash” started (2010)


■Stakeholders’ cooperation and participation beyond

administrative boundaries

① Association for Nakatsu tidal flat conservation

Coordinator: Nakatsu branch of Oita prefecture, fisheries cooperative

association

Members: Fisheries Section, Farm and Fishing Promoting Div. of

Northern Region Promoting Bureau of Oita Prefecture, Agricultural

policy and fisheries section of Nakatsu city office, NPO


Local fishermen collect and separate marine debris for recycling and

Usa City shoulders the financial burden for its disposal.

Issues

To restrict the sources for seabed litter through cooperation between

upstream and downstream area stakeholders. 23

References

・HP of Yamakuni River Office, Kyushu Regional Bureau of MLIT

（http://www.qsr.mlit.go.jp/yamakuni/index.html）

・MLIT HP (http://www.mlit.go.jp/river/)

・NPO Mizubeni Asobu Kai HP(http://www.max.hi-ho.ne.jp/y-

ashikaga/)

Yamaguni River & Nakatsu coastal areas

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Takahashi River Basin & Mizushima Coastal Area

Basic Information

・Main stream of the Takahashi River system, 1st class river

・Stream length: 111 km ・Area of basin: 2,670㎢

・Source of river: Mt. Hanami in Niimi City

・Estuary: The Sea of Mizushima in Kurashiki City

・Affected prefectures: Okayama, Hiroshima

・Population of the basin: 273,000

・Number of Dams (4): Shinnarihagawa, Osakabegawa, Chiya、Komoto

・Number of Barrages (3): Shidome, Kasai, Tatai

・Industries:

■ Upstream & Midstream ： Hiba Dogo Taishaku Quasi-National Park,

Koigakubo Marsh (designated as a National Natural Treasure)

■Downstream: Mizhushima Industrial Complex (Oil refineries, automobile,

heavy & chemical industries( Petroleum and Chemical) )

・Historical information

-The Takahashi River basin was historically called Bicchu which was an

important area for politics, economics and culture.

-During the 16 century, the Takahashi River was used for red iron oxide

transportation by boats called “Takase bune”

-There was iron sand mining upstream


・water rights / marine debris / color-faded seaweed

・water quality （heavy oil outflow accidents occurred at Mitsubishi Oil Co.

LTD, Mizushima Refinery in 1974)

・environmental destruction （loss of mudflats and shallow sea areas) caused

by mining sea gravel in the Seto Inland Sea

Identified Problems

no opportunities for consulting among river water users about the amount of

discharged water from dam

Initiatives

Local seaweed farmers requested Fisheries Division of Okayama Prefctural

Government for an emergency discharge of additional water from dam after

the Kyushu Regional Development Bureau of MLIT carried out an emergency

discharged from Matsubara Simojo Dam in 2005.

Activities

・”Takahashi River Basin Association was set up (1954)

・Mizushima Foundation was established (2000)

・”Takahashi River Basin Network (TARN)” was set up (2000)

・Tax for restoring forests was introduced (2004)

・Soja Waterfront School Ordinance was passed (2005)

・emergency additional water discharge for 2 consecutive years between

2006 and 2007 were carried out

2006: Osakabegawa, Chiya

2007：Osakabegawa, Chiya

・Council for “Considering for water entering into the Eastern Seto Inland

Sea” was established (March 2009)


■ Limits of existing laws

・Act on Prevention of Marine Pollution and Maritime Disaster (1970, revised

in 1976)

・prefectural reforming project for Osakabegawa agricultural water (1948-

1955)

・Due to Okayama Takahashi River Comprehensive Development Project,

Chiya Dam was built

■ Laws for Integrated Management

・Act for Disasters Prevention in Petroleum Industrial Complexes and Other

Petroleum Facilities (1975)

・Ordinance of Soja Waterfront School was regulated (2005)

■Stakeholders’ cooperation and participation beyond administrative

boundaries

①Council for “Considering for water entering into the Eastern Seto Inland

Sea” (March 2009)

Coordinator: Fisheries Division of Okayama Prefctural Government.

Members: managers of Fisheries Division of Hyogo, Kagawa and Okayama

Prefectural Government and Director of Fisheries Experiment Station,

Okayama Prefecture

②Takahashi River Basin Association

Coordinator：Lifelong Learning division of Kurashiki City

Members：Regular （cities, towns & villages of river basin)、Special （22

enterprises & 27 individuals） 2525


■Stakeholders’ cooperation and participation beyond administrative

boundaries

③Takahashi River Basin Network (TARN)

Coordinator：ＦＭ Radio Kurashiki

Members: 2 prefectures, 35 cities, towns & villages, Mizushima Foundation,

Takahashi Chamber of Commerce and Industry, Okayama River Office of MLIT,

Kurashiki Museum of Natural, Okayama Environmental Foundation Network,

ＦＭ Radio Kurashiki, Kurashiki Cable Television Corporation, Okayama

Nature Game Association


1. Prerequisite conditions for emergency additional discharge from Dam by

MLIT

① needed signatures of all water right holders (30)

② needed governor's formal request

③ this time emergency additional discharge was irregular not regular

2. Fisheries Division of Okayama Prefectural Government had to take full

responsibility for this action if there was a water shortage during farmer’s

busiest season

Issues

promoting coordination of water resources through management of dam

discharge flow and river flow, in relation to the need for industrial water,

irrigation water, drinking water and fisheries activities

References

・Takahashi River Basin Association HP

（http://takahashigawa.sakura.ne.jp/index.html）

・Takahashi River Basin Network HP （http://www.tarn.gr.jp/）

・MLIT HP

（http://www.mlit.go.jp/river/toukei_chousa/kasen/jiten/nihon_kawa/87077/870

77-1.html）

・Tanaka, T (2009) “emergency additional discharge from dam for coastal

environment- the effectiveness and significance-” from the 2nd OPRF

Committee on Integrated Management for Forests, River Basins & Coast

project

Takahashi River Basin & Mizushima Coastal Area

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Downstream: Mizushima Industrial Complex

Upstream26

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River basin Stakeholders

Good Practice

Legislation

etc.

Institutional

arrangements

Continuous

system

Ishikari River Hokkaido Federation

of Fisheries

Cooperative

Associations

✔ ✔

Kitakami River Prefectural gov. ✔ ✔

Sho/Koyabe River Prefectural gov. ✔ ✔

Obitsu River NPOs ✔

Yahagi River Committee for Yahagi

River and Coastal

Water Quality

Protection

✔ ✔

Miya River Prefectural gov. ✔ ✔

Biwa Lake/Yodo

River

National gov.✔ ✔ ✔

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Identified Good Practice

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River basin Stakeholders

Good Practice

legislation Institutional

arrangements

Consistent

system

Takahashi River Prefectural gov.✔

Ota River National,

Prefectural, City gov.✔ ✔

Fushino River Prefectural gov.✔ ✔

✔

Yoshino River National,

Prefectural gov.✔ ✔ ✔

Shimanto River Prefectural gov. ✔ ✔

Yamaguni River Local fishermen✔

Todoroki River Prefectural, City gov. ✔ ✔

Identified Good Practice

28

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Identified 12 Problems

1) water pollution caused by sediment and red clay runoff, and

industry, agriculture and household wastewater

→ degradation of agriculture, fisheries and aquaculture

production capacity, loss of mudflats and marine environment

degradation

2) lack in supply of nutrients caused by building dam/barrage and

decreased amount of river flow

→ color-faded seaweed

3) decreased amount of flow caused by building dam/barrage

→ lack of fish ladders caused marine resource degradation

4) lack in supply of nutrients and sediment runoff caused by

development and large-scale logging of natural forests

→ fisheries damages, and degradation of marine environment

30


5) abandonment and ruin of formerly cultivated land

accompanying depopulation and aging societies in forested

and agricultural areas

→ marine debris such as wood in the seabed affects the

activities of small-scale trawling fisheries

6) establishing recycling plant on the upper reach

→environmental degradation of river basins and coastal areas

7) lack of integrated management of river water, groundwater,

spring water, river-bed water, and sea water for sound water

circulation and water resource management

8) coordination of water resources through management of dam

discharge flow and river flow, in relation to the need for

industrial water, irrigation water, drinking water and fisheries

activities

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9) lack of estuary management, which plays an important role

regarding human activities and biodiversity & ecosystem

conservation

10) difference between ecosystem based management areas

and administrative boundaries

→ecosystem change and/or biodiversity degradation

11) disaster management using hard and soft measures based

on the integration of land and coastal areas

12) decline and difficulties in maintaining local industries, local

societies and communities

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Identified 7 Problems: Policy Proposal to the National Gov.

1) establishing management system and restricting generation

sources for seabed litter through cooperation between

upstream and downstream area stakeholders

2) building an integrated water management system for river

water, groundwater, spring water, river-bed water and

seawater

3) promoting coordination of water resources through

management of dam discharge flow and river flow, in relation

to the need for industrial water, irrigation water, drinking water

and fisheries activities

4) promoting coordination through estuary management, which

plays an important role regarding human activities and

biodiversity & ecosystem conservation through zoning, etc.

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Identified 7 Problems: Policy Proposal to the National Gov.

5) establishing a networking system of multi-stakeholders when

there is a difference between ecosystem based management

areas and administrative boundaries

6) devising disaster management measures that adopt both

hard and soft approaches based on the integration of land and

coastal areas

7) promoting rights and duties for indirect users of forests, rivers

and costal areas, or for local people who do not engage in

fishery activities, agriculture, or forest industries

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Miyagawa Dam (multipurpose dam)

Great Seto Bridge

Seto Inland Sea

Thank you for your attendance!

Shirakami Mountain Range (World Heritage)

Policies Governing the Integrated Management of …...Yamaguni River & Nakatsu coastal areas Basic...

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