富山市：紧凑型城市发展.docx

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1、AUTHORS AND ACKNOWLEDGEMENTSThis cAse study was jointly developed by Paul Kriss (LeAd UrbAn SpeciAList), HArukA Miki-Imoto (OperAtions Officer), Hiroshi NishimAki (Senior UrbAn ConsultAnt), And TAkAshi Riku (ConsultAnt, Arthur D. Little).This CAse study was requested by the Ministry of FinAnce (MoF)

2、 InternAtionAL BureAU And enriched by the contributions of the Ministry of Uxnd, InfrAstructure, TrAnsport, And Tourism (MLIT) Policy BureAU from the government of JAPAn, And city officiALS from FukuokA City. From FukuokA City, we pArticulArly thAnk KAzuhiro KubotA (Executive Director, InternAtionAL

3、 AffAirs DepArtment, GenerAL AffAirs & PlAnning BureAU). We thAnk Arthur D. Little for supporting the AnALYsis And providing insights.The teAm also thAnks Kiyoshi KoderA (Senior Advisor) for his thought-provoking reviews And heArtful support. The teAm grAtefully Acknowledges peer reviews And inputs

4、from the following World BAnk Group colleAgues: Clive G. HArris (LeAd InfrAstructure SpeciAList) And MArcel lonescu-Heroiu (Senior UrbAn Development SpeciAList). The teAm thAnks MASAto MiyAZAki (SpeciAL RepresentAtive for JAPAn) And MAitreyi B. Das (PrActice MAnAger) for their Advice And guidAnce. T

5、he teAm also thAnks the guidAnce from Victor MuIas (Senior UrbAn SpeciAList And Tokyo Development LeArning Center TDLC ProgrAm MAnAger) And the collABorAtion And support from the QuALity InfrAstructure Investment (QII) Trust Fund teAm, DArwin MArcelo (Senior InfrAstructure SpeciAList), Clive G. HArr

6、is (LeAd InfrAstructure SpeciAList), And NAomitsu NAkAgAWA (ProgrAm Officer).This CAse study could not hAve been completed without generous support from the government of Japapi to the TDLC ProgrAm.DISCLAIMER AND CONTEXTThis CAse study builds on the G20 Principles for QuALity InfrAstructure Investme

7、nt (Qll) Adopted At the OsAkA Summit 2019. It is the first Attempt to showcAse exAmples where Qll hAs been operAtionALized in urbAn infrAstructure projects in JAPAn. In principle, the CAse study leverAges existing dAtA And evALUAtions AVAilABle either in existing literAture or through interviews wit

8、h cities And public orgAnizAtions.World BAnk Tokyo Development LeArning Center (TDLC) works extensively in AreAs such as urbAn infrAstructure And urbAn service delivery And, therefore, it hAs a reAdy stock of documentAtions in the urbAn sector produced during PhAse III (2016 to 2020) of the TDLC Pro

9、grAm. To prepAre input for the G20 InfrAstructure Working Group, the project teAm reviewed the compiled documents And reckssified the contents through the lens of Qll.The teAm selected this cAse on the bAsis of a rigorous review of studies AccumulAted by TDLC. The key selection criterion was whether

10、 the CAse APpropriAtely highlights the operAtionALizAtion of Qll Principle 2 Economic Efficiency And Principle 6 /InfrAstructure GovernAnce.uThe CAse study highlights how the selected jAPAnese cities hAve operAtionALized quALity Aspects in urbAn infrAstructure. DetAiled impAct evALUAtion is not incl

11、uded in the scope of this CAse study; however, it is An AreA for future works to Address.FIGURE 1.5Ridership of Portram and CentramRidership of PortramRidership of Tram Line CentramDAily PAssengers5,0004,0003,0002,0001,000DAily PAssengers5,0004,0003,0002,0001,000Weekends Da,|V PAssengersWeekdAYs7,00

12、06,000 -5,000 4,000 -3,000 2,000 1,000 -SOON 000Z S66I 0661 8 lor 9I0Z SIOZ bloz mloz ZUJZ IIOZ 0I0Z 600Z 800Z zooz 9003 SOONJRPort LineSource： ToyAmA City.PortrAmTrAm Line OnlyTrAm Line + CentrAm2. QII Principle 6: Effective Leadership and Organizational CommitmentAlignment to the NAtionAL PolicyTo

13、yAmA City gAined momentum by Aligning with the nAtionAL AgendA. In 2003, ToyAmA City kick stArted its efforts with the creAtion of the CentrAL District RevitALizAtion PlAn And the Public TrAn sport RevitALizAtion PlAn; in the SAme ye Ar, the words /AgglomerAtionw And compAct“ first APpeAred in the n

14、AtionAL UrbAn Reconstruction Vision. During this time, mAny jAPAnese cities were suffering from deteriorAting city centers; the nAtionAL government begAn promoting the trAnsition from expAnsive urbAn structures to more AggregAted urbAn structures by promoting densificAtion And AgglomerAtion of vArio

15、us urbAn fAcilities. In 2006, the nAtionAL government revised the Downtown RevitALizAtion Act, promulgAted in 1998, to estABlish a certificAtion system in which the prime minister directly certifies Downtown RevitALizAtion PlAns submitted by Iocal governments requesting subsidies. In response, ToyAm

16、A City revised its originAL plAns to ere Ate the citys Downtown RevitALizAtion PlAn, which received certificAtion in 2007 And was incorporAted into the ToyAmA UrbAn MAster PlAn in 2008. Since then, ToyAmA City hAs Aligned its initiAtives to the nAtionAL CompAct Plus Network“ policy. In doing so, the

17、 city hAs built a strong relAtionship with the nAtionAL government, which hAs led to the smooth implementAtion of VArious projects (explAined in the following sections) And to the city being recognized as a leAding model of compAct city development in JAPAn (Ministry of Uxnd, InfrAstructure, TrAnspo

18、rt, And Tourism 2017).In 2014, the nAtionAL government Amended the UrbAn RevitALizAtion SpeciAL MeAsures Law to introduce the UrbAn FAcility LocAtion PlAn system. This new initiAtive Aimed to further promote comp Act city development by encourAging Iocal governments to optimize the distribution of p

19、ublic fAcilities within their city. In 2017, ToyAmA City creAted its UrbAn FAcility LocAtion PlAn. In this plAn, the locAtions of public fAcilities providing key urbAn functions, such as hospitALS And cAre centers, were predesignAted in the centrAL AreAs of the city. As a result, those fAcilities we

20、re brought bAck to the city center from the suburbs. With the creAtion of its UrbAn FAcility LocAtion PlAn, ToyAmA City becAme a role model for other cities And greAtly contributed to the rollout of this nAtionAL initiAtive (JAPAn, Ministry of InternAL AffAirs And CommunicAtions 2018).2.1 LeAdership

21、 And OrgAnizAtionAL SetupAccording to ToyAmA City officiALS interviewed for this CAse study, effective governAnce And dedicAtion were essentiAL for ToyAmA Citys successful trAnsformAtion into a comp Act city. Effective governAnce stArts with a vision And cleAr objectives. In ToyAmA City, the grAnd v

22、ision lAid out by the citys rnAYor were broken down into cleAr objectives, which successfully trAnslAted the citys vision into strong OrgAnizAtionAL commitment And buy-in from key stAkeholders including citizens And the privAte sector. Furthermore, the city hAs Adopted OrgAnizAtionAL setups th At be

23、st Allow it to tAckle chALlenges. For instAnce, the PortrAm project, which was pArticulArly chALlenging becAuse the city only hAd three yeArs to complete it becAUse of politicAL constrAints And timing of events, would hAve been impossible to complete without strong leAdership And An Agile OrgAnizAti

24、onAL setup.As ToyAmA City begAn its efforts in 2003, Japao RaiIways (JR) And ToyAmA Prefecture Asked ToyAmA City to Assume mAnAgement responsibility for the existing JR Port Line. The trigger was the extension of the ShinkAnsen Line through ToyAmA City. In 1996, the JAPAnese government And the rulin

25、g pArty Announced a memorAndum of understAnding on the extension of the ShinkAnsen Line thAt designAted the ToyAmA section as one of five priority sections. The memorAndum also stipulAted thAt Iocal governments must Assume mAnAgement responsibility for existing JR lines to obtAin construction permit

26、s for the new ShinkAnsen trAcks. BecAuse ToyAmA Prefecture hAd AireAdy Agreed to tAke over the JR Hokuriku Line, a different JR line, it requested thAt ToyAmA City tAke over the JR Port Line. It should be noted thAt the JR Port Line was AccompAnied by a big chALlenge: to meet the opening schedule of

27、 the new ShinkAnsen Line, the construction work At IbyAmA StAtion hAd to commence by 2006-but this work required the removAL of plAtforms And trAcks of the JR Port Line At IbyAmA StAtion.ToyAmA City Agreed to tAke over the JR Port Line. It hAd two options: (a) close the JR Port Line And reinforce th

28、e citys bus fleet or (b) complete the necessAry construction work At IbyAmA StAtion within three yeArs And continue operAtions of the JR Port Line. BecAuse the city hAd positioned the r Ail way as a core element of its urbAn revitALizAtion policy, it decided to tAke the hArd pAth And continue operAt

29、ing the JR Port Line. Moreover, a survey showed thAt the corridor along the JR Port Line still hAd a populAtion of 50,000 At the time, which implied thAt the residents were still relying on the line as a mzor mode of trAnsport. After the city decided to continue the JR Port Line, it mAde two more vi

30、tAL decisions thAt underscore the current success of the LRT system. First, the city decided not only to continue operAtions as is, but also to mAke mzyor upgrAdes to the JR Port Line, which ultimAtely gAve birth to PortrAm. These upgrAdes included new vehicles with a modern design And low floors th

31、At provided eAsy Access for the elderly And hAndicAPped. The city also increAsed the service frequency to improve service levels.Second, the city minimized the time between the closing of the JR Port Line And the opening of PortrAm. The mAYor firmly believed th At discontinuing the service for a pro

32、longed period would cAUse irreversible modAL shifts to other meAns of trAnsport, or worse, would cAUse depopulAtion of the trAnsit corridors. This belief was shAred Across the orgAnizAtion, leAding to the consensus th At time was of the utmost importAnce for this project.As previously explAined, Toy

33、AmA City hAd to complete alI phAses of the PortrAm project plAnning, finAncing, designing, tendering, licensing, And constructionwithin three yeArs. This was a huge chALlenge considering the fAct th At it was the first full-scALe LRT project in Japah, And th At a typicAL LRT construction tAkes six t

34、o nine yeArs. ToyAmA City pulled off this feAt by completing the plAnning And finAncing in the first yeAr, the licensing And legAL mAtters in the second yeAr, And the trAck construction And vehicle prepArAtion in the third yeAr (Figure 2.1). An Agile orgAnizAtionAL setup was essentiAL to mAking this

35、 hAPpen. For the PortrAm project, the city formed a project unit thAt reported Almost exclusively to the mAYor viA the vice mAYor, who was a seconded officiAL from the Ministry of Uxnd, InfrAstructure, TrAnsport, And Tourism (MLIT). This unit undertook vArious public duties relAted to the LRT includ

36、ing finAncing, founding of the ToyAmA Light Rai I CompAny, Ltd., obtAining operAtion licenses And construction permits, And holding public heArings. After the ToyAmA Light RaiI CompAny, Ltd., was estABlished as the operAting entity for the LRT system, the compAny oversAW the designing, the tendering

37、, And the procurement of vehicles. InitiALly, the compAny was heAded by the mAYor, who plAYed An importAnt role in recruiting the most dynAmic And technicALly seAsoned mAnAgers from inside And outside ToyAmA City. Once the teAm was in plAce, the mAYor delegAted most of the responsibilities to these

38、mAnAgers And focused on mAking finAL APprovALS And decisions on importAnt issues.CoordinAtion was also a key Aspect of the project. For the construction of the trAcks, three orgAnizAtions hAd to divide tAsks And coord in Ate. ToyAmA City was in chArge of the civil work to modify roAds to AccommodAte

39、 the LRT; ToyAmA Light RaiI CompAny, Ltd., undertook the construction of the trAck itself; And JR worked on the renewAL of the existing trAcks of the JR Port Line. JR was involved becAUse the JR Port Line continued operAtions until two months prior to the opening of the PortrAm Line. Effective coord

40、inAtion Allowed the smooth implementAtion of this highly complex operAtion.Furthermore, the mAYor went to greAt lengths to ensure thAt the PortrAm project would be welcomed by the public. The mAYor And mAnAger-level city officiALS held more thAn 50 public heArings during the plAnning stAge. On every

41、 occAsion, the mAYor tirelessly AdvocAted the necessity of a compAct city for the citys Aging populAtion. To win trust from the public, the mAYor did not simply repeAt the importAnce of public trAnsit for the revitALizAtion of centrAL AreAs. The mAYor was honest ABout the difficulty of operAting the

42、 new LRT in A profitABle mAnner. Acknowledging thAt the LRT is likely to lose money every yeAr, the mAYor emphAsized thAt the social benefits outweigh the expected finAnciAL losses. The sincerity of the mAYor And city officiALS increAsed public confidence in the LRT project And in city mAnAgement in

43、 generALAs one indicAtor of public confidence, there was a chAnge in how the mAss mediA viewed the project. When the project plAn was first disclosed, the mAss mediA unAnimously criticized the plAn as a project in the red. However, as a result of the citys efforts described a Bove, the mAss mediA be

44、cAme positive And cooperAtive towArds the project, introducing the project to the public as A “sociAily integrAL component of the CompAct City plAn.* Furthermore, one specific Aspect thAt worried the public was the conflict between existing roAd trAnsport (i.e. cArs And bicycles) And the new LRT lin

45、e. This was also resolved over time.HGURE 2.1Schedule of the Port ram ProjectSource: TbyAmA City.Injecting PrivAte Sector Expertise into LRT OperAtionsAccording to ToyAmA City officiALS who were interviewed for this CAse study, ToyAmA City received strong support from the privAte sector pArticulArly

46、 for LRT operAtions. For the LRT Project, the city Adopted a scheme whereby the city prepAres the trAcks And vehicles And a privAte compAny o per Ates the LRT. In this way, the city injected operAtionAL expertise from the privAte sector into the LRT service. SpecificALly, ToyAmA City And Iocal compA

47、nies jointly founded ToyAmA Light RaiI CompAny, Ltd., as a public-privAte entity. The Iocal compAnies funded 50 percent of the 500 million cAPitAL of the entity. Furthermore, mAny of the key technicAL stAff were dispAtched or recruited from An existing Iocal faiIway operAtor. As such, the privAte se

48、ctor plAYed a key role in the success of the citys trAnsformAtion.The citys relAtionship with the privAte sector was developed over time. The stArting point of the relAtionship was the mAYors personAL network Among Iocal privAte compAnies. Prior to election, the mAYor was a judiciAry lAwyer And he h

49、Ad worked with mAny key people within the Iocal economy. Once elected, he mAintAined And expAnded his network Among Iocal privAte compAnies And, when in need, APproAched them as equAL pArtners to mAke ToyAmA City A better plAce. In doing so, the city looked At development chALlenges through the lens of the privAte sector, And worked to ere Ate a win-win situAtion for both public And privAte entities. This APproAch grAduALly formed a collABorAtive mindse