Structural Changes of Structural Changes of Rural Governance Rural Governance

in Japanin Japan

““Rural-Urban Footprints: Rural-Urban Footprints: Implications for Governance”Implications for Governance” 　　

CRRF Fall Conference CRRF Fall Conference Tweed, OntarioTweed, Ontario2004.10.14-162004.10.14-16

University of TsukubaUniversity of TsukubaNobuhiro TSUBOINobuhiro TSUBOI

ContentsContents

Short history of Japanese rural governance beforShort history of Japanese rural governance before 1950e 1950

Japanese misjudgment before WWIIJapanese misjudgment before WWII History of municipal amalgamationHistory of municipal amalgamation Players oPlayers o ｆ ｆ rural governance rural governance (Main story)(Main story)

Rural governance in 1950~2000Rural governance in 1950~2000 Changing situationsChanging situations How to establishHow to establish 　　 new balance among playernew balance among player

s?s?

Definition of termsDefinition of terms

Municipality:Municipality:

Local government, excluding prefecture government, here. Local government, excluding prefecture government, here. 3230 municipalities in Japan in 2000.3230 municipalities in Japan in 2000.

Community:Community:

Residents’ organization for livelihoodResidents’ organization for livelihood 　　 relationship based on relationship based on a specific area.a specific area. About 15-100 communities in a rural municipality. About 15-100 communities in a rural municipality. Community was former municipality before MeijiCommunity was former municipality before Meiji Restoration or municipal amalgamation. Restoration or municipal amalgamation.

Short history of rural governance Short history of rural governance before 1950before 1950

Formation of present rural JapanFormation of present rural Japan Since 17Since 17thth century, century, No battles for 1604~1868 (Disarmed period),No battles for 1604~1868 (Disarmed period), Closed door to the foreign countries except Nagasaki,Closed door to the foreign countries except Nagasaki, Almost steady economic growth.Almost steady economic growth.

Feudalism with centralizationFeudalism with centralization Communities - local feudal lords – Communities - local feudal lords – Tokugawa Central GovernmentTokugawa Central Government

Autonomy except the foreign and military issues thatAutonomy except the foreign and military issues that were strictly controlled.were strictly controlled.

(Short history of rural governance in Japan)(Short history of rural governance in Japan)

Feudalism vs. CentralizationFeudalism vs. Centralization Contradictory, but in Japan Contradictory, but in Japan

273 local feudal land lords in 1868,273 local feudal land lords in 1868,

Synthesized or well balanced for the period of 1604-1868.Synthesized or well balanced for the period of 1604-1868.

This contradictory is important issue for better This contradictory is important issue for better

understanding of rural Japan.understanding of rural Japan.

Steady economic growth with some dynamics.Steady economic growth with some dynamics.

Meiji restoration destroyed the structure under this Meiji restoration destroyed the structure under this

system.system.

(Short history of rural governance in Japan before 1950s )(Short history of rural governance in Japan before 1950s )

Meiji restoration in 1868Meiji restoration in 1868 Opened door to the foreign countries,Opened door to the foreign countries, Need of centralization for against the foreign pressures,Need of centralization for against the foreign pressures, Restructured local feudal lords and communities.Restructured local feudal lords and communities.

Westernization with powerWesternization with power was needed.was needed.

The Central government rushed to centralization, The Central government rushed to centralization, urbanization and industrialization to avoid colonization.urbanization and industrialization to avoid colonization.

(Short history of rural governance in Japan before 1950s)(Short history of rural governance in Japan before 1950s)

Rural communitiesRural communities have sustained. have sustained. Rural adapted to westernization through local Rural adapted to westernization through local resources development (tea-leaf production and resources development (tea-leaf production and sericulture).sericulture). Central government didn’t have room to interfere inCentral government didn’t have room to interfere in communities.communities.

Rice: key issue of rural JapanRice: key issue of rural Japan Rice was a tight bond of community.Rice was a tight bond of community. Rice cultivation need cooperate works of people until Rice cultivation need cooperate works of people until 1960s1960s ． ． Rice self-sufficiency was a national target even Rice self-sufficiency was a national target even until 1970s.until 1970s.

Urban had grown with wealth transfer from Urban had grown with wealth transfer from the ruralthe rural

(Short history of rural governance in Japan before 1950s)(Short history of rural governance in Japan before 1950s)

Municipality and community Municipality and community Before and after amalgamation Before and after amalgamationDual community structure we have in rural Japan. Each Dual community structure we have in rural Japan. Each

has own name as has own name as ShurakuShuraku and and Oaza as example.Oaza as example.(Shurak: a community, Oaza: multi communities)(Shurak: a community, Oaza: multi communities)

18681868 18781878 18881888 19501950 20002000 20102010

140,000140,000 ?? ?? ?? ?? ??

⇒ ⇒ 74,00074,000 CommunityCommunity CommunityCommunity CommunityCommunity CommunityCommunity

⇒ ⇒ 21,00021,000 CommunityCommunity CommunityCommunity CommunityCommunity

⇒ ⇒ 10,50010,500 CommunityCommunity CommunityCommunity

⇒⇒means amalgamationmeans amalgamation ⇒ ⇒ 3,2303,230 ??

The block means number of municipality.The block means number of municipality. ⇒ ⇒ <1,000<1,000

(Short history of rural governance before 1950s)(Short history of rural governance before 1950s)

What happened after amalgamationWhat happened after amalgamation

Community before 1868Community before 1868 Community with large autonomic rights as Community with large autonomic rights as

municipality under the “Feudalism with centralization.”municipality under the “Feudalism with centralization.”

Community after municipal amalgamationCommunity after municipal amalgamation Former community (before 1868) and municipality Former community (before 1868) and municipality

after amalgamation have kept identity as community.after amalgamation have kept identity as community.

And these are called as community within a municipality.And these are called as community within a municipality.

(Short history of rural governance before 1950s)(Short history of rural governance before 1950s)

What was rural governance before WWII?What was rural governance before WWII?

Community as a main playerCommunity as a main player Strong identity and role based on economic activities withStrong identity and role based on economic activities with local resources.local resources.

Main role of municipality Main role of municipality Registration for draft, Tax collection, Education of primary Registration for draft, Tax collection, Education of primary schoolschool Little role for people’s welfare and economic developmentLittle role for people’s welfare and economic development Character of municipality Character of municipality Mayor appointed by Prefecture Governor who appointed by Mayor appointed by Prefecture Governor who appointed by Central Government. Central Government. Weak affection of central government except amalgamation Weak affection of central government except amalgamation of municipality and draw of community commons to of municipality and draw of community commons to municipality. municipality.

Japanese misjudgment Japanese misjudgment before WWIIbefore WWII

World War IIWorld War II Japan fought against USA and other European countries as Japan fought against USA and other European countries as one of five industrialized countries in the world in 1940s, one of five industrialized countries in the world in 1940s, and lost it.and lost it.

Japan agriculture-based country by 1940sJapan agriculture-based country by 1940s

Japanese modernization since 1950sJapanese modernization since 1950s The lost war wakened Japan, and central government The lost war wakened Japan, and central government rushed again to really catch up the west. Japan had no rushed again to really catch up the west. Japan had no room to keep rural as it was before WWII. room to keep rural as it was before WWII.

Players of rural governancePlayers of rural governancein Japan after 1950sin Japan after 1950s

CitizensCitizens Private EnterprisesPrivate Enterprises Municipality (=Local government)Municipality (=Local government) CommunitiesCommunities Intermediary organizationsIntermediary organizations

(Players of rural governance in Japan after 1950s)(Players of rural governance in Japan after 1950s)

Who are rural citizens?Who are rural citizens?

Farm population Farm population was and is a major.was and is a major. 48% of total population lived in farm 48% of total population lived in farm households in 1950. households in 1950. Still farm population is a major citizen.Still farm population is a major citizen.

Ratio of Farm population in 2000Ratio of Farm population in 2000 78.8% in Iitate-mura, Fukushima Pref.78.8% in Iitate-mura, Fukushima Pref. 39.4% in Awano-machi, Tochigi Pref.39.4% in Awano-machi, Tochigi Pref.

10.6% in Total Japan including metro areas.10.6% in Total Japan including metro areas.

Iitate and Awano are NRE sites in Japan.Iitate and Awano are NRE sites in Japan.

(Players of rural governance in Japan after 1950s)(Players of rural governance in Japan after 1950s) Who are enterprise?Who are enterprise?

Civil engineering and ConstructionCivil engineering and Construction Governments are extremely influential through public Governments are extremely influential through public works. Many rural people were engaged in these works. Many rural people were engaged in these business.business.

Small manufacturesSmall manufactures They were watching “They were watching “Keiretsu,Keiretsu,” and didn’t care local ” and didn’t care local issues much.issues much.

Family farms and agri-cooperativesFamily farms and agri-cooperatives Farming was main economic activity. Farming was main economic activity. Farming is loosing its influence.Farming is loosing its influence. Agri-cooperatives were second biggest business Agri-cooperatives were second biggest business establishment in rural.establishment in rural.

(Players of rural governance in Japan after 1950s)(Players of rural governance in Japan after 1950s) What are local governments?What are local governments?

Democratization of rural JapanDemocratization of rural Japan

Strengthening organization & functionStrengthening organization & function AmalgamationAmalgamation

Agency of Central GovernmentAgency of Central Government

cf. Odagiri, T., B. Jean, The Roles of Local Governments for Revitalization of cf. Odagiri, T., B. Jean, The Roles of Local Governments for Revitalization of Rural Areas in Japan and Canada, G. Halseth and R. Halseth ed., Rural Areas in Japan and Canada, G. Halseth and R. Halseth ed., BuildinBuilding for Success: Exploration of Rural Community and Rural Developmentg for Success: Exploration of Rural Community and Rural Development, , Rural Development Rural Development

Institute, 2004Institute, 2004

(Players of rural governance in Japan after 1950s)(Players of rural governance in Japan after 1950s) (What are local government?)(What are local government?)

Democratization of rural JapanDemocratization of rural Japan Mayor should be elected by people.Mayor should be elected by people. Main rolesMain roles Management election of Mayor, Assembly’sManagement election of Mayor, Assembly’s member and others, member and others, Collection of local taxes,Collection of local taxes, Economic development,Economic development, Development and maintenance of local Development and maintenance of local infrastructure,infrastructure, People’s welfare and health,People’s welfare and health, Education of primary and secondary school. Education of primary and secondary school.

(Players of rural governance in Japan after 1950s)(Players of rural governance in Japan after 1950s) (What are local governments?)(What are local governments?)

Strengthening organization & functionStrengthening organization & function Local government employees per 1000 Local government employees per 1000 citizenscitizens increased as follows.increased as follows.

Iitate: 2.6 in 1950, 33.7 in 2000Iitate: 2.6 in 1950, 33.7 in 2000 Tweed: 2.6 in 1951, 9.1 in 1997Tweed: 2.6 in 1951, 9.1 in 1997

It was about 41.4 employees in Iitate in 2004 It was about 41.4 employees in Iitate in 2004 April.April.

Because of Expanding roles through civil services, Because of Expanding roles through civil services, and civil engineering and construction.and civil engineering and construction.

(Players of rural governance in Japan after 1950s)(Players of rural governance in Japan after 1950s) (What are local governments?)(What are local governments?)

The employees increased by more than ten times The employees increased by more than ten times even under the amalgamation.even under the amalgamation.But, what will happen in future? But, what will happen in future?

Amalgamation:Amalgamation: For efficiency of local governmentFor efficiency of local government

Number of municipalities Number of municipalities 1950: 10,500 municipalities1950: 10,500 municipalities 2000: 3,2302000: 3,230

Three types of municipality in Japan; City, Town and Village. Three types of municipality in Japan; City, Town and Village. Town and village are typical rural, and city includes large rural Town and village are typical rural, and city includes large rural areas. areas.

(Players of rural governance in Japan after 1950s)(Players of rural governance in Japan after 1950s) (What are local governments?)(What are local governments?)

Number of towns & villagesNumber of towns & villages 1950: 10,246 (Total Muni. Japan 10,500) 97%1950: 10,246 (Total Muni. Japan 10,500) 97% 2000: 2,558 (T 3,230) 792000: 2,558 (T 3,230) 79

Population of towns & villagesPopulation of towns & villages 1950: 52,749,051 (T. Japan 84,114,574) 62%1950: 52,749,051 (T. Japan 84,114,574) 62% 2000: 27,060,567 (T. 126,919,288) 212000: 27,060,567 (T. 126,919,288) 21

Population per a town/village Population per a town/village 1950: 5,1481950: 5,148 2000: 10,579 2000: 10,579

(Players of rural governance in Japan after 1950s)(Players of rural governance in Japan after 1950s) (What are local governments?)(What are local governments?)

AgentAgent 　　 of Central Governmentof Central Government

Strengthening roles through subsidies of theStrengthening roles through subsidies of the central government for economic developmentcentral government for economic development

Back-scratching alliance of local and the Back-scratching alliance of local and the central governmentcentral government

Restructuring of central governmentRestructuring of central government Decentralization is forcing local government to Decentralization is forcing local government to restructure.restructure.

(Players of rural governance in Japan after 1950s)(Players of rural governance in Japan after 1950s) What were and are communities?What were and are communities?

Census Subdivision in Japan is municipality.Census Subdivision in Japan is municipality. Community is not Census Subdivision in Japan, Community is not Census Subdivision in Japan,

and is a basic units of municipality.and is a basic units of municipality. Municipality consists of 15-100 communities.Municipality consists of 15-100 communities.

Community was former municipality before 1868 Community was former municipality before 1868 and/or municipal amalgamation. and/or municipal amalgamation.

Community had informal powers until 1970s.Community had informal powers until 1970s. (Still it has some powers in rural.)(Still it has some powers in rural.)

Community had and have common property.Community had and have common property. (forest, water right, community hall, cemetery)(forest, water right, community hall, cemetery) Community & municipality balanced in power Community & municipality balanced in power

until 1950s.until 1950s.

(Players of rural governance in Japan after 1950s)(Players of rural governance in Japan after 1950s) (What were and are communities?)(What were and are communities?)

Community played important role in rice Community played important role in rice cultivation until 1960s.cultivation until 1960s.

Community collected local taxes for municipality, Community collected local taxes for municipality, and still collects and still collects in some areas.in some areas.

Community has a board with chairman, directors, Community has a board with chairman, directors, and own budgets.and own budgets.

NRE sites in Japan are Iitate and AwanoNRE sites in Japan are Iitate and Awano Iitate and Awano are municipality.Iitate and Awano are municipality. 20 communities in Iitate with 7,098 population,20 communities in Iitate with 7,098 population, 55 communities in Awano with 10,637 55 communities in Awano with 10,637 population,population, In Awano, there are 4 multi-community with In Awano, there are 4 multi-community with 8-23 communities, and 8-23 communities, and these multi-communities are former these multi-communities are former municipality before amalgamation in 1955.municipality before amalgamation in 1955.

(Players of rural governance in Japan after 1950s)(Players of rural governance in Japan after 1950s) What are ruralWhat are rural

intermediary organizations? intermediary organizations?

Intermediary organizationsIntermediary organizations Family & kinship groups, Business and culture associations, Family & kinship groups, Business and culture associations, Commerce of chamber, Community, Voluntary organizations Commerce of chamber, Community, Voluntary organizations etc.etc.

Community is essentially one of intermediary organizations, Community is essentially one of intermediary organizations, but more than a intermediary organization as like as other but more than a intermediary organization as like as other players especially before 1950s.players especially before 1950s.

Back-scratching alliance of intermediary Back-scratching alliance of intermediary organizations and local governmentorganizations and local government

Especially business association and voluntary organization.Especially business association and voluntary organization.

(Players of rural governance in Japan after 1950s)(Players of rural governance in Japan after 1950s) (What and who are rural intermediary organizations)(What and who are rural intermediary organizations)

High dependency of intermediary High dependency of intermediary organizations on government sectorsorganizations on government sectors

Organizations except family & kinship groups were Organizations except family & kinship groups were established through local government initiative.established through local government initiative. Even communities were reorganized by the government.Even communities were reorganized by the government.

Government sectors didn’t have time to wait voluntary Government sectors didn’t have time to wait voluntary actions from citizen and private enterprise sectors. actions from citizen and private enterprise sectors.

Rural governance in 1950~2000Rural governance in 1950~2000

An only influential player wasAn only influential player was Local government as agent of Central Local government as agent of Central GovernmentGovernment

Dependency of other players on Local and Dependency of other players on Local and Central governmentCentral government

Rural Japan had no governance!!Rural Japan had no governance!! Since 1950s communities had lost influences, and Since 1950s communities had lost influences, and municipality became an only player in rural Japan.municipality became an only player in rural Japan.

Before lost war, Rural Japan had some Before lost war, Rural Japan had some governance with balanced structure of governance with balanced structure of community former municipality before community former municipality before amalgamation and municipality that consisted amalgamation and municipality that consisted of the 3-25 communities.of the 3-25 communities.

(What was rural governance in 1950-2000)(What was rural governance in 1950-2000)

Background of the rural charactersBackground of the rural characters Japan had to rush to catch up theJapan had to rush to catch up the modern western modern western society within a limited time, especially since 1950s after society within a limited time, especially since 1950s after WWII.WWII.

Result of “Catching up policy”Result of “Catching up policy” Japan had rushed to catch up the western countries since Japan had rushed to catch up the western countries since Meiji Restoration in 1986.Meiji Restoration in 1986.

Rural Japan had gradually lost its endogenous Rural Japan had gradually lost its endogenous development structure since 1868. “Catching up” policy development structure since 1868. “Catching up” policy had promoted centralization since 1950s after World War had promoted centralization since 1950s after World War II because of not only central government policy but also II because of not only central government policy but also people’s wish including rural people to catch up the west.people’s wish including rural people to catch up the west.

Changing situationsChanging situations

Entering affluent societyEntering affluent society People’s motivation is changing gradually in People’s motivation is changing gradually in transition period from insufficient to affluent transition period from insufficient to affluent society.society.

From more income to quality life!!From more income to quality life!! Even in “poor rural”Even in “poor rural”

Restructuring of central governmentRestructuring of central government New amalgamation of Municipality New amalgamation of Municipality in new ways are requested.in new ways are requested.

Change of rural demographyChange of rural demography

How to establish new balance How to establish new balance among players among players

Main discussion issues in JapanMain discussion issues in Japan How to establish new balance among rural players,How to establish new balance among rural players, How to establish new endogenous relationship How to establish new endogenous relationship among local assets and rural players, and among among local assets and rural players, and among rural players,rural players, How to establish interdependence among local How to establish interdependence among local enterprises.enterprises. How to restructure rural community?How to restructure rural community?

Big discussions about endogenous development, Big discussions about endogenous development, among agri. economists and rural politicians.among agri. economists and rural politicians.

But is it “endogenous syndrome”?But is it “endogenous syndrome”?

(How to establish new balance among players)(How to establish new balance among players)

How to form new steady relationship How to form new steady relationship between rural and urbanbetween rural and urban

The both are in interdependent relationship.The both are in interdependent relationship.

Reflections for the last 50 yearsReflections for the last 50 years Rural gRural growth without endogenous development than rowth without endogenous development than rural had before!!rural had before!! Entering to affluent rural society.Entering to affluent rural society.

Rural futureRural future Japanese have to reconsider the following Japanese have to reconsider the following issues in stead of “Catching up”issues in stead of “Catching up” ◎ ◎What’s development?What’s development? ◎◎What’s rural life, and What’s urban life?What’s rural life, and What’s urban life? ◎◎What’s rural-urban relationship?What’s rural-urban relationship?

Thanks for participating.Thanks for participating.

Nobuhiro TSUBOINobuhiro TSUBOI 2004.10.162004.10.16 Tweed, Ontario Tweed, Ontario