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BROWNFIELD AND POST INDUSTRIAL SITE IN OSAKA PERFECTURE -...
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BROWNFIELD AND POST INDUSTRIAL SITE IN OSAKA PERFECTURE
Regenerating H
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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
Regenerating H
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nfield Sites in England and Japan
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
Regenerating H
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nfield Sites in England and Japan
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
Regenerating H
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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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2. BROWNFIELD AND ‘HARDCORE’ SITES
“ 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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2. BROWNFIELD AND ‘HARDCORE’ SITES
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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nfield Sites in England and Japan
2. BROWNFIELD AND ‘HARDCORE’ SITES
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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2. BROWNFIELD AND ‘HARDCORE’ SITES
‘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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3. NATIONAL POLICY FRAMEWORKS
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.
3. NATIONAL POLICY FRAMEWORKS
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3. NATIONAL POLICY FRAMEWORKS
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??
Regenerating H
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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
Centre of Osaka City
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
Centre of Osaka City
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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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5.1. Senshu District (Kaizuka City)
×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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5.1. Senshu District (Kaizuka City)
×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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5.1. Senshu District (Kaizuka City)
(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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5.1. Senshu District (Kaizuka City)
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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5.1. Senshu District (Kaizuka City)
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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5.1. Senshu District (Kaizuka City)
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
Centre of Osaka City
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%
5.2. East Osaka District
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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5.2. East Osaka District
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
5.2. East Osaka District
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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5.2. East Osaka District
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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5.2. East Osaka District
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
Centre of Osaka City
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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5.3. West Osaka District (4 Wards)
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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5.3. West Osaka District (4 Wards)
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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5.3. West Osaka District (4 Wards)
K3, previous land use was Gas works until 1997. Then it remains as vacant land and buildings.
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5.3. West Osaka District (4 Wards)
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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5.3. West Osaka District (4 Wards)
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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
5.2. East Osaka District (4 Wards without Tsurumi )
Fresh Warf Barking London approximately 5ha
Barking riverside London approximately 110ha
Manchester approximately 45ha
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5.1. Senshu District (Kaizuka City)
usage history of sites
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Current conditions of 14 sites of closed specified factories in Higashinari Ward
5.2. East Osaka District (4 Wards without Tsurumi )
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5.3. West Osaka District (4 Wards)