THE POLITICS OF URBAN DEVELOPMENT IN A GLOBAL CITY: TOKYO AND WATERFRONT SUB-CENTRE PROJECT Asato Saito Thesis Submitted for Ph.D. Degree 2003 Department of Geography and Environment The London School of Economics and Political Science UMI Number: U615602 All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a complete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion. Dissertation Publishing UMI U615602 Published by ProQuest LLC 2014. Copyright in the Dissertation held by the Author. Microform Edition © ProQuest LLC. All rights reserved. This work is protected against unauthorized copying under Title 17, United States Code. ProQuest LLC 789 East Eisenhower Parkway P.O. Box 1346 Ann Arbor, Ml 48106-1346 PQUTfCAL AND to /CU-7666 Abstract It is widely believed that globalisation of economic production and emergence of an integrated world order is the main rational behind many urban development projects in the world cities. The other major phenomenon concerning urban development in the advanced industrial countries is wide spread use of public private partnership in the project as a result of state-market realignment since the end of the 1970s. These two discourses were combined together and have created a particular image of the city in the global economy. That is cities are competing each other to attract mobile trans-national capital by, for instance, the urban infrastructure project carried out by public private partnership in entrepreneurial manner. The author believes that the argument is leaned toward economic determinism without giving proper attention to the role of national and local government, and argues that this image is by no means universal. The thesis explores how public bodies and the business community in Tokyo saw the opportunity and potential danger of the globalisation of Tokyo and devised strategic development policy. The case study of Tokyo Waterfront Sub-centre, one of the flagship project for globalisation of Tokyo, illustrate unique relationship between national government, Tokyo Metropolitan Government, and the business community behind the project. The author analyses power relations between them in the framework of Urban Regime Theory with additional parameters which are the position of Tokyo in global economy, and its integrated inter-govemmental system. The author concludes that contrary to the popular argument of globalisation and urban development which emphasises the power of global economic forces to determine the fate of the city, Japanese government set the framework of the strategic action, and Tokyo Metropolitan Government was a main agent to carry out the project. The author also attributed the relative strength of state policy to historically constructed relations between public and private sectors in Japan known as Capitalist Developmental State. 2 Acknowledgement It is my pleasure to remember that so many people gave me invaluable help, with both academic and non-academic matters, during the course of this Ph. D. I should like to thank them, and show my gratitude. The motivation to embark on this Ph.D. is largely due to Professor Patsy Healey in Newcastle University. Her enthusiasm and encouragement during my Master’s course inspired me to take on a new challenge at LSE. At LSE, I was fortunate to meet Dr. Andrew Thomley. As a supervisor, he not only give me thoughtful and timely comments and advice, but oversaw my progress with a great patience and encouragement. Dr. Andrew Pratt also gave me honest and invaluable comment at the critical stages of the thesis. His comment on methodology is particularly well appreciated. There are a number of people I would like to thank during my field work in Tokyo. I cannot, however, state all of them as the space is limited but I should like to mention the following two. The help of Mr. Tomio Yoshikawa in Tokyo Institute of Municipal Research was crucial for obtaining insight into the Tokyo Waterfront Sub-centre Project; he also helped contact other interviewees. Professor Takashi Machimura in Hitotsubashi University kindly introduced me to the key literature and documents on Tokyo’s world city formation. The empirical phase of the research could not have been possible without their help. I was also fortunate to meet others in the academic community working on a similar perspective through conferences and workshops. Among them, I was particularly indebted to Professor Richard Child Hill and Professor Kuniko Fujita in Michigan State University for their sustained interest in my research and encouragement. Though working in quite different topics, Dr. Hirohiko Izushi in Coventry University is a constant source of practical help. His friendship and moral support kept me going through the difficult time. In preparing the final draft, the help of the proofreaders, Paul Dinnen, Elaine Gascoyne, and Laura Dance was critical. Their careful and swift work helped to deliver the thesis. The thesis is dedicated to my mother Michiyo and my sister Miho, and my late father Kenji. September 2002 3 Table of Contents Abstract 2 Acknowledgement 3 Table o f Contents 4 List of Figures 8 List of Tables 9 Abbreviations 10 Thought fo r a prelude 11 CHAPTER I : INTRODUCTIO........................................................................... 12 1.1 The Focus of the Research 12 1.2 Global Economy, the World City and Convergence 14 1.3 Japan, the Capitalist Developmental State, and Urban Planning 15 1.4 Data Section: Land Use Policy, Strategic Planning and the Waterfront Project 16 1.5 The Original Contribution [what does you mean?] of the Thesis: A New Analytical Approach 17 1.6 Structure of the Thesis 19 PART ONE CHAPTER I I : THE WORLD CITY PARADIGM............................................ 22 2.1 Introduction 22 2.2 Global Economic Change 23 Globalisation 23 Global Economy 23 The changing role of the State 25 2.3 Theory and Debate about the/a World Economy 27 Emergence of the/a Global Economy 27 Scepticism 29 2.4 World City 29 The Emerging Global Urban System 30 A World City Hypothesis 32 Characteristics of the World City 33 2.5 Evaluation 37 Appraisal 37 Criticism 37 2.6 Convergence of the World City? 41 Convergence of Economic Function 41 Convergence of Urban Policy 42 Discussion 43 2.7 Conclusion 43 4 CHAPTER III: WORLD CITY TOKYO .45 3.1 Introduction 45 3.2 Economic Background: The globalisation of Tokyo 47 Evolution of Business Operation 47 Trans-National Corporations 49 Finance 49 Service Industry 50 Communication and Transport 52 3.3 Unique Aspects of Tokyo 52 Manufacturing Industry 52 Flow of Investment, People and Money 52 Social Polarisation 55 Foreign Labour 57 Single Point Convergence 58 3.4 Discussion 59 Characteristics of Tokyo as a World City 59 Convergence of Tokyo? 61 3.5 Conclusion 65 PART TWO CHAPTER IV : THE CAPITALIST DEVELOPMENTAL STATE.................67 4.1 Introduction 67 4.2 The Capitalist Developmental State 68 Five Key Concepts 68 Evolution and Critique of the Capitalist Developmental State 74 4.3 The Development State and Inter-govemmental Relations 77 4.4 The Public Work State in Japan 79 Public Works 80 Central Control 81 Development Industry Complex 82 The Public Work State in the Developmental State 84 4.5 National Land Policy and the Development Plan 85 Review of the National Comprehensive Development Plans 86 CNDP, the Public Work State, and the CDS 89 4.6 Minkatsu Policy 90 Causes 91 Origin and Development 91 Planning Policy and Practice 93 The Role of the State in the Minkatsu Policy 94 4.7 Conclusion 95 CHAPTER V : DEVELOPMENTAL STATE AND URBAN PLANNING IN TOKYO.................................................................................................................... 97 5.1 Introduction 97 5.2 A Brief History of the Urbanisation of Tokyo 98 5 The Age of Nation Building 99 The Age of Industrialisation 100 The Age of Rapid Economic Growth 102 The Age of Urban Problems 104 5.3 Politics of the Tokyo Metropolitan Government: Governor Minobe & Governor Suzuki 105 Policy Agendas and Policy Tools 105 Two Styles of Politics 106 5.4 Urban Policy Response to the World City Formation of Tokyo 109 Positive Response to the Global Economy 110 Economic Revitalisation 111 5.5 Spatial Change in Tokyo in the 1980s 113 The Property Market 113 Strategic Spatial Planning 116 5.6 Conclusion 122 The Historical Legacy of City Building 122 New Government Initiatives in the 1980s 123 PART THREE CHAPTER V I: POLITICS OF URBAN DEVELOPMENT -CONSTRUCTING AN ANALYTICAL FRAMEWORK....................................125 6.1 Introduction 125 6.2 Urban Regime Theory 127 Contextual Change: From Local Government to Urban Governance 127 Outline of Regime Theory 129 6.3 Evaluation of Regime Theory 134 Contributions 134 Shortcomings 135 6.4 Reconstructing Regime Theory 137 State and Inter-govemmental Relations 137 Global Economy 138 Re-framing Regime Analysis 139 6.5 Application to Tokyo 141 Analytical Framework for Tokyo 141 Review of ‘Co-ordinating Agencies’ by Professor Machimura 143 Critique of Professor Machimura’s Study 147 6.6 Conclusion 149 CHAPTER V II: TOKYO WATERFRONT SUB-CENTRE PROJECT ...151 7.1 Introduction 151 Organisation of the Chapter 152 7.2 Methodology 152 Guidelines for the Data Collection 152 Guidelines for the Analysis 153 The Choice of the Waterfront Project 154 Document Search 155 6 Interviews 155 7.3 Outline of the Tokyo