Planning Systems in Japan

The zoning system in Japan and coping with natural disasters throughout history.

The Japanese planning system is primarily zone-oriented, with every aspect of development contingent upon the site’s location. Development might be more complicated and limited. Permission is not required from the Local Planning Authorities if it is in a specific location. Zoning regulations are delineated across various plans and administrative levels, making the overall system complex and challenging to grasp. Therefore, this article focuses on the planning application system and the matters surrounding it in the context of the zoning system in Japan. The big picture of the planning system in Japan is shown in Figure 1 and the planning system in the UK is in Figure 2. 

Planning Application

In England and Wales, planning applications are required for any development activity not classified as Permitted Development. Once submitted and validated, these applications are assessed based on various criteria outlined in Local Plans and supplementary documents.

In Japan, the process involves a “Building Control Application” which assesses whether the developments meet volume requirements, such as Floor Area Ratio³ (FAR) and Building Coverage Ratio⁴ (BCR), along with considerations for materials and structural integrity, particularly regarding fire and earthquake resilience. These requirements are determined by the zoning of the site.

For example, Figure 3 illustrates the zoning plan in Japan, with areas marked in different colours indicating specific land use designations. Most areas coloured blue represent “Class 1 low-rise residential areas,” intended to maintain a conducive environment for low-rise housing. These areas typically accommodate small-scale stores, residential buildings doubling as offices, and educational institutions. FAR and BCR requirements vary based on whether the site falls within a “Fire Prevention Area” or a “Semi-Fire Prevention Area,” typically ranging from 30% to 40% for FAR and 60% to 80% for BCR in this zone. On the other hand, areas in pink or purple represent “Commercial areas” or “Neighborhood commercial areas”, primarily designated for commercial use, though residential development is also permitted. FAR and BCR requirements in these zones are generally higher, ranging from 60% to 80% for FAR and 200% to 400% for BCR. 

Another noteworthy aspect is the “Basic Land-Use Plans” (Figure 4), which delineate City Planning Areas. Areas depicted in white are not designated as “City Planning Areas,” indicating that Building Control Applications need not be submitted unless the developments exceed specific volume requirements set by city councils or the site falls under other preservation laws, such as those protecting natural or historical assets.

For instance, Figure 5 shows some areas in white. These areas do not have any distractions and you do not submit the Building Control Applications if the development meets the requirements mentioned above. In the city shown in Figure 5, the volume requirement for residential development is 500 m², therefore if your development is smaller than 500 m², you do not have to gain permission to build new development from the city council.

Furthermore, the factors considered in planning applications in the UK, such as landscape, visual impact, and design, are integrated into the Building Control Application process in Japan, contingent upon the site’s zoning. For instance, certain districts designated under the “Historic Landscape Maintenance and Improvement Plan” outline detailed landscape design requirements. Regarding assessments for biodiversity net gain or any ecological aspects, these are covered in the Environmental Impact Assessment (EIA). EIA will be required only for the development over a certain scale of infrastructure, residential, industrial, commercial, and so on. For example, new residential development will be required to complete the EIA when the development area is 75 ha or more, which is of considerable scale⁸. (e.g., Buckingham Palace has about 8ha)

Policy and Zoning System

The Japanese planning system is heavily influenced by zoning regulations, with the complexity of developments contingent upon zoning designations. These designations are governed by a myriad of policy documents ranging from national to municipal levels. Key plans that shape these zoning regulations include:

• Municipal Master Plans – set out the land use strategy in the city.
• Landscape Plans – set out the policies to maintain the local character and landscape including design, appearance, colour, materials, and adverbs for areas designated as a landscape plan area.
• District Plans – provides detailed regulations tailored to the circumstances of the district. Regulations for designated use zones can be strengthened or relaxed, and each block can be improved and conserved.
• Green Basic Plan – set out the comprehensive strategy to preserve greeneries in the city by setting the areas focusing on preserving.
• Other plans – such as Low-Carbon Town Development Plans, Historic Landscape Maintenance and Improvement Plans, and Location Optimisation Plans (Compact City Plans).

Conversely, developments outside designated areas are subject to less stringent requirements, allowing for more flexible design and use. Japan’s zoning system concentrates efforts on specific areas, aiming for targeted development outcomes.

Comparing planning systems between the UK and Japan reveals contrasting approaches. The UK prioritises comprehensive preservation of local character and nature, while Japan focuses on addressing multiple concerns intensively at specific points rather than comprehensively. While the reasons behind Japan’s adoption of the zoning system remain speculative, historical factors, such as significant events like war damage, earthquakes, and subsequent fires, have likely influenced its development. With much of Japan’s historical architecture and infrastructure lost to such events, it can be assumed that they are trying to preserve what remains.

Written by Ayano

1. Land-use Planning Systems in the OECD: Country Fact Sheets, OECD Regional Development Studies (2017). https://doi.org/10.1787/9789264268579-en ↩︎
2. Land-use Planning Systems in the OECD: Country Fact Sheets, OECD Regional Development Studies (2017). https://doi.org/10.1787/9789264268579-en ↩︎
3. FAR: The measurement of a building’s floor area to the size of the curtilage. ↩︎
4. BCR: The ratio of total floor area divided by the curtilage. ↩︎
5. City Plans of Inagi City (2024). ↩︎
6. Tokyo metropolitan government. ↩︎
7. Basic Land Use Plan of Tokyo (2020). ↩︎
8. Environment Impact Assessment in Japan, Ministry of the Environment. ↩︎