TOKYO REPORT: Japan Debates “Special Cities” Independent of Prefectures

Tokyo, Aug. 24 (Jiji Press)–Japanese local government leaders are stepping up calls for legislation to create “special cities,” a new status that would allow ordinance-designated major cities to operate independently of prefectural governments with expanded authority. These major cities say the proposed system would help them respond more effectively to population declines, among other regional challenges. Prefectural governments, however, have raised concerns about the financial impact and the potential fragmentation of regional administration. With talks between the two sides at an impasse, a central government advisory panel has started discussing the future governance of large cities, including the possible introduction of a special city system. Vertical, Horizontal Coordination The special city system has been proposed by the Japan Designated Cities Mayors Association, which comprises the mayors of all 20 ordinance-designated major cities in Japan. The proposed system is intended to replace the current two-tier administrative framework, under which prefectures are responsible for wide-area administration while cities provide resident services, with single-tier local governments. Under the system, special cities would become independent of prefectural jurisdiction. Ordinance-designated major cities are generally required to have populations of at least 500,000 and already exercise powers similar to those held by prefectures. The mayors association has cited several advantages of the proposed special city system, including improved resident services through the elimination of overlapping administrative functions, the creation of a multipolar and decentralized society less concentrated in Tokyo, and stronger competitiveness as international cities. The association has also said special cities would engage in “horizontal coordination” with neighboring municipalities on infrastructure development and administrative operations, thereby contributing to the development of their wider regions. At a news conference in July, Kizo Hisamoto, head of the mayors association and mayor of Kobe in western Japan, stressed the importance of special cities in a new framework for regional administration. “Amid ongoing personnel shortages, there is a growing need for broad-based cooperation that combines horizontal partnerships among municipalities with their vertical collaboration with prefectural governments,” he said. “Special cities will have a role to play” in facilitating such coordination. 67 Prefectures? At a National Governors’ Association meeting held in July in the western city of Tottori, Miyagi Governor Yoshihiro Murai warned against the proposed framework for special cities. Murai, who helped compile an interim report opposing related legislation, said the system would “in effect be like increasing the number of prefectures to 67.” The report argued that issues of overlapping administration are already being addressed through individual consultations and other measures. It warned that introducing special cities would reduce prefectural tax revenue, complicate fiscal management and undermine prefectures’ ability to coordinate essential services, including medical care, disaster response and measures against infectious diseases. The possible division of police jurisdictions was also cited as a concern. Murai was emphatic in his criticism, saying the special city system “runs counter to the need to expand administrative services across broader areas in response to population decline.” His remarks appeared to reflect concerns over Sendai, the capital of Miyagi Prefecture in northeastern Japan. If Sendai were designated a special city, the prefecture’s territory could effectively be split, as the city cuts across its central region. Deepening Divisions The 34th Local Government System Research Council, an advisory body to the prime minister, was launched in January and is now identifying key issues related to the special city system through a specialized subcommittee. The council aims to submit its recommendations during fiscal 2027. In Kanagawa Prefecture, eastern Japan, where three ordinance-designated major cities, including Yokohama, are located, the debate is already gaining momentum. The mayors of the three cities have jointly called for the early introduction of the special city system. However, the prefectural government and all 30 of Kanagawa’s other municipalities remain firmly opposed. In May, they jointly submitted a letter of request to the central government expressing their concerns. As divisions deepen, Kanagawa Governor Yuji Kuroiwa is looking at convening a meeting of local government leaders to encourage dialogue. The governors association plans to present its final report as early as November. Meanwhile, the mayors association has decided to conduct fiscal simulations to assess the impact of introducing the special city system on local governments, taking into account concerns raised by the governors association. In July, Norihiko Fukuda, mayor of Kawasaki, Kanagawa Prefecture, and head of the special city study team within the mayors association, called for dialogue with the governors association. “We want to present data and have constructive discussions,” Fukuda said. END [Copyright The Jiji Press, Ltd.]