STUDY FOR COMMUNICATING WAY WITH LOCAL RESIDENTS TOWARDSWASTE DISPOSAL FACILITY IN JAPANMasazumiＫitsuka *Kiyoshi Seo**

Masataka Hanashima***

Toru Furuichi****

Investigation Working Group for Waste Handling Social Penetration
Research group for control, Research Committee for Closed System Disposal Facilities
Chateau Takanawa 401, 3-23-14 Takanawa, Minato-ku, Tokyo 108-0074*Chief, ** Vice-Chief , ***Chairman, ****Vice-Chairman

ABSTRACT

flier distribution, communication meeting with interested

The aim of this paper is to analyze the cause of objection

parties as field work proceeding at site, work explanation tofrom local residents, to seek concession point, to study

local.

communicating way and to summarize concrete method

residents at site, local landfill conference, various meeting

towards agreement. This summarized concrete method

activities

should be known to every interested party and those who

explanation of present plan and holding lectures inviting

have some relation to the job should apply those method.

prominent authorities, issue of local news leaflets, press

This will come to a deepening of mutual understanding，and

release, setting homepages on internet rink, telephone callssmooth construction of waste disposal facility with activatedamong community and so on.

risk communication.

How to utilize and make the most of those media mostOur working group is studying in 3 stages of progresseffectively, that is the question! We are trying to make up

concentrating real close system landfill site. At 1ststage weguideline and guidebook for the aiming at effective

analyzed the real cause of objection from resident people. At

utilization of those communication media and also to

2nd stage examples of success and failure case both analyzed

establish communication theory based on conjugation of theand pointed out each objection element. Up to this stage weguidebook.

through

conference

committee,

detailed

concluded that critical lessons lie in water environment
device against water seeping out conditions. Also lessons are1.

learned that the most critical issue is the lack of

The object of this study is to analyze the real causes ofcommunication between authority/enterprises and resident

smooth construction project's progress and of no treading incommunity.

into construction by severe objection from local residents.
rdStudy Object

Now we are on 3 stage, studying characteristic control of

Also is to pursue main causes, to summarize and to compile

closed system disposal site, and seeking supplemental media

those study fruits, in relation to the construction of waste

for communication.

disposal facility. We are always seeking at concession points

As for communication, there are lot of means do exist;---to get approval of construction from local residents and have

keen mind to develop mutual communication with thosethe facility and in matters of procedures to succeed topeople. The concrete fruit of this study is to present means

and be followed with facility construction in Japaneseand media to develop communication between thecase examples, which are final disposal sites for

authorities of construction sides and local residents of thegeneral waste, house keeping waste and industrial

facility of the point in the form of guidebook and let it to be

waste. Fig.1 shows the structural features oriented

utilized effectively by the persons in charge. By making mosteffects to surrounding environment. This diagramof our guidebook, those peoples in charge to construct waste

shows that water related effects occupies about 70 %disposal facilities will be contributed for developing close

share including contamination of underground water,

communication to deepen mutual understanding, and thiswater source pollution, contamination of rivers andwill lead to smooth project initiating to construct wastelakes and swamps, and see water pollution.

disposal facilities . At least the possibility of smooth project
initiating will be promoted, it seems.

This comes from safety consideration of fillsites(settlement of waste storage structures, watertightness structure function) and seepage water2.

treatment system for safe disposal to surrounding

Stage of Study

We proceeded our study work to center the Closed

environment. The majority of citizen/resident people

System Landfill project examples in three stages. In 1st

have a keen concern and interest to environmental

stage we studied to pursue main causes of their severe

issues(they are air pollution, water contamination, soil

objection to the landfill facility. In 2nd stage wedeterioration and so on) and especially water issues ate

consolidated the real cause of successful construction

raised high attention among them, because it cultivatesexample of Closed System Landfill facility of discarded

every sides of life, it seems. This water issuesrdmaterial. In 3 stage we made studies to edit guidebook toconstitutes symbolic phenomena in line with dioxin

compensate lack of communication between theissues among various environmental problems, whichauthorities of construction sides and local residents ofis understandable and reasonable enough.

the facility of the point. This guidebook will play the role

Also in regard to the ecological hazards, there areof making means and media to develop communication

another uneasiness for example problems from noise,

between the authorities of construction sides and resident

vibration and air pollution due to facility construction

people, activating facility control and community's

including reclamation, foundation work, routefunction surrounding the site in mind, -- this is the main

construction(temporary and final) and facility

feature of the waste disposal facility especially adopted

construction. After commissioning of the facility,

our proposed Closed System concept.

another nuisance like dust arising and waste particle
scattering from waste transportation are expected.

3.

Study (1st Stage)
1)

Examples of trouble-- opposing reasons

from past studies
We concluded from past studies classifying that thecauses of trouble lies mainly in structural features of

4.

others26%
contaminationofrivers/lakes
and swamps,
sea water
pollution
13%

contaminationofunderground
water
25%

Study(2nd Stage)

1) Adoption of CS(Closed System) and its characteristics
We investigated the reasons of adoption and its details of
7(seven) examples of waste disposal facilities in Japan.
Also published documents, pamphlets and hearing records
from concerned persons are arranged in order.
The outline of the CS adopting reasons are as follows:--① Ａ disposal site (hearing survey)

ecologicalhazard14%

water source
pollution ・ The main adopting reason is reached from waste particle
22%

standpoint, which will arise scattering problem to its
surrounding region.

Fig 1 Structural Factor of Facility
As for matters of procedures relating for construction,
Fig 2 is showing clearly the points. There are paper
curtain and red tape in administration’s office side andsecret planning and enforced construction work
totally neglecting residents’intentions. Also negative
disclosure of information and its handling are themain reason for opposing movements. The lacking ofcommunication will promote such an opposing
movement increment. So it is concluded that --- forthe reduction of those movement in local residents , itis recommended for administrative attitude tocommunicate well enough with citizens properly
without having any secrets and without neglecting
every movement in resident people side.

・ The site suffers high wind blowing situation frommountain range. Inhabitants strongly request countermeasure against particle scattering and nasty smell fromgarbage and wastes. Initial plan is in line with open
landfill. There exist aggressive inhabitants atmosphereto accept newly developed system without any
resistance and moreover, head of local government
authority have an intention to construct high level waste
handling facility. .This was also one of the reason ofdeveloping easy acceptance of CS landfill facility.
・ Cost was not a critical factor for type selection of the
facility.
② Ｂ disposal site(hearing survey)
・ Main selection factor is holding no discharge policy
because of the existence of local water intake for other

other factor
36%

secretplanning andenforced
construction
neglecting
inhabitants
23%

city at down stream of the river.
・ At first the plan is proceeding along open landfill
system. Prefectural authority recommended CS landfill
at site in early stage from consideration that it situated in
the region of locally heavy-snow region. So the plan

negativedisclosure of
information,and its
handling andprocessing
18%

formalism andconfidentialis
m inadministration23%

Fig 2 Matters of Procedure for Construction

was altered to CS landfill quite easily.
・ The expectation to cost reduction is another reason for
adoption of CS landfill. It is estimated for CS landfillthat initial cost plus running cost will undergo to Open
System.

After landfill project completion and starting operation

community people are demanding for no outlet water toof the CS facility, many visitors came to see the site,

down stream as for construction permit/approval

making it one of sightseeing spot.

condition.

③ Ｃ disposal site

・ Also CS landfill develops the water discharge reduction

・ Reduced seepage water, low cost, scattering prevention,
smell

shut

up

harmony

witheffect and this constitutes regionally preferable
conditions for rainy region it belongs to.

neighbouring

circumference and so on, those are the main advantaged
features of CS landfill facility.

⑦

Ｇ disposal site

・ The business authority association made system

・ No water discharge policy is a strict concession item

selection in order to get cost reduction of seepage

with local authority. More than ten times of severe

treating operation considering local rainy conditions.

conference and discussion were held between local

・ Early settlement effect was one of prominent features
for selecting CS landfill facility.
④

Ｄ disposal site(hearing survey)

・ Main selection reason was low cost.

authority and local residents .
・ Final decision to adopt CS landfill facility was madefrom local authority side. Cost reduction effectconstituted one of the selection reasons.

・ CS facility is rather compact than Open System facility.
So development/reclamation cost may go underway.

Table 3 shows characteristic features of CS landfill facility

Required areas rather small because of no adjustment

and the relation to key factor to be selected.

pond necessary. Maintenance fee will be cheaper in
Closed type than in Open type. Local government
authority in charge proposed CS landfill facility andthere are no opposing ideas from resident contributed.
⑤

E disposal site(hearing survey)

・ No water discharge policy is the main selecting reason.
At first stage open type landfill was planned, but finally
CS type was selected from consideration of fisheryparty in downstream basin opposing water discharge
from the facility. Some consultant proposed idea of CS
landfill facility. Existing land facility of the town ismaintained badly and marine pollution problem
occurred by soil washout from disposal site. So local
distrust emotion aroused and be highly prevailing. That
is why rather high cost expenditure had no influence on
the reason for selecting CS landfill facility.
⑥

Ｆ disposal site

・ The site is close to famous river of scenic beauty. Local

Table 3

Characteristic features of CS landfill facility

Characteristic features

Name of Waste disposal facility

Main

Sub

Advantages

A

Agreement

Local environment

low restriction for site selection

B

C

D

E

F

G

○

○

○

○

○

○

harmony with circumference○

InhabitantNo discharge water to downstream

demand/request

Utilization possibilities for community
activities

Reconciliation

Creation of harmonized landscape withlocality
No deterioration for surroundings
Multi-purpose utilization for acceptanceof local demands

Structural safety

Low deterioration to impermeable liner at
slope
Low topographical restrict, Safe fromlandslide disaster

Reductionofenvironmental risk○

Air pollution risk○

Ground water pollution risk
Water pollution risk
Dissolutionofcontaminated

water

○

discharge risk
Emission of bad smell from reclaimed
waste
Noise emission from machines during
construction
Dirty images Failing risk of landscape
Local

Rainy region

Low risk against accident from rainfall

conditions

Heavy-snow

Low risk against snowfall and thaw○○

regionCost

Reduction factor

Low cost ,Low total cost○○

namely structural factors of the facility and matters of
5.

Study (3rd Stage)procedures to get construction approval for constructing

At first stage of this study we analyzed troubles andfinal disposition sites for waste, house waste and industrial

disputes examples classifying into 2(two) categories:

waste. Those analysis shows that by consideration andintroduction of, for example, control system for local water

Those are another candidates and must make the most of.

condition, that is the case of many CS facilities, troubles

In reality, however, it must be admitted that every efforts is

and its influence against to the construction of facility willtaken to promote local communication, nevertheless, thebe made smaller, which also shown in 2nd stage of thislack of communication situation could not be overcome

study. However, even if such a structural factor isirrespective of these large number of communication

overcome, lack of communication in the matter ofmeans and media input.

procedures will be make large element of troubles andhave negative effects to facility construction. To solve such6.

a communication problem in the course of procedures to

We are perpetually in a state of communication gap

get construction approval from local community, main

irrespective of having many means throwing in for it. One ofconcern shall be paid to the development of mutual

the cause of it must be the lack of truly understandable

understanding and having common recognition of theconcrete guidebook, so we came to our conclusion. Clear

problem. First of all, we must have necessary media andconsensus building would be got by publishing such ameans to establish and secure communication routes.

guidebook if not committing fundamental error, and planned

Information quality and also quality of it must be secured,project would be promoted on schedule. That is why we are

its timing and communication tool and field must be

now editing guidebook for the sake of getting agreement

maintained. Special communication skill is definitely

between local authority and local resident people in order tohaving necessity. There are a lot of media and means domake up safe and reliable landfill facility. We, as a working

exist; --- notice board, public relation journals andgroup for waste handling social penetration, are continuing

community magazines, public information, circular of thethe activities to complete guidebook draft and to contributeinformation between community members, pamphlets,

to assist/promote to construct socially needed community

internet internet rink and gathering information byfacilities.

questionnaire.

Lastly we quote some parts from our "Guidebook" draft

Moreover,utilization

of

mass

Conclusion

communication media like radio broadcasting, TV and

now in under preparation stage for publishing.

newspaper, communication meeting to explain to local[One Example from "Guidebook"]

residents,

interactive

How to proceed to hold communication meeting or local

communication conference, local conference inviting

conference inviting prominent authorities and peripheralprominent authorities and peripheral residents and so on ---residents, and critical points to be cared for.

facility

tour,

gatheringforTo establish local communication between resident and authority, it is required to keep fundamental
attitude of authority's (business enterprise) side. The technical skill like holding communication
conference and workshop is rather supplemental ones. For the planning of landfill facility. the definite
future vision for constitution of society based on save-energy , reuse/recycle policy must be
established.
And moreover "public" and "private" sectors shall communicate each other and shall have definitive
clear attitude to reflect the policy of serving public interests promotion.

1.

to be discussed and its relation to administrative

Fundamental Attitude
establishingpolicy shall be clearly shown to committee member.

communication between local community is this-- All

The role of committee member itself should be

information which has any relation to planning andreached also.

construction of the landfill facility must be actively

2-3 Establishment of flexible system

The

most

important

attitudeforopened to the public except special privacy items.

On the process of decision making to the plan,Communication with local community is not limited

how

to hearing and listening from all the people concerned

proposal/suggestions aroused at the conference to be

and discussion but also all the accurate information

handled shall be made clear and all the prominent

shall be opened to public. And also how to arrange andfeatures, they must be communicate each committee

treat those community's opinions and willingness frommember precisely. Cares and consideration should beperipheral resident people and proper responding totaken for the conference itself not to turn it out into

community movement, are the key factor for mutual

simple explanation meeting of the administrative

understanding. Detailed process should be taken to getpolicy.

those

opinion/comments

andcommunity decision.
3.The method and chance for resident peoples
2. Conference with peripheral resident people

participation

2-1 Organization and its member

3-1 Delegate system Management system operation

Firstly, composition of the participants should beseeking resident participation does not mean actuallyestimated and checked for suitability and properness

to ask direct joining from every resident. To make a

When inviting public application to the committee

decision of prominent feature for enacting of themember of the conference, its methodology andpolicy, the general rule tells opening of conference

procedures must be clearly shown and every carewhich is organized and managed by committee

must be taken into consideration for fair distribution

member is reliable way. In this way contents of thebased on age, sex and living district must be kept

conference shall be made open tp public. To support

strictly to avoid impartiality.

the conference decision which was made up from

2-2 Attentive notes for community conferencedelegate system, hearing survey and collecting poll

Work schedule shall be open before conference. It is

will have some necessity to collect and summing-up

preferable to take plenty time allowance anddirect local opinions and concerns. In addition at thefrequency

peoplestage of detailed construction planning, collecting

committee member are generally unfamiliar with theopinions from local meeting in more locally held

procedures of conference and quite stranger, so theand/or work shop in friendly atmosphere, will bechance to attend free school should be given and theeffective and of use. Key point lie in fullchance to collect relating intelligence also. They

communication anyway.

over

discussions.

Resident

should learn rules of participation into discussion, therole of conference and so on. At conference agenda

3-2 Securing the participation chance for residents
Many people work generally from 9:00 to 17:00
on working days. In consideration of these working

Investigation Working Group for Waste Handling Social

people and students, the date and time schedule of

Penetration

the conference should be arranged properly. It is also---WG: Study for Development to Closed System

necessary to avoid public holidays and vacation

Landfill Facility of Discarded Materials

seasons to settle the schedule. The period of

Masazumi Kitsuka; Environmental Technologic Consultant

conference time should be preferably within 2 Hours

Co.,Ltd

generally. (Work shop activities will be 3 Hours inKiyoshi Seo; Shimizu Corporation

standard)

Satoru Abe; Environment Construction Engineering

3-3 Utilization of consultants and NPO power

Corporation

As one part of resident participation it is useful to

Hiroshi Omote; Chuden Engineering Consultants Co.,Ltd

utilize/adopt private consultants and/or NPO(Non

Ichiro Kuroshima; Sumitomo Mitsui Construction Co.,Ltd

Profit Organization) power which are established

Kunitsugu Munemura; Wesco.,Ltd

large in number.

Masaki Hayashi; CTI Engineering Co.,Ltd

3-4 Examples of town development project taking in

Masahiko Hoshino; Japan Environmental Engineeringresident opinions

Consultant Inc.

Mitaka city at the stage of fundamental plan
making, they reflected citizen's opinions through theorganization of "Mitaka Citizen Plan 21" As a new
attempted example Fujisawa city made up "Fujisawa
Citizen Electronic Conference Room" aiming at local
community formation on network basis. .Anotherexamples are listed on reference table.

## Reference, quoted literatures
1) Tool box for designing resident participation casePart 2
Setagaya City Design Center2)

Feature Articles regarding Resident Participationin Decentralization Era(Survey Material 96)
Tokyo Metropolitan Assembly Assembly
Office Bureau