In a Prefecture with a Population Decline of 20,000, Libraries Have Increased Tenfold—Dissecting the Essence of ‘Systems that Gather People’

The estimated population of Hiroshima Prefecture has decreased by approximately 20,000 over the past year. As of April 1, 2025, the population is expected to be around 2.71 million—a decline of over 0.7% compared to the previous year. At first glance, these numbers suggest the usual narrative of rural areas quietly shrinking.

However, within the same prefecture, there is a strikingly opposite figure. The monthly visitor count at the Hiroshima City Central Library has reportedly exceeded ten times that of its previous location—surpassing 100,000. In a place where the population is declining, a space that attracts people has emerged. This contrast reveals not a story of “success and failure,” but rather a difference in design philosophy.

The Decision to “Place in the Flow of People”

The Hiroshima City Central Library relocated in 2024 (Reiwa 6) to the commercial facility “Akan Yell Yell” at the south exit of Hiroshima Station. Its previous location was in the lush surroundings of Hiroshima Central Park in Naka Ward—a site that required a deliberate visit.

The new location is a commercial building just a few minutes’ walk from JR Hiroshima Station, situated along the commuting and shopping routes. In other words, it has transformed into a place where one can stop by on the way to daily activities without having to decide to “go to the library.”

It is important to note that the library itself has not dramatically changed. The number of books has not increased tenfold, nor has the staff. What has changed is the “point of contact with the flow of people”—in other words, the design decision to place public services along existing pathways.

Being located within a commercial facility allows access without getting wet on rainy days. Ascending the escalator leads directly to the books. Parents with children can stop by the picture book corner while shopping. High school students can use study spaces after school. This accumulation of “stopping by” supports the figure of 100,000 monthly visitors.

The fact that visitor numbers have increased tenfold also implies that there were many people who were not reached by the previous library. If there is something you want to deliver, you must go out to the pathways of the people you want to reach. This principle is not limited to libraries.

Six People and Zero People—The Reason Why “Delivery Design” Failed to Reach

In contrast, there are opposing figures within Hiroshima Prefecture.

The free ride-sharing taxi trial conducted by Higashihiroshima City in the fiscal year 2024 had only six users in the first two months since its launch. Although it was reservation-based and limited to specific areas and time slots, even with no cost, people did not use it. The city is currently reviewing its operational methods.

Additionally, the “Flower Tour Bus” that operated during the spring tourist season in Sera Town has been decided to be suspended starting in the fiscal year 2026. The flower fields of Sera Kogen attract tourists from both inside and outside the prefecture, but the number of bus users did not reach the breakeven point.

In both cases, the objectives are clear. They aim to provide transportation to those with limited mobility and assist tourists in exploring the area. The intent is correct. However, the results did not reach almost anyone.

Why is that? Upon reflection, structural issues become apparent.

The ride-sharing taxi was designed for users to “make a reservation, and board from a designated location at a set time.” This means that users had to change their behavior to fit the service’s structure. Similarly, the Flower Tour Bus was organized on the premise that tourists would adjust their behavior to the fixed routes and schedules.

If the library’s relocation “placed the service in the flow of people,” then these transportation services attempted to “draw people into the service’s convenience.” Despite being public services, the design arrows are pointing in opposite directions.

“Gathering Design” vs. “Delivery Design”—Questioning the Direction of the Arrows

It is essential to clarify that “gathering” and “delivering” are not opposing concepts.

While the library appears to have succeeded with a “gathering design,” the reality is that “the result of refining the delivery design led to people gathering.” The decision to relocate to the station front involved analyzing the life pathways of those to whom they wanted to deliver books—commuters, students, families with children, and the elderly—and creating points of contact there. When the precision of the delivery design is high, people gather as a result.

On the other hand, the ride-sharing taxi and the tourist bus, while aiming to “deliver,” were actually designed to “get people to come.” The reservation process, time constraints, and fixed routes—all of these shifted the costs onto the users. Although there was an intention to deliver, the structure did not take the form of delivery.

This “discrepancy between intent and structure” is a recurring pattern in public services in rural areas. Budgets are allocated, vehicles are prepared, and personnel are assigned. The necessary steps have been taken. Yet users do not come—at that point, the question should not be, “Was there insufficient awareness?” but rather, “Whose direction was the structure pointing toward?”

Another Question Behind the Numbers

A population decline of 20,000. A tenfold increase in visitors. Six users. Service suspension.

When these numbers are lined up, one might hastily conclude, “Learn from the success stories.” However, I would like to urge caution.

The tenfold increase in library visitors may include a boost from the “novelty” immediately following the relocation. Whether the location within a commercial facility will maintain the same drawing power ten years from now remains uncertain. Furthermore, it is necessary to verify how the increase in visitor numbers correlates with changes in borrowing rates and the quality of time spent in the library.

The figure of six users for the ride-sharing taxi also requires examination before labeling it a “failure.” We need to consider how many potential users were in the target area and whether the trial period was sufficient. There remains the possibility for improvement in the structure.

What is crucial is not to interpret the numbers as a matter of “winning or losing.” Between success and failure lies a difference in design philosophy, and that design philosophy is something that can be corrected.

“Who Does This Make Easier?”

When designing public services in areas with declining populations, the first question to ask is:

“Who does this make easier?”

The relocation of the library made it easier for those who “want to read but do not have the time to go to the library.” The location at the station front brought the cost of travel close to zero. As a result, groups that previously had no contact with the library—business people on their commute, students after school, and elderly individuals returning from shopping—have become new users.

The ride-sharing taxi was likely intended to provide peace of mind for those “struggling due to a lack of transportation.” That intent is correct. However, did the reservation-based system not create an additional hurdle for those very “struggling individuals”? Did the structure blend seamlessly into the lives of the people it aimed to serve?

In the broader context of population decline, all regional services are grappling with the question of “how to deliver to as many people as possible with limited resources.” When answering that question, the direction of the arrows—who the service aligns with—will determine the outcomes more than the grandeur of the facilities or the size of the budget.

What to Watch Going Forward

Regarding the future of the Hiroshima City Central Library, I would like to observe several aspects. Of course, the trend in visitor numbers is important, but more crucial is the qualitative change in “who is using it and how.” How well does the library within a commercial facility attract different demographics compared to traditional library users, and how does it integrate into their lives?

For the ride-sharing taxi in Higashihiroshima City, I want to pay attention to how the design changes after the review. Will there be attempts to simplify the reservation process, redefine the operational area, or shift to a demand-responsive model—essentially reorienting the structure’s arrows toward the users?

And after the suspension of the Flower Tour Bus in Sera Town, how will the means of transportation for tourists be redesigned? There may be possibilities for alternative “delivery methods” that do not rely solely on buses, such as collaborations with local businesses or arrangements where tourist facilities provide transportation.

In a prefecture where the population has decreased by 20,000, there exists a place that attracts 100,000 visitors every month. This fact teaches us that “a decrease in people” does not equate to “a lack of gathering people.” People do not simply disappear; they quietly drift away from places where there are no systems to reach them.

By adjusting the direction of the delivery systems’ arrows just a little more toward the recipients, that “little more” can change the landscape of the region, as quietly demonstrated by the library in Hiroshima.