Cultural Heritage, Cultural Sustainable Heritage, Sustainable Tourism Tourism andUrban and Regeneration: Urban Regeneration: Capturing Lessons Capturing and Lessons and Experience Experience from from Japan Japan focus on withaafocus with onKyoto Kyoto © 2018 The World Bank Group 1818 H Street NW Washington, DC 20433 Telephone: 202-473-1000 Internet: www.worldbank.org All rights reserved. This volume is a product of the staff of the World Bank Group (WBG). The World Bank Group refers to the member institutions of the World Bank Group: The World Bank (International Bank for Reconstruction and Development); International Finance Corporation (IFC); and Multilateral Investment Guarantee Agency (MIGA), which are separate and distinct legal entities each organized under its respective Articles of Agreement. We encourage use for educational and non- commercial purposes. The findings, interpretations, and conclusions expressed in this volume do not necessarily reflect the views of the Directors or Executive Directors of the respective institutions of the World Bank Group or the governments they represent. The World Bank Group does not guarantee the accuracy of the data included in this work. Rights and Permissions This work is a product of the staff of the World Bank with external contributions. The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of the World Bank, its Board of Executive Directors, or the governments they represent. Nothing herein shall constitute or be considered to be a limitation upon or waive of the privileges and immunities of the World Bank, all of which are specifically reserved. Contact: World Bank Group Social, Urban, Rural and Resilience Global Practice Tokyo Development Learning Center (TDLC) Program Fukoku Seimei Bldg. 10F, 2-2-2 Uchisaiwai-cho, Chiyoda-ku, Tokyo 100-0011 Japan Phone: +81(3)3597-1333 Fax: +81(3)3597-1311 Web: http://www.jointokyo.org About Tokyo Development Learning Center (TDLC) The Tokyo Development Learning Center (TDLC) program is a partnership of Japan and the WBG. TDLC supports and facilitates strategic WBG and client country collaboration with select Japanese cities, agencies and partners for joint research, knowledge exchange, capacity building and other activities that develop opportunities to link Japanese and global expertise with specific project-level engagements in developing countries to maximize development impact. Acknowledgments This publication was produced by a research team led jointly by Ahmed A. R. Eiweida, Lead Urban Specialist (Global Coordinator of Sustainable Tourism and Sustainable Tourism) and Yuko Okazawa, Urban Specialist, Global Practice for Social, Urban, Rural and Resilience (SURR), under the overall guidance of Sameh Wahba, Director Urban and DRM (SURR) and Daniel Levine, Senior Officer of TDLC Program (SURR) of the World Bank. The research team was composed of Hideo Sakamoto, Principal Consultant (PADECO), Michael Chadney, Senior Consultant (PADECO) and Nozomi Saito, Consultant (PADECO). The team gratefully acknowledges the peer reviews and inputs from the following World Bank Group colleagues: Phil Karp, Lead Knowledge Management Officer (SURR), Wouter Schalken, Senior Private Sector Specialist, Global Practice for Finance, Competitiveness and Innovation (FCI), Paramita Dasgupta, Practice Manager (FCI), Haruka Imoto, Knowledge Management Analyst (SURR) and Takashi Riku, Research Consultant (SURR). The team is especially grateful for feedback from Kyoto City officials, Kyoto based civic organizations and private companies. Special thanks are due to Satoshi Uemura, Vice Mayor of the City of Kyoto. Preparation of this report conducted under the auspices of the TDLC program. TDLC is a partnership of Japan and the WBG. TDLC supports and facilitates strategic WBG and client country collaboration with select Japanese cities, agencies and partners for joint research, knowledge exchange, capacity building and other activities that develop opportunities to link Japanese and global expertise with specific project-level engagements in developing countries to maximize development impact. Contents Executive Summary................................................................................................................................1 1 Kyoto’s Cultural Heritage, Urban Regeneration, and Sustainable Tourism ............................... 3 1.1 Introduction and Objectives ............................................................................................... 3 1.2 Background and Overview of Growth in Kyoto and Japan ................................................ 5 1.3 Cultural Heritage – Laws, Policies, Strategies, and Structures ......................................... 9 1.4 Urban Regeneration – Laws, Policies, Strategies, and Structures .................................. 18 1.5 Sustainable Tourism – Laws, Policies, Strategies, and Structures .................................. 34 2 Case Study Examples ...................................................................................................................48 2.1 Overview ..........................................................................................................................48 2.2 Case 1 – WHS Nijo Castle .............................................................................................. 49 2.3 Case 2 – WHS Kiyomizu-dera Temple ............................................................................ 59 2.4 Case 3 – Higashi-yama (Surrounding Area of WHS Kiyomizu-dera Temple) .................. 67 2.5 Case 4 – Downtown Area ................................................................................................ 72 2.6 Case 5 – Intangible Heritage: Gion Festival .................................................................... 78 2.7 Case 6 – Kyoto Station West Area Redevelopment ........................................................ 82 2.8 Case 7 – Southern Gion Area .......................................................................................... 88 2.9 Case 8 – Intangible Heritage: Gozan-no-okuribi Festival ................................................ 93 3 Summary of Lessons Learned from Kyoto’s Experience .......................................................... 96 3.1 Lessons Learned and Suggested Actions ....................................................................... 96 3.2 Conclusion .......................................................................................................................98 i List of Figures Figure 1.1: Interrelationship of Cultural Heritage, Urban Regeneration, and Sustainable Tourism .......... 4 Figure 1.2: Location of Kyoto City .............................................................................................................5 Figure 1.3: Kyoto City Production by Industry .......................................................................................... 5 Figure 1.4: Original Layout of Heian-kyo Overlaid on Modern Kyoto City ................................................ 6 Figure 1.5: Rokuon-ji Temple (Kinkaku-ji Temple) Built in 1397 by Ashikaga Samurai Clan .................... 6 Figure 1.6: Kyoto City Tram since 1895 ....................................................................................................7 Figure 1.7: Characteristics of Kyoto City .................................................................................................. 7 Figure 1.8: Location of Registered World Heritage Sites in Japan ......................................................... 10 Figure 1.9: World Heritage Sites of Kyoto............................................................................................... 11 Figure 1.10: Process for the Designation of Cultural Properties in Kyoto City ....................................... 12 Figure 1.11: Examples of Kyoto’s Intangible Cultural Heritage .............................................................. 14 Figure 1.12: National Agency for Cultural Affairs – Organization Chart .................................................. 15 Figure 1.13: Cultural Heritage Section, Kyoto City – Organization Chart ............................................... 16 Figure 1.14: Cultural Properties Protection Section – Organization Chart ............................................. 16 Figure 1.15: Location Context .................................................................................................................19 Figure 1.16: Conceptual City Plan (Scoping) .......................................................................................... 21 Figure 1.17: Loss of Traditional/Beautiful Landscapes ........................................................................... 22 Figure 1.18: Landscape Policy Framework ............................................................................................ 22 Figure 1.19: Before and After the Landscape Policy Building Height Regulations ................................. 23 Figure 1.20: Building Design Standard Illustrations (Landscape Policy 2007) ....................................... 23 Figure 1.21: Close View Preservation Area ............................................................................................ 24 Figure 1.22: Outdoor Advertisement Control .......................................................................................... 24 Figure 1.23: Decreasing Kyo-Machiya in the Kyoto Downtown .............................................................. 25 Figure 1.24: Comprehensive Support for Preservation of Kyo-machiya ................................................. 26 Figure 1.25: Kyo-Machiya Restoration under the Kyo-machiya Development Fund .............................. 27 Figure 1.26: Kyo-Machiya Legacy Network ............................................................................................ 28 Figure 1.27: Kyo-Machiya Development Fund Support .......................................................................... 29 Figure 1.28: Modern Kyo-Machiya “Kuraya” – To Pass on to the Next Generation ................................ 29 Figure 1.29: Kyoto City Planning Bureau Organization and Demarcation .............................................. 31 Figure 1.30: Kyoto Annual Population Change ....................................................................................... 32 Figure 1.31: Composition of Concrete Measures (Draft) ........................................................................ 32 Figure 1.32: Overarching National Tourism Context ............................................................................... 37 Figure 1.33: Kyoto Tourism Policy Evolution .......................................................................................... 37 Figure 1.34: Japan Tourism Agency (JTA) – Organization Chart ............................................................ 39 Figure 1.35: Kyoto City Tourism Association – Organization Chart ........................................................ 40 Figure 1.36: Annual Visitors (Domestic + Inbound) ................................................................................ 41 Figure 1.37: Tourism Seasonality ...........................................................................................................41 Figure 1.38: Overnight Visitors (Domestic + Inbound) ............................................................................ 41 Figure 1.39: Overnight Inbound Visitors ................................................................................................. 41 Figure 1.40: Tourist Expenditure .............................................................................................................41 Figure 1.41: Domestic Tourists Satisfaction Survey Results................................................................... 42 Figure 1.42: Inbound Tourists Satisfaction Survey Results..................................................................... 42 Figure 1.43: Private Sector Partnerships - TripAdvisor ........................................................................... 43 Figure 1.44: Kyoto Tourist Information Center ........................................................................................ 44 Figure 1.45: Examples of Kyoto’s Experience-Based Tourism Activities ................................................ 45 Figure 2.1: Locations of the Eight Illustrated Cases ............................................................................... 48 ii Figure 2.2: Location of WHS Nijo Castle ................................................................................................ 49 Figure 2.3: WHS Nijo Castle Aerial View ................................................................................................ 49 Figure 2.4: Nijo Castle Site: National Treasures/Important Cultural Properties ...................................... 50 Figure 2.5: Karamon Gate Before Restoration ....................................................................................... 51 Figure 2.6: Karamon Gate After Restoration .......................................................................................... 51 Figure 2.7: Higashi-Otemon Gate Before Restoration ............................................................................ 52 Figure 2.8: Higashi-Otemon Gate After Restoration ............................................................................... 52 Figure 2.9: Higashi-Otemon Gate Roof Restoration ............................................................................... 53 Figure 2.10: Higashi-Otemon Gate During Restoration .......................................................................... 53 Figure 2.11: Nijo Castle Artwork .............................................................................................................53 Figure 2.12: Trend of Visitor Numbers ....................................................................................................53 Figure 2.13: Visitor Seasonality in FY 2002 ............................................................................................ 54 Figure 2.14: Visitor Seasonality in FY 2016 ............................................................................................ 54 Figure 2.15: Nijo Castle Front Square Plan ............................................................................................ 54 Figure 2.16: Entrance/Queuing Area: Before and After Visitor Flow Improvements ............................... 55 Figure 2.17: Parking/Drop-off Area: Before and After Visitor Flow Improvements .................................. 55 Figure 2.18: Facility Guide Map of Nijo Castle ....................................................................................... 56 Figure 2.19: Organization Chart of Nijo Castle Office ............................................................................. 57 Figure 2.20: Location of Kiyomizu-dera Temple ..................................................................................... 59 Figure 2.21: Amida Hall Before Overhaul Restoration (Modified Tiled Roof) .......................................... 60 Figure 2.22: Amida Hall After Overhaul Restoration (Original Thatched Roof) ....................................... 60 Figure 2.23: Seismic Enhancement of Oku-no-In ................................................................................... 61 Figure 2.24: Kiyomizu-dera Temple Ten-Year Restoration Plan (2008-2018) ......................................... 61 Figure 2.25: Examples of Restoration Works at Kiyomizu-dera Temple (Before and After) ................... 62 Figure 2.26: Kiyomizu-dera Temple Site Illustration................................................................................ 63 Figure 2.27: Kiyomizu-dera Temple Narrow and Bustling Approach Streets .......................................... 63 Figure 2.28: Higashi-yama (Surrounding Area of WHS Kiyomizu-dera) ................................................. 67 Figure 2.29: View from the Temple town................................................................................................. 68 Figure 2.30: WHS Kiyomizu-dera Temple View Preservation Control Area (500m from Temple) ........... 68 Figure 2.31: Sanneizaka, Higashiyama: Preservation Districts for Groups of Historic Buildings............ 69 Figure 2.32: Downtown Location Map ....................................................................................................72 Figure 2.33: Decreasing Kyo-Machiya in Kyoto Downtown .................................................................... 73 Figure 2.34: Development & Building Height Pressures on Kyo-Machiya, Downtown ........................... 73 Figure 2.35: Downtown Development Concept – Kyoto City Master Plan .............................................. 74 Figure 2.36: Stricter Building Height Controls in the Downtown ............................................................. 74 Figure 2.37: Stricter Building Height Control Simulation in the Historical Downtown Area ..................... 74 Figure 2.38: Kyo-Machiya Development Fund Restoration Examples, Downtown ................................ 75 Figure 2.39: Land Price Trend ................................................................................................................76 Figure 2.40: Funeboko Kyo-machiya during Gion Festival ..................................................................... 79 Figure 2.41: Shijo Ofune-hoko Float Machiya ........................................................................................ 80 Figure 2.42: Gion Festival - Yamahoko during the Evening Pre-event ................................................... 81 Figure 2.43: Kyoto Station West Area Redevelopment - Concept Strategy............................................ 83 Figure 2.44: Kyoto Railway Museum and Umekoji Park Tram Square ................................................... 84 Figure 2.45: Virtual Reality Sightseeing, Kyoto Station West Area ......................................................... 84 Figure 2.46: Southern Gion Location Map .............................................................................................. 88 Figure 2.47: Geiko and Maiko Performance ........................................................................................... 88 Figure 2.48: Narrow Street of Traditional Kyo-machiya Townscape ....................................................... 90 iii Figure 2.49: Illustrations of Design Guide ............................................................................................... 90 Figure 2.50: Underground electric Cables – Southern Gion Before and After ........................................ 91 Figure 2.51: Tourist Behavior Signboards ............................................................................................... 92 Figure 2.52: Bonfires of the Gozan no Okuribi ....................................................................................... 93 Figure 2.53: Gozan no Okuribi Preparations .......................................................................................... 93 Figure 2.54: Landscape Policy “View Preservation” Concept ................................................................. 94 iv List of Tables Table 1.1: Location of Japanese Capital ...................................................................................................5 Table 1.2: Cultural Properties in Japan ...................................................................................................10 Table 1.3: Cultural Properties in Kyoto City ............................................................................................ 12 Table 1.4: National Systems and Measures for Protection of Cultural Properties .................................. 13 Table 1.5: Cultural Affairs Budget Comparison ....................................................................................... 15 Table 1.6: Major Acts Relevant to Tourism .............................................................................................. 35 Table 1.7: Rate of Lodging Tax ...............................................................................................................36 Table 1.8: Tourism Policy Evolution ........................................................................................................37 Table 1.9: Second Kyoto Tourism Promotion Plan SWOT Analysis (2006) ............................................ 38 Table 1.10: Evolution of Tourism Challenges and their Countermeasures ............................................. 39 Table 1.11: Pillars of Kyoto’s Quality Tourism ......................................................................................... 43 Table 2.1: Nijo Castle Cultural Properties ............................................................................................... 50 Table 2.2: Nijo Long Term Restoration Plan ........................................................................................... 50 Table 2.3: Process Summary: Higashi-Otemon Gate Major Restoration Works..................................... 52 Table 2.4: Nijo Castle Admission Prices ................................................................................................. 57 Table 2.5: Station West Subprojects - Public Sector Construction & Operation ..................................... 84 Table 2.6: Station West Subprojects - PPP (land, construction, operation) ............................................ 85 Table 2.7: Station West Subprojects - Private Construction & Operation ............................................... 85 v Executive Summary The World Bank Group (WBG) has long over 50 million visitors every year (with recognized that the restoration and preservation approximately 26% staying overnight), and the of cultural heritage, urban regeneration, and city is now striving to balance a past focus on sustainable tourism can play a vital role in quantity (i.e., number of visitors and tourists) with developing countries’ efforts to promote local quality (i.e., spending and satisfaction). economic development, accelerate social integration, and alleviate poverty. Against this A common denominator pertaining to cultural backdrop, this research report sheds light on heritage, urban regeneration, and sustainable lessons learned from the development experience tourism in Kyoto is the government’s role as a of Kyoto City, the imperial capital of Japan for facilitator in creating an enabling environment. more than a thousand years and home to 14 well- Not only does the government take a lead in this conserved UNESCO World Heritage sites and area, but civic pride and private sector many historic districts. involvement help keep cultural heritage (including designated tangible heritage such as temples and KYOTO: THE PAST AND PRESENT shrines, non-designated heritage such as the many traditional townhouses or Kyo-machiya, and The Kyoto City master plan cleverly defines the intangible heritage assets) part of everyday life— city under three targets of intervention: that is, as “living heritage.” This puts the civic “regeneration” for the historic city core with old society and the private sector in the driver’s temples and shrines, “preservation” for the seat of local economic development, and this surrounding mountainous areas in the north, and virtuous cycle leads to creating more jobs and “creation” for urban growth and brownfield improving the livelihoods of the residents and redevelopment in the south. Instead of the workers in the area, hence ensuring the conventional urban regeneration project-led sustainability of local economic growth. approach, Kyoto City has designed a comprehensive system for development (including KYOTO: THE FUTURE an urban planning system, policy and legal framework, and financial systems). This approach Pressing questions for Kyoto today include creates enabling conditions that allow households Kyoto’s strategy to deal with rapidly increasing to incrementally update their own houses, utility tourism (will the city continue tourism promotion or companies to rehabilitate infrastructure, specialist put a cap on visitors), how the city will disperse traditional carpenters and experts to help preserve these visitors while simultaneously maintaining historic buildings, and a selected number of banks visitor satisfaction levels (and keeping them as to extend credit to households interested in repeaters), and how it will reconcile this conflict starting a micro-enterprise. This approach enables while securing the livability of its citizens. While the city to ensure that its cultural heritage legacy, Kyoto continues to make its best efforts to or “Kyoto-ness,” is passed on, and it makes the comprehensively address these issues, this report city more resilient to gentrification. attempts to illustrate some key strategic directions for the city along with the historical, cultural, Except for Nijo Castle, all World Heritage sites are regulatory, and institutional mechanisms that are managed by individual temple or shrine inherent to the Kyoto approach. associations (NPOs or religious corporations). The management and organization approach of With the surge in the number of overnight visitors, Kyoto City – and in particular its Cultural Kyoto is facing swelling costs in tackling such Properties Protection Section – provides an issues as crowded hotels and buses as well as overarching system of policies, strategies, and the improvement of public transportation systems. technical assistance; the actual conservation, However, introduction of any kind of lodging tax operations, and maintenance are carried out by has been slow, represented by the careful, and the NPOs, while the cultural property owners take relatively late, introduction of lodging tax in on the responsibility of maintaining and October 2018. In addition, due to the large rehabilitating the cultural heritage assets increase in the number of tourists and surge in themselves, with the public sector playing a short-term accommodation, an Ordinance of Short supporting role. Term Rentals (2018) is now in place, which is more restrictive than the nationwide rules. It seeks For the past decades, Kyoto has seen a rapid to limit the renting out residential properties to increase in the number of international visitors, protect existing residents and prevent a decline in and tourism has become an important growth their quality of life. pillar for the local economy. However, the city is currently facing a major challenge in coping with 1 The lodging tax aims to provide quality services Government recognizes that strict landscape and infrastructure, ensure environmental regulations, architectural standards, and sustainability, and contribute to local economic development rules will improve the city. It is of development. With 50 million visitors to Kyoto a note that Kyoto’s citizens accept the regulations year, the city could become a mass tourism since they widely have a strong understanding of destination if such measures are not carefully put the necessity of such controls. in place. The tax reflects Kyoto City’s view that the city should be a good place to live and a good The above also central to understanding why place to visit, and that both residents and visitors urban gentrification in Kyoto is limited. With the should bear the cost of good infrastructure and a city putting in place the enabling systems and good environment. conditions for households to incrementally restore their houses themselves, the social attachment to The introduction of a lodging tax and enhanced the neighborhood is high; and people’s incomes short-term rental regulation are steps in the right and livelihoods are improved by the opportunity to direction to keep the focus on quality of tourism start a new micro business. The restoration efforts (i.e., quality of service, tourist satisfaction and are small in scale and incremental, but they play spending) instead of quantity (i.e., number of an important role in maintaining craftsmanship arrivals). Based on lessons learned from and transmitting it across generations. international experiences, these are inevitable steps for Kyoto; they may reduce the number of Kyoto City is indeed a unique case, but there are visitors but should result in higher spending and various elements and lessons that are applicable tourism receipts. for many cities around the world facing similar issues. We hope that this report will serve as a From the outside, it appears that Kyoto is striving useful reference for practitioners and researchers for a delicate balance: it seeks a manageable who believe in the power of integrating cultural increase in tourist numbers—through broadening heritage, urban regeneration, and sustainable the spectrum of services provided and shifting tourism to bring about active local economic from affordable to higher-end, higher-quality development, greater community development, tourism—while also seeking to ensure that quiet and the preservation and enhancement of a city’s residential neighborhoods are not disturbed and diverse assets as a lasting legacy for future reducing tourism annoyances in and around generations. destinations (e.g. tourism manners and behavior, public transport congestion etc). The government appears to have taken a bold step toward introducing a stronger beneficiaries-pay principle, i.e., not only relying on the civic pride of Kyoto citizens to maintain the quality of the attractions and services, but moving towards a more standard approach that allows the tourists themselves to pay the costs for enhanced quality of services provided. However, there is no doubt that the civic pride of Kyoto has been and always will be central to its success. It is a major and unique asset for cultural heritage preservation and urban regeneration in Kyoto, one that helps support sustainable tourism. Kyoto has long provided education opportunities for citizens to learn more about their history, culture, and traditions, thus increasing their sense of pride and responsibility. The civic society, consisting of community groups, religious, academia, cultural groups, and others, takes a lead role and keeps a careful eye on the development vision of the city and on the associated policy interventions. These groups hold the government accountable for planning and ensuring comprehensive development, which maintains and improves the local economy but not at the expense of residents’ livelihoods. In this way, civic pride and community participation involve tangible action and results. Kyoto City 2 1 Kyoto’s Cultural Heritage, Urban Regeneration, and Sustainable Tourism Source: Shimogamo Shrine 1.1 Introduction and Objectives (1) Background tools for local economic development, social inclusion, and poverty reduction. The World Bank Group (WBG) has long recognized that the restoration and preservation (2) Capturing Kyoto’s Experience of cultural heritage, urban regeneration, and sustainable tourism can play a vital role in In close cooperation with the Kyoto City developing countries’ efforts to boost local Government, the WBG has commissioned this economic development, accelerate social Kyoto case study on cultural heritage, sustainable integration, and alleviate poverty. tourism, and urban regeneration through the Tokyo Development Learning Center (TDLC) Furthermore, each of these three activities can program, which is a partnership of the help countries and localities strengthen their Government of Japan and the WBG. The TDLC cultural identities by rediscovering and supports and facilitates strategic WBG and client rejuvenating rich historical traditions and practices country collaboration with select Japanese cities, that bring communities together and entice visitors agencies, the private sector, and partners for joint to explore hidden treasures from the past. research, knowledge exchange, capacity building, and other activities that develop opportunities to Over the years, the WBG has adopted an link Japanese and global expertise with specific integrated approach to addressing cultural project-level engagements in developing countries heritage and tourism, which includes looking at to maximize development impact. the industry functions of tourism in support of private sector growth, urban regeneration, cultural Kyoto City, which was the imperial capital of asset management, and institutional coordination. Japan for more than a thousand years, serves as The WBG views cultural heritage, urban a good example for other destinations. Kyoto City regeneration, and sustainable tourism as powerful is home to 14 of the 17 well-conserved 3 components of the “Historic Monuments of Furthermore, the report will showcase the Ancient Kyoto,” a UNESCO World Heritage site, linkages and interrelationships between cultural as well as many historic districts. These sites heritage, urban regeneration, and sustainable have been conserved or redeveloped with the tourism in Kyoto and suggest how synergies utmost consideration for historic structures and among the three components promote prosperity, the traditional townscape. Over the past decades, as introduced in Figure 1.1. The people of Kyoto Kyoto has seen a rapid increase in the number of are proud of their city’s history and culture, international visitors and tourism has become an whether tangible or intangible, and have carefully important growth pillar for the local economy. protected them in their daily lives. Such careful protection has made Kyoto a sightseeing area for Assessing Kyoto’s experience through this visitors from around the world. transformation will shed additional light on how national and city-level policies have enabled the Kyoto City has helped determine the direction of process and should offer valuable lessons to it’s urban plan through capitalizing on it’s WBG clients in developing countries who are residents’ pride, and based on this direction, has embarking on a similar path in cultural heritage established overarching rules and systems for and sustainable tourism. urban regeneration. The successes in conservation of cultural heritage and inheritance (3) Report Objectives of the city’s townscape and history, particularly through the residents’ pride, has also resulted in The aim of this research report on cultural prosperous tourism and urban regeneration. heritage, urban regeneration, and sustainable tourism is to capture lessons and experience from Japan with a focus on Kyoto. More specifically, (4) Report Structure the objectives are these: Following this introduction, Chapter 1 will acquaint readers with the evolution of cultural restoration 1) To present and summarize Kyoto’s and tourism development in Kyoto, particularly its experience and main achievements in best practice in overarching policies, strategies, • Tangible and intangible cultural heritage and structures. preservation and development • Urban regeneration of old districts Chapter 2 will then examine a series of eight case • Sustainable tourism development studies, two framed through the lens of cultural heritage conservation of World Heritage sites 2) To document and summarize the key within integrated Site Management Plan topics, policy, planning, and institutional and six framed through the lens of cultural arrangements at the city level and links to heritage protection, residents’ activities, urban the national level that enabled this regeneration, and coordination of tourism policy. process In conclusion Chapter 3 will summarize the lessons learned from Kyoto’s experience and 3) To identify lessons learned and actions to introduce suggested actions. help inform knowledge development and exchange for developing country cities • Tourist Attraction • Kyoto’s Uniqueness • Appreciation/Realize Value • Entry Fee • Appreciation/Realize Value CULTURAL SUSTAINABLE HERITAGE KYOTO TOURISM CIVIC PRIDE • Appreciation • Tax • Historic Value • Unique Townscape • Projection of areas • Economic growth • Infrastructure around Heritage • Transport Program • Kyo-machiya • Townscape Conservation URBAN • Kyo-Machiya • Cultural Facilities • Community Collaboration REGNERATION Figure 1.1: Interrelationship of Cultural Heritage, Urban Regeneration, and Sustainable Tourism 4 1.2 Background and Overview of Growth in Kyoto and Japan (1) Background Demography: The population of Kyoto City is close to 1.5 million, the eighth largest city Geography: Kyoto City is the capital of Kyoto population of Japan. In 1956, as a city with a Prefecture and is located in the central part of the population greater than 500,000, Kyoto City island of Honshu within the Kansai region became a specially designated city by order of the (Western Japan). It is a major part of the Kyoto- Cabinet of Japan under the Local Autonomy Law. Osaka-Kobe metropolitan area. Specially designated cities have the same administrative power as a prefectural government. Regional Autonomy: In April 2000, the Comprehensive Decentralization Law was enforced in an attempt to clarify the division of roles between central and local governments, to eliminate the program for clerical work commissioned to outside agencies, and to set up rules for the central government's involvement. All local governments, including Kyoto, are expected Source: Kyoto City Government to carry out their administration according to their Figure 1.2: Location of Kyoto City respective regional realities and based upon their own judgment and responsibility: Kyoto City is located in the southern part of Kyoto Prefecture within a valley, part of the Yamashiro • Dual-representation system – Local (or Kyoto) basin, in the eastern part of the government head and council are elected mountainous region known as the Tamba through separate elections; the local Highlands. Kyoto is surrounded on three sides by government head tends to hold the mountains known as Higashiyama, Kitayama, and initiative Nishiyama. This interior positioning results in hot • Powers – General powers and powers summers and cold winters. There are three rivers defined by law, therefore Kyoto is in in the basin, the Ujigawa to the south, the charge of an extremely wide range of Katsuragawa to the west, and the Kamogawa to affairs the east. With these geographic and climatic • Sources of revenue – Independent factors, Kyoto has created a city with a unique revenue sources such as local taxes blend of tradition, culture, and industry. account for about 40% of revenue (most being independent taxation); this is Socioeconomic Profile: In 2014, the gross supplemented by local allocation tax and domestic product (GDP) of Kyoto City was JPY national treasury disbursements 6,164 billion, with a growth rate was 2.1%. The city income per person was JPY 3.12 million. The (2) Historical Context gross production in the city by industry is shown in Shifting Location of the Japanese Capital City: figure 1.3. The major industry is the service Kyoto City has historically been the place where industry, which includes tourism. wealth, authority, and information were concentrated from all over Japan. Agriculture, Forestry, Mining, 0.0% Table 1.1: Location of Japanese Capital 0.1% Classification Period Political Note Capital Service, 21.5% Manufacturin Asuka, Nara Era 538-794 Nara Pref. Imperial government g, 16.9% Construction Heian Era 794-1185 Kyoto Imperial government , 4.7% Kamakura Era 1185-1333 Kamakura Minamoto samurai clan Muromachi Era 1333-1568 Kyoto Ashikaga Information, Electricity, Communicat Gas, Water ion, 3.6% Wholesale / Retail, Service, samurai clan Transportati 12.9% 1.5% Azuchi- 1568-1603 Around Oda and Toyotomi Momoyama Era Kyoto governments on, 4.2% Real Estate, 16.9% Finance / Edo Era 1603-1868 Edo Tokugawa samurai clan Insurance, (Tokyo) 4.4% Modern Japan I 1868-1945 Tokyo Imperial government Source: Kyoto City Government (2014) before WW II Figure 1.3: Kyoto City Production by Industry Modern Japan II 1945-now Tokyo Democracy with after WW II nominal monarchy 5 The Imperial Palace was located in Kyoto from new Buddhist sects came to Kyoto; these later 794 until the modern government was established prevailed across all of Japan. Powerful samurai in 1868—more than a thousand years. When clans helped Buddhism monks to build temples, samurai clans took over political power, which are now an essential heritage of the nation government functions were transferred to cities (see Figure 1.5). Various cultural heritages such other than Kyoto while the capital stayed there. as handicrafts, architecture, gardens, costumes, Table 1.1 shows these changes. food, performance arts (music, dance, play, etc.), and ritual events were born in Kyoto and have Beginning of the City: By the third century, the succeeded up to now. imperial government (named “Yamato”) was established in Nara Prefecture. It constructed two capital cities – Fujiwara-Kyo in 694 and Heijo-Kyo in 710. Emperors in the eighth century tried to shift the capital to several other locations, and finally Heian-Kyo (literally “Peace Capital”) was designated as the new capital city in 794. Heian- kyo went on to become Kyoto City. The original city size was 5.2km north to south and 4.5km east to west. This grid-pattern urban planning was leaned from other Chinese capital cities. Figure 1.4 shows the original Heian-kyo city plan overlaid on modern day Kyoto City. Source: Kyoto City Government Figure 1.5: Rokuon-ji Temple (Kinkaku-ji Temple) Built in 1397 by Ashikaga Samurai Clan Civil War of 1467 and Edo Era: Kyoto’s biggest war (Onin-no-Ran) took place in 1467 as a result of opposition among military commanders in the samurai clan. During 11 years of fighting, most of the medieval town of Kyoto was destroyed. Following this war, Japan lacked political stability until 1603, when the Tokugawa clan started its government in Edo (Tokyo). After the war, the civic hierarchy (the merchant class) undertook a spectacular rebuilding. The rising class of merchants and manufacturers revived not only city streets but also the magnificent Gion Festival, which had been suspended since the Heian Period. During the Edo Era (1603-1868), Kyoto was Source: Kyoto City Government prosperous in terms of culture, commerce, religion, Figure 1.4: Original Layout of Heian-kyo and tourism. Consolidating with Osaka, another Overlaid on Modern Kyoto City commercial city nearby, Kyoto became a rival city Raising of Samurai Clans: During the Heian Era for Edo (Tokyo), where the samurai (shogunate) (794-1185), the Imperial Government of Kyoto government was located. decreased its military power. Central and local clans started to form armed forces to protect their Kyoto’s Efforts after Meiji Restoration (1868- properties. They were called samurai and became 1945): The new government was established in powerful enough to take political power. Even 1868 with Emperor Meiji as its sovereign. As the though samurai built their government cities— initial work of its restoration, this government such as Kamakura and Edo (Tokyo)—outside of shifted the Imperial Place from Kyoto to Tokyo. Kyoto, Kyoto was respected as the place of Feeling the importance of education, the people of Japan’s throne and maintained its leading position Kyoto established 64 community elementary in Japanese culture. schools in 1869, ahead of other places in Japan. Even now, education is a crucial aspect of the city, For example, Buddhism became popular in the and with so many universities in Kyoto, Kamakura Era (1185-1333), and restoration took approximately 10% of Kyoto City’s population are 6 university students. Kyoto continued to take a lead to the city to shape its tourism industry. Kyoto in modern development; for example, its city tram City’s role centers on a) providing the platform for was delivered in 1895 and was the first such the development of tourism promotion and tourism vehicle in Japan. surveys; undertake tourism operations; developing a tourist environment, information, Unlike many cities along Japan’s southern coast, promotional pamphlets and signage; and Kyoto City did not suffer the loss of historic attracting school trips; b) granting and entrusting buildings and townscape (including Kyo-machiya) operating expenses and business expenses to in World War II (1939-1945). promotion organizations such as the Tourism Association; and c) promoting activities in the private sector, including in tourism-related businesses, transport businesses, food and drink businesses, and temples and shrines. Kyoto City promotes these activities rather than intervening in the work of the private sector itself. Kyoto is historically an academic city and has an abundance of advanced academic research functions centered in universities. Currently, 39 universities and junior colleges—national, public, and private—are located in Kyoto City. In terms of culture, Kyoto City has historically demonstrated cultural “soft power” and intangible Source: Transportation Bureau, KCG heritage such as tea ceremonies, flower Figure 1.6: Kyoto City Tram since 1895 arrangement, Noh plays, incense burning, and dancing, which have been recognized with cultural (3) Modern Urban Development Growth authority throughout Japan. Kyoto, home of academic institutes and advanced industries (1945-present): After As a historic city with both modern and traditional World War II, Kyoto kept up with the nation in industry, culture, tourism, and academia, Kyoto is rapid economic growth. Between 1955 and 1973, one of the key economic centers of the Kansai the rate of annual Japanese economic growth was Region (Western Japan). over 10%. During this high economic growth period, the central government made substantial HISTORY efforts toward the development of new A historical city having accumulated more than infrastructure and new towns. In the Kansai area, 1200 years of history Kyoto has continued to be one of the largest industrial cities. INDUSTRY CULTURE A manufacturing city where A cultural, artistic and religious city, Furthermore, Kyoto has successfully maintained cutting-edge industries flourish which is creative and passes down culture and tradition its traditional industries such as Nishijin-ori and based on traditional industries Yuzen as well as developing a modern high-tech industry, which has been the backbone of Kyoto TOURISM City. Notably, Kyoto is home to world-famous “Spiritual hometown of Japanese ACADEMIC people” and an international An academic city with high-tech companies such as Kyocera, Omron, cultural tourist city where approx. 140,000 students 55 million tourists visit per year Wacoal, Shimadzu, Nintendo, etc. These Source: Kyoto City Government industries arose from traditional manufacturing. For example, traditional pottery was a source of Figure 1.7: Characteristics of Kyoto City modern ceramic technology for Kyocera, which produces semiconductors, precision IT To understand cultural heritage, urban components, and energy and medical equipment. regeneration, and sustainable tourism Thus, Kyoto City inherits old culture and cultivates development, it is crucial to understand the new culture. features of administration in Kyoto City. These are introduced below and further explored in this Tourism also forms a core part of Kyoto City’s report. economy. Sustainable tourism in Kyoto is founded on the city’s unique physical, cultural, and citizen • Concentration and continuity of assets, which have helped the number of historical heritage: Notwithstanding domestic and international tourists to increase. modern economic and cultural changes, The national government defines an overarching the city’s heritage assets are being framework but offers a lot of power and freedom maintained and embraced. It is not only the government that takes a lead in this 7 area; civic pride and private sector • Embrace of cultural and social values involvement help keep cultural heritage by the citizens of Kyoto and the part of everyday life. Japanese people: Citizens are aware of • Respect for and added value of the conservation of the townscape and spiritual culture as defined in tangible support the maintenance and cultural property regulations: Cultural enhancement of the "personality of the assets like visible buildings and city," which is based on the city’s culture monuments are a part of daily life. and history and is rooted in daily life. 8 1.3 Cultural Heritage – Laws, Policies, Strategies, and Structures Source: Kyoto City Government (1) Introduction Japan’s cultural properties and enhance national culture. This act followed much older laws and Overview: Kyoto City is home to 14 of the 17 regulations such as the Antique and Old Item well-conserved components of the “Historic Preservation Order (1871), Old Shrine and Monuments of Ancient Kyoto,” a UNESCO World Temple Preservation Act (1897), and National Heritage site, as well as many historic districts. Treasure Protection Act (1929). These sites have been conserved or redeveloped with the utmost consideration for historic There have been several amendments to the structures and the traditional townscape. This Cultural Property Protection Act, including: section summarizes Japan’s and Kyoto’s laws, policies, strategies, and structures for addressing • 1954: Institutionalization of intangible tangible and intangible cultural heritage cultural properties, folk cultural properties, preservation and development, and highlights and buried cultural properties their main achievements. • 1975: Institutionalized Groups of Traditional Buildings Case Studies: Chapter 2 will profile in detail two • 1996: Established Registered Cultural tangible heritage case studies highlighting cultural Properties (Structures) heritage restoration of World Heritage sites – Nijo Castle and Kiyomizu-dera Temple. It focuses on • 2005: Institutionalized Cultural the good “Site Management Plans” methodology, Landscapes; introduced the registration including conservation plans, visitor management system for Fine Arts and Applied Crafts, plans, and institutional arrangements, and Folk Cultural Properties, and Monuments concludes with lessons learned. The chapter also • January 2018: Amendment bills submitted presents two unique cases of intangible heritage – regarding promotion of active utilization of the Gion and Gozan-no-okuribi Festivals, cultural properties including how urban regeneration has helped them flourish, how they contribute to tourism Japan’s cultural properties have been created, development, and how they have been supported developed, and preserved over a long history and by Kyoto City Government. have been successfully passed down over generations. The Agency for Cultural Affairs set out the various types of cultural properties in (2) Laws and Regulations Japan, including structures such as shrines, National Context temples, and private houses; Buddhist statues; paintings; calligraphy; skills such as performing (A) Cultural Property Protection Act: This law was arts and craft techniques; and traditional events enacted in May 1950 to protect and make use of and festivals. The agency also regards natural 9 landscapes and historic villages and townscapes (C) World Heritage: In 1972 UNESCO adopted as cultural properties. the World Heritage Convention at its General Conference in Paris to encourage international Based on the Cultural Property Protection Act, cooperation and support in protecting cultural and which was enacted in 1950, these cultural natural heritage with outstanding universal value properties were categorized as shown in Table 1.2. from damage, destruction, and other threats. There are now 1,073 sites that have been Table 1.2: Cultural Properties in Japan registered (as of July 2017). Category of Cultural Property Japan Kyoto City Tangible Cultural Properties 23,462 2,389 Japan has 17 cultural and four natural World Intangible Cultural Properties 110 10 Heritage sites. The “Historic Monuments of Folk Cultural Properties 513 10 Ancient Kyoto (Kyoto, Uji and Otsu Cities),” Monuments 3,387 128 registered in 1994, is one of the former. This Cultural Landscapes 43 0 registration has 17 components and covers an Groups of Traditional Buildings 106 4 area across Kyoto and Shiga Prefectures. Out of Conservation Techniques 74 24 the 17 components, 14 are within Kyoto City itself. Source: Kyoto City Government (as of 1st April 2016) As can be seen from Figure 1.8, there is a (B) Important Cultural Properties and National concentration of World Heritage sites in the Treasures: A number of the important cultural Kansai Region of Japan (Kyoto, Shiga, Osaka, properties have also been designated as National Nara, Hyogo, and Wakayama); this echoes a Treasures by the Minister of Education, Culture, concentration of cultural properties in general and Sports, Science and Technology. There are 1,089 helps Kyoto and the surrounding areas maintain National Treasures, including 218 buildings and their status as a prominent tourist destination. 871 arts and crafts in Japan. Source: Based on materials from Agency for Cultural Affairs Figure 1.8: Location of Registered World Heritage Sites in Japan 10 1 Kiyomizu-dera Temple 2 Rokuon-ji Temple (Kinkaku-ji Temple) 3 Jishoji Temple (Ginkaku Temple) 4 Ryoan Temple 5 Tenryu Temple 6 Kyouougokokuji Temple (To Temple) 7 Saiho Temple 8 Nijo Castle 9 Hongan Temple (Nishi-Hongan Temple) 10 Ninna Temple 11 Kamomioya-jinja Shrine (Shimogamo-jinja Shurine) 12 Enryaku Temple 13 Byodo-in Temple 14 Daigo Temple 15 Kamowakeikazuchi Shrine (Kamigamo Shrine) 16 Kozan Temple 17 Ujigami Shrine Selection of Photos: Kiyomizu-dera Temple Rokuon-ji Temple (Kinkaku-ji Ginkaku Temple Temple) Ryoan Temple Kyouougokokuji Temple (To Temple) Saiho Temple Nijo-Castle Shimogamo Shrine Kamigamo Shrine Source: KCG Figure 1.9: World Heritage Sites of Kyoto 11 Kyoto City Context • Ordinance for Preservation District of Historic Buildings (A) Kyoto World Heritage site (WHS): As shown in • Various ordinances for cultural and Figure 1.9, in 1994, 17 of Japan’s most prominent tourism facilities (e.g., conference centers, temples, shrines, and castles were listed as part museums, and tourist destinations such of a World Heritage site known as “Historic as Nijo Castle) Monuments of Ancient Kyoto (in Kyoto, Uji and Otsu Cities).” The significance of that event was (D) Cultural Properties at City Level: The numbers amplified by the fact that 1994 was also the of designated and registered cultural properties in 1,200th anniversary of Kyoto City’s foundation as Kyoto, based on the Cultural Property Protection the imperial capital. The buildings and gardens Ordinance, are outlined in Table 1.3. that comprise the World Heritage properties include 38 buildings designated as National Table 1.3: Cultural Properties in Kyoto City Treasures, 160 buildings designated as Important Category of Cultural Property Designated Registered Cultural Properties, eight gardens designated as Tangible cultural properties 264 63 Special Places of Scenic Beauty, and four Folk Cultural Properties 56 63 gardens designated as Places of Scenic Beauty. Monuments 70 25 These designations signify properties of the Source: Kyoto City Government (as of 1st April 2016) highest cultural and historical importance. This system of designating and registering cultural This report will fully explore Kyoto’s successes properties at municipal level is common among and challenges in preserving and managing the many cities in Japan. However, the section on “Historic Monuments of Ancient Kyoto” in an policies and strategies just below describes some urban context. This topic will be addressed in the programs unique in Kyoto. profile of Kyoto City’s long-term planning, the account of its comprehensive 2007 Landscape Designation Overview: The process for the Policy, the two WHS case studies, and the designation of cultural properties in Kyoto City is discussion of surrounding areas. summarized in the figure below.. (B) Kyoto City as a Cultural Property: With a 1. Decision of a Candidate for Designation/Registration plethora of important cultural heritage in Kyoto, the whole city is often regarded as an overarching 2. Explanation to Council Members cultural property. For example, the areas surrounding famous shrines and temples are 3. Full 3. Full Investigation Investigation of of the Candidate Property the Candidate Property protected by stricter landscape regulations. Many Kyoto City Government policies and programs, 4. Creation of a Consultation Material especially those related to urban regeneration, aim to protect the city’s heritage in a comprehensive and cohesive way. 5. Consult with 5. Consult with Council for Projection Council for of Cultural Projection of Cultural Properties Properties The next chapter, on urban regeneration, will 6. Report by Council for Projection of Cultural Properties profile specific examples of this approach, especially surrounding the comprehensive 2007 7. PR Presentation 7. PR (Press Conference) Presentation (Press Conference) Landscape Policy that controls building height, building ratio, and floor ratio as well as design, conservation of Kyo-machiya, and so forth. The 8. Procedures for Designation (Announcement/Notification) integrated and holistic approach adopted by Kyoto ensures that its heritage is handed down 9. Issuance of 9. Issuance a Designation of a Designation Document Document successfully to future generations. Source: Kyoto City Government Figure 1.10: Process for the Designation of (C) Relevant Ordinances: In 1981 Kyoto City Cultural Properties in Kyoto City established the Cultural Property Protection Ordinance corresponding to the Cultural Property A key member of the process is the Council for Protection Act at the national level. Regarding the Protection of Cultural Properties of Kyoto City, cultural properties, additional ordinances include which consists of 19 academic experts. the following: Furthermore, the Kyoto Prefectural Government • Ordinance for Cultural Properties established the Kyoto Prefectural Ordinance for Protection the Protection of Cultural Properties in 1981 to • Ordinance for Preservation and Practical designate and register cultural properties at Use of Historic Buildings prefectural level. In Kyoto City, 177 properties (as of April 1, 2016) are designated or registered. 12 (3) Policies and Strategies National Context Overview: An overview of national systems and measures for the protection of cultural properties is presented in the table below.. Table 1.4: National Systems and Measures for Protection of Cultural Properties Preservation Designation Utilization • Guidance and subsidies concerning repair and • Cultural properties are • Subsidies, recommendations, maintenance to owners and municipalities designated, selected, or orders, and directives to owners • Subsidies for municipalities to purchase land or registered after the Minister of or municipalities regarding the structures which are cultural properties Education, Culture, Sports, public display of cultural • Regulations on alterations to current state, Science and Technology has properties restrictions on export consulted the Council for • Establishment and operation of • Establishment of tax exemptions Cultural Affairs and received museums, theatres, and other • Preservation required documents & their publicity its report. public facilities, and centers for • Environmental preservation cultural properties research Source: Cultural Properties Department, Agency for Cultural Affairs, Japan Supporting Policies and Strategies: A selection cultural properties and urban/rural development of key supporting policies and strategies at the through tourism, including the following: national level are described below: • Regional Revitalization Program: From (A) Restoration and Inheritance: The priorities of 2011, the Agency for Cultural Affairs the cultural property policy are maintenance, conducted the Regional Revitalization restoration, and inheritance. To promote these Program using Cultural Properties, which ends, the national government plans, carries out, comprised local projects aiming to or supports the following activities: revitalize the area in connection with cultural heritage. The program was • Management: The government owns and supported with a subsidy from the Agency manages various cultural properties for Cultural Affairs. through the National Museum, Ministry of • Connection of Cultural Properties to Environment, Imperial Household Agency, Tourism: To connect cultural properties to and other ministries. tourism, the Tourism Development Using • Support: The government offers financial History and Culture program was started and technical support for the management in 2017. The Agency for Cultural Affairs of cultural properties owned by local financially supports the efforts of tourism governments and the private sector. destination development through this • Research: There are two dedicated concept program. Research Institutes for Cultural Properties in Tokyo and Nara, with 41 and 76 officers (C) Japan Heritage: The Agency for Cultural respectively (as of April 2017). Affairs’ Japan Heritage program aims to promote • Human Resource Development: unique cultural traditions, encourage use of Maintenance and restoration of cultural national cultural properties, and revitalize regional properties needs specific knowledge, skills, economies. It seeks to capitalize and maintain the and techniques. Japan recognizes that history of Japan’s tangible and intangible cultural passing these on is crucial for heritage properties being preserved through narratives management, and so restoration based on unique regional histories and traditions. techniques (or experts who embody them) are also classed as intangible cultural By recognizing these narratives or stories as properties to be protected. Japan Heritage, the agency seeks to promote • Education: To enhance cultural heritage these historical legacies and provide education, the national government has comprehensive support so that this heritage may encouraged cultural property owners to be effectively preserved and maintained. This open to visitors. National museums relatively new program, which started in 2015, conduct various exhibitions and offer helps connect cultural properties to sustainable opportunities for visitors to learn about tourism and area branding. and appreciate fine arts and handicrafts heritage. Kyoto Context (B) Linkage to Area Promotion and Tourism: Innovative Programs: The Kyoto City There are several collaborative programs between Government has developed several programs to 13 protect its cultural properties while enabling residents and visitors to better enjoy the city’s cultural heritage. Importantly, the designation and registration of heritage properties with community participation better facilitates learning opportunities and cultural consumption through leveraging of tourism programs, cuisine, and souvenirs. Four innovative programs are described below: (1) The Buildings and Gardens That Make Kyoto Attractive: The aim of this program is to maintain and pass on the buildings and gardens that citizens wish to preserve. Based on public consultations, the program compiles a list of such buildings and gardens; the consultations also increase citizens’ awareness of the need for preservation. Established in 2011, this unique program focuses on buildings and gardens more than 50 years old. Recommended properties are screened by a committee and registered in the selection list. The more important registered properties are also included in special acknowledgement list. Consensus and consultation with the property Source: Kyoto City Government owner is required for registration and Figure 1.11: Examples of Kyoto’s Intangible acknowledgement. By December 2017, 320 Cultural Heritage properties had been registered, out of which 90 Kyoto Kagai: A key example is Kyoto’s culture is had been acknowledged. Kyoto City honors these the Kyoto Kagai. Kyoto has five districts called properties through newsletters, a website, and ‘Kagai’ – Gion Kobu, Miyagawacho, Pontocho, events at the properties. Kamishichiken, and Gion Higashi – that Geikos and Maikos have fascinated people with their (2) Intangible Cultural Heritage Connecting Kyoto: traditional dance for generations. The elegant Kyoto has conserved significant intangible dancing of Geikos and Maikos are one of the properties for many years. The Intangible Cultural superlative images of Kyoto. In addition to Geikos Properties Connecting Kyoto program was and Maikos, there are many others involved in established to encourage citizens to rediscover Kyoto’s Kagai including at the Okiya (the place and re-acknowledge the value of such properties, where they live), and the Ochaya (the banquet with the ultimate goal of passing them down venue), as well as restaurants and the artisans through generations. who are engaged in manufacturing the kimono and hair ornaments using prominent Five intangible properties had been selected craftsmanship. under this program by December 2017, and Kyoto Moreover, Kagais can represent how the essence City conducts and supports various events and of Kyoto culture is concentrated and handed over promotions for each: to future generations. It is a unique example of such a profound experience of both the history • Food culture of Kyoto and culture of Kyoto. Each Kagai has unique • Culture of Kyoto “Kagai” (traditional traditions and customs that have been passed hospitality) – see further details below down for centuries and thus every district • Jizobon of Kyoto (traditional events that cherishes and respects its own culture. Dance connect communities and generations) shows and traditional events are held from time • Kimono culture of Kyoto (inheritance of and this help demonstrate the pride of the Kagais. tradition and creation of a new kimono culture) (3) Kyoto Heritage: This new program, whose full • Confectionery culture of Kyoto name is “Heritages of Kyoto Developed by Towns, People and Their Minds,” was initiated in 2017 to connect groups of cultural properties with a specific theme. The collections are grouped by locality and history, as well as by themes decided by local communities in Kyoto that support cultural heritage, craftsmanship, and spirituality. 14 is smaller than that of comparable countries, both Consultation and discussion were undertaken and in absolute size and as a proportion of the a special council comprising both cultural heritage national budget, experts and citizens selected three themes from a long list: Table 1.5: Cultural Affairs Budget Comparison • “Traditional Culture Thrived and Spread in Country Budget Portion in Kitano and Nishijin Area” (billion yen) National Budget • “Garden Culture Developed in 1,000-Year France 464.0 0.87% Capital with Scenic Beauty” Korea 265.3 0.99% • “Worship and Festivals of Fire Inherited for UK 199.2 0.15% Generations” Germany 178.8 0.44% USA 167.3 0.04% (4) Loan Program for Protection of Cultural Properties: The Kyoto City Government conducts China 121.9 0.26% an innovative low-interest loan program for Japan 103.8 0.11% Source: Nomura General Research Institute, 2016 designated or registered heritage owners who have difficulty in financing protection works. The The national subsidy for protection of cultural loan amount is up to JPY 50 million and the properties is important for Kyoto City. In the maximum loan period is 15 years. annual budget of the Agency for Cultural Affairs, JPY 46.92 billion is allocated to “protection, (4) Institutional Structures application and succession of cultural properties.” National Context: For major repairs of Important Cultural Properties, the agency subsidizes half of the cost. The (A) National Agency for Cultural Affairs: The remaining cost is covered by the property owners, Ministry of Education, Culture, Sports, Science and some local governments have a supplemental and Technology (MEXT) handles cultural heritage, subsidy system. and within MEXT the Agency for Cultural Affairs is responsible for the preservation of Important (B) National Cultural Asset Research Cultural Properties. While bureaus of ministries Institutes: Through institutes located in Tokyo are usually located in Tokyo, the Japanese and Nara, the national government manages a Government recently decided to relocate the number of cultural sites and facilities, including National Agency for Cultural Affairs to Kyoto by Kyoto Place Park and many museums. 2021, a decision that suggests the importance of Kyoto within the national context. The Kyoto City (C) Engineering Groups for Cultural Government promoted this relocation not only to Properties: To meet the complex technical and benefit Kyoto, but also to support culture and human resource demands of restoring more than cultural preservation across all of Japan. 2,600 important cultural buildings, there are several engineering associations in Japan that In 2017, the Headquarters of Regional Culture undertake the planning and supervision work Formation was established under the agency to needed for the restoration of heritage buildings. promote culture in Japan. Minister of Education, Japanese Association for Conservation of Culture, Sports, Science and Architectural Monuments: This NPO is Technology categorized as a public interest incorporated association and employs 128 engineers and Director General of Agency Other Bureaus architects. It has its headquarters in Tokyo and for Cultural Affaires branch offices in Hokkaido, Osaka, and Kyushu. Japan Academy Section of Cultural Property Protection, Kyoto, Secretariat of Art Nara, and Shiga Prefectures: There are a significant number of cultural properties Cultural Department Councils designated or registered at the national level in Kyoto, Nara, and Shiga Prefectures. To meet the Cultural Property Department Museums and significant restoration demand, prefectural Research Institutes governments assemble in-house engineering Source: National Government Website teams under the Board of Education Secretariat to Figure 1.12: National Agency for Cultural undertake planning and supervising work in their Affairs – Organization Chart jurisdiction. (D) Cultural Properties Under Direct National Budget and Subsidy: The Cultural Affairs Agency Management: In Kyoto and elsewhere in Japan, is managed efficiently, As shown in Table 1.5, the many cultural properties are managed directly by Japanese Government’s budget for cultural affairs religious associations, though Kyoto City does still 15 manage some Important Cultural Properties Head of Cultural Properties Protection Section including Nijo Castle (see case study). In addition, there are some imperial properties such as Management Unit palaces and villas that are under the authority of Unit Head (1), Unit Staff (4) the Imperial Household Agency. These include Fine Arts and Applied Crafts and Folk Cultural Properties Unit Kyoto Palace, Sendo Palace, Shugakuin Imperial Unit Head (1), Unit Specialists (3) Villa, and the Katsura Imperial Villa. Monuments Unit Unit Head (1), Unit Specialists (3) Kyoto City Context: Buried Cultural Properties Unit Organization: The organization chart for cultural Unit Head (1), Unit Specialists (7) heritage in Kyoto City is shown below. On a day- Structures Unit to-day basis, the Cultural Properties Protection Unit Head (1), Unit Specialists (3) Section handles the city’s tangible and intangible heritage. Head of Cultural Heritage PR and Utilization Section Mayor Intangible Cultural Heritage PR Unit Unit Head (1), Unit Staff (1) Figure 1.14: Cultural Properties Protection Culture and Citizens Other Bureaus Section – Organization Chart Affairs Bureau Some responsibilities of the Cultural Properties Cultural and Artistic Protection Section are described below to suggest City Promotion Office Other Offices their breadth and scope and the critical role the section plays: Nijo Castle Cultural Properties Other Sections Office Protection Section • Undertake desk work related to changes Source: Kyoto City Government in the current status of cultural properties Figure 1.13: Cultural Heritage Section, Kyoto designated by the national government City – Organization Chart • Investigate and select cultural properties registered to the national government (mainly structures and monuments) In local governments in Japan, the Cultural • Protect Buried Cultural Properties through Heritage Section is normally under an guidance on land information, properties, independent board (i.e., not under the mayor). and excavations The case of Kyoto is unique, however: since • Protect and preserve Kyoto City cultural cultural properties have such a significant value properties designated by or registered to and are so embedded in the city’s culture, urban Kyoto City regeneration, local industries, tourism, and annual • Maintain and manage cultural properties events, Kyoto’s mayor manages the Cultural that are owned by Kyoto City or for which Heritage Section. the city is designated as management body by the national government—e.g., Cultural Properties Protection Section: As Nijo Castle (see case study) shown in Figure 1.14, Kyoto City’s Cultural • Help citizens rediscover, understand, and Properties Protection Section comprises 29 pass down tangible and intangible cultural members of whom 19 are cultural property heritage. protection engineers: • Provide subsidy for projects that protect cultural properties designated by Kyoto City – approximately JPY 44 million/year for preservation, repair, maintenance, and management of cultural properties • Provide subsidy for traditional events – approximately JPY 72 million/year, including for preservation and continuation of Gion Festival and Kyoto Gozan no Okuribi. • Provision of financing for cultural properties protection projects. • Publication of books on cultural properties (one book per year) 16 In addition, the Kyoto Prefectural Government Furthermore, the city undertakes extensive public also has groups of experts on cultural heritage involvement and engagement initiatives. In turn, (particularly structures) in its Cultural Properties these elements foster a self-sustaining process in Protection Section, and they collaborate with or which the city facilitates, encourages, and guides complement the Kyoto City Government to protect protection and restoration works. At the same time, and pass on cultural properties. When structures NPOs, religious corporations, and communities designated as a National Treasure or an Important take the lead in and assume ownership of these Cultural Property require repair, expert staff of the efforts. Cultural Properties Protection Section of the Kyoto Prefectural Government carry out this work (C) Intangible Cultural Heritage that connects (except in the case of Nijo Castle). The Kyoto: Kyoto has succeeded in preserving partnership between the Kyoto Prefectural significant intangible properties for many years Government and Kyoto City Government is and actively encourages people to rediscover and indispensable for cultural properties protection. re-acknowledge the value of intangible heritage in ensuring a continuing and long-lasting legacy. (5) Main Achievements (D) Nurturing Civic Pride and Appreciation: (A) Scale of Achievement: In the context of Kyoto City does not focus only on projects and some 3,000 cultural properties in the Kyoto City physical restoration. Much more than this, the city area designated at national, prefectural, and city nurtures civic pride and appreciation through its level, the city has successfully undertaken cultural cultural heritage efforts. Rather than just heritage preservation and protection works for projecting its heritage assets, the city seeks to decades. help its residents and visitors enjoy, understand, and appreciate the city’s cultural heritage. Toward (B) Management and Organization Approach: that end, it implements innovative programs that Except for Nijo Castle, World Heritage temples offer learning opportunities for citizens and that and shrines are not managed or maintained by enhance civic pride, active involvement, and the city or state. Instead they are managed by participation. individual temple or shrine associations (religious corporations or NPOs). The management and organization approach of Kyoto City – and in particular its Cultural Properties Protection Section – provides an overarching system of policies, strategies, promotion, and technical assistance. The cultural property owners take on the responsibility of maintaining and rehabilitating the cultural heritage assets themselves, with the public sector playing supporting role. 17 1.4 Urban Regeneration – Laws, Policies, Strategies, and Structures Source: Kyoto City Government (1) Introduction (2) Laws and Regulations Overview: This section documents Kyoto City’s National Context best practice in citywide urban visioning, master planning, and urban regeneration. It summarizes The Kyoto City Government is regenerating the relevant national and local laws, policies, city within an overarching national legal strategies, and structures and highlights main framework. Major relevant laws and regulations achievements, with a focus on Kyoto’s urban are briefly explained below. regeneration of historic districts and preservation of its rich cultural heritage resources. The city’s Urban Planning Act: The first Urban Planning role in enabling regeneration through a legal, Act was enacted in 1919 and significantly revised planning, and supporting framework is detailed, in 1968. This act empowers municipalities to take including ownership by citizens and local the initiative for the key actions introduced below, businesses and the city’s comprehensive support with provincial governments coordinating and for the preservation of historic Kyo-machiya supporting the municipalities. Major elements (historic townhouses). include: “Urban regeneration” in Kyoto primarily denotes (A) City Master Planning: Municipalities decide the both conservation of historic elements and Kyoto’s direction of urban maintenance, development, and own ongoing development. Kyoto City, which conservation. This direction should be consistent wasn’t badly damaged in World War II, has well- with the guidelines of the prefectural and basic developed roads and infrastructure and no plans of the municipality. unutilized land or land in an extremely bad living environment. (B) City Plan Districts and Zones: There are 21 districts and zones defined in the act. District use The following explanation focuses on how Kyoto’s types include residential, commercial, and own townscapes have been conserved and how industrial districts, among others, and the developed areas have been controlled to promote municipality decides the building area ratio and Kyoto’s own regeneration since the high economic floor area ratio of each district. Other types of growth period following World War II. districts and zones include building height control districts, fire prevention districts, landscape zones, 18 parking place development zones, scenic Promulgation of the Landscape Act (2004): landscape districts, special historic natural Consequently, the Landscape Act was features conservation zones, green space promulgated in 2004. Based on this act, local conservation districts, and conservation zones for governments can establish their landscape plans, clusters of traditional structures. Municipalities are including: responsible for making their city plans based on • Area covered by landscape plan these district and zones. • Landscape policies • Restrictions of actions (C) Urban Facilities: Specific urban facilities shall • Policy designating structures and trees of be stipulated in city plans prepared by landscape importance municipalities. Examples include transport • Restriction of outdoor advertisements networks (including roads), parking, green areas, parks and other open spaces, waterways, schools, Local governments are expected to establish their hospitals, and other educational, cultural, and own ordinances to supplement this act. Land welfare facilities. development permissions and a building certification system can work together with the (D) Urban Development Projects: Various projects ordinances to guarantee the landscape plans. shall be stipulated as necessary in city plans. Examples include land readjustment projects, new Kyoto City housing and urban development projects, industrial park development projects, and urban Background: The City Planning Act and Building redevelopment projects. Project owners do not Standard Act offer various tools and menus so have to be municipalities, and each project that each local government can shape its own city scheme is regulated by relevant acts. development and preservation. The Kyoto City Government is successful in using these tools to (E) Control of Private Land Development preserve traditional features and heritage. Activities: Land development is discouraged in the urbanization control areas, while well-planned The downtown of Kyoto City is formed by Kyoto land development is welcome in urbanization basin, which is surrounded by mountains on three promotion areas. Authorities such as prefectures sides (north, east, and west) and the Yamashina and municipalities are required to examine land basin. It is a notable feature of Kyoto’s landscape development applications for consistency with the that mountains are visible from the downtown. district and zone conditions. Building Standard Act: This 1950 act regulates access roads, plans, structures, seismic and fire safety, a building review council, consistency with acts of city planning, fire prevention, land development, water supply, etc. Building owners should apply for building “confirmation” or approval before construction in order to demonstrate that the architectural planning is consistent with the Building Standard Act and relevant regulations. Landscape Act Background: The City Planning Act (1919) had a provision on a scenic landscape district system. The Urban Building Act (also 1919) included building height restrictions, such as 19.7m in residential districts and 30.3m in other land use districts. As economic development reached maturity, the concept of value shifted from quantity to quality, and the Kyoto City Government and other municipalities became more concerned with landscape issues. Thus some 500 local governments had established landscape ordinances before the Landscape Act came into force. However, ordinance of local governments were more difficult to enforce when Source: Kyoto City Government compared to national government regulations. Figure 1.15: Location Context 19 Kyoto as a Pioneer in Shaping National Policy: • Ordinance of Scenic District Concerning townscape control, the Kyoto City • Ordinance of Urban Vista Government was a pioneer in Japan; it introduced • Ordinance of Urban Townscape a townscape control system well before the • Ordinance of Outdoer Commercial Board national government was fully aware of this issue. • Ordinance of Public Parks In 1900, the first mayor of Kyoto City announced a The Kyoto City Government has prepared many city plan to the city council and stated the ordinances and regulations. Some are based on importance of preserving the regional functions, national laws but many are Kyoto City’s own. For culture, scenery, and cultural heritage of Kyoto. each area and district targeted for urban After the City Planning Act was established in regeneration, the city consolidates and applies 1919, the scenic landscape district system was articles of relevant ordinances and regulations to set up in 1930. solve local issues. Two projects carried out in 1964, the Kyoto Tower construction project and the Narabigaoka (3) Policies and Strategies development project marred the scenic landscape, National Context: therefore sparked protests. The scenic landscape district system could not ban development Overview: Between 1955 and 1973, the rate of activities, so the Act on Special Measures annual Japanese economic growth was over 10%. concerning Preservation of Traditional Scenic During this high economic growth period, the Beauty in Ancient Capitals was established in central government made substantial efforts to 1966 through cooperation among Kyoto City, Nara develop new infrastructure and new towns. During City, and Kamakura City. this period, policy makers became aware that inner cities in major urban areas were suffering In addition, the Kyoto City Government from depopulation and loss of traditional designated Sanneizaka as a special preservation townscapes, while suburban areas were being and improvement district in 1972, and Gion encroached on by unplanned development. A Shimbashi as a special preservation and series of policies then followed: improvement district in 1974. To make it possible • Act on Special Measures concerning to conserve historical townscapes at the national Preservation of Traditional Scenic Beauty level, Kyoto City in cooperation with 13 other cities in Ancient Capitals, or Ancient Capital took the initiative of proposing a system to the Preservation Act (1966) national government. In 1975, the system of • Urban Development Act (1968) preservation districts for groups of traditional  Permission for land development buildings was created, enforced by amendments  Urbanization control areas to the Act on Protection of Cultural Properties. • Preservation District for Groups of Historic Buildings (new system introduced to Kyoto City’s own landscape ordinance was first Property Protect Act in 1975) enacted in 1972 to launch regulation and • Act on Vitalization in City Centers (1998) guidance on buildings and structures in the urban area, mainly by designating structure control Execution of National Policy: The central districts in combination with scenic landscape government empowered local governments to districts. The Landscape Act, which was apply and impose these regulations based on established in 2004, was inspired and facilitated their own situation. Local governments selected by the experience of Kyoto City. relevant tools from the abovementioned laws, prepared their own ordinances, and executed Ordinances for Urban Regeneration: Major programs that were consistent with the national ordinances of the Kyoto City Government framework. concerning city planning and urban regeneration include: Kyoto City Context • Ordinance of Area Detailed Planning • Ordinance of Building Standards (A) Framework of Urban Regeneration: • Ordinance of Special Use District for Enabling Policies, Strategies, and Structures Workplace and Residence Coexistence • Ordinance of Conservation and Utilization Background: Kyoto has a long history of of Historic Buildings formulating policies and strategies to promote • Ordinance for Preservation District of landscape preservation and urban regeneration. Historic Buildings For example, earlier than other cities in Japan, it • Ordinance of Natural Landscape designated use districts through the City Planning Preservation Act and the Urban Building Law in 1919, and it established building height restrictions in 1924. In 20 1930, Kyoto City set up the first overall landscape new master plan in 1993. Importantly, the city conservation system with scenic landscape recognized that it needed to tackle its challenges districts. through three key approaches: In the 21st century, Kyoto and other cities have • An overarching vision, plan, and policies faced other challenges, including the decline of (urban frameworks, directions, functions) the city center, aging populations, deterioration of for the revitalization of Kyoto the local environment, traffic issues, outflow of the • The steady execution of these policies young educated population, and decline in cultural and incremental improvement of creativity. Kyoto recognized very early the need infrastructure for more comprehensive guidance on • With the plan as a guide, maximum conservation, revitalization, and urban involvement of all local citizens, development. The city was fully aware that it businesses, and organizations, who were stood at a crossroads: it could either continue to challenged with the question “How can I be a city rich in culture and charm, or be contribute to Kyoto?” consumed by the challenges it faced. More specifically, in terms of the relationship Seeking to address its challenges, in 1991 Kyoto between cultural heritage and urban regeneration, formed the Council for Kyoto City Development on it was critical for Kyoto to pass down to future Measures for Land Use and Landscape. The generations the unique natural scenery and council’s role was to develop the basic framework cultural heritage that it had developed over the and guidelines to shape city development and course of 1,200 years. A key policy designed to landscape in the future. achieve this goal was the Conservation of Historical Landscape and Creation of Surpassing To pave the way for a new Kyoto City master plan, Urban Landscapes. This policy included: the council set out conceptual recommendations that divided the city into three regions: • Conservation and use of surrounding preservation of the natural and historical mountains landscape conservation region in the north and • Conservation of historical townscape three mountainous areas; revitalization and • Creation of surpassing urban landscape regeneration of the central area; and creative • Installation of underground electric cables development of and new urban functions in the south. • Development and application of a landscape information system In addition, the plan set out guidelines by district. For example, for the midtown area, in order to Preservation improve the area’s amenities, the plan sought to furnish an urban space with modern appeal while preserving the historical and cultural heritage. It also aimed to conserve the natural environment and the historical landscape of such areas as Higashiyama (see case study in Chapter 2). Regeneration Responding to Emerging Challenges and Background to Forming the 2007 New Landscape Policy: After the high economic Kyoto Station growth period, the landscape of Kyoto started deteriorating. Historic buildings such as Kyo- machiya (historic townhouses) disappeared and scenic landscapes were lost due to rapid urbanization and changes in values and lifestyles. Creation Source: Kyoto City Government Figure 1.16: Conceptual City Plan (Scoping) 1993 New Master Plan of Kyoto City: To deliver this three-area framework, the city prepared a 21 well as reports in newspapers and questionnaires for citizens. 1) Building Height: First, the Landscape Policy brought in stricter building height limits, particularly in the downtown area, to help preserve and recover the unique townscape of Kyoto, including Kyo-machiya. The policy lowered the maximum heights for buildings in historical city areas, in residential areas in the mountains, and Source: Kyoto City Government in the industrial area (see Figure 1.19). The policy, Figure 1.17: Loss of Traditional/Beautiful which had set five maximum heights at 45m, 31m, Landscapes 20m, 15m, and 10m, was revised to include six height levels of 31m, 25m, 20m, 15m, 12m, and In response, the Kyoto City Government 10m, with 16 classes for varying restrictions. The established the Landscape Planning Council for Kyoto City Government selects the most Kyoto to Shine Beyond Time in 2005 to prepare appropriate height restriction for each district. an advisory report for the city to shape and thoroughly revise its landscape policy. As a result, (2) Building Design: The policy designated various the New Landscape Policy was established in types of landscape districts with district-specific September 2007. design codes, and also imposed more detailed design standards and clarifications in line with Kyoto City New Landscape Policy 2007: The local characteristics (see Figure 1.20 for design New Landscape Policy comprised five main standard illustrations). The approach for each elements and a support system, as shown in landscape district is carefully planned with a Figure 1.18. To implement these measures in preparatory survey and consultation. Kyoto City, a broad range of city planning restrictions, city ordinances, and other rules were amended in 2007. (1) Building Height (3) Surrounding (2) Building Scenery and Design views Landscape Policy (2007) 5 Main Elements + Support System (5) Historical (4) Outdoor Townscape Advertisements Support System Source: Kyoto City Government Figure 1.18: Landscape Policy Framework Detailed explanations of the policy were provided by each ward office, through explanatory sessions for citizens, real estate brokers, architects, etc., as 22 Before the 2007 Landscape Policy After the 2007 Landscape Policy Source: Kyoto City Government Figure 1.19: Before and After the Landscape Policy Building Height Regulations Districts of Urban Beauty (historic heritage) Districts of Urban Beauty (downtown) Districts of Urban Beauty (river bank) Districts of Urban Beauty (roadside) Source: Kyoto City Government Figure 1.20: Building Design Standard Illustrations (Landscape Policy 2007) 23 (3) Surrounding Scenery and Views: Kyoto’s urban and natural scenery boasts excellent views. However, as urban areas spread toward historical assets, including World Heritage sites, such views are in danger of being lost unless new regulations for height controls and design are formed. A committee selected 38 locations for better protection of views, including temple views (14 Source: Kyoto City Government related to World Heritage sites), street views, Figure 1.22: Outdoor Advertisement Control waterfront views, garden views, mountain views, (5) Historical Townscape: The final pillar of the and bonfire festival views. Landscape Policy is preserving and improving historical townscapes. The city’s Kyo-machiya (historical townhouses) are a crucial aspect of Kyoto's historical building style and lifestyle. The policy provides a framework for Kyo-machiya preservation, restoration, and improvement through use of both district-designated systems Close view preservation and preservation policies for single structures. area (500 m) The Kyo-machiya case is dealt with in detail in the next section of this report. Support System: To complement the policy, a support system was set up including: Viewpoint field • Support for maintenance and rebuilding of existing condominiums – including an advisor recruitment system and loans for rebuilding 視点場 近景デザイン 保全区域 （ ５ ０ ０ ｍ） • Support for Kyo-machiya houses, including seismic diagnosis and seismic retrofitting promotion Source: Kyoto City Government (B) Comprehensive Support for Preservation Figure 1.21: Close View Preservation Area of Historic Buildings: The Kyo-Machiya Case The policy defines the entire visible landscape between the viewer and the target view as the (1) Background and Issues: In addition to its “perspective landscape.” In order to preserve elegant and beautiful townscape, Kyoto also has these valuable perspective landscapes, the city unique cultural traditions, such as tea ceremonies established Perspective Landscape Conservation and flower arranging, and it has an urban Areas based on the Ordinance on the Creation of residential culture that coexists with natural views. Perspective Landscape. This ordinance regulates Kyo-machiya are part of Kyoto’s unique cultural the height, form, design, and color of buildings in heritage, and they are now serving as an the area. As shown in Figure 1.21, the Close View attractive base for urban living and for various Preservation Area is a zone where building shape, social and creative activities. design, and palette are regulated to preserve the beauty of the view. This is further discussed in the Kyo-machiya are traditional wooden frame houses Fire Festival case study in Chapter 2. in Kyoto. They date back to the middle of the Heian Era. The prototypical Kyo-machiya that (4) Outdoor Advertisement Control: The characterize the townscape at the center of Landscape Policy also included regulation and today’s Kyoto were likely built in the middle of ordinance for stricter control over outdoor the Edo era (1603 to 1867). Typical Kyo-machiya advertisements to reduce damage to townscape have two to three stories and line up close to the scenery. Restrictions on the display location, size, street. Their frontage is narrow and they extend and color palette for outdoor advertisements were far back. set, and advertisers were required to comply with the new regulation by 2014. Through strong Unlike many cities along Japan’s southern coast, efforts from the business sector, the Kyoto City Kyoto City did not lose many historic buildings and Government has removed a significant number of townscapes in World War II. However, because signboards to help improve the urban townscape. social systems changed and priority was given to economic efficiency after the war, many Kyo- machiya houses were demolished or lost. (See Figure 1.23.) 24 To cope with a sharp decrease in the number of number of Kyo-machiya houses have been used Kyo-machiya houses and the loss of the urban for nonresidential purposes. On the other hand, residential culture in the postwar era, Kyo- due to a decline in the number of births and the machiya residents, researchers, designers, aging of the population, it has become difficult for workmen, etc. began efforts to preserve and children and relatives to inherit them. In addition, reform Kyo-machiya around 1992. Responding to because it is expensive to maintain or repair Kyo- such activities, the Kyoto City Government machiya, owners may have to choose demolition conducted a survey for the first-term urban from a limited number of options. Thus the loss of development of Kyo-machiya in 1998, established Kyo-machiya houses has continued and is not the Kyo-machiya Restoration Plan, and compiled under control. measures to be carried out as part of Action Plan 21 in 2000. Through various measures and According to the results of a survey in 2009, which projects carried out in cooperation with the Kyoto asked about problems in the preservation of Kyo- Center for Community Collaboration, civil activity machiya, about 74% of respondents cited groups, experts, trade associations, and others, payment of maintenance and repair expenses and Kyoto has worked to preserve Kyo-machiya. about 70% cited inheritance. According to the Nonetheless, the loss of Kyo-machiya has results of a survey in 2016, about 46% of continued. Between 2009 and 2016, about 12% respondents reported that they would use the lot (about 5,600) of all Kyo-machiya houses were for rebuilding a single house after demolishing a demolished. It is estimated that at this point, 700 Kyo-machiya house, about 15% reported that the to 800 Kyo-machiya houses are lost every year. lot would be used for constructing an apartment house or a commercial building, and about 17% At present, as traditional cultures and lifestyles reported that the lot would be used for an open-air have been reevaluated in Kyoto, demand for Kyo- parking lot. machiya has been increasing, and an increasing 1928 1974 2000 Source: Kyoto City Government / Ritsumei-kan University Figure 1.23: Decreasing Kyo-Machiya in the Kyoto Downtown (2) Planning and Policy Framework: When • Community Scenic Betterment Districts Kyoto City established the Kyo-machiya (City Ordinances on the Betterment of Restoration Plan in 2000, it began to carry out Urban Landscapes) various restoration measures. Since a new policy  Townscape Environment Development Project for views was established in 2007, it has (central government’s subsidy project) energetically sought to preserve and restore Kyo-  Subsidy for preservation and repair of machiya houses and other historic buildings, individual buildings making full use of related laws, ordinances, and • Designation of “structures of landscape systems. Kyoto is using the following systems to importance” (Landscape Act) develop rows of historic buildings and individual • Designation of “historical design structures” historic buildings: (City Ordinances on the Betterment of Urban Landscapes)  Subsidies for preserving and repairing historic • Designation of “historical landscape-forming buildings under the district system: buildings” (Traditional Scenery Improvement • Preservation Districts for Groups of Historic Act) Buildings (Act on Protection of Cultural • Subsidy project for repair for the use of the Properties) Kyo-machiya House Development Fund • Historical Landscape Preservation and Improvement Districts (City Ordinances on the Betterment of Urban Landscapes) 25 * Important cultural properties (Act on Protection of Cultural Properties) * Structures of Landscape * Cultural properties designated by Kyoto City or Importance (Landscape Act) Prefecture (Cultural Property Protection Ordinance) * Neighborhood landscape buildings * Historic design buildings (Kyoto City’s own regulations) (Kyoto City’s own regulations) *Tangible cultural properties registered by * Registered tangible cultural Kyoto City or Prefecture (Cultural Property properties (Act on Protection of Protection Ordinance) Cultural Properties) * Historic scenery forming buildings (Act on Maintenance and Improvement of Provide generous Traditional Scenery in Certain Districts) * Buildings coloring Kyoto (independent) * Kyo-machiya Town Planning Fund support * Kyo-machiya Karte (information records), crowdfunding support projects Preparation and (Kyoto Center for Community maintenance of the manual Collaboration) of earthquake resistance measures of Kyo- machiya, human resource Kyo-machiya Nandemo Sodan development, etc. Support * earthquake resistance efforts of Kyo- (Consult anything about Kyo- machiya, * energy saving efforts, and * transaction of machiya) (Consultation desk for vacant houses Kyo-machiya owners and residents) Source: Kyoto City Government Figure 1.24: Comprehensive Support for Preservation of Kyo-machiya Figure 1.24 shows comprehensive support for activity groups – for matching owners with preserving and passing on Kyo-machiya houses. persons wishing to use houses. This includes not only the district system and designation system described above, but also (3) Kyoto Center for Community Collaboration measures for preserving and inheriting historic (KCCC): Comprehensive Kyo-machiya buildings under the leadership of Kyo-machiya Preservation – The Enabling Environment: owners and local people, such as a comprehensive consultation system, smooth Role: In 1997, the Kyoto Center for Community fundraising in cooperation with the private sector, Collaboration (KCCC) was established to support fostering of Kyo-machiya experts, and urban community activities and to promote an optimal development support. landscape and living environment. It acts as a mediator between residents, businesses, and the Since the New Landscape Policy was adopted in municipal government to promote community 2007, the Kyoto City Government has provided partnerships. KCCC has been given a key role in comprehensive support for preservation of Kyo- delivering the enabling environment for Kyo- machiya and has had some successes. However, machiya preservation and inheritance. It uses a because the number of Kyo-machiya houses is bottom-up approach, targeting houses and decreasing, a new policy was developed for 2018. stakeholders that need the most support. Sample functions are listed below, with key components Concretely, in November 2017, the Kyoto City discussed later in this section: Government enacted the Ordinance for • Comprehensive support for the activities Preservation and Inheritance of Kyo-machiya of citizens – Kyo-Machiya Restoration Houses, which specifies the System for Prior  Kyo-machiya consultation Notification of Demolition. Under this system, the  Kyo-machiya database owner of a Kyo-machiya house considering  Kyo-machiya legacy network demolition must notify the city government at an • Preservation and restoration early stage, and then be shown a wide range of  The Machiya Machizukuri Fund: options for the preservation and utilization of the  Community Development Crowd house. This system aims to preserve and pass on Funding Support Project Kyo-machiya. (It is similar to the “demolition delay  Survey of historic building candidates: system” in the U.S. city of Boston, which requires  Kyo-machiya records a delay in the planned demolition of a historically  Funding management important building in order to secure time for • Dissemination of information considering an alternative plan.)  Urban landscape development workshops and symposium When the ordinance was enacted, existing • Exchange and cooperative activities systems were improved and a new system for  Kyo-machiya inheritance network subsidizing repairs was established. In addition,  Cooperation with the World Monuments the Kyoto City Government implemented a system Fund (Kyo-Machiya Revitalization for advising owners about how to use houses and Project) – in cooperation with trade associations and civil 26  Assignment of experts to provide relevant information, counseling, and • Urban landscape maintenance operation other assistance Kawabata Kyo-machiya Before Restoration Kawabata Kyo-machiya After Restoration Taniguchi/Cafe Kyo-machiya Before Restoration Taniguchi/Cafe Kyo-machiya After Restoration Source: Kyoto Center for Community Collaboration (KCCC) Figure 1.25: Kyo-Machiya Restoration under the Kyo-machiya Development Fund Consultation and Community Collaboration: machiya, including how they were constructed, With the overarching objective of passing on Kyo- how to maintain and manage them, how to pass machiya to the next generation, KCCC provides them on to heirs or rent them, and how to make consultation services on both general and them a better place to live in. The seminars focus technical matters relating to Kyo-machiya. on issues related to the maintenance of Kyo- Consultation is offered in person, over the phone, machiya and the preservation of their legacy. or via email and is given by expert consultants and specialists – carpenters, architects, and real People living in Kyo-machiya generally respect estate brokers. The public typically ask questions and value traditions that have been passed down on topics such as these: through generations. For example, as discussed in Chapter 2, there are synergies between the • Steps required to begin renovation on Gion Festival and the Kyo-machiya communities. Kyo-machiya they own or live in • Options for their townhouse in the future; Kyo-Machiya Records: Kyo-machiya owners can recommendations for specialist builders apply to KCCC with a fee (JPY 35,000) to secure and carpenters a “Record of Kyo-machiya.” This document • Advice on how to continue living in their confirms the following: Kyo-machiya • Advice on how to prepare to pass their • Basic information: Summarizes key property to their heirs information on appearance and design details Urban landscape development workshops are • Cultural information: Summarizes the also held in collaboration with academicians and local history, historical anecdotes, and experts so that local people can learn about Kyo- 27 characteristics of the façade and the inner has an English and Japanese website, and residential space produces a newsletter. • Architectural information: Summarizes the condition of a building, focusing on Exchange and Cooperative Activities: KCCC degradation level works together with various urban planning • Floor plan experts, agencies, and organizations in Japan and internationally to exchange information and The purpose of these records is to increase support projects. Its cooperation with international owners’ awareness of the value of Kyo-machiya historical heritage organizations helps create and to encourage better maintenance and awareness of Kyoto traditions and promote management of Kyo-machiya, thereby ensuring conservation. For example, KCCC supports the their legacy. Kyo-Machiya Revitalization Project with the World Monuments Fund (WMF) which includes a series Kyo-machiya Database: A 2008–2009 study of three phases of restoration support. The related identified approximately 48,000 Kyo-machiya in revitalization project to help restore the Shijo Kyoto and gave each an ID number. This Ofune-hoko Machiya for the Gion Festival is information is managed in a Geographic discussed in Chapter 2. Information System (GIS) database. (4) Innovative Financing for the Preservation Kyo-Machiya Legacy Network: The Legacy of Kyo-machiya Network was established in 2014 in cooperation with 27 member organizations related to the Kyo- (A) Overview: Kyo-machiya are disappearing, and machiya legacy. Its goal is to promote the with them the traditional townscapes of Kyoto. continuation of Kyo-machiya and historic buildings. The total number of Kyo-machiya in Kyoto is approximately 40,000, but every year, the city Real Estate loses 700-800. To preserve this traditional culture Financial Agents Architectural Institutions Firms and pass it on to the next generation, Kyoto City and its partners have recently set up several initiatives utilizing innovative financing Business Experts mechanisms. Community Promotion of appropriate inheritance practices and uses Local Government Citizens’ Groups (B) Kyo-machiya Development Fund: The Kyoto Formation of a collaborative network of experts and organizations Center for Community Collaboration established Source: Kyoto Center for Community Collaboration (KCCC) the Kyo-machiya Development Fund in 2005. This Figure 1.26: Kyo-Machiya Legacy Network fund, initiated with a donation from a donor living in Tokyo and established by further financing from KCCC is the secretariat for the Legacy Network. the national government and Kyoto City, aims to Benefits for members include networking and promote the preservation, restoration, and knowledge exchange. The diverse expertise of its utilization of Kyo-machiya using donations from members allows the network to introduce support residents, companies, and external supporters. systems for the inheritance of Kyo-machiya, Another important aspect of this fund is that it is grants, and other systems and areas of guidance complementary to Kyoto City’s efforts to preserve including architecture, traditional craftsmanship Kyo-machiya and the historic urban landscape. techniques, real estate, law, and finance. The number of Kyo-machiya the local government can support is limited due to budget constraints. Dissemination: A challenge that KCCC has faced Currently, around 3,000 Kyo-machiya are under is improving how citizens understand their Kyo- support by Kyoto City. As illustrated in Figure 1.27, machiya work and how to better and more widely the Kyo-machiya Development Fund provides disseminate information. KCCC conducts various support to Kyo-machiya at the bottom of the symposiums and workshops to both increase pyramid shown in the figure, attempting to pull knowledge and strengthen capabilities by them up to a higher category that will be communicating information about the urban considered for public support by the city. landscape and city planning to residents, professionals, and municipal government officers. It also utilizes social media, including Facebook, 28 Figure 1.27: Kyo-Machiya Development Fund Support The Kyo-machiya Development Fund began with 1 million to cover costs for preparing a JPY 150 million in 2005. By March 2016, the Kyo- crowdfunding proposal. Once the proposal has machiya Development Fund had supported a total gathered more than half of the target amount of of 76 renovations and restorations of Kyo-machiya. money, the program fills in the remainder up to The number of inquiries is increasing and JPY 3 million. In fiscal year 2017, Kyoto City currently stands at around 500 every year. announced that the program would accept up to four project proposals. As of March 2018, there is (C) Kyo-machiya Crowdfunding: In 2016, Kyoto one implemented project that is renovating a Kyo- City and the Kyoto Center for Community machiya building into a traditional-style hotel and Collaboration launched a crowdfunding program also creating an open factory next door where for Kyo-machiya aiming to tap into a wider range visitors can experience the making of traditional of funding sources. Eligible projects are Kyo- goods. The figure below shows an overview of the machiya renovations and utilization proposals. proposal as displayed on the crowdfunding Initially, the program provides a maximum of JPY platform: Frontage (Before Restoration) Frontage (After Interior (Before Interior (After Restoration) Restoration) Restoration) Source: Securite and Kyoto City Government Figure 1.28: Modern Kyo-Machiya “Kuraya” – To Pass on to the Next Generation 29 (D) Kyoto Kyo-machiya Matching Project: planning to use Kyo-machiya to develop a MATCH-YA: Some 27 organizations including business. experts on Kyo-machiya preservation, NPOs, and Kyoto City staff, have joined to form the Kyo- As of the end of 2017, the former had made 123 machiya Heritage Network. Their specific initiative contracts, and the latter had made 7 contracts. is a matching project called “Match-Ya.” Match-Ya These loan products, with the cooperation of is a platform connecting owners of historic Kyoto City and its partners, are expected to buildings, including Kyo-machiya, with potential further boost the preservation, restoration, and residents or business owners interested in the utilization of Kyo-machiya. utilization of Kyo-machiya. From the supply side, the current situation is that many Kyo-machiya are (6) Challenges in Urban Living: KCCC already unused and empty, and owners are not recognizes the challenges posed by changes in sure of what they can do with their Kyo-machiya the urban living environment in Kyoto, including or of whose advice to seek. From the demand construction of accommodations with an increase side, many business owners are interested in in tourists, rapid increase in Minpaku utilizing Kyo-machiya for new businesses and in (vacation/short-term rentals), and increase in real combining traditional values and modern estate values, all in the context of the year-on industries. year decline of Kyo-machiya the decline in local industries, and the shrinking downtown population. By reaching out to Match-Ya, both owners and However, a key purpose of the comprehensive potential buyers or tenants can access systems for planning and community support consultation services and support from the Kyo- (detailed above) is to make communities in machiya Heritage Network members in areas historic areas more resistant to rapid changes and such as real estate, law, financing, building protect the city’s proud tradition and heritage. regulations, public subsidies, etc. They can also Specific measures include the aforementioned collaborate with designers to create business Kyo-machiya Legacy Network, Kyo-machiya plans, advertisements, and public relation Records, financial support for preservation and strategies. If the requirements of the owners and maintenance. the aspirations of the tenant match, then the Kyo- machiya can be utilized for a new purpose. To Moreover, the overarching purposes of the date, several successful matchings have already Landscape Policy 2007 and its sister ordinances been made. and plans are to maintain and pass down “Kyoto- ness,” to better utilize renovated houses for (E) Special Loan Products for Kyo-machiya: In economic and cultural benefit, to pass on to new February 2010, the Kyoto Center for Community generations a culture of urban living, and to Collaboration created and began to issue the revitalize local communities and in turn improve aforementioned Kyo-machiya records (also known the city environment. as “Kyo-machiya Kartes.”) By documenting the uniqueness and value of each Kyo-machiya (4) Institutional Structures building in a Kyo-machiya Karte, the correct value was communicated to the owner. Moreover, National Context: Urban regeneration matters financial institutions and real estate agents usually are mainly handled by the Ministry of Land, had difficulties in raising funds for purchase or Infrastructure, Transport and Tourism (MLIT). The repair of Kyo-machiya, because wooden houses City Planning Division of MLIT’s National Spatial have little mortgage value 20 or more years after Planning and Regional Policy Bureau has a their construction. This hindered the distribution of Landscape Section that handles townscape Kyo-machiya. Given this situation, the Kyoto policies. MLIT also manages tourism policy at Shinkin Bank, a local financial institution, began to national level. offer special loan products for Kyo-machiya with the use of Kyo-machiya Kartes in June 2011 to Some exceptional policies are managed by other conserve and utilize Kyo-machiya and leave ministries. The Ministry of Education, Culture, important Kyo-machiya to future generations. As Sports, Science and Technology is promoting the of December 2015, three local banks have started Preservation District for Groups of Historic special loan products for Kyo-machiya. Buildings, which is an effective tool for the preservation of the historic built environment. For example, the Kyoto Shinkin Bank is offering a There are 117 preservation districts including special housing loan product called "Nokoso Kyo- three in Kyoto City designated by MEXT. machiya," which individuals can use to purchase or repair Kyo-machiya that will be used as a residence. They also offer a loan product called “Ikaso Kyo-machiya,” which is for persons 30 Kyoto City: In the high economic growth era, residential areas, industrial areas, and office areas were developed City Planning Bureau Organization and to support a sharp increase in the population, and Demarcation: In Kyoto City, urban regeneration urban areas expanded both horizontally and policy is chiefly carried out by the City Planning vertically. Bureau. The structure and jurisdictions of the departments and offices of the bureau are shown As Kyoto City is an ordinance-designated city, in in Figure 1.29. the past it removed traditional buildings and constructed modern buildings. On the other hand, Committees: In order to execute each program or plans such as the Kyoto Tower construction plan, project in a way that is politically neutral and which was publicly announced in 1964, caused academically justified, the Kyoto City Government fierce disputes about the presence of high-rise sets up many advisory committees with members structures in the landscape. from academic, civic, and industrial sectors. These committees include, but are not limited to: In 1969, Kyoto City compiled “Urban Development Plan – Kyoto Twenty Years After” to point out • Townscape Examining Committee some of the strains created by high economic • Land Development Examining Committee growth and to promote the creation of • Scenic District Examining Committee communities that take care of their residents and • City Basic Plan Elaboration Council are easy to live. In addition, to cope with the • Committee for Nijo Castle Conservation tension between conservation and development, and Improvement Kyoto decided to promote conservation in the • Kyo-machiya Preservation and northern part of the city and development in the Improvement Committee southern part. The Kyoto City master plan cleverly defines the KYOTO CITY MAYOR city under three targets of intervention: “regeneration” for the historic city core with old CITY PLANNING BUREAU Kyo-machiya and other buildings, “preservation” for the surrounding mountainous areas in the CITY PLANNING DEPARTMENT north with accumulated temples and shrines and (i) City planning; (ii) City Regeneration and Creation Promotion Office; (iii) Kyoto City Landscape and City Development Center (extra-departmental organization) “creation” for urban growth and brownfield redevelopment in the south. CITY LANDSCAPE DEPARTMENT (i) Landscape policies- planning, preservation of historic landscapes, guidance for design; (ii) Preservation of sceneries; (iii) Guidance for development Instead of the conventional urban regeneration project-led approach, Kyoto City has designed a CONSTRUCTION GUIDANCE DEPARTMENT comprehensive system (urban planning system, (i) Guidance for construction; (ii) Building evaluation; (iii) Promotion of safe construction policy and legal framework, and financial systems). This approach creates enabling conditions that PUBLIC BUILDING DEPARTMENT allow households to incrementally update their (i) Design of the city hall, schools, municipal housing, supervision of construction, etc. own houses (in Japan, buildings and land are private assets, so owners are basically free to CITY REGENERATION AND CREATION OFFICE (i) Countermeasures for vacant houses; (ii) Improvement of densely built up choose methods for constructing and using their area; (iii) Conservation and utilization of Traditional Kyoto Shophouse property, and may decide when and how to demolish or reconstruct houses). In this case, it is OUTDOOR SIGNBOARD GUIDANCE OFFICE (i) Guidance of outdoor signboard important for the local government to clarify the development vision of the entire city, to prepare PEDESTRIAN FRIENDLY KYOTO PROMOTION OFFICE (i) Study and planning of integrated traffic system of the city; (ii) Promotion of rules and institutional systems to realize it, and to public transportation; (iii) Planning of car parking and station plaza share the vision and rules with citizens and each project owner. KCG elaborated such a plan for HOUSING OFFICE (i) Housing policies; (ii) Planning and management of municipal housing Kyo-machiya conservation in the downtown “regeneration area”. Source: Kyoto City Government Figure 1.29: Kyoto City Planning Bureau In the regeneration area, the Kyoto City Organization and Demarcation Government regulates the height and design of buildings (to recover those destroyed during the (5) Main Achievements high economic growth period); instead of major development to promote tourism, Kyoto relies on (1) Urban Control by the Use of Regulations its own townscapes and the urban culture and and Other Means: The Kyoto City Government heritage they represent. Increasing buildings can has achieved urban conservation and be harmonized with Machiya townhouses if development in its own way. households or businesses can rebuild their 31 houses or buildings in the downtown “regeneration area”. In addition, the following Pillar 1 steps will help Kyoto City safeguard its cultural Enhanced landscape heritage legacy or “Kyoto-ness” and improve its regulations city environment: a) households incrementally renew their own houses (Kyo-machiya); b) Promote three pillars integrally KCCC’s Kyo-machiya Development Fund (funded by private donations) enables households to renew their houses (Kyo-machiya); c) local Pillar 2 Pillar 3 financial institutions extend and provide credit to Improved Promotion of KCCC’s Kyo-machiya Karte records for repair or support plans landscaping acquisition of Kyo-machiya; and d) specialist Source: Kyoto City Government traditional carpenters and experts help Figure 1.31: Composition of Concrete households to preserve their Kyo-machiya. Measures (Draft) Importantly, this approach helps the city ensure Several additional measures to strengthen and that its cultural heritage legacy, or “Kyoto-ness,” is refine policy are now being discussed, including inherited and as a force against large these: development project that might generate fundamental change for communities and • Enhanced Landscape Regulations: townscapes. Expansion of protected surrounding views to include additional areas around and in (2) Refinement and Enhancement: While Kyoto front of approaches to large-scale temples has had success using the above approach and and shrines not designated as World the comprehensive New Landscape Policy 2007, Heritage sites. the Kyoto City Government continues to re- • Improved support plans: For example, examine, strengthen, and refine its approach. promotion of the subsidy program for Figure 1.30 shows that while Japan as a whole repairing the exterior of temples and has a declining birthrate and aging population, shrines important for landscape and leading to a population decline, in Kyoto the social establishment of the consultation system population has shown large growth since 2007, • Promotion of Landscaping: Support for the year of the major Landscape Policy reform. landscaping and town planning to help temples and shrines, local communities, (people) and business operators work together; 建物の高さ includes better dissemination through workshops, study tours, and involvement of experts. 2007 (3) Civic Pride, Participation, and Consensus Building: The civic pride of Kyoto has been and always will be central to its success. It is a major and unique asset for cultural heritage preservation and urban regeneration, one that helps support 屋外広告物 sustainable tourism. Kyoto has long provided opportunities for citizens to learn more about their 支援制度 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 Rise/fall in social dynamic Rise/fall in history, culture, and traditions, thus increasing their sense of pride and responsibility. natural dynamic Source: Kyoto City Government Figure 1.30: Kyoto Annual Population Change The Kyoto City Government has been carrying out various programs that would be very challenging However, the current situation may influence the to implement without citizens’ agreement and city’s historic landscape, since the shifting of the participation. The city has fostered a culture of location of ordinal temples and shrines for urban participation and consensus, and local development purposes plays an important role in communities are supporting townscape landscape planning, with the development of improvements. temple or shrine premises, as well as the development of surroundings of temples and The civic society, consisting of community groups, shrines, etc. religious associations, academia, cultural groups, and others, takes a lead role and keeps a careful eye on the development vision of the city and on associated policy interventions. These groups hold the government accountable for planning and 32 ensuring comprehensive development, which local people. This further enhances people’s civic maintains and improves the local economy but not pride, which is very important social capital for at the expense of residents’ livelihoods. In this successfully meeting the city’s goals. way, civic pride and community participation involve tangible action and results. (4) Pioneer in Shaping National Policy: Concerning townscape control and preservation of In Kyoto, citizens have a strong understanding of, historic areas, the Kyoto City Government is a and are willing to accept, strict landscape pioneer in Japan; it introduced a townscape regulations, architectural standards, and control system well before the national development rules, which would likely not be the government. In fact, the formation of the case elsewhere. Landscape Act was much inspired and facilitated by the experience of Kyoto City. Many city governments set up councils or committees as well as facilitating participation of 33 1.5 Sustainable Tourism – Laws, Policies, Strategies, and Structures (1) Introduction: Uniqueness of Kyoto Compared to many destinations, Kyoto offers a full experience on its own – from arrival in the city Overview: In recent years Kyoto has received to departure, not only because of the destinations more than 55 million visitors annually, creating an themselves, but also because of its cuisine, economic ripple effect of around JPY 1 trillion lodging, landscape etc. The Kyoto City (Kyoto City Government, 2016). Such high visitor Government and the Tourism Association are numbers present the city with a major seeking to maximize the city’s appeal with a focus management challenge. This section will on experienced-based tourism. document how the city has shifted from a past focus on quantity (number of visitors and tourists) The focus on better experience-based tourism to quality (spending and satisfaction). This section sets out in part to address the city’s tourism also summarizes the steps – physical and seasonality issues (described in a later section). institutional – that Kyoto has taken in this regard. Kyoto City has supported a shift toward experience-based tourism in close coordination Kyoto’s Uniqueness: Sustainable tourism in with stakeholders. With the support of the Kyoto Kyoto is founded on the city’s unique physical, City Government, the Kyoto City Tourism cultural, and citizen assets, as explained below: Association (KCTA) liaises with intermediaries and stakeholders to coordinate events, develop Cultural Heritage Assets: One of the unique new approaches, and help stakeholders realize charms of Kyoto City is the historical heritage, these goals. Experience-based products, such as including shrines and temples that have remained cooking, wearing local dress, handicraft making, unchanged for generations. The city’s history and learning traditional arts, encourage tourists to stretches back for more than 1,200 years and it spend more time and money. In turn, this may includes many shocks and stresses, including facilitate more overnight stays and enhance natural disasters. As noted, it has 14 UNESCO tourism revenue directly and indirectly. With World Heritage properties and approximately experience-based products, tourists can share the 2,000 shrines and temples that form attractive and value of “Kyoto-ness,” consistent with the civic unique tourist sites. pride of the local people. Kyoto Civic Pride and Resiliency: A major and Cultural Experience: The tourism experience of unique asset for sustainable tourism in Kyoto is the city entails embracing its culture and history. 34 the local’s people’s pride in the city and its Country Promotion Basic Plan was developed in heritage; this sense of civic pride helps support 2012 and revised in 2017. The specific details of sustainable tourism. The city, its residents, and its the action plans have been updated in the tourism industry have also shown resiliency to National Action Program for Realizing Tourism economic and natural shocks to tourism over the each year since 2013. years. Kyoto City was recently chosen as one of the 100 Resilient Cities by the Rockefeller Japan has three types of ministerial level Foundation, and its continued resiliency efforts meetings related to tourism that are attended by directly benefit its sustainable tourism plan. the prime minister, deputy prime minister, or chief cabinet secretary: Long History and Foundation of Tourism Planning: Kyoto City has long recognized and demonstrated • Tourism vision concept meeting the importance of tourism planning. The city supporting Japan of tomorrow (National mentioned the importance of hospitality for visitors Action Program for Realizing Tourism with and tourists in its Citizen’s Charter back in 1956 a yearly plan since 2013); and introduced a cultural tourism facility tax in the • Ministerial meeting to promote tourism; same year. Since 2001 has prepared tourism and promotion plans with detailed policies, long-term • Special complex tourism facility area strategies, and responsive five-year action plans. development promotion headquarters. It has also implemented a comprehensive tourism survey for 60 years. These actions will be Kyoto City discussed in more detail later in this chapter. At the city level, ordinances related to tourism (2) Laws and Regulations have been enacted as necessary, including the following: National Context A summary of the main national laws and • Ordinance of Vacation Rental (Approval in regulations related to sustainable tourism is 2018) presented below: • Ordinance of Lodging Tax (Approval in 2017 and valid from October 2018) Table 1.6: Major Acts Relevant to Tourism • Ordinance of Bicycle Safety (2010) • Ordinance of Creation of Culture and Art Name of Act Ministry Hot Springs Act Ministry of Environment (MOE) City (2006) (1948) • Ordinance concerning City Development Inns and Hotels Act Ministry of Health, Labor and (2000) (1948) Welfare (MHLW) • Ordinance of Tourism, Youth Hostel (1959) International Tourism Ministry of Land, Infrastructure, and Hotel Development Law Transport and Tourism (MLITT) • Ordinance of Tourist Parking Lot (1952) (1949) Licensed Guide Ministry of Land, Infrastructure, and The two most recent ordinances are summarized Interpreters Act (1949) Transport and Tourism (MLITT) below. Act on Protection of Ministry of Education, Culture, Cultural Properties Sports, Science, and Technology (1) Ordinance of Short Term Rentals (2018): Due (1950) (MECSST) Travel Agency Act (1952) Ministry of Land, Infrastructure, and to the large increase in the number of short-term Transport and Tourism accommodations, this ordinance is being enacted Natural Parks Act (1957) Ministry of Environment (MOE) to protect existing residents and to help avoid a decline in quality of life. Tourism Basic Act (1963) Ministry of Land, Infrastructure, and Transport and Tourism (MLITT) World Heritage Ministry of Foreign Affairs of Japan The Kyoto Ordinance of Short Term Rentals is Convention (1972) more restrictive than the nationwide rules, which Landscape Act (2004) Ministry of Land, Infrastructure, and limit the number of nights properties can be rented Transport and Tourism (MLITT) out to 180 nights per year. In Kyoto’s exclusively Ecotourism Promotion Ministry of Environment (MOE) residential districts, that number will be reduced to Act (2007) 60, and rentals must occur during the winter Tourism-based Country Ministry of Land, Infrastructure, and months (in these residential districts, hotel Promotion Basic Act Transport and Tourism (MLITT) business is prohibited by the City Planning Act, (2007) but short-term rental is allowed.) Owners of the Act on Leisure Stay in Ministry of Agriculture、Forestry rental properties need to be able to arrive at the Rural Areas (2009) and Fisheries (MAFF) property within 10 minutes. The focus on central residential neighborhoods includes areas around Based on the provisions of the Tourism-based key heritage sites such as Rokuon-ji Temple Country Promotion Basic Act, the Tourism-based 35 (Kinkaku-ji Temple) and Nanzen-ji Temple, for management and rehabilitation, in 2002 the example. national government developed its Basic Policies for Economic and Fiscal Policy Management and Due to the increasing number of tourists and Structural Reform; to correspond to this reform, surge in short-term rentals, Kyoto City has faced the Ministry of Land, Infrastructure, Transport and issues with quality of life for residents and with the Tourism (MLIT) developed its Global Tourism experience of tourists, including traffic congestion, Strategy in 2003 to promote inbound tourism. The overcrowding of public transport, garbage and “Visit Japan” campaign was a key action program waste issues, and noise complaints. In particular, of this strategy. Kyoto City’s support center has received a large number of complaints about noise and garbage The Visit Japan campaign has increased the from residents. The quality of the short-term number of foreign tourists successfully since 2003. rentals offered to tourists has also been a concern Major efforts implemented by the central and does not match well with the city’s objective government as part of Visit Japan included: of increasing quality rather than quantity within its sustainable tourism framework. • Targeting selected countries and regions as priority markets; In order to solve these issues and better integrate • Relaxation of visa-issuing conditions; and short-term rentals into the local city fabric, Kyoto • Development of infrastructure such as City has tried to improve the safety and multilingual infrastructure improvement for environment for both local residents and tourists foreign tourists. through stricter rules. Based on the Tourism Basic Act (1963), the (2) Ordinance of Lodging Tax (2017): To improve Tourism-based Country Promotion Basic Act was the receiving environment as visitors increase, to revised in 2007. The associated Tourism-based mitigate negative impacts on residents (such as Country Promotion Basic Plan (2007; revised in crowded transportation), and to polish the 2012) was formulated as a key overarching plan attractiveness of the city for tourism promotion, for the realization of a “tourism nation” based on the city decided to begin collecting a lodging tax, the Act. From a sustainable tourism point of view, as summarized in the table below. it set out each region’s attractive sightseeing Table 1.7: Rate of Lodging Tax spots and abundant tourism resources, emphasizing the importance of utilizing them Accommodation fee Tax rate/ person effectively to carry out more strategic sustainable Up to J¥19,999 JPY 200 regional tourism management. J¥20,000 – ¥ 49,999 JPY 500 J¥50,000 and over JPY 1,000 In order to deliver the Tourism-based Country Source: Kyoto City Government Promotion Basic Plan, two types of ministerial level meetings formulate each guideline: Kyoto City Government expects some JPY 4.5 billion annual revenue from this new taxation.  Action Program Toward Realization of a Kyoto City will utilize this revenue to improve Tourism Nation (2013~2017) tourism infrastructure and facilities such as roads,  Tourism Vision Concept Meetings signage, and toilet facilities in order to raise the Supporting the Japan of Tomorrow (2016) satisfaction level of Kyoto residents and visitors alike. (3) Policies and Strategies National Context: Outlined below is a brief introduction to the main national policies and strategies related to sustainable tourism, with Figure 1.32 presenting the overarching context of main departments and plans. To guide financial 36 Organization Plan / Law Policy / Campaign Japan Tourism Association (1959) Reorganization Tourism Basic Act (1963) International Tourism Promotion Organization (1964) Basic Policies for Economic and Succession Fiscal Policy Management and Structure Reform (2002) Revision Japan National Tourism Organization Visit JAPAN Campaign (2003) (2003～) Tourism-based Country Promotion Basic Act (2006) Jurisdiction Establishment Planning Tourism-based Country Promotion Japan Tourism Agency Basic Plan (2007) (2008) Embodiment Action Program toward Realization of Tourism Vision Concept Meeting Tourism Nation (2013-2016) Supporting Japan of Tomorrow (2016) Figure 1.32: Overarching National Tourism Context Kyoto City Evolution of Tourism Policy: The first Kyoto City Citizen’s Charter in 1956 declared “We, citizens of Kyoto, welcome travelers warmly.” Since then, tourism has emerged as a critical industry for the city; it had an important role in shaping the Kyoto City master plan in 1993, 2001, and 2010. In order to develop action plans to respond to the master plans, the Kyoto City Government has developed its Tourism Promotion Plans almost every five years, namely in 2001, 2006, 2010, and 2014. Table 1.8 and Figure 1.33 summarize the evolution of these five Tourism Promotion Plans. Table 1.8: Tourism Policy Evolution Main Features Figure 1.33: Kyoto Tourism Policy Evolution Year Name Target # of Project First Tourism Promotion Plan (2001): The 2001- Kyoto City 119 projects Kyoto City master plan (2001) targeted 50 million 2005 Tourism (inc. 25 priority Promotion Plan 50 million visitors projects) tourists (visitors) in Kyoto by 2010, and the first 2006- New Kyoto City a year 21 strategic Kyoto City Tourism Promotion Plan was 2010 Tourism plans/100 formulated in 2001 to achieve this target. One of Promotion Plan promo. plans the main objectives of setting this target was to 2010- Future: Kyoto Shifting from 7 sections mitigate economic depression and recover the 2014 Tourism quantity to quality 116 projects Promotion Plan and improving & economic vitality of the city. The five priority 2010+5 securing “quality” strategies of the 2001 Plan can be summarized as 2014- Kyoto Tourism High quality of 4 pillars follows: 2020 Promotion 2020 hospitality, 191 projects Kyoto City MICE beyond giving a • All Season Tourism – creating tourism Strategy 2020 positive impression attractions to mitigate seasonality: Data: KCG  Events (i.e., in Nijo castle); film commission; field museum • Increasing Repeat Visitors – through facilitating a walkable city:  Creating walking areas and public buses between main stations and tourist sights 37 • Strengthening City Marketing – securing • All-season tourism – Continuation of the first repeat visitors and creating new tourist plan focusing on attracting tourists across all markets: seasons; Kyoto summer/winter travel  Implementing tourism missions in Asia campaigns; restaurant incentives in off-season  Developing incentive tours • Improvement of signage and traffic • Utilizing IT Systems: congestion – “Park and ride” scheme and  Dissemination of information both measures to improve walkability and reduce domestically and internationally car use  Creating a regional structure that can • Establishment of information centers for effectively provide information inbound tourists  Development of next-generation tourism • Promotion of multilingual information – information systems Including signage and restaurant menus • Providing a Comfortable Environment • Systems – Including tourism information and  Hospitality; convenient and accessible mobile phone services transport system • Promotion of international conventions Second Tourism Promotion Plan (2006): The Third Tourism Promotion Plan (2010): The third second plan, the New Kyoto City Tourism plan, called “Future: Kyoto Tourism Promotion Promotion Plan, included an all-Kyoto approach, Plan 2010+5,” had an accompanying “Kyoto which meant focusing on collaboration among Meetings, Incentives, Conferences and stakeholders, including Kyoto Prefecture, Kyoto Exhibitions (MICE) Strategy”. This plan proposed Chamber of Commerce, Kyoto City Tourism the following key items: Association, and Kyoto Prefecture Tourism • Long stay promotion Federation. The plan also included verifiable • Walking in Kyoto City and utilization of indicators and prioritized performance-oriented public transportation plans and activities. The SWOT analysis of the • Citizens’ rediscovery of Kyoto (civic pride) 2006 plan is shown in Table 1.9. • Promoting experience tourism Table 1.9: Second Kyoto Tourism Promotion • Increasing the tourist satisfaction rate Plan SWOT Analysis (2006) • Attracting new tourists and repeaters Strength Weakness • Effective information dissemination  History of 1200 years,  Tourist concentration to • Targeting the International MICE city traditional culture and specific places and in (Promoting meetings and incentives, abundant cultural properties specific seasons academic conferences, and conventions)  Beautiful natural  Tourism information does environment and traditional not keep up with demand Fourth Tourism Promotion Plan (2014): The townscape  Degradation of cultural  Each district is competitive properties by concentrated fourth stage of planning sustainable tourism was and unique tourist activity the “Kyoto Tourism Promotion 2020” and “Kyoto  Supported by senior women  Less attractive City MICE Strategy 2020”, which focused on: who have willingness to evening/night tourism • Human resource development and city spend  Constrained road network planning – Kyoto civic pride and tourism  Densely populated cities compared to city size. environment maintenance (66 projects) and towns are close-by with  Overlap of tourism related good access to Kyoto organizations and roles • Improvement of attractions and attraction Opportunities Threats method (77 projects)  Kyoto Creation Program as  Endangered traditional • Delivering appeal and communication (21 National Strategy townscape projects)  On-going Kyoto boom  Insufficient tourism industry • MICE strategy (27 projects) - Targeting  Expanding market with human resources “Tourism MICE City Where the World retiring baby boomer  Tourism annoyances such generation as traffic congestion Admires”:  Effect national program  Intensifying competition with  Targeting a world ranking of 35 in the “Visit Japan Campaign” on other destinations number of conventions held (the increasing inbound tourists  Worsening moral and ranking was 55 in 2013, with 43  Expanding tourism market security conventions); and in China with its economic  Natural disasters and  Maintaining domestic first-place ranking growth terrorism Source: Kyoto City Government in the ratio of foreign participants in conventions. The Second Plan also formulated a specific action plan to mitigate the problems and challenges The evolution of tourism challenges and the revealed by the annual comprehensive tourism resulting countermeasures across the four plans survey. The plan included the following demonstrate a shift in Kyoto’s approach from quantity (number of visitors and tourists), to quality (spending and satisfaction), as 38 summarized in Table 1.10. The specific measures later in this section. used for delivering quality will be summarized Table 1.10: Evolution of Tourism Challenges and their Countermeasures Quantity Orientated Quality Orientated 2001-2005 2006-2010 2010-2014 2014-2020 Seasonal gap, traffic Seasonal gap, traffic Few tourists who stay longer, Better hospitality for tourists Challenge congestion, few foreign tourists, congestion, lack of tourism better services for foreign needed, enhancement of Kyoto few multilinguistic services, lack information functions, few tourists needed, more Kyoto Civic pride, more special events s of IT, information and signage opportunities for citizens civic pride, lack of promotion of needed, manners of foreign experienced-based tourism tourists Events at night to increase Develop seasonal tourism High quality hotels, upgraded tourists in off-season, walking products, improved transport signage, new tourism programs Solution Ideas promotion (not car), establish plan, increase foreign tourists, and events, 8 languages overseas information offices, multilinguistic services (call services, improve IT systems provide multilinguistic services, center), mobile phone services (inc. mobile apps), learning and improve signage (IT), international conventions, experiencing opportunities for “All Kyoto” approach. citizens, MICE strategy Source: Based Kyoto City Government Tourism Promotion Plans (4) Institutional Structures National Context: A brief overview of the main national institutional structures related to sustainable tourism is offered below. The Japan Tourism Agency (JTA) is an organization under Ministry of Land, Infrastructure, Transport and Tourism that manages tourism policy at the national level. It has six sections and promotes the development of local destinations as well as inbound tourism. The Japan National Tourism Organization (JNTO) is an affiliate body with 21 overseas offices in major cities of major target markets. The JTA coordinates deregulation of visa and immigration procedures, which is said to have been a very effective approach for the Asian market. The agency also handles tourism statistics and manages policies for various licenses. Recently, it deregulated qualification and operation of vacation rentals. Regarding Source: JTA destination development, the agency encourages Figure 1.34: Japan Tourism Agency (JTA) – local governments to improve destinations in Organization Chart coordination with local tourism associations. Kyoto City: Tourism Bureau and its tasks include the following: Overview: The administrative and financial relationship between the Kyoto City Government • Protecting and developing tourism and the national government is very limited where resources; tourism is concerned. Essentially, there is no joint • Managing tourist facilities; operation or routine subsidy system between JTA • Promoting tourism (both domestic and and the Kyoto City Government, except for few overseas); pilot projects. However, the Kyoto City • Making the city attractive; Government formulates its tourism development • Promoting MICE; plans and carries them out within the overarching • Promoting dissemination of food culture in legal and strategical framework prepared by the Kyoto; and central government. • Improving the accommodations environment. Tourism Administration of Kyoto: At the city level, the Tourism MICE Promotion Office handles Kyoto City Tourism Promotion Council: The tourism policy and coordination. The Tourism Tourism MICE Promotion Office makes important MICE Promotion Office is under the Industry and decisions based on advice from the Kyoto City 39 Tourism Promotion Council, which guides the These MICE efforts facilitate the arrival of groups direction of the tourism promotion. This council of high-income tourists. Hosting large MICE consists of some 30 members in the academy, events such as COP 3, the Kyoto Convention held business, arts, tourism, and public administration, in Kyoto International Conference Center, also as well as some members selected through public promotes the reputation of Kyoto. The KCVB subscription. coordinates MICE activities across diversified MICE venues, including prominent hotels, the Kyoto City Tourism Association: The Kyoto City Kyoto aquarium, the Kyoto national museum, Nijo Tourism Association (KCTA) was established in Castle (World Heritage site), Ken-nin-ji Temple, 1960 as an affiliate of the Kyoto City Government, (Buddhist temple with many cultural properties) which closely collaborates with KCTA through and many others. outsourcing the contraction of surveys, etc. The KCTA has some 1,400 members and charges a Effective and Efficient Demarcation for membership fee, which is one of the major Destination Management Organization (DMO): revenue sources of the organization. Most KCTA The Tourism Authority of the Japanese members are from the tourism industry and Government registered KCTA as the Destination represent a range of subsectors, including tourist Management Organization on November 28, 2017. agency, operator, accommodation, souvenir, Previously, some functions of prospective DMO, restaurant, facilities, transportation, and other especially inbound tourism management, were subsectors. In 2017, KCTA was designated as the carried out by KCVB. After KCTA became the Destination Management Organization (DMO) of DMO, the following functions were shifted from Kyoto. The institutional chart of KCTA is shown in KCVB to KCTA to avoid duplication: Figure 1.35. • Coordination of shopping environment for inbound tourists The executives of the association include four • Human resource development of local officers from the Kyoto City Government who guides in foreign languages facilitate close collaborate between the city and • Surveys on overnight stay of inbound KCTA. Approximately 60 people work at the office, tourists information centers, cultural property designation • Multi-language call center to support management sights, and stalls in Nijo Castle. inbound tourists • Management of official websites for inbound tourists • Overseas information dissemination • Exhibitions at overseas tourism fairs • Support of mass media from overseas The functions were transferred over a two-year period (2017-18). Demarcation among tourism organizations is now appropriately coordinated by the Kyoto City Government for increased effectiveness and efficiency. (5) Main Achievements Overview: Using the results of comprehensive tourism surveys carried out for more than 60 Source: Kyoto City Tourism Association consecutive years, the Kyoto City Government Figure 1.35: Kyoto City Tourism Association – has sought to address tourist dissatisfaction and Organization Chart other challenges in order to achieve sustainable Kyoto Convention Bureau (KCVB): This bureau tourism. The Tourism Promotional Plans every was established in 1982 with funding from Kyoto five years have focused on these challenges. The Prefecture, Kyoto City, and Kyoto Chambers of biggest policy challenge has been the shift from Commerce. KCVB has some 300 patron members quantity to quality. A summary of Kyoto City’s and principally carries out three main activities: major tourism achievements is offered below, dissemination of Kyoto culture; promotion of followed by a section on the specific measures international tourism in Kyoto; and convention used to determine quality. (MICE) support. 40 (A) Summary of Major Achievements Overnight Stay (Domestic + Inbound): The annual number of overnight visitors to Kyoto City reached Verifiable Indicators: Kyoto City Government a record high of 14.15 million in 2016, a 143% has undertaken the comprehensive tourism increase from 2001. survey since 1958. This survey includes various questions for domestic and inbound tourists on items such as length of stay, expenditure, 16.00 satisfaction or dissatisfaction, and many others. 14.00 The survey is conducted in each season. Sample Millions 12.00 achievements showcased by the survey data are introduced below. 10.00 8.00 Visitor Numbers: The annual number of visitors to 6.00 Kyoto City has been around 55 million for three 1992 1995 1998 2001 2004 2007 2010 2013 2016 consecutive years since 2014. While the definition of “tourist” by World Tourism Organization (WTO) Year is “overnight visitor,” the Kyoto City Government Source: Kyoto City Government counts those who visit but don’t stay overnight as Figure 1.38: Overnight Visitors (Domestic + tourists. As per the figure below, between 1995 Inbound) and 2015, Kyoto experienced an 67% increase annual visitors, with tourism one of the key growth Overnight Stay (Inbound only): The number of industries in Kyoto. overnight inbound visitors reached a record high of 3.18 million in 2016, an increase of 618% from 60 2011. 55 3.50 50 Millions 3.00 45 2.50 40 Millions 2.00 35 1.50 30 1.00 1992 1995 1998 2001 2004 2007 2010 2013 2016 0.50 Year 0.00 1998 2001 2003 2004 2007 2010 2013 2016 Source: Kyoto City Government Figure 1.36: Annual Visitors (Domestic + Year Inbound) Source: Kyoto City Government Seasonality: Seasonality is the fluctuation of Figure 1.39: Overnight Inbound Visitors tourists in a given year. The seasonality ratio is Tourist Expenditure: In 2016, the amount of travel defined as “visitors in lowest month/visitors in consumption was JPY 1,086 billion, exceeding highest month.” In Kyoto, this ratio was 3.4 in JPY 1 trillion for the first time and showing an 1997, indicating a worrying difference between increase of 114% from 2010. Thus a key target of low and peak seasons. However, recognizing this the recent Kyoto Promotion Plan 2020 was issue, Kyoto City has deployed various initiatives achieved four years in advance. to create attractive tourism programs in the low season, such as Kyoto summer/winter campaigns Millions and special events, and it had successfully 1,200,000 reduced the seasonality ratio to 1.5 by 2016. 1,000,000 800,000 4.00 3.50 600,000 3.00 400,000 2.50 200,000 2.00 1.50 0 2001 2004 2007 2010 2013 2016 1.00 0.50 0.00 Year 1998 2001 2004 2007 2010 2013 2016 Source: Kyoto City Government Figure 1.40: Tourist Expenditure Source: Kyoto City Government Figure 1.37: Tourism Seasonality According to the Kyoto City Government, the city’s gross municipal product (GMP) in 2014 was JPY 41 6,163 billion. The Kyoto City Government has supported the tourism business sector to increase 100% the per-trip expenditure of tourists, with 80% Very Satisfied approaches such as these: • Focusing on experience-based tourism Satisfied 60% programs and products Slightly Satisfied • Cooperation to increase consecutive 40% Neither Agree nights Nor Disagree • Creating special events (seasonal, shrines 20% Slightly Dissatisfied and temples, etc.) Dissatisfied 0% Tourist Satisfaction: The Kyoto City Government’s 2011 2012 2013 2014 2015 2016 questionnaire survey collates data on tourism satisfaction on items including: Source: Kyoto City Government • Heritage Figure 1.42: Inbound Tourists Satisfaction • Nature and landscape Survey Results • Traditional culture • Spiritual calm The satisfaction level of inbound tourists is much • Cleanliness of the town and streetscapes higher than for domestic tourists. The results • Tourist information show that there are very few foreign tourists who • Public transport and traffic reported being dissatisfied or very dissatisfied. Encouraged by this evaluation, Kyoto City The overall compiled satisfaction results are Government and the Tourism Association are presented below. Among Japanese tourists, aiming to target high-end markets. approximately 11% reported an "average" or "less satisfactory" experience. The Kyoto City Residents’ Satisfaction: In addition, Kyoto City has Government and the Tourism Association a number of mechanisms to capture residents’ responded by focusing on the reasons behind satisfaction as well – including questionnaire these ratings and made an action plan to help surveys, a city phone line and Kyoto City Support address and respond to this dissatisfied Center, and active and engaged community proportion of tourists. groups. In one resident survey conducted in 2009, Kyoto City surveyed 3,000 local people in regard to tourism. This included sending questionnaires to participants and receiving replies through the 100% post. As noted, the Kyoto City Support Center Very Satisfied (including a city hotline to log grievances) has 80% received a large number of complaints from Satisfied residents about noise and garbage, prompting 60% stricter short-term rental regulations. This is the Slightly Satisfied first effort in Japan to mitigate potential issues 40% Neither Agree caused by increasing vacation rentals. Nor Disagree Slightly 20% Dissatisfied Aside from littering and noise caused by tourists, Dissatisfied residents point to congestion and overcrowding of 0% public transport (buses) and the change in retail 2011 2012 2013 2014 2015 2016 options; for example, the Nishiki food market used to be geared toward local customers, but it is now mainly patronized by tourists. Case study 7 Source: Kyoto City Government profiles some of the annoyances in a historic area Figure 1.41: Domestic Tourists Satisfaction of Southern Gion. The Kyoto City Government, Survey Results KCTA, and local shopping street associations are conducting mitigation measures to address residents’ concerns. Evaluation by Tourism Magazines: Kyoto City was ranked number one in Travel + Leisure magazine’s “World’s Best Cities for Culture” category in 2016; and it was ranked the “World’s Best City” in 2014 and 2015. Furthermore, it was ranked number one in tourist satisfaction for two years in a row (2017 and 2018) by Wanderlust magazine. 42 service will encourage further expansion of the (B) Shifting from Quantity to Quality – Measures and high-end hotel industry. Approaches Public-private partnership (PPP) Models: The Kyoto has achieved the above successes in part main role of Kyoto City Government is to through an important policy shift from a focus on coordinate between the public and private sectors, quantity (number of visitors and tourists) to quality and in particular to cooperate with private (spending and satisfaction). The Kyoto approach enterprises. For the off-season, the “Kyoto to delivering quality rests on two pillars, hard Summer/Winter Travel” program has created infrastructure (physical) pillars and soft seasonal campaigns and events with public and infrastructure (policy, regulations, human resource private transportation and travel agencies. The development) pillars: “Kyoto Restaurants Winter Special” provides special restaurant menus in February in Table 1.11: Pillars of Kyoto’s Quality Tourism collaboration with the food industry. Hard Infrastructure Soft infrastructure (Physical) (Policy, Regulations, HRD) Kyoto City is collaborating with the travel • Increase high quality • Kyoto Pride (seminars information site TripAdvisor to develop various accommodation etc.) materials for The Insiders’ Guide to Kyoto, • Provide incentives to • Human Resource published to promote Kyoto and disseminate investors in high end Development (HRD) educational material to tourists on manners and accommodation • Community development behavior. Kyoto City has also partnered with the • PPP models • Multinational hospitality gourmet information search site Gurunavi. • New visitor information • Shift to experience-based center and services tourism • Better signage • Marketing and promotion • MICE Strategy strategy and practice • Better tourism • Supporting Kyoto’s unique infrastructure intangible heritage • Diversify tourism products, • Supporting Kyoto’s and move to high-end creative industry • Whole of Government • Gender and youth aspects approach to improve • Targets to improve tourist traffic, urban transport, satisfaction and increase walking, city infrastructure, per-trip spending safety, food inspection, • DMO Model standards. Source: Kyoto City Tourism Association Hard Infrastructure (Physical) Measures: Figure 1.43: Private Sector Partnerships - TripAdvisor Increasing High-Quality Accommodations: Several luxury accommodations have recently Tourist Information Center and Services: In been built in Kyoto to provide high-quality addition to the main tourist information center services: (known as “Kyo Nabi”) located in Kyoto Station, which provides services in many languages, all 7- • Four Seasons Kyoto (2016) Eleven convenience stores and all Starbucks • Suiran Hotel Kyoto: The Luxury Collection coffee shops serve as part of a “Kyoto Machinaka (2015) Tourist Information” network. This approach has • The Ritz-Carlton Kyoto (2014) helped deliver more convenient and friendly environments for tourists. Providing Incentives to Investors in High-End Accommodation: To promote revitalization of the economy and local community development, Kyoto City institutionalized procedures to open accommodation facilities in certain urban and mountainous areas where hotels and inns were restricted; the goal was to attract high-end accommodation facilities offering high-quality services. Kyoto City developed an accommodation facility expansion and attraction policy in 2016 and established a professional consultation desk for accommodation business in 2017. This policy and 43 Source: Kyoto City Tourism Association The website of the Kyoto Convention & Visitors Figure 1.44: Kyoto Tourist Information Center Bureau provides full information about the size of The Kyoto City Government is preparing to roll out meeting facilities and meeting rooms at hotels, a new information system that uses a two- including capacity, various supports and services, dimensional code. If visitors take a photo of the and trends in tourism products. Three facilities in code at a cultural property site, their smartphone Kyoto City can accommodate more than 2,000 receives specific information on that site. This people, and two hotels with conference rooms can system will be applied to the cultural properties accommodate more than 500 people. designated or registered by the municipality. Each site has been equipped with an explanation board. In 2016, Kyoto hosted 269 international This new system will enhance and supplement conferences with 26,339 international and conventional information services. It will be 172,839 domestic participants. Among them, 14 implemented across 200 locations in Kyoto over events attracted more than 500 overseas the next two years and will be available in five participants, and three events attracted more than languages—Japanese, simplified and traditional 1,000 participants. Kyoto is a very popular Chinese, Korean, and English. international conference venue, second only to Tokyo in Japan. Improved Signage: A major project for the Improving Tourism Infrastructure: A major installation of simple and easy-to-understand challenge in Kyoto is traffic congestion. The city is tourism information signboards (in both Japanese prioritizing sustainable transportation modes, with and English) has been delivered and maintained a focus on walkability. For example, walking tours, across 400 locations since 2011. This project has programs, and events for both Japanese and helped promote walking routes, increased tourist foreign tourists (some provided by citizen satisfaction, and helped reduce private car use. volunteer guides) are helping reduce private car use. More accessible public transport is being MICE Strategy: Kyoto City’s MICE strategy, delivered through better mobile phone developed in 2010, recognizes the need to attract applications providing public transport information MICE events that can improve the branding and for tourists. A second issue is free Wi-Fi for reputation of Kyoto, increase civic pride, have a tourists. The Kyoto City Government and partners beneficial effect on the economy, and improve the have introduced the “KYOTO Wi-Fi” service quality of Kyoto as a tourist destination. Rather offering all tourists easy access to free, 24-hour than a pure increase in visitors, the MICE strategy Wi-Fi. seeks to target higher-spending tourists (as part of the shift from quantity to quality). Policies and Whole Government Approach: The Kyoto City projects to enhance MICE in Kyoto include: Government formulates comprehensive and integrated plans across disciplines to improve • Utilize subsidy systems: traffic, urban transport, pedestrian walkways, city  Provide funding to cover expenses for infrastructure, safety, food inspection, standards large-scale international conferences etc. One example is its “Walking City, Kyoto” with more than 500 attendants (up to strategy incorporating the sustainable transport, JPY 10 million) tourism, land use planning, education, and health  Provide funding to cover expenses sectors. associated with Kyoto gifts and souvenirs utilizing traditional industrial Diversifying Tourism Products and Moving to products as well as events such as High End: Kyoto City is creating diversified dancing, tea ceremony etc. (up to JPY tourism products to better address the balance 300,000) between peak and off-peak periods of the day. For • Invite internationally recognized hotels instance, there are morning sightseeing programs • Utilize the World Heritage site of Nijo (such as Zen meditation) and morning events in Castle and other temples and shrines as shrines and temples, as well as sightseeing event and reception venues programs at night (such as lit-up views). These • Promote ROHM Theatre Kyoto (Kyoto products have increased the total number of Kaikan) (opened in January 2016) tourists. • Promote reunions and wedding parties/ ceremonies The major light-up event is called “Hanatouro” • Invite the International Council of (paper lantern light-up), and every year it has Museums (ICOM 2019) dramatically increased tourist numbers. Moreover, • Promote efforts to expand and improve the number of tourists who want a more cultural the Kyoto International Conference Center tourism experience, such as renting and wearing a kimono or walking in the city, has been increasing for both Japanese and foreign tourists. 44 Soft Infrastructure Measures: Shift to Experience-based Tourism: The Kyoto City Tourism Association promotes an extensive Kyoto Civic Pride: Kyoto City has provided calendar of events to tourists and tourism education opportunities for citizens to learn more industries six months in advance. Examples of about their history, culture, and traditions, thus experience programs are shown below. increasing their sense of pride and responsibility. More directly, the city is encouraging various programs for experiencing Kyoto cuisine and traditional culture with local families. “All Kyoto” is the human resource development plan for Kyoto citizens that seeks to prepare appropriate personnel for sustainable tourism, thus increasing the number of tourists and enriching the travel experience. “Kyoto Machi Bika Nishijin Brocade and Japanese-Style Confectionery Daisakusen” (Kyoto City Great Beauty Strategy) is a collaborative cleaning event involving all citizens, business operators, and city officers. Human Resource Development: “Kyoto City Visitor’s Host” is a system of certifying guides who not only have good language skills but also have knowledge about culture, traditions, and attractions in Kyoto City. To gain the certification, participants need to undertake 45 hours of training, have knowledge of hospitality and guiding skills, and sit an oral examination. This system seeks to enhance tourist satisfaction and the quality of Wearing Kimono and Walking in the City Kyoto tourism. Source: Kyoto City Tourism Association Figure 1.45: Examples of Kyoto’s Experience- It is also important for the city to establish and Based Tourism Activities attract the best education institutes of tourism management in order to enhance human Marketing and Promotion: Kyoto City has 11 resources in the tourism industry. For instance, an overseas information centers worldwide. Each MBA in tourism and hospitality management has center offers tourist information about Kyoto City, recently been established by the Graduate School analyzes trends in the international travel market, of Management of Kyoto University. and carries out marketing and promotion. Community Development: Kyoto City takes an Kyoto City will further develop tourism marketing enabling and not a lead role in community and promotion in the future by utilizing tourism development. Under this approach, Kyoto citizens analytical skills cultivated from decades of create sustainable tourism activities based on experience. Sample marketing and survey and Kyoto civic pride. However, the relationships and analysis projects include: balance between different stakeholders are crucial • Strengthening of regional statistics – and a sensitive issue in Kyoto. The role of the collection and analysis in Kyoto city Kyoto City Government is to listen to different • Visitor questionnaires for visitors to ideas and collect information from stakeholders, cultural property special events and then adjust and develop sustainable tourism • Access analysis of tourism home pages plans. and social networking site (SNS) related to Kyoto City Multinational Hospitality: Kyoto City provides a “Kyoto Official Travel Guide” for overseas visitors Supporting Kyoto’s Intangible Heritage: As in 13 languages, and a 24-hour multilingual call demonstrated in this report, Kyoto City has many center in five languages. In addition, the magazine important intangible heritage assets, including Kyoto Recommends an audio guide for mobile festivals, performing arts, local cuisine, cherry- phones, and menus in restaurants are available in blossom viewing, and autumn leaf viewing. Based English. In regard to the tourist shopping on these assets, different types of tourism environment, tax-free shops increased nearly products are created. An excellent example is the eightfold between 2004 and 2017. To improve provision of premium-seat tickets for major transport accessibility, foreigner-friendly taxis and festivals to travel agencies, which offer special better public transportation maps in English have recently been rolled out. 45 tours for foreign tourists who wish to view a visitor satisfaction levels (and keeping them as festival with an English guide. repeaters), and how it will reconcile this conflict while securing the livability of its citizens. While Supporting Kyoto’s Creative Industry: Kyoto continues to make its best effort to Traditional crafting techniques cultivated over a comprehensively address these issues, this report long history have evolved into an innovative attempts to illustrate some key strategic directions modern industry. The Ordinance of Kyoto City for the city as well as the historical, cultural, Traditional Industry Revitalization Promotion was regulatory, and institutional mechanisms that are enacted in 2005 in order to revitalize traditional inherent to the Kyoto approach. industries and support the culture of Kyoto. In addition, various programs are available for With the surge in the number of overnight visitors, learning Kyoto traditional crafting techniques and Kyoto is facing swelling costs in tackling such culture as part of the city’s effort to promote issues as crowded hotels and buses and in experience-based tourism. improving public transportation systems. However, introduction of any kind of lodging tax has been Gender and Youth Aspects: Kyoto City has slow, represented by the careful, and relatively focused on attracting students on school late, introduction of a lodging tax in October 2018. excursions, and around 10 million students have In addition, due to the large increase in the visited Kyoto in the past 10 years. The aim is that number of tourists and surge in short-term students who visit Kyoto on school excursions will accommodations, an Ordinance of Short Term visit again with their families and friends as repeat Rentals (2018) is now in place, which is more visitors in the future. The number of female restrictive than the nationwide rules. It seeks to tourists has increased and has accounted for limit the renting out of residential properties to more than 60% of total tourists since 2003. protect existing residents and avoid a decline in their quality of life. Targets to Improve Tourist Satisfaction and Increase Per-trip Spending: Kyoto City has The lodging tax aims to provide quality services successfully utilized the results of its tourism and infrastructure, ensure environmental surveys to directly shape and develop its Tourism sustainability, and contribute to local economic Promotion Plans, with the analysis of results a key development. With 50 million visitors a year to input. The database of the comprehensive tourism Kyoto, the city could become a mass tourism survey, which includes data from 2001 and after, destination if such measures are not carefully put is a very useful tool to set future targets for in place. The tax reflects Kyoto City’s view that the sustainable tourism. city should be a good place to live and a good place to visit, and that both residents and visitors Destination Marketing Organization (DMO): should bear the cost of good infrastructure and a The Kyoto City Tourism Association (KCTA) was good environment. registered as DMO by JTA in 2016. In 2016, KCTA strengthened the system of the tourism The introduction of a lodging tax and enhanced association secretariat, in part by adding staff to regulation of short-term rentals are steps in the handle marketing. KCTA will further strengthen its right direction to keep the focus on quality of structure and functions in order to promote both tourism (i.e., quality of service, tourist satisfaction domestic and international tourism, secure the and spending) instead of quantity (i.e., focus on financial base, and develop strategies to deal with number of arrivals). Based on lessons learned various Kyoto City challenges related to tourism. from international experiences, these are inevitable steps for Kyoto; they may reduce the For the purpose of strengthening the marketing number of visitors, but should result in higher function, KCTA has appointed specialized staff spending and tourism receipts. (people who have engaged in marketing survey From the outside, it appears that Kyoto is striving and analysis work) to collect and analyze data, for a delicate balance: it seeks to ensure a develop attractive content, and enhance manageable increase in tourist numbers – through promotion. In addition, it will set up a new tourist broadening the spectrum of services provided, information/guide kiosk, a school excursion and shifting from affordable to higher-end, higher- consultation window, etc., for the convenience of quality tourism – while also seeking to ensure that tourists. quiet residential neighborhoods are not disturbed and reducing tourism annoyances in and around (6) The Future destinations (e.g. tourism manners and behavior, Pressing questions for Kyoto today include public transport congestion etc). The government Kyoto’s strategy to deal with rapidly increasing appears to have taken a bold step toward tourism (will the city continue tourism promotion or introducing a stronger beneficiaries-pay principle, put a cap on visitors), how the city will disperse i.e., moving away from primarily relying on the these visitors while simultaneously maintaining civic pride of Kyoto citizens to maintain the quality 46 of the attractions and the services, toward a more However, there is no doubt that Kyoto’s civic pride standard approach that allows the tourists has been and always will be central to its success. themselves to pay the costs for the enhanced It is a major and unique asset for cultural heritage quality of services provided. preservation and urban regeneration in Kyoto, one that helps support sustainable tourism. 47 2 Case Study Examples 2.1 Overview Chapter 1 acquainted readers with the evolution sustainable tourism. The locations include historic of Kyoto’s urban regeneration, cultural restoration, areas, including areas surrounding WHSs which and tourism development over the course of showcase how such areas can be developed in a several decades, particularly its best practice in comprehensive manner relevant to the livelihoods overarching policies, strategies, and structures. of residents, community collaboration, heritage legacy, and local economic growth. Other Chapter 2 will examine a series of eight case examples cover semi-brownfield areas and studies, two framed through the lens of cultural authentic cultural districts. In addition to these, heritage conservation of World Heritage sites two unique cases of intangible heritage are also (WHSs) within integrated Site Management Plan presented. topics, and six framed through the lens of cultural heritage protection, residents’ activities, urban • Case Study 3: Higashi-yama (Surrounding regeneration, and contributions to sustainable area of case study 2, WHS Kiyomizu-dera tourism. Temple) • Case Study 4: Downtown Area (Kyo- The first two cases are cultural heritage sites Machiya or historic townhouse regeneration) included in the “Historic Monuments of Ancient • Case Study 5: Intangible Heritage – Gion Kyoto,” which were inducted into the UNESCO Festival (festival located in the downtown World Heritage List in 1994. These cases highlight area of case study 4) cultural heritage restoration of World Heritage • Case Study 6: Kyoto Station West Area sites and are structured into consistent Redevelopment (semi-brownfield) subsections for ease of comparison and • Case Study 7: Southern Gion Area comprehension. Following an overview and (authentic cultural district) historical background, the subsections follow the • Case Study 8: Intangible Heritage – good Site Management Plans methodology, Gozan-no-okuribi Festival (Five Mountains including conservation plans, visitor management Fire Festival) plans, and institutional arrangements, and concluding with lessons learned: These six cases are structured into consistent subsections, broadly including scoping, planning, • Case Study 1: WHS Nijo Castle financing, and implementation. Outcomes and • Case Study 2: WHS Kiyomizu-dera Temple impacts are also discussed in a final section to highlight lessons learned. However, the intangible The other six case studies are framed through the heritage case studies follow a slightly simpler lens of cultural heritage protection, residents’ structure. activities, urban regeneration, and contribution to 8 Intangible Heritage - Gozan-no- 1 WHS Nijo Castle okuribi Festival [located across the five mountains of Kyoto] 1 4 5 7 3 2 2 WHS Kiyomizu-dera Temple 6 4 Downtown Area (Kyo-Machiya or historic townhouse preservation) 3 Higashi-yama (Surrounding Area of WHS Kiyomizu-dera) 6 Kyoto Station West Area 7 Southern Gion Area (Authentic 5 Intangible Heritage - Gion Festival Redevelopment cultural district) (located in the Downtown Area) Figure 2.1: Locations of the Eight Illustrated Cases 48 2.2 Case 1 – WHS Nijo Castle Source: Kyoto City Government (1) Overview and History History: Nijo Castle was originally opened in 1603 by Ieyasu Tokugawa, the founder of the Tokugawa Shogun Government. This government lasted for 265 years (1603-1868). Ieyasu Imperial Palace Tokugawa placed his government in Edo (currently Tokyo), although Kyoto was also a strategic location, given the presence of the Nijo Castle imperial family there. Many historic figures visited this castle, including Emperor Mizu-no-o and many feudal lords. In 1867 the last shogun announced his willingness to return political power to the emperor (restoration of imperial rule). Kiyomizu Temple Ownership of the castle shifted to the new Meiji Government, and the property was an imperial Source: Google base map villa from 1894 until it was granted to Kyoto City in Figure 2.2: Location of WHS Nijo Castle 1939. In 1940, the property was open to the public. In 2003 the castle marked its 400th anniversary. Renowned in Japan and abroad, Nijo Castle is a proud symbol of Japan and the Kyoto City Government, which have made significant efforts to ensure this important heritage is preserved. Location: Nijo Castle is located in downtown Kyoto, just half a mile from the former Imperial Palace (see Figure 2.2). At its periphery is built environment. Convenient access is provided by subway, with Nijo Castle Station nearby. Source: Kyoto City Government Figure 2.3: WHS Nijo Castle Aerial View 49 Unlike many prominent temples, Nijo Castle garden is designated as a Special Place of Scenic formed the lodging and fortress for shogun and Beauty. Moreover, Nijo Castle was registered as a high-ranking samurai officers. This castle did not World Heritage site in 1994. Designated or develop commercial aggregation as a temple town registered cultural properties areas are listed and would. Even now the castle is somewhat isolated shown below. from the surrounding environment. The total area Table 2.1: Nijo Castle Cultural Properties of the castle is 275,000m2; 8,000m2 are occupied by buildings. Year Designation or Registration 1952 6 buildings as National Treasure Cultural Heritage Properties: Nijo Castle in its 22 buildings as Important Cultural Property entirety has been designated a Special Historic 1953 Ninomaru garden as Special place of scenery Site; the Honmaru Palace (main enclosure), the 1982 1016 door paintings as Important Cultural Ninomaru Palace (secondary enclosure), and the Property paintings within are registered as National 1994 Whole property registered as World Heritage Treasures and Important Cultural Properties. The Source: Kyoto City Government Source: Kyoto City Government Figure 2.4: Nijo Castle Site: National Treasures/Important Cultural Properties (2) Site Management Plan municipal finances. Financing of the restoration works is detailed later in this section. (2a) Conservation and Restoration Plan Table 2.2: Nijo Long Term Restoration Plan Long Term Restoration Plan and Recent Restoration Examples: Since many traditional Batch / Buildings Year buildings are mainly made of wood, clay, and 1 Karamon 2011-13 paper, preventing degradation is a challenge. 2 Higashi-Otemon (Eastern Main Gate) 2014-16 Upon recognizing the need for fundamental 3 Ban-Sho (Guard House) 2015-17 restoration of the castle, the Kyoto City 4 Hon-Maru-Goten (Main enclosure palace) 2017-21 Government prepared a detailed plan and cost 5 Nino-Maru-Goten (Palace of Second +2022 estimation for full-scale restoration to commence enclosure) and Other 14 designated in 2011 and continue through 2030. This is the heritage buildings first major repair work since the castle was built Source: Kyoto City Government and represents a massive investment in the castle’s future. Profiled below are summaries, including before and after photos, of two of the recent restoration This Long-Term Restoration Plan 2011-2030 has works: Karamon Gate (2011-13); and Higashi- an estimated total cost of at least JPY 10 billion, Otemon (Eastern Main Gate) (2014-16). and therefore places a tremendous burden on 50 Source: Kyoto City Government Figure 2.5: Karamon Gate Before Restoration Source: Kyoto City Government Figure 2.6: Karamon Gate After Restoration (1) Restoration of Karamon Gate: The restoration As shown in Figure 2.5 and Figure 2.6, the roof of Karamon Gate was the first subproject of the required major conservation works. Specifically, Long-Term Restoration Plan and took place in the restoration, led by Kyoto City Government’s 2011-13. The gabled roof structure has thatching Nijo Castle Office, included: of cypress bark and the whole structure is • Repair of the decorative metal hardware; supported by two main pillars and four supporting • Roof thatching with cypress bark; and pillars. It is adorned with an abundance of • Repair of 37 engravings with 11,400 engravings and ornamental metal fittings. pieces of gold foil. 51 Source: Kyoto City Government Figure 2.7: Higashi-Otemon Gate Before Restoration Source: Kyoto City Government Figure 2.8: Higashi-Otemon Gate After Restoration (2) Restoration of Higashi-Otemon (East Main Table 2.3: Process Summary: Higashi-Otemon Gate): Semi-overhaul works as part of the Long- Gate Major Restoration Works Term Restoration Plan for Nijo Castle were undertaken in 2014-16. The last major repair work Activity Timing before this was replacement of roof tiles in 1950. 1 Subsidy Application to Agency of July, 2014 Cultural Affairs The Higashi-Otemon Gate’s roof is constructed of 2 Approval of Subsidy Application/ September, 2014 tiles in hip-and-gable fashion, with gables of Starting of works latticework, and the ridge of the roof is adorned 3 Visit and review by Restoration 3 times since with shachihoko (a traditional dolphin-like fish). Committee November, 2014 4 Visit and guidance by Agency of 3 times since The process for the 2014-16 restoration works is Cultural Affairs November, 2014 summarized in Table 2.3. The total cost of the 5 Guidance of Registered Skill Holders When necessary works was JPY 463 million, and the duration was 6 Completion of works March 2017 31 months. Figure 2.7 and Figure 2.8 show the Source: Kyoto City Government gate before and after the restoration. 52 Specifically, the restoration led by Kyoto City Visitors to the exhibition and storage house are Government’s Nijo Castle Office included: charged an entrance fee in addition to the castle admission fee. • Enforcement of understructure including seismic resilience; • Repairing of timber structures; • Repainting work of gypsum-plaster walls; • Recovering of metallic decoration with gold foil; and • Replacement of roof tiles (85% of the 24,500 tiles were replaced). Source: Kyoto City Government Figure 2.11: Nijo Castle Artwork Financing of Restoration Works: The national government provides a large subsidy for the restoration works. In Japan, the cost of restoring designated National Treasures and Important Cultural Properties is shared equally by the owner and the National Treasury. Source: Kyoto City Government Figure 2.9: Higashi-Otemon Gate Roof In order to supplement funding for Nijo Castle, a Restoration donation program has been established by the As shown in Figure 2.10 below, a temporary roof Kyoto City Government. By April 2018, the cover was used to protect the structure during the program had collected JPY 548 million. Donors semi-overhaul construction. Since Higashi- gain privileges in accordance with their donation Otemon Gate provides the main access to Nijo amount, with benefits including income tax Castle, visitor passage was enabled throughout exemption, admission passes (valid for 1-10 the restoration works. years), letters of appreciation, and guided tours to closed areas of the castle. The Kyoto City Government also leverages revenues from its Nijo Castle MICE Program. This program rents castle buildings and gardens for MICE events; due to the significant historical and cultural value of the location, rental fees are higher than for many other spaces in the city. (2b) Visitor Management Plan Visitor Numbers: Nijo Castle has been open to the public since 1940. 2,500,000 Source: Kyoto City Government Figure 2.10: Higashi-Otemon Gate During 2,000,000 2017 Restoration 1,500,000 Storage and Exhibition of Paintings: There are 1,000,000 over 3,600 screens in the National Treasure Ninomaru Palace, and 1,016 of those were 500,000 designated Important Cultural Properties in 1982. 0 To protect them from fluctuations in temperature 1970 1980 1990 2000 2010 2020 and humidity or ultraviolet rays, paintings were Source: Kyoto City Government replaced with replicas; the originals were Figure 2.12: Trend of Visitor Numbers preserved in the exhibition and storage house on the castle premises and periodically put on view. 53 Before 2017, the largest number of visitors was spread visitors throughout the busy day, including 2,114,754 in 1970. After that, the number into the evening: continued to decrease, reaching a low of 1,139,440 in 2000. However, it has since • Cherry Blossom (Sakura) Festival: increased to reach 2,439,079 in 2017, exceeding Lighting up of cherry trees from the end of the high of 1970. March to the middle of April; operation hours extend to 9:30 pm. Visitor seasonality at Nijo Castle for 2002 and • Castle Festival: Various events designed 2016 is compared below; the two graphs show to display the charms of cultural properties average visitor numbers and seasonality ratios. In FY2002, Nijo Castle received 1,187,622 visitors, Control of Visitor Numbers and Flow: with a monthly average of 98,623. The most- visited month that year was May (175,365 Overview: The Nijo Castle Management Office admissions) and the least-visited January (36,273 does not impose any specific restrictions on admissions), giving a seasonality ratio of 4.83. visitors to directly manage appropriate numbers at peak times. Nijo Castle is some 27 hectares in 200,000 size, which is large enough to accommodate FY 2002 Monthly Average: 98,623 thousands of visitors. Nijo Castle receives more 150,000 FY 2002 Seasonality Ratio: 4.83 than 20,000 visitors per day in peak season, though organized tourist groups typically visit Nijo 100,000 Castle for only 1.0-1.5 hours on average. 50,000 While visitor numbers are not restricted, the Kyoto City Government has taken a number of 0 comprehensive mitigation measures to address June August September October January November February May July March April December visitor flow and carrying capacity challenges, including the following examples: Source: Kyoto City Government (1) Queuing Area Management: Four ticketing Figure 2.13: Visitor Seasonality in FY 2002 counters are located beside the main gate, and tickets are sold manually with no online advanced However, by FY2016 the average monthly visitors ticketing system. At busy times, visitors need to had increased to 158,684. The most-visited month wait 20-30 minutes to buy a ticket, sometimes was April (268,769 admissions) and least-visited causing long queues and disorganization at the month was December (96,871 admissions), giving entrance/ticketing area and narrow sidewalk. a lower seasonality ratio of 2.77. This change indicates that Nijo Castle not only succeeded in To mitigate this problem, in 2015 the Kyoto City attracting more visitors, but also achieved better Government prepared a development balance and distribution across the seasons. improvement plan to expand the front square of Measures that have contributed to this Nijo Castle and maximize space, improve flow improvement are described below. and organization, and create a more pleasant waiting environment (Figure 2.15). This project 300,000 also aims to improve the outer appearance of the 250,000 FY 2016 Monthly Average: 158,684 cultural heritage. FY 2016 Seasonality Ratio: 2.77 200,000 150,000 100,000 50,000 0 June January August September October November February May July March April December Source: Kyoto City Government Figure 2.14: Visitor Seasonality in FY 2016 Tourist Promotion Campaigns: To attract more Source: Kyoto City Government visitors, particularly in the off-season, Nijo Castle Figure 2.15: Nijo Castle Front Square Plan holds various events. Two of these events help 54 Figure 2.16 and Figure 2.17show the visitor of Nijo Castle can accommodate 21 buses and entrance/queuing area and parking/drop-off area 140 cars in total. Bus parking used to be in front of before and after changes to improve visitor flow the main gate, but the Kyoto City Government and capacity. The Kyoto City Government has moved it further away so that arriving and waiting also moved bus parking away from the entrance visitors can now enjoy a view of the front of the to improve views of the castle for waiting visitors castle premises. and to reorganize the parking area. The Kyoto City Government promotes public (2) Parking and Access Management: The parking transport access to Nijo Castel via city buses and spaces located to the east, south, and northwest the subway to help mitigate traffic congestion. Source: Kyoto City Government Figure 2.16: Entrance/Queuing Area: Before and After Visitor Flow Improvements Source: Kyoto City Government Figure 2.17: Parking/Drop-off Area: Before and After Visitor Flow Improvements (3) Visitor Flow Management: The most crowded beside the large rest area. However, when a big area in the castle is Ninomaru Palace, the closest group arrives at the main gate the facilities are building to the main gate, while the rest of the site crowded. Disabled toilet facilities are available at is less congested. The Kyoto City Government three locations. places staff in the congested area to help manage visitor flow and help guide visitors to quieter areas. Information Services: The following are provided: The prohibition against photography in Ninomaru • Tour Guides: Japanese guides (JPY Palace also helps improve visitor flow (and at the 1,000) and English-speaking guides (JPY same time protects the door paintings). A future 2,000) are available at the comprehensive measure by the Kyoto City Government which is Information Center just behind the main coming into effect in April 2019 is adding a gate. separate charge for visiting the busy Ninomaru • Audio Guide Unit: Audio guides are Palace buildings; this would both help manage rented out at the visitor service office for flow and raise additional funds for restoration. JPY 500 and are available in six Facilities: A site and facilities plan is shown in languages (Japanese, Chinese, Korean, Figure 2.18, and key elements are described English, French, and Spanish). below • Brochures: Information leaflets including details on Nijo Castle’s history, major Toilets: Visitor toilets are located at four locations buildings, gardens, and facilities are also across the site, with the largest block located available in seven languages. 55 Source: Kyoto City Government Figure 2.18: Facility Guide Map of Nijo Castle Other facilities: Safety management: • Signage: Recommended visitor routes • Disaster Management: The management are indicated with signage in Japanese office conducts disaster drills periodically, and English. so in case of fire or earthquake, office staff • Benches and trash bins: There are 37 can guide visitors for safe evacuation. benches on the castle property, some • Safety During Restoration Work: Higashi- designed by students who won a Otemon Gate, which is the front entrance, competition. There are 13 trash bins was recently restored. Temporary roofs located at the toilet areas and along the were built over the structures to protect main tour route. gates from wind and rain during the repair. • Rest Area: The rest area includes a tea During the construction of the temporary shop, souvenir shop, lunch space, and roofs, the management office set a detour coin lockers. route to prevent visitors from going • Baggage Storage and Coin Lockers: through the gate (Kita-Otemon Gate was For a fee, visitors can store bags next to used as a temporary entrance). Once the the Information Center and at the rest temporary roofs were in place, visitors area; there are also paid coin lockers next were able to use the regular route, but the to the ticket counter and at the rest area. detour route was used again during the • Wheelchairs: Electric wheelchairs can be removal work. borrowed free of charge at the Information Center. 56 (2c) Institutional Arrangements Academic Committee: In 2013, the Nijo Castle Preservation and Improvement Committee was Nijo Castle Management Office: Nijo Castle is formed. Its nine members are experts in historic the only WHS managed and maintained by the preservation and serve as an advisory team on Kyoto City Government. As shown in Figure 2.19, Nijo Castle for the Kyoto City Government. Major the Nijo Castle Office is under the Cultural and restoration work is planned and implemented with Artistic City Promotion Office, which has the same their technical and academic guidance. status as the Culture Protection Section. Financial System: The Nijo Castle Office is part There are 27 full-time staff and three temporary of the Kyoto City Government fiscal system and staff working at the Nijo Castle Office, including does not have a separate account. This means staff for operations, maintenance, and restoration, the revenue of Nijo Castle goes directly to the among them four building restoration experts, four Kyoto City Government account. The Nijo Castle painting restoration experts, and five gardening management budget is likewise allocated from the experts (as of March 31, 2018). Kyoto City Government’s account. Kyoto City Government’s bureau chief in charge Ticketing and Revenue: Nijo Castle is managed of culture also serves as the director of Nijo Castle. under an ordinance prepared for it, and ticket In addition, there is a weekly coordination meeting admission price changes must be approved by the of the Cultural Heritage Officers of Kyoto City Municipal Council. Government regarding Nijo Castle’s management, and a representative of the Nijo Castle Office In fiscal year 2016, the total revenue of Nijo attends this meeting to provide information and Castle was some JPY 900 million, so over a 20- consult on issues for the property. year period revenues could amount to around JPY 18 billion. The 20-year restoration plan for the castle is estimated to cost over JPY 10 billion. The Site Manager (Bureau Head Kyoto City Government shares 50% of the cost of Cultural Affairs ) & Deputy Site Manager with the national government (i.e., each pays JPY 5 billion), suggesting effective financial General Affairs Staff management on the part of the city government. Producer for Culture- Table 2.4: Nijo Castle Admission Prices Tourism Coordination and Nijo Castle Operation Staff Category Fee/ person (JPY) Committee for General Admission 600 Conservation and Middle/High School Student 350 Improvement Management Staff Primary School Pupil 200 Primary School Pupil (Kyoto City) Free Over 70 years old Free Conservation & Improvement Staff Persons with disability certificate, etc. Free Source: Kyoto City Government Source: Kyoto City Government Socioeconomic Impact: In terms of Figure 2.19: Organization Chart of Nijo Castle socioeconomic impacts, the large-scale (US$10 Office million) restoration of this heritage complex offers some benefits: it has helped invest in jobs and In-house Teams for Restoration work: Uniquely particularly in local skills, such as specialist compared to other municipalities, the Kyoto City traditional carpenters. Nijo Castle also provides Government has a group of in-house building the area with a pleasant and educational place to conservation experts at the Nijo Castle Office. For experience cultural heritage, adding cultural value. the restoration work on the two gates described above, this in-house team handled planning, In terms of economic benefits for the local area, preparation of drawings, contract management, Kyoto City is now putting more of a focus on and supervising. capturing the potentially significant spillover effects of tourism for local economic development Aside from Nijo Castle, the cultural heritage in the area. Nijo Castle has traditionally been properties in Kyoto are not under the Kyoto City somewhat isolated from the surrounding area, but Government but are managed by private or the Kyoto City Government set up the Nijo Castle religious organizations. Restoration works of Neighborhood Revitalization Council in these properties are managed by the expert team September 2017 with the goal of bringing of the Kyoto Prefectural Government. economic benefits to the surrounding area. The council publishes a map and pamphlet showing shops, restaurants, and tourism spots around the 57 castle and is involved in other efforts to promote billion for the 20-year restoration period. Nijo Castle neighborhood revitalization. Specifically, it has collected admission fees, added fees for special museums, set up a (3) Lessons Learned donation program, procured MICE rental space income, offered seasonal events programming, (1) Long Vision and Plan for Restoration: The and secured national subsidies. Examples of Kyoto City Government prepared a Long-term MICE and promotional events for revenue Restoration Plan (2011-2030). Wooden heritage generation at Nijo Castle include a summer structures need regular repair, and long-term breakfast program in the WHS, space rental for planning and implementation of restoration work is wedding ceremonies and meetings, and therefore essential for efficient heritage protection. exhibitions, festivals, and Japanese tea The Kyoto City Government also has its own in- ceremonies. house restoration experts and an expert advisory committee to facilitate smooth and high-quality (3) Dealing with Visitor Flow Challenges: Nijo restoration works. Castle has faced difficulties with visitor flow, including queuing congestion and a poor waiting/ This long-term plan, which requires frequent entrance environment. However, as described restoration activity, develops human resources for above, incremental improvements have been future efforts. For example, in the past, staff delivered through a clear plan. A holistic approach tended to underestimate the time needed for addressing traffic management, visitor designing, planning, and implementing management, parking, entrance fees, waiting area earthquake resilience measures, causing delays. environment, and visitor views has helped However, with the knowledge gained through mitigate the issues. The plan to take further experience, such measures are now planned and measures for improving services, such as incorporated more smoothly. introduction of advance tickets and electronic tickets, are under consideration. (2) Revenue Management and Meeting High Restoration Costs: The Kyoto City Government has demonstrated strong revenue management in its effort to secure the required more than JPY 10 58 2.3 Case 2 – WHS Kiyomizu-dera Temple Source: Kyoto Prefectural Government (1) Overview and History slopes of Mt. Otowa. The temple buildings are laid out in an inverted L-shape and are arranged to History: Founded in the eighth century, Kiyomizu- make the best use of limited and constrained dera Temple is one of the oldest temples in Kyoto. space. Over the 12 centuries since the start of the Heian Period, Kiyomizu-dera Temple has been a sacred place for the worship of the deity Kannon, represented in the material work by the unique grandeur of the temple buildings and scenic surroundings. As a holy place where Kannon's great compassion prevails, the temple has long been open to citizens of all classes. Kiyomizu-dera Temple is an integral part of Japanese culture, mentioned in many early and more recent literary works. History books and literature describe how large numbers of people have enjoyed visiting Kiyomizu-dera Temple throughout its history. Since the temple’s original construction, most of the buildings have been repeatedly destroyed by major fires. Thanks to the assistance of the Source: Google Base temple's faithful, they were rebuilt time and time Figure 2.20: Location of Kiyomizu-dera Temple again. Most of the present buildings were The temple receives 5 million visitors annually. reconstructed in 1633. The stage of the main building has an excellent view over the town, and allows visitors to see Location and Overview: Kiyomizu-dera Temple natural and seasonal attractions such as cherry is located in the ward of Higashi-yama, literally blossoms and autumn leaves, as well as religious meaning “Eastern Mountains.” Kiyomizu-dera events. The surrounding town is bustling with Temple covers an area of 130,000m2 on the 59 narrow streets and hundreds of shops and drawings of the original construction to help in restaurants. restoring the building to its original state. The temple’s property management and One recent example is the restoration work on the ownership are under the Kiyomizu-dera Temple Amida Hall (Amida-do) roof. The Amida Hall is a Association (a religious corporation). The temple building dedicated to Amitabha Tathagata. When a has more than 30 buildings and monuments, and survey was undertaken for dismantling and repair, many of them are designated or registered as it was discovered that before the current tiled roof cultural property by the national, prefectural, or structure (see Figure 2.21), there used to be a municipal government. thatched roof with cypress bark. The main building was reconstructed in 1633 after a fire disaster. In 1994, Kiyomizu-dera Temple was registered as a component of “Historic Monuments of Ancient Kyoto” in UNESCO World Heritage. (2) Site Management Plan (2a) Conservation and Restoration Plan Restoration Overview: For heritage buildings such as those at Kiyomizu-dera Temple, which are made of wood, clay, tile, and tree bark, deterioration is inevitable, and restoration and repair works are required. Kiyomizu-dera Temple Source: Kyoto Prefectural Government is typically subject to three levels of restoration Figure 2.21: Amida Hall Before Overhaul works: Restoration (Modified Tiled Roof) To return the building to its original condition (see a) Routine Repair: The Kiyomizu-dera Temple Figure 2.22 below), the Kiyomizu-dera Temple Association undertakes routine repairs for minor Association along with the Kyoto Prefectural defects and covers all necessary costs. However, Government undertook major restoration works even such small repair work must be reported to the national government through the municipal This involved the traditional craft of restoring the authorities. hiwadabuki roof covered in cypress bark to protect the building from rain and wind. The cypress bark b) Mid-term Restoration and Repair: For semi- is peeled from a cypress tree by an expert overhaul, including partial disassembly and bark craftsman using a special technique called thatched roof repair, work is typically required “motokawashi,” which involves climbing the tree every 30 to 40 years. with ropes and peeling the bark. The hiwadabuki roof is then built by being covered with pieces of c) Large-scale Overhaul Restoration: Every 150 to cypress bark, which are shifted into place little by 300 years, a complete dismantle and little. reconstruction is required. Roof tiles require replacement every 100 years. In addition to the financial burden of an overhaul restoration, the availability of traditional materials, techniques, and skills is a big issue. Key Restoration Techniques and Examples of Recent Restoration Works Discovering and Restoring the Original Design: Significant efforts have been made to check the original design of each building and the changes in the design over time. When dismantling and disassembly restoration is undertaken, the disassembled parts are carefully examined and Source: Kyoto Prefectural Government analyzed. Figure 2.22: Amida Hall After Overhaul Restoration (Original Thatched Roof) If the heritage study reveals that the current Enhancing Seismic Resistance: For all major structure is a result of significant modification and restoration projects, every targeted building not the original, heritage engineers prepare undergoes diagnosis to assess the level of 60 seismic resistance. If the building has a strong Figure 2.24. The central government through its resilience level, no reinforcement is needed. Agency for Cultural Affairs approved this However, if weakness is found, additional seismic restoration plan, and the series of works started. reinforcement is undertaken. Kiyomizu-dera The largest-scale and final restoration work of the Temple utilizes engineering techniques such as plan is the ongoing re-roofing of the main building, foundation anchor bolts – metal reinforcements to which cost JPY 2 billion over a 39-month concrete reinforced foundations. Diagonal steel restoration period. brace beams may also be used, as they were in Kiyomizu-dera’s Oku-no-in Temple (Figure 2.23). This long-term plan represents a shift in the planning approach of the Kiyomizu-dera Temple Association and Kyoto Prefectural Government for the site. Previously, restoration had been planned and delivered on a piecemeal basis, project by project, according to restoration necessity. However, in order to better address challenges related to budget, skills, human resources, and management, a long-term plan for a series of projects is now favored. Self-Financing and National Subsidy: The national government subsidizes the restoration cost, making a contribution of 50%-85% Figure 2.23: Seismic Enhancement of Oku-no- depending on the type of works and financial In condition of the property owner. In the case of the Restoration Planning: Ten years ago, with Kiyomizu-dera Temple Ten-Year Restoration Plan support from the Cultural Property Protection (2008-2018), the Temple Association bears 45% Section of the Kyoto Prefectural Government, the of the total cost with a 55% subsidy. The Temple Kiyomizu-dera Temple Association prepared a Association does not conduct any particular Ten-Year Restoration Plan (2008-2018). The plan fundraising activities for the conservation work. included major works for nine heritage buildings at an estimated cost of JPY 4 billion, as shown in Year / Allocation of 4 Billion Yen Budget Building Restoration / Restoration 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 Name Repair Type Team JPY 104 JPY 200 JPY 200 JPY 500 JPY 500 JPY 500 JPY 500 JPY 450 JPY 400 JPY 400 JPY 246 Million Million Million Million Million Million Million Million Million Million Million Hondo Roof Repar (partial) Contracted Team (Main Hall) Temporary In-house Asakura-do Partial Disassembly Kyoto Prefectural (Asakura Hall) Repair Gov. Team Temporary In-house Todoroki-mon Full Disassembly Kyoto Prefectural (Middle Gate) Repair Gov. Team Full Disassembly Uma-todome Contracted Team Repair (Horse Stalls) Temporary In-house North Main Full Disassembly Kyoto Prefectural Gate Repair Gov. Team Shaka-do Roof Replacment / Contracted Team (Shaka Hall) Paint Repair Partial Disassembly Amida-do Repair / Paint Contracted Team (Amida Hall) Repair Oku-no-in Partial Disassembly (Inner most Repair / Paint Contracted Team Temple) Repair Koyasu-no-tou Temporary In-house Full Disassembly (Child-birth Kyoto Prefectural Repair Pagoda) Gov. Team Source: Kyoto Prefectural Government Figure 2.24: Kiyomizu-dera Temple Ten-Year Restoration Plan (2008-2018) 61 Amida-do Exterior – Before Restoration Amida-do Exterior – After Restoration Amida-do Interior – Before Restoration Amida-do Interior – After Restoration Oku-no-in Exterior – Before Restoration Oku-no-in Exterior – After Restoration Oku-no-in Interior – Before Restoration Oku-no-in Interior – After Restoration Source: Kyoto Prefectural Government Figure 2.25: Examples of Restoration Works at Kiyomizu-dera Temple (Before and After) 62 (2b) Visitor Management Plan On the approach to the temple, the narrow streets of Highashi-yama in effect manage a steady flow Visitor Numbers: According to the Kiyomizu-dera of visitors. This historical town (profiled in a later Temple Association, the temple received 6 million case study) has many souvenir shops selling visitors in 2016. The Temple Association currently Kyoto dolls and Kiyomizu pottery in front of estimates that this number is likely to drop to 5 traditional houses. Some shops operate million in 2018 due to the restoration works (in workshops in their backyards where they produce part because some visitors might think the temple traditional crafts. Furthermore, the temple town, is closed). On a typical peak-period day the as the buffer zone and entrance to the WHS temple receives 25,000 visitors; in the autumn, temple, is able with its narrow bustling streets to when evening viewing is allowed, this can rise to absorb crowds and aid the carrying capacity of the 40,000 visitors per day. site overall. Even at the busiest times, as a religious site the temple cannot close its doors to visitors; but it does employ various measures to help manage visitor flow, access, and seasonality (spreading the peak), as described below. Visitor Flow Management: The temple has a precinct of 130,000m2 and can disperse visitors to many highlights across the premises. A one-way circuit helps to ensure a smooth flow of visitors. The circuit route is some 4m wide and can accommodate significant numbers of visitors. Figure 2.27: Kiyomizu-dera Temple Narrow and Bustling Approach Streets A Shop Owners and Business Society meets on a monthly basis, and the Kiyomizu-dera Temple Association works closely with its members. The society has good relations with tour operators and can provide the temple with useful information on tour operator patterns and issues. In turn, the temple provides the society with information on the restoration works and events. The Kiyomizu-dera Temple Association deploys 10 attendants to help manage pedestrian and vehicle flow, more during special events. The Temple Association also has one in-house staff member in charge of pedestrian and traffic control planning; this person works closely with local businesses to establish and reconfirm the busy times and locations in order to position attendants in optimal locations. Source: Kyoto Prefectural Government Figure 2.26: Kiyomizu-dera Temple Site Access Management: There is no train or Illustration subway station nearby. Individual tourists use city buses or taxis, and groups of visitors come on Since the temple is located in a hilly area, there organized bus tours. The Kyoto City Government used to be many steps spread across the temple offers car parking but this is not sufficient in peak site. It took the temple 10 years to complete a season. The parking currently includes spaces for flat/accessible circuit route convenient for 55 buses and 59 private cars across three parking wheelchairs as well as vulnerable pedestrians. lots. Parking is a serious challenge for the temple, Since every feature, including road gap and step, and innovative measures are being considered to is a part of the cultural heritage, any change in the address it, such as having certain days for buses original form needs to be approved by authorities. only. 63 More strategically, Kyoto City is promoting the figures as well as through money provided by city’s walkability. As there are significant heritage visitors (donations). It is common practice in clusters in Higashiyama ward, especially around Japan for visitors praying at temples and shrines the Kiyomizu Temple area, the Kyoto City to give a monetary donation in offering boxes. Government has developed various mechanisms to assist with walkability in the area, including a Until 1950, admission to Kiyomizu-dera was free. well-planned and controlled townscape, traffic Then the catastrophic Typhoon Jane hit Kyoto and control, high-grade pavement, signage, and toilet Kiyomizu-dera, damaging many of the temple’s facilities. If the Higashiyama area as a whole can building and forcing the temple to borrow money better absorb tourists, it can help reduce visitor to recover from the devastation. For the first time concentration at prominent tourist spots. in its history, the temple introduced an admission fee system, of JPY 10 per person. As a result of Peak Period and Seasonality Management: collecting admission revenue, the temple was able to pay back its debt. The Kiyomizu-dera Temple Management of Community-led Night Viewing: Association then set up a dedicated emergency The temple’s policy allows seasonal night viewing, fund to prepare for future shocks and stresses, which is managed not by the temple staff but by and it still maintains and replenishes this fund to the temple town community. Nighttime ticket booth this day. operation, safety, attendants, and equipment operation is managed by a community volunteer Admission Charge and Total Amount: The current group while the temple staff goes home. Shops in admission ticket fee is JPY 400 for adults and JPY the temple town open their business in 200 for children. No group reductions or other accordance with this temple night shift. The exemptions or discounts are available. temple town community does not receive any Approximately 10% of visitors who come to Kyoto portion of the admission fee for the seasonal night also visit Kiyomizu-dera. Thus if Kyoto receives 60 shift. million visitors per year, the temple can expect around 6 million visitors per year. Annual The solidarity between the temple and admission revenue is some JPY 2 billion. After stakeholders of the nearby town(s) in Highashi- subtraction of management and operation costs, yama is mutually beneficial. While the admission the temple can replenish its restoration and fee to the temple is small, visitors spend much emergency funds. more in the area for food and drink, souvenirs, and tourist attractions. Both parties work together Fire Prevention and Safety Measures: Fire and maximize the local economic benefits. prevention and safety is a critical challenge for Kiyomizu-dera Temple. Historically the temple has Off-season Events: Winter is off-season for suffered from large-scale fire damage over 10 Kyoto’s tourism industry, so Kiyomizu-dera Temple times. Over a long period of time, a participates in initiatives led by Kyoto City and its comprehensive fire prevention system has been affiliates that seeks to encourage visitors during developed that is also unobtrusive for visitors, as the winter in order to reduce the gap between the profiled below: high season and low season. Two examples of winter programming include: Water Tank and Hydrant Pipe: A water tank with a volume of 600 tons is located on the rear hill of • “Kyoto Winter Journey Campaign”: Parts the temple, and a hydrant pipe network of 4km is of the temple usually kept closed are drawn from the water tank to the heritage opened for visitors. buildings. This system has town engine pumps • Annual events in winter: Frequent events that work without electric power supply. Another are held in December-February, with event water tank – with a volume of 1,500 tons and information disseminated across different belonging to the Kyoto City Government – is media. located nearby to the south of the temple. This Kyoto City Government hydrant system can be Ticketing: connected to the temple piping. History of Admission Charge: Many temples in Fire Engine Access: There is one access road to Japan have parishioners or dedicated temple the temple for fire engines (parallel to the main supporters. They financially support the temple and narrow busy shopping street). However, while the temple preaches to them and holds access has been a challenge in the past, as the funerals or memorial services for their family final 10m to the temple were steep steps. These members. However, some famous temples, were converted to a road slope to provide better including Kiyomizu-dera, do not have parishioners. access. Access for fire engines was also improved Throughout its history, Kiyomizu-dera has by widening the route. The Kyoto Prefectural survived through the patronage of prominent 64 Government is looking to widen other access are assigned to the Temple Association Office, routes to the site in the future. with the rest deployed on site. Their task demarcation is flexible, and the Temple Lightning Rods: Lighting strikes to the heritage Association does not define departments and structure are common, so lighting rods are used sections as such. Tasks include property and maintained to prevent fire damage. maintenance, external relations, religious and tourist events, ticketing, visitor management, and Roof Sprinklers: Some of Kiyomizu-dera Temple’s attending. At top-level management, three monks major heritage buildings have roofs thatched with as temple executives oversee all aspects. cypress bark, which easily catches fire. These buildings are equipped with specialized roof Highashi-yama Area Stakeholders: Kiyomizu- sprinklers. dera Temple Association undertakes consultation with key stakeholders in the town area (Higashi- Local Security Brigade and Drill: The temple yama). Three notable examples include: together with the Shop Owners and Business Society organizes a volunteer security brigade. • Consultation with citizens living on the Periodically the security brigade undertakes drills surrounding mountainside who carry out for firefighting, visitor evacuation, and first aid. regular maintenance of the mountainside buffer zone (citizen led). Disaster Management and Safety Measures: • Consultation with local businesses Earthquakes have done substantial damage to the through the local Shop Owners and temple land and buildings in the past. When major Business Society, who assist with conservation works are undertaken today, the monitoring of visitor numbers and flow and target building structures are diagnosed in detail with management issues and mitigation. from a seismic risk/strength perspective. If the • Community-led management of night strength is not sufficient, structural enhancement viewing (as earlier described). is planned, first utilizing conventional methods and then if needed adapting more modern Kyoto Prefectural Government: The Kyoto technologies so they can be concealed. Prefectural Government has had a relationship with the temple for more than 120 years. Its role is The groundwork of traditional buildings is made of chiefly twofold: tamped earth and gravel, with the foundation stones simply laid on the basement and the pillars • Restoration Technical Assistance: Long- placed on the foundation stones without binding. term restoration planning, in-house design With this traditional method, there is a high and engineering, and supervision of chance of sinkage, and strong winds can damage contractors the pillars. Thus, as part of the conservation work • Restoration Financial Management: of the Nio-mon Gate (Two Deva Kings Gate) that Subsidy application to central government, is exposed to strong winds, whilst maintaining the the Prefectural Government’s financial original traditional methods, minimum support, and appropriate price contemporary improvements were introduced - management of contractors, etc. reinforced concrete was adapted to the groundwork for measures against wind, and In 2008, following the preparation of the Long- foundation stones and wooden pillars were then Term Restoration Plan (2008-2018), the Kyoto fixed with steel connectors. Prefectural Government set up a dedicated site office for the series of restoration works. The This temple is built in a hilly area, where heavy number of stationed government staff ranges from rains and earthquakes can lead to landslides that 2 to 10 heritage conservation experts/engineers, damage property and endanger human lives. In depending on the requirements of the current response, the Temple Association and local works. communities manage and take care of steep slopes and take care of forest management on the Furthermore, from time to time the Temple rear mountains to help mitigate the issue. Association pays for additional contracted technical expertise to support the Kyoto Prefectural Government when the volume of (2c) Institutional Arrangements restoration works is very large. Kiyomizu-dera Temple Association: The Operations and Maintenance: Day-to-day temple’s property management and ownership is maintenance work of the heritage buildings is under the Kiyomizu Temple Association, which is carried out by an in-house carpenter, with the a religious corporation with eight monks and temple covering all costs. Cleaning of the around 100 full-time and part-time staff. Ten staff premises and heritage buildings is also 65 undertaken by temple staff. In addition, school they address disaster risk management and excursion groups sometimes offer voluntary handle nighttime visitor operations. The temple cleaning services. Other operations and town, as the buffer zone and entrance to the WHS maintenance measures around fire and disaster temple, absorbs crowds to aid the carrying management have been described above. capacity of the site. The shopping area of the temple increases tourism expenditures and (3) Lessons Learned contributes to the economic growth of the city. This will be further explored in the next section, (1) Decentralized Ownership and Legacy: The Case 3 – Higashi-yama (surrounding area of WHS temple’s property management and ownership are Kiyomizu-dera). under the Kiyomizu-dera Temple Association (religious corporation), not the city or prefectural In terms of socioeconomic impacts, the large- government. The temple’s monks and staff have a scale restoration works at this heritage site offer strong sense of ownership and dedication to the some benefits: they have helped invest in jobs, site, which drives their excellent management and particularly in local skills such as specialist restoration of more than 30 buildings and traditional carpenters. The cultural value and monuments. Alongside other local stakeholders of social benefits of the preservation of Kiyomizu- the temple, including temple town residents and dera Temple heritage include conserving this the Kyoto Prefectural Government, the legacy and important site for future generations and providing traditions of Kiyomizu-dera Temple dating back a pleasant and educational place to experience over 1,200 years are being carefully passed down local cultural heritage. Many school children visit to future generations. the site each year. (2) Long-Term Planning and Preparation: The benefits of investing in heritage for livability, Ongoing restoration works are based on a job creation, and local economic development in comprehensive 10-year plan (2008-2018) that is the temple town area include spillover effects of supported by the Agency for Cultural Affairs, part tourism on local economic development; these will of the national government. A shift has been be further discussed in the Higashi-yama case effected from piecemeal restoration to a more study. The many tourists moving through the comprehensive approach. The temple’s heritage narrow streets of the temple town help to maintain structures need regular and specific intervals of jobs in the area’s shops and restaurants. Close skilled repair and restoration; therefore long-term cooperation of the local community through the planning and implementation of restoration work is Temple Town Association helps maintain a essential for efficient heritage protection. The balance of benefits for both visitors and residents. Kyoto Prefectural Government also has its own in- house restoration experts to advise, support, and The association is active and supports historic supervise works, which contributes to smooth and preservation, a sense of community, and local high-quality restoration. identity. The cultural value of the historic area and WHS is embraced and cherished. A good balance (3) Collaboration with the Public Sector: The is thus maintained between the livelihoods of temple keeps a close relationship with relevant residents, community collaboration, heritage local and national authorities, including the Kyoto legacy, and local economic growth. Prefectural Government and the Agency for Cultural Affairs, particularly to deliver successful (5) Fire Prevention and Safety Measures: Fire restoration works. However, there have been prevention and safety is a critical challenge for some challenges; for example, the temple wanted Kiyomizu-dera Temple. Historically the temple has to set up a barrier-free accessible visitor route on suffered from large-scale fire damage over 10 the site using universal design, but this took many times. Over a long period of time, a years of negotiation and approvals until it was comprehensive fire prevention system has been finally completed. developed that is also unobtrusive for visitors. (4) Tourism Effects and Socioeconomic Impacts: Kiyomizu-dera Temple and its temple town in Higashi-yama are close allies. Together, 66 2.4 Case 3 – Higashi-yama (Surrounding Area of WHS Kiyomizu- dera Temple) Source: https://www.klook.com/zh-TW/activity/632-kyoto-backstreet-cycling/ Temple Town View from Kiyomizu-dera Temple (1) Overview bustling streets that absorb crowds and aid the carrying capacity of the site overall. Introduction and Linkage with Kiyomizu-dera Temple: Case 3 focuses on the town area Figure 2.28 outlines the location of the area of surrounding the WHS Kiyomizu-dera Temple focus near the WHS Kiyomizu-dera Temple, (Case 2) in Higashi-yama. With the temple including the narrow streets of the temple town receiving up to 40,000 visitors per day in the area with many shops and attractions. It also busiest season and some 5-6 million visitors per shows the Sanneizaka district designated as a year, the temple town and the surrounding area “Preservation District for Groups of Historic hold great importance. The close relationship Buildings,” which will be profiled in more detail in between the temple town and Kiyomizu-dera this section. Temple – in terms of socioeconomic benefits, Example Temple cultural heritage, and urban regeneration as well town streets with as community collaboration – will be discussed. shops/attractions (some within Sanneizaka Sanneizaka Preservation District The area itself is an important historical Preservation for Groups of Historic District Buildings townscape. It lends itself to study because of the (rough outline) comprehensive way that townscape conservation and management around the WHS are handled – that is, in a way that relates to the livelihoods of residents, community collaboration, heritage legacy, and local economic growth. Kiyomizu-dera Kiyomizu-dera Temple Parking (Bus/Car) Location: The area of Higashi-yama, literally meaning “East Mountains,” holds a cluster of Bus and car historic temples and shrines. The WHS Kiyomizu- access road dera Temple itself is located on the eastern (visitors walk last 250m to hillside of Higashi-yama. On the approach to the Temple) temple, the narrow streets of the Higashi-yama area in effect manage a steady flow of visitors. Source: Google Earth base map Furthermore, the temple town, as the buffer zone Figure 2.28: Higashi-yama (Surrounding Area and entrance to the WHS temple, has narrow of WHS Kiyomizu-dera) 67 (2) Scoping tailored policy tools. One such tool is the comprehensive 2007 Landscape Policy, which Vision and Importance: This case study focuses covers building height, design of buildings, on the area in the vicinity of the WHS Kiyomizu- surrounding scenery and views, outdoor dera Temple to better understand a key example advertisements, and historical streets. of Kyoto City’s conservation of the environment around its most important cultural heritage sites The various policies and relegations that help as well as townscapes. Kyoto has long sought to conserve this important historic townscape, which protect the area’s heritage value, including its lies in the shadow of a showpiece WHS, are surrounding landscape, and to conserve and introduced below: improve the townscape of the temple town. The proud and rich heritage and dignity of Kiyomizu- (A) Land Use Zone: The temple town area is dera Temple must be maintained in line with designated as “2nd Residential District” whose sustainable prosperity of the temple town. To accepted land uses are residences including achieve this sensitive balance, stakeholders – apartments, shops (less than 10,000m2), offices, including the Kiyomizu-dera Temple Association, public facilities, some amusement facilities, Temple Street Association, businesses, residents, factories (less than 50m2 if motorized equipment tour operators, tourists, and Kyoto City is used), garages (less than 300m2), and others. Government – have cooperated for the good of all. Prohibited land uses are cinemas, theaters, nightclubs, storehouses for storage businesses, and others. Buildings are regulated with the following conditions: • Building coverage ratio: maximum of 60% • Building floor ratio: Not more than 200% • Building height: Not more than 12m (B) Surrounding Scenery and Views: To protect the views of natural and historic scenery in Higashi-yama within 500m of the WHS Kiyomizu- dera Temple, the temple town is designated as a “Surrounding Scenery and View Area.” This ensures strict regulations for design are used Source: Temple Street Association (Figure 2.30). Figure 2.29: View from the Temple town Back in 1993, the new master plan of Kyoto City set out an overarching vision, plan, and policies for the revitalization of Kyoto. More specifically, in terms of the relationship between cultural heritage and urban regeneration, it was critical for Kyoto to pass down to future generations the unique natural scenery and cultural heritage that it had developed over the course of 1,200 years. A key policy designed to achieve this goal was the Conservation of Historical Landscape and Creation of Surpassing Urban Landscapes. This policy included conservation of the area’s historical townscape, including Higashi-yama. Key planning and policy initiatives of the Kyoto City Government recognize the importance of Higashi-yama and its Kiyomizu-dera Temple town in maintaining, preserving, and shaping the area, as described in the next section. Source: Kyoto City Government Figure 2.30: WHS Kiyomizu-dera Temple View (3) Planning Preservation Control Area (500m from Temple) Overview: The temple town in Higashi-yama This ordinance regulates the form, design and surrounding the WHS Kiyomizu-dera Temple falls color of buildings in a 500m buffer zone visible under the integrated and holistic planning and from the Kiyomizu-dera Temple premises. policy approach adopted by Kyoto City for (C) Landscape District Design Standards: The conserving historic urban landscapes using temple town area is designated as an “Aesthetic 68 Landscape District (Historical Heritage).” This designation is used to ensure the conservation of In order to develop the needed preservation policy townscapes in WHS urban environments and their and design codes, the Kyoto City Government vicinity, and includes building design regulations prepared the Plan for Sanneizaka Preservation fine-tuned with the local characteristics. District of Historic Buildings, which includes a subsidy scheme for conservation works. (D) Preservation Districts for Groups of Sanneizaka is one four such preservation districts; Historic Buildings: The Sanneizaka area of the others are Gion Shinbashi (Kagai), Saga Torii Higashi-yama is designated as a Preservation Moto (Shrine Town), and Kami Gamo (Shrine District for Groups of Historic Buildings. This Town). The historic buildings of Sanneizaka are preservation system was first defined by the shown in Figure 2.31. Cultural Property Protection Act and Kyoto City ordinance (1972) of the same name, with the Sanneizaka district designated in 1976. 250m to Kiyomizu- dera Temple Preservation districts for groups of historic buildings Historic buildings Source: Kyoto City Government Figure 2.31: Sanneizaka, Higashiyama: Preservation Districts for Groups of Historic Buildings (E) Special Restriction District for Outdoor A field survey was undertaken, including a photo Advertisements: The Sanneizaka area also survey, to better understand the area in terms of became designated as a Special Restriction core heritage, view from the heritage site and District for Outdoor Advertisements. The goal was entrance point, old and new buildings in the buffer to ensure that outdoor advertisements considered zone, etc. A map and aerial photo survey were the local characteristics of the area. undertaken in order to compare images over a 100-year period and showcase stages of (F) Kyoto City Project of Underground Electric development. Cables: Like buildings and advertisements, power cables and utility poles have a great impact on City plans and policies for the area were historic townscapes. Kyoto City thus deployed a monitored and inspected, including land use Power Pole Elimination Plan, with priority given to designations, building height, building type, view areas with perspective landscapes, such as the preservation, and scenic control. vicinity of the World Heritage sites and historical landscape preservation areas. Electric poles were The information fed into review meetings of a eliminated from the Ninenzaka and Sanneizaka technical panel that dealt with issues and districts of Higashi-yama. problems and identified any required additional measures for preserving the historic landscape. (G) Monitoring and Inspection – Field Survey As a result, it was found that a large number of Report (2014): In 2014 the Kyoto City sites could affect the streetscape on Kiyomizu- Government undertook a townscape field dera Temple Street even within the scope of inspection survey analysis for 61 cultural property regulation. areas/locations (prominent temples and shrines), including the temple town area of Higashiyama. 69 (4) Financing and Implementation • WHS Carrying Capacity: The temple town, as the buffer zone and entrance to (A) Organization: The key Higashi-yama area the WHS temple, absorbs crowds and stakeholders include: aids the carrying capacity of the site. The • Temple Town Association, a society of temple town community also assists with shop owners and businesses that assist nighttime visitor operations. with monitoring of visitor numbers and • The Temple Street Association also flow and with managements issues and promotes manners education for visitors mitigation. and handles solid waste management in • Citizens of the temple town who the area. maintain and conserve their buildings. • Citizens of the surrounding (D) Walkable City: More strategically, Kyoto City mountainside, who carry out regular is promoting the city’s walkability. In the autumn maintenance of the mountainside/buffer sightseeing season, traffic is regulated throughout zone. the city. Visiting by car is restricted, and the • Kiyomizu-dera Temple Association, as number of cars running between the central area described in the previous case study and the periphery is controlled by park-and-ride. including the collaboration for Community- As there are significant heritage clusters in led Night Viewing Management. Higashiyama ward, especially around the • “The Society Full of Passion for the Kiyomizu Temple area, the Kyoto City Ancient Capital,” an association Government has developed various mechanisms organized by local residents for the to assist with walkability in the area, including a preservation of the Masuya-machi area; well-planned and controlled townscape, traffic these efforts are mostly covered by control, high-grade pavement, signage, and toilet Preservation Districts for Groups of facilities. If the Higashiyama area as a whole can Historic Buildings at Sanneizaka, as better absorb tourists, it can reduce visitor discussed above. The Kyoto City concentration at prominent tourist spots. The Government registered this association as Kyoto City Government promotes walking tours or a local townscape promotion council, and pilgrimage trips to famous spots using city bus to the association elaborated a local gain access. Signage and maps of visiting routes, townscape plan in 2013. Anyone wishing available in printed form, online, and via apps, are to develop land or construct a building tools used to help facilitate walking tours. must consult this association before submitting any application to the city. (E) Townscape Conservation: The Kyoto City Government provides the policy and regulatory (B) Disaster prevention: The Kiyomizu-dera framework for controlling the townscape and Temple Association and the Temple Town buildings. Thus most of the city’s costs for the Association have a Joint Security Brigade to temple town conservation are related to safeguard and protect the heritage assets and administrative work, including applications, visitors. The brigade conducts regular drills. The examinations, inspections, surveys, permissions, forest-covered mountains to the north, east, and and confirmations. south of the temple, which used to be temple property, were recently transferred to the central However, for the important heritage areas in government. Good conservation of forest land is Preservation Districts of Groups of Historic important to prevent landslides, and the Temple Buildings such as Sanneizaka, the Kyoto City Association with volunteer groups takes care of Government provides a financial and technical this land. support scheme. improving and repairing building facades and roofs would be subsidized at 80% of (C) Visitor Management: As introduced in the its cost up to JPY 6 million per application. In the Kiyomizu-dera Temple case study, the temple last 10 years, this subsidy scheme has provided town area has an important role to play in visitor between JPY 25 million to JPY 40 million per year. management and carrying capacity, with some examples provided below: (5) Outcomes and Impact • Traffic/Pedestrian Control: When the Historic Preservation: The Kiyomizu-dera temple town is extremely crowed, Temple town, scattered with many small temples, Kiyomizu-dera Temple and the Temple shrines, and historic heritage in its niche corners Street Association dispatch 10 attendants and pockets, is a very rich cultural heritage asset to help manage pedestrian and vehicle for the city. The landscape regulation concepts for flow, more during special events, at the the temple town seek not only to avoid disturbing major points of the temple town. the townscape around the temple, but also to 70 conserve and improve the temple town’s “Kyoto- (A) Local Ownership and Joint-working: The ness” as a heritage area itself. area itself is an important historical townscape. It lends itself to study because of the Tourism Revenue and Socioeconomic Impact: comprehensive way that townscape conservation If the tourism businesses in the WHS Kiyomizu- and management around the WHS are handled – dera Temple buffer zone (temple town area) were that is, in a way that relates to the livelihoods of solely dependent on the temple and made no residents, community collaboration, heritage effort to improve their value and input to cultural legacy, and local economic growth. Again, Kyoto heritage, tourists’ expenditure in this area would City Government provides the overarching be much smaller overall. For example, admission regulations, laws, and policies, while the local to the temple is JPY 400 per adult and one hour is community, through the Temple Town Association, sufficient time to visit the standard circuit. But, takes a proactive role in landscape conservation tourists stay much longer and spend more in the and traditions. The association is a strong partner buffer zone, renting kimono (at around JPY 4,000), of the Kyoto City Government, and the two work eating a meal, or shopping for souvenirs. together to ensure community-led urban regeneration and preservation, WHS site The Kyoto City Government Tourism Survey 2017 management, visitor management, and disaster found that admission fees (JPY 67 billion) as a risk management. share of the total tourist expenditure of Kyoto (JPY 1,086 billion) is just 6.23%. The Kiyomizu (B) Monitoring of Regulation Compliance: The temple town looks to take full advantage of this temple town of Kiyomizu-dera Temple has been leverage effect. The large number of tourists preserving its own historic townscape for decades. moving through the narrow streets of the temple Even so, the Kyoto City Government continues to town suggests the significant spillover effects of closely monitor and survey the area in a tourism on local economic development and on collaborative way for compliance with its maintaining jobs in the local shops and regulations on land use, building height, building restaurants. coverage ratio, floor area ratio, and building design. This monitoring confirms compliance or The area promotes and maintains localized highlights gaps or issues that need to be cultural industries that are very important for the addressed. temple town, with many souvenir shops selling Kyoto dolls and Kiyomizu pottery in front of (C) Sustainable Business Prosperity: The traditional houses. Some shops operate their temple town is crowded with 5-6 million visitors workshops in their backyards where they produce per year. Without a strategic mindset and holistic traditional crafts. A careful balance is needed, and focus on the legacy of “Kyoto-ness,” the city could the income for local businesses has not led to a be at risk of larger investments in larger shops, scrap-and-build type of development to maximize restaurants, and hotels to secure maximum profit. revenue. Instead, the Temple Town Association is This approach can be found elsewhere in Japan active and supportive of historic preservation, and around the world. However, in the temple sense of community, and local identity. The town area, business owners fully recognize the cultural value of the historic area and WHS is importance of preservation and heritage and the embraced and cherished. This maintains a good contribution they make, and therefore do not balance between the livelihoods of residents, attempt to earn more money at the cost of community collaboration, heritage legacy, and damaging the unique townscape. This local economic growth. demonstrates big-picture thinking and strong civic pride. Dispersing Visitors and Managing Carrying Capacity: As discussed, since the temple town (D) “Walkable Kyoto”: The Kyoto City itself is a unique and popular tourist zone in Government is promoting walkability, and the addition to the WHS temple, it carries a large temple town area is a good example of this in number of tourists within its narrow streets and practice. Kiyomizu-dera Temple has limited city corner areas. The buffer zone accommodates parking for tourists coming by bus or car. Even many more visitors than the core heritage zone. these tourists need to walk the last 250m to the This mitigates severe visitor concentrations at the temple. The temple town is not just an approach WHS. In the temple town area, motor vehicles are or buffer zone but is a tourist zone itself packed restricted at the last part of the approach road to with historic townscapes, shops, and restaurants. the temple, which facilitates smooth and managed The walkable nature of the area helps absorb visitor flow up to the site entrance. tourists and mitigates overcrowding at the WHS. Furthermore, the longer tourists stay in the temple (6) Lessons Learned town area, the greater the contribution to tourism revenue and local economic benefits. 71 2.5 Case 4 – Downtown Area Source: Kyoto City Government (1) Overview Introduction: The case study of Kyoto’s Kyoto Palace Downtown will profile how the urban regeneration and preservation of a historical area with many Kyo-machiya has been approached Nijo comprehensively and in a way that is related to Castle the livelihoods of residents, community Down collaboration, heritage legacy, and local economic Town growth. Southern Location and History: The Downtown area is Gion part of Naka-gyo (literally Central Kyoto) and Shimo-gyo (literally Lower or Southern Kyoto), close to the Imperial Palace, Nijo Castle, and Gion Kiyomizu Kagai. The land area is approximately 152 ha. Temple Kyoto This area has been the business center of Kyoto Station from medieval times. Traditional Kyoto communities have always had a meeting place, Source: Google base and in 1869, communities established 64 primary Figure 2.32: Downtown Location Map schools as facilities attached to their meeting places. These were the first primary schools in Japan. The Meiji Imperial Government issued a School Order to establish primary schools in 1873. 72 (2) Scoping Population also showed significant change. Population of the Downtown in 1995 was just Development Pressures and Changes: Rapid approximately 40% of that of in 1955. This drastic economic growth after World War II facilitated a decline and issues helped motivate the city to scrap-and-build type of urban development in deliver a step-change in urban restoration and Downtown Kyoto. During the economic growth era, protection as described in Chapter 1, with a key policy makers became aware that the Downtown focus on the Downtown. was suffering from depopulation and loss of historic buildings such as Kyo-machiya. Core Efforts and Programs: Chapter 1 introduced the comprehensive and holistic efforts Figure 2.33 and Figure 2.34 help illustrate how made by the city for urban regeneration and many of the historic Kyo-machiya were lost or presentation. Programs particularly relevant for replaced with modern buildings. With this trend, the Downtown area will now be summarized, and without sufficient countermeasures, the including: identity of the city – its “Kyoto-ness” – was eroding rapidly. For example, building height was limited • Building height control along the major roads to 45m, which allowed 15- • Workplaces and residence coexistence story buildings. • Kyo-machiya preservation 1928 1974 2000 Source: Kyoto City Government / Ritsumei-kan University Figure 2.33: Decreasing Kyo-Machiya in Kyoto Downtown 1928 1974 2000 Source: Kyoto City Government / Ritsumei-kan University Figure 2.34: Development & Building Height Pressures on Kyo-Machiya, Downtown (3) Planning back in 1998. This was a comprehensive concept plan for downtown revitalization that required the Kyoto City Master Plan (2012-2025): The collaboration of many city government Downtown has an important position in the Kyoto departments and stakeholders. It included eight City master plan, which aims to improve the approaches to achieve the prospective livable area’s attractiveness to create a vivid city center. town: The Kyoto City master plan has development concepts for 13 districts, including the Downtown, • Practical use of “Detailed District Plan with which is called the “District of Workplace and Stakeholders’ Collaboration” scheme Residence Coexistence.” This concept for the • Development of a Kyo-machiya development of the Downtown is described below. conservation system • Regeneration of neighborhoods Downtown Workplace and Residence Coexistence Plan (1998): The Kyoto City • Securing of attractive townscape Government formulated a “Downtown Workplace • Securing of routes for walking and Residence Coexistence Area Guide Plan” • Unique style of downtown habitation • Improvement of disaster countermeasures 73 • Institutional building of downtown To realize this plan, the Kyoto City Government established a “Conservation and Regeneration of Downtown Committee,” which met seven times from January 2001 to April 2002 to discuss the following topics: • Direction of new historic townscape of Kyoto; • Preferable environment for downtown habitation; and • Policies for conservation and regeneration. The recommendations submitted by the committee included stricter height control, imposition of townscape control, application of a special (mixture-type) use zone, and others. This Source: Kyoto City Government comprehensive policy has since been supported Figure 2.36: Stricter Building Height Controls by relevant schemes, examples of which are in the Downtown described below. The green areas of the above figure are the areas alongside major roads in the business area, where the height limit was reduced from 45m to 31m. The orange areas in the figure are classified as the “Workplace and Residence Coexistence Areas.” Here the stricter controls reduced the limit from 31m to 15m. For example, when an existing 10-story apartment building or a 31m building needs reconstruction in the future, only a 5-story reconstruction is permitted. These strict changes can be said to impact on individuals’ property rights, and in the Downtown there were some fierce objections. But the city conducted close consultation with stakeholders, and the regulation was finally imposed with the consensus of citizens. As suggested in the figure below, the stricter Area to accumulate diversified urban functions inducing building height controls in the historic Downtown commercial and business activities play an important part in preserving the historic Area to promote urban residence maintaining and landscape by allowing for better harmonizing with enhancing unique commercial and business activities the Kyo-machiya buildings. Area to promote commercial functions harmonized with traditional townscape Source: Kyoto City Government Figure 2.35: Downtown Development Concept – Kyoto City Master Plan Building Height Control: The 2007 Landscape The old restrictions (31 m) Policy brought in stricter building height limits, particularly in the Downtown, to help preserve and recover the unique townscape of Kyoto, including its Kyo-machiya. The policy lowered the maximum heights for buildings in historical city areas, including the Downtown, as shown in figure 2.36. Present restrictions (15m) (continuity of rows of houses) Source: Kyoto City Government Figure 2.37: Stricter Building Height Control Simulation in the Historical Downtown Area 74 Kyo-machiya Conservation in the Downtown: • Comprehensive support for the activities of citizens – Kyo-Machiya Restoration Overarching Planning and Policy Framework: The  Kyo-machiya consultation conservation of Kyo-machiya in the Downtown  Kyo-machiya database benefits from the overarching planning and policy  Kyo-machiya legacy network framework put in place by Kyoto City Government. • Preservation and restoration As discussed, through the 2007 Landscape Policy  The Kyo-machiya Machizukuri Fund: and related ordinances, laws, and policies, the city  Community Development Crowd established a strong and comprehensive Funding Support Project framework for preservation of its historical  Survey of historic building candidates: townscapes, including Kyo-machiya. Moreover,  Kyo-machiya records the Kyoto City Government also provides a  Funding management comprehensive supporting system alongside the • Dissemination of information legal and policy framework, including financial,  Urban landscape development technical, and consultation support; private sector workshops and symposium participation; and measures to help Kyo-machiya • Exchange and cooperative activities owners and local people took a lead, to ensure  Kyo-machiya inheritance network that the historical buildings’ legacy will continue.  Cooperation with the World Monuments Kyoto Center for Community Collaboration Fund (KCCC): As discussed, KCCC has been given a • Urban landscape maintenance operation key role in delivering the enabling environment for  Assignment of experts to provide Kyo-machiya preservation and legacy, and it is relevant information, counseling, and very active in the Downtown area. It uses a other assistance bottom-up approach, targeting houses and Examples of Kyo-machiya that have been stakeholders that need the most support. A renovated in the Downtown under the Kyo- reminder of KCCC’s functions – which greatly machiya Development Fund are shown in the benefit the Downtown – is given here: figure below (before and after the restorations). Hachimanyama Kyo-machiya Before Restoration Hachimanyama Kyo-machiya After Restoration Kobayashi Kyo-machiya Before Restoration Kobayashi Kyo-machiya After Restoration Source: Kyoto Center for Community Collaboration (KCCC) Figure 2.38: Kyo-Machiya Development Fund Restoration Examples, Downtown 75 Challenge in Urban Living: KCCC recognizes • Improvement of buildings against fire and the challenge posed by changes in living earthquake environment for urban residents in Kyoto, • Securing evacuation routes including construction of accommodations with • Installing equipment increase in tourists, rapid increase in minpaku or • Disaster drills with participation of the vacation rentals, and increase in real estate community values, all in the context of the year-on-year decline of Kyo-machiya, the decline in local Building Height Control: This control is industries, and shrinking downtown population. implemented by law and regulation however, the However, a key purpose of the comprehensive city does make careful preparations, such as systems for planning and community support inquiries to the City Planning Council, public detailed above is to make communities in historic hearings, and explanation meetings. Therefore areas more resistant to various rapid changes and necessary costs are related to administration only. protect the city’s proud tradition and heritage. Specific measures include the aforementioned Kyo-machiya Conservation: The Kyo-machiya Kyo-machiya Legacy Network, Kyo-machiya fund (originally JPY 150 million) to support Records, financial support for preservation and renovation of the traditional houses in the city was maintenance, and consultation and collaboration set up by KCCC. This fund subsidized 80 Kyo- with local communities. machiya renovations over the last 10 years at a cost of JPY 126 million. Many examples can be Moreover, the overarching purposes of the found in the Downtown area. In addition, many Landscape Policy 2007 and its sister ordinances Kyo-machiya have been renovated with residents’ and plans are to maintain and pass down “Kyoto- own funds or bank loans. The Kyoto Shinkin Bank ness,” to better utilize renovated houses for has a specific loan program for Kyo-machiya and economic and cultural benefit, to pass on to new has made some 130 contracts. generations a culture of urban living, and to revitalize local communities. Gion Festival: As profiled in the next section (Case 5 – Gion Festival), the communities of the (4) Financing and Implementation Downtown area have festival floats for the prestigious Gion Festival. Traditional Kyo-machiya Downtown Workplace and Residence designs have been applied to some of the Cho Coexistence Areas: Local residents know the Kaisho, or community meeting places, in which issues of their neighborhood better than these floats are stored and Shinto rituals are government officers, so the Kyoto City performed. KCCC funding was received for some Government dispatches experts to consult with of these projects. communities. The city also uses subsidies to encourage residents to improve the area. The Kyoto City Government has been working on its (5) Outcomes and Impact policy for the Downtown using a variety of Stricter Height Control Impact on Land Prices: schemes, including: There was much debate about the potential impact of the stricter building height regulations. (a) Livability As shown in the graph below, the result since the • Promotion of Kyo-machiya new height control rules were implemented in • Effective use of dead-end alleys 2007 has been largely neutral. Compared with • Human townscape that attracts tourists Osaka and Kobe, the large cities in the nearby • Livable environment for each generation prefecture, land prices in Kyoto did not show a (B) Economy negative trend. • Regeneration of traditional industries New height control 新景観政策 京都市 大阪市 神戸市 • Fostering urban venture corporation H19.9 （2007 September ～～） Kyoto Osaka Kobe 300,000 • Fixing and accumulation of diversified human resources 250,000 • Promotion of urban business in 200,000 （円／㎡） connection with tourism (yen/m ) 2 (C) City planning 150,000 • Application of the District Plan 100,000 • Practical use of existing building stocks 50,000 • Conservation and promotion of attractive townscape 0 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 H15 H16 H17 H18 H19 H20 H21 H22 H23 H24 H25 H26 • Promotion of community participation for Source: Kyoto City Government decision making Figure 2.39: Land Price Trend (D) Disaster prevention 76 Kyo-Machiya Preservation and Value: rather than their demolition and replacement with Preservation and conservation of Kyo-machiya in modern structures, has helped maintain the the Downtown area has vastly improved in recent heritage of the area as well as developing and years. Because wooden houses more than 20 maintaining traditional industries. KCG’s support years old would normally have no value in for conserving Kyo-machiya has helped residents’ financial institutions or in the real estate business, efforts to improve their historic housing and also and because they cannot be used as security for to support job creation and retention. purchasing or repairing Kyo-machiya, fundraising has been difficult, and the distribution and repair Downtown communities benefit from the cultural of Kyo-machiya has been hindered. However, this value and social benefits of restoring clusters of trend has been changing over the last five years. historic buildings, which include conserving Kyo-machiya are now much more appreciated, heritage for future generations, strengthening the and living in or operating Kyo-machiya is community’s identification with its history, becoming more desirable. In fact, the demand for providing a pleasant and educational place to Kyo-machiya is becoming so high that finding a experience local cultural heritage, promoting quality property to buy or rent is more difficult. The community development, and maintaining price of premises with Kyo-machiya has been traditional skills (e.g., specialist carpenters, etc.). rising both for those properties facing a wide road and those facing a narrow back road. With the (6) Lessons Learned value of Kyo-machiya widely and well recognized, conservation of this town heritage can now be Comprehensive Approach for Downtown achieved on a commercial basis as well as based Revitalization: Many cities are suffering from a on civic pride. This is a result of extensive efforts declining downtown area. The Kyoto City by Kyoto City Government and many relevant Government confronted the challenge with careful civic groups. and comprehensive preparation across urban, economic, and welfare policies. From the urban Socioeconomic Impacts: The case study of planning side, stricter height control and Kyo- Kyoto’s Downtown shows how the urban machiya conservation are two major example regeneration and preservation of a historical area efforts. However, the city recognizes the ongoing with many Kyo-machiya has occurred through a challenge and the need for continued effort. comprehensive approach, one related to the livelihoods of residents, community collaboration, Synergies with Cultural Heritage and Tourism: heritage legacy, and local economic development. Kyoto is leveraging its cultural assets to deliver preservation and conservation as well as increase The planning framework for the area prioritized tourism and promote economic regeneration in approaches seeking to achieve a more livable the Downtown. It is doing this through a downtown and regenerate neighborhoods. The community-led approach that harnesses the civic objectives of improving the livability of the pride arising from living in or operating a historic downtown include enhancing it as a place where Kyo-machiya building. people of all generations like to visit, meet, live, work, and invest, linking heritage conservation Furthermore, as will be profiled in the next case and local economic development study, the Downtown area is delivering synergies between urban regeneration and cultural heritage For local economic development, key components through the intangible heritage of the Gion included regeneration of traditional industries, Festival. This festival, a historic and prestigious fostering of urban venture corporations, and job activity carried out by local communities, has creation, including promotion of urban business in helped provide a focus point for successful connection with tourism. Promotion of localized community collaboration and the restoration of cultural industries has also been important; it has Kyo-Machiya in preserving the area’s historic generated opportunities for commercial initiatives, buildings, streetscape, and culture for future business expansion, and employment growth as generations. In this way, local communities are well as providing increased incomes and directly supporting townscape improvement, and widespread community benefits. local events and the Kyo-machiya contribute to the identity of the area and the festival. In some cases, adaptive reuse of historic buildings (Kyo-machiya) in this central location, 77 2.6 Case 5 – Intangible Heritage: Gion Festival Source: Kyoto City Government (1) Overview and History the parade. These communities play a pivotal role in maintaining the festival’s legacy. In addition to temples and shrines, intangible heritage such as religious events and festivals are (2) Planning an important component of the identity of Kyoto City. One such example is the Gion Matsuri (Gion Traditional Procedures Festival), which takes place annually in Kyoto and is known as one of the three most important ritual As the Gion Festival is a traditional religious event, festivals in Japan – alongside the Tenjin Festival there is a strong desire to continue conducting the in Osaka and the Kanda Festival in Tokyo. festival in a traditional way. Furthermore, many efforts are made to help ensure that the The history of this event dates back to AD 869, inheritance of this intangible heritage event is when natural disasters and epidemics were handed down to the next generation. Routine common, and a ceremony to purify evil spirits was plans for the smooth implementation of the event held. Then, during the medieval era, the festival in a traditional way include: became bigger, with parades of dozens of festival floats mounted with a symbolic weapon, (a) Core Religious Services: Since the Gion establishing the festival as a popular attraction. Festival is a one-month-long ceremony dedicated During the Azuchi-momoyama Era (mid-16th to the Gion God, the Yasaka Shrine takes century to early 17th century), merchants and their ownership of and conducts the religious part of communities became more prosperous and in turn the festival. started decorating the festival floats with imported items such as luxurious carpets from Belgium. (b) Storage and Fabrication of Festival Floats: Each of the 33 communities in the Gion Festival The Gion Festival takes place during the whole area has its own storage house to store, month of July each year, with a series of services assemble, and disassemble its float. The Gion and events. The highlight of the festival is the float Festival floats are important heritage items parade, which is conducted on July 17 and July themselves, with various antique decorations. 24. Each of the 33 communities in downtown Handling skills have been passed down from Kyoto prepares its own float and participates in generation to generation in each community. As noted, Kyoto City has a long history of 78 constructing and repairing temples and shrines to the Kinmon incident in 1864, most parts of the using local carpenter groups with specialist skills, float were destroyed by fire, and it became a and these carpenters also work on the Gion resting float after that. Festival floats. Starting in 1997 with the revival of Ohayashi Operations (festival music), there was movement toward reviving the float, specifically the resumption of Operations and Planning Team: Some 180 “Imatsuri” by displaying the Empress Jingu statue person-days of work are required on two separate undamaged by fire, Daikinpei (gold offerings) to days for the operation of each float. Mobilization decorate the bow, and production of the big rudder, of this kind of volunteer power is a significant Mizuhiki (decorative Japanese paper), Mae-kake issue for the Downtown communities due to year- (front dorsal), Ushiro-kake (rear dorsal), etc. using on-year population decrease. There are two sophisticated weaving and stitching techniques. In teams necessary for operation of each float, 2012, the float appeared in the procession with a namely the puller group and the art performance Karabitsu. In 2014, for the first time in 150 years, teams. Each float has a performance stage or the Ofune-hoko could finally move in the pavilion as a part of its structure. Traditional music procession again, thanks to the enthusiasm of groups made up of 40-50 musicians are assigned residents in Shijo-cho and the cooperation of to play on each float stage. many people. The performance team requires training in Integration with Urban Regeneration: Kyo- traditional music, and each community makes Machiya Revitalization significant efforts to deliver these skills to the resident volunteers. Community pride is The KCCC undertook Kyo-machiya legacy developed, and the sound of traditional music network in the context of the Gion Festival, from early practice sessions in the Downtown demonstrating the success of Kyoto City in signals the arrival of summer season. The float combining urban regeneration, cultural heritage, puller or navigation team requires a large physical and community collaboration: team, and some communities suffering from decreasing population cannot recruit sufficient (a) Funeboko Gion Festival Meeting Place volunteers for the navigation team within their (2007): Through the Kyomachiya Development community. For this reason, the navigation team Fund, KCCC helped restore and repair the often includes outside volunteer groups formed for Funeboko-cho Kaisho meeting place belonging to the Gion Festival. the Funeboko Preservation Association. Power and Telephone Cables: Festival floats are so high (25 meters) that cables that cross the parade route are dangerous and prevent float passage. Therefore, one to two months before the festival, the preservation union together with the Kyoto City Government undertakes site surveys to assess the route for any issues and then negotiates with power and telephone companies for appropriate countermeasures. Revival of Ofune-hoko Float (Shijo-cho Ofune- hoko Preservation Association): The original Ofune-hoko in Shijo-cho was set up in 1441 according to an article in “Gionsha-ki,” (Gion Source: Kyoto Center for Community Collaboration Shrine Records) or is said to have already existed Figure 2.40: Funeboko Kyo-machiya during in 1422. Ofune-hoko has a long history from Gion Festival before the Onin War. It is said that the original This building forms an important community base Ofune-hoko was destroyed by fire together with for Funeboko-cho during the Gion Festival. The other Yamahoko festival floats in the Onin War building is also used as rehearsal space for (1467). musicians who practice the festival music throughout the year. A key objective of the Ofune-hoko was again destroyed by fire in Tenmei restoration work, completed in 2007, was to help no Taika (Fire of Tenmei: 1788) except for the preserve the building to ensure the survival of this sacred mask of Empress Jingu, and it was important historical location and its role in the reconstructed in 1804 as a more gorgeous float. Gion Festival for future generations. The existing objects for decoration and gold offerings were prepared after this. However, due 79 (b) Shijo Ofune-hoko Float Machiya (2017): City Government provided the Gion Festival Each of the 33 communities involved in the Gion Preservation Union with JPY 21 million for Festival parade has its own float storage building. maintenance, including repair of floats and In a recent scheme (2016-17) under the Kyo- relevant equipment, as well as another JPY 36 Machiya Revitalization Project – specifically an million toward the operation of the festival. international collaboration between Shijo-cho Furthermore, the national government provides an Ofune-hoko Preservation Association, Kyo- additional subsidy to the Gion Festival machiya Council, Kyoto Center for Community Preservation Union. Collaboration, and World Monuments Fund (WMF) – another Gion Festival hub was restored. Cost items include maintenance and repair of floats and decorations, costumes, musical This collaborative restoration project aimed to instruments, part-time staff, garbage collection, repair, develop, and raise awareness of the Shijo and refreshments for the float staff. The local Ofune-hoko Float Machiya as a traditional cultural communities themselves shoulder financing for hub of the Gion Festival. the festival. Due to the population decrease in the downtown area, the burden per family is In addition, the Kyoto City Government increasing. designated the building as a historical scenic formation building, and subsidized the repair of its In 2017, the Gion Festival Preservation Union exterior. This is a case in which local residents, attempted to gather donations by crowdfunding the public sector, and the private sector through the Internet to cover the increased cost of cooperated to repair an important regional hub. the number festival attendants. The target amount was JPY 3 million. More than 1,000 people made donations, and the total amount received was some JPY 14 million. The union will continue this successful funding operation. (4) Implementation Coordination and Institutional Arrangements: In addition to providing a financial subsidy for the Gion Festival, the Kyoto City Government also supports the festival through safety and waste management and as a consultation point for Gion Festival stakeholders. Each of the 33 communities has a float operation group that belongs to the Floats Preservation Society for effective coordination of the parade. Subsidies and donations are addressed to the Floats Preservation Society, which coordinates each aspect of the parade in cooperation with local communities, Kyoto City Tourism Association, Kyoto City Government, and the police. Operations - Safety and Traffic Management: Source: Shijo-cho Ofune-hoko Preservation Association Safety is one the biggest concerns of the Figure 2.41: Shijo Ofune-hoko Float Machiya preservation union or festival operator. The Kyoto City Government and the preservation union The now-restored building serves not only as a cooperate to monitor safety and place appropriate place for Gion Festival rituals and as a float event staff for traffic management and pedestrian storage facility, but also as a community guidance. Solid waste management is another centerpiece throughout the year. This case helps issue. The Kyoto City Government supports the demonstrate how the intangible heritage Gion preservation union with garbage collection to Festival has provided a focus point for successful maintain security and a pleasant visitor community collaboration and the restoration of environment. Kyo-Machiya in preserving the area’s historic buildings, streetscape, and culture for future generations. (3) Financing The Kyoto City Government allocates a large level subsidy for the Gion Festival. In 2017 the Kyoto 80 (5) Outcomes, Impacts, and Lessons Learned (a) Intangible Heritage Legacy and Civic Pride: The Gion Festival has long been part of the Downtown area’s traditions and history, only interrupted from time to time due to shocks and stresses such as war and epidemics. Community floats, which were discontinued for many years, were then recently revived. This history and the resiliency of the festival create civic pride as well as faith that the float parade will continue for another 1,000 years. (b) Synergies between Urban Regeneration and Cultural Heritage: This case demonstrates how the intangible heritage Gion Festival has helped provide a focus point for successful community collaboration and the restoration of Kyo-Machiya in preserving the area’s historic buildings, streetscape, and culture for future generations. Local communities directly support townscape improvement and local events, and the Kyo-machiya contribute to the identity of the area and the festival. Planning and implementation of the annual Gion Festival involves a lot of money, labor, and coordination efforts on the part of the Kyoto Source: Kyoto City Government Downtown communities. The success of the Gion Figure 2.42: Gion Festival - Yamahoko during Festival is thus a barometer to measure the vitality the Evening Pre-event of these communities. The Kyoto City Government and local communities collaborate to maintain and improve the livability of the For three nights before the float parade days, downtown. floats are exhibited in the community. To handle the huge crowds, major boulevards such as (C) Contribution to Sustainable Tourism: While Karasuma Street and Shijo Street are closed to tourism is not the main objective of this event, the vehicular traffic. The streets are then taken over Gion Festival is recognized as having a strong with night stalls, local people, and visitors. This impact on tourism in the Downtown. According to evening pre-event is also a very popular attraction, police figures, the float parade attracts 887,000 which draws some 300,000 observers. visitors each day. Traditional Folding Screen Festival: Furthermore, Kyoto’s tourism industry has Traditionally, prosperous families and merchants traditionally had two off-seasons (peak of summer have owned folding screens decorated with and winter), so the Gion Festival helps summer paintings. As part of the Gion Festival, local tourism to reduce peak fluctuations. The festival residents and visitors can enjoy the exhibition of attracts significant numbers of domestic and these screens at nearly 20 locations across the international tourists, and those who attend the Downtown area during the Byobu-matsuri evening pre-events are more likely to require an (traditional folding screen festival). This joint overnight stay and contribute more to revenues. exhibition of traditional art demonstrates the cultural level of the communities in downtown. 81 2.7 Case 6 – Kyoto Station West Area Redevelopment (1) Overview Wholesale Market, a Kyoto food culture museum called “Ajiwai Kan,” and the Kyoto Research Park. The Kyoto Station West Area Redevelopment Nearby are a range of regional resources project has sought to revitalize the area to the including Ryukoku University Museum, Shimabara west of the Kyoto Station around Umekoji Park. Kagai, Mibu-dera Temple, Nishi-Honganji Temple This area of Kyoto was historically part of the (World Heritage site), Higasi-Honganji Temple, former capital of Japan – Heian-kyō – so has and Toji Temple (World Heritage site). longstanding cultural significance. Kyoto City purchased about 12 ha of the previous cargo train This case study will highlight key successes of the operation field of Umekoji Station and began to project, particularly the conversion of underutilized develop Umekoji Park in 1992 to mark the 1,200th assets into productive assets, excellent multi- anniversary of the transfer of the capital to Heian- stakeholder coordination, private sector kyō. The park opened in 1995 as a new local participation, and the Kyoto City Government’s nucleus for attracting people. integration of individual projects into a well- organized area-wide plan. Importantly, this case However, since this park and surrounding area study also demonstrates collaboration and was not well coordinated and since revitalization synergies between cultural heritage, urban projects were being implemented in a piecemeal regeneration, and sustainable tourism. way, the Kyoto City Government set out to use the park area as catalyst for change. It established a (2) Scoping plan to revitalize the whole Kyoto Station West area as well as a method for realizing this plan in Developing the Concept and Future Vision cooperation with the private sector and a wide range of stakeholders. In 2015, the Kyoto City Government formulated the Kyoto Station West Area Revitalization Plan. The core zone of the project area is Umekoji Park, The plan set a long-term vision for 20-30 years which includes an aquarium, railway museum, and for the 1,300th anniversary of the transfer of several plazas, and forest and garden areas. In the capital to Heian-kyō; it also set specific the vicinity of this park there are seven shopping shorter-term immediate measures for the next 10. streets, the first market of the Kyoto City Central The concept integrated completed, ongoing, and 82 planned projects in one vision; defined • An area where all residents live in peace prospective outputs, approaches, and activities; and enjoy culture and indicated how the revitalization of the whole • An area that creates new business and area would contribute to all stakeholders. prosperity • An area where all generations gather and The vision centers on creating an area of the city enjoy. that “connects diverse regional resources and creates new and revitalized activity in Kyoto." The Core Approaches: The plan then used two core focus is on: approaches to frame the key activities and serve • Livability as a foundation: • Business efficiency • Prioritize public transport provision and • Creating new customers accessibility, including delivering and integrating a new Japan Rail (JR) station This project demonstrates strong scoping and associated public transport network (extraction of policy issues) both in terms of future improvements, as well as maximizing the potential and in terms of understanding the area’s concept of “Walkable Kyoto.” unique history and DNA. For the Kyoto City • Develop mechanisms for collaboration Government, the western area of Kyoto Station and cooperation by a diverse range of was important because of its history: it was an stakeholders to ensure the success of the area that had served ancient urban functions as revitalization plans. part of the former capital of Japan. Central to the city’s vision is capturing and utilizing the cultural Key Activities and Components history of the area alongside showpiece projects such as a new railway station and the first central Outlined below are the eight key activities of the wholesale market in Japan, and locating plan. These include a diverse range of projects, companies with advanced technologies. project owners, and partnerships. The Kyoto City Government understood the (i) Livable Urban Area: Efforts have been made importance of steady momentum for revitalization to enhance convenience by constructing a new JR and incremental growth. Rather than seek to station and improve residential environments by realize the plan immediately, it interlinked the plan making parks barrier-free. Utilization of with a large program of project components unoccupied houses was also part of this generating synergistic effects. component. (3) Planning (ii) Umekoji Park as Recreation Core: To strengthen the park’s function, the plan calls for Comprehensive Redevelopment Plan holding events for environmental education in the park, as well as promoting recreation activities, The 2015 Kyoto Station West Area Revitalization placing staff able to speak foreign languages, and Plan included a multi-pronged strategy, with the improving facilities for visitors. overarching concept shown below: (iii) Leading Food Culture of Kyoto and Japan: The revitalization of the area sought to maximize VISION Kyoto’s intangible heritage – Japanese cuisine – by enhancing the function of the central wholesale OBJECTIVES market, a distribution base for food, and by 3 key objectives to realize the vision promoting Kyoto food culture using the market as well as a Kyoto food culture museum. PRIORITY APPROACHES Two core approaches and priority actions to give foundation (iv) Revitalization of Shopping Streets: This critical component aims to attract residents, KEY ACTIVITIES visitors, and tourists and to contribute to local A series of eight redevelopment activities community development by utilizing vacant shops and creating spaces where people can enjoy Figure 2.43: Kyoto Station West Area walking. Redevelopment - Concept Strategy (v) Creation of New Businesses – Kyoto Vision: The program vision was set out to lead Research Park (KRP): This activity facilitates the plan – “Area creating new vitality by accumulation of research institutes around KRP. connecting diversified area resources.” (vi) Promotion of the Railway: This activity Objectives: To help realize the vision, three main includes the opening of the biggest railway characteristics of the area were identified: museum in Japan (in spring of 2016), as well as 83 promotion of the area as a railway tourist attraction, including the Umekoji Park Tram (viii) Strategic Use of Unused or Under-used Square: Land: Effective utilization of unused or under- used land and improved streetscapes will contribute to the revitalization of the area. This activity, which will pay careful attention to local characteristics to ensure harmony with the surrounding landscape, is a good example of how the Kyoto City Government is turning underutilized assets into productive assets. (4) Financing As this urban regeneration project is large in scale and complex, it requires immense resources to be planned and implemented properly. Therefore, the Kyoto City Government has sought partnerships with the private sector, to share both the costs and also the risks and technical capacities. The Kyoto City Government has deployed a combination of internal and external funding sources, policy and regulatory tools, and strategic partnerships with the private sector, among other strategies for financing the Kyoto Station West Area urban regeneration vision. The costs of individual projects under the program umbrella are financed from various public and private sector sources: • Public sector construction and operation Source: Kyoto City Government • Public-private partnerships (PPPs) Figure 2.44: Kyoto Railway Museum and • Private sector construction and operation Umekoji Park Tram Square Table 2.5: Station West Subprojects - Public (vii) Creation of New Area Resources and Sector Construction & Operation Succession of Historic and Cultural Heritage: Umekoji Park Part of the premises of the central wholesale Project Owner: Kyoto City Government (KCG) (food) market is being redeveloped as a new hotel Construction 1992 Beginning of development of a park and commercial complex to attract visitors and Period: in the previous cargo train operation field tourists; in addition, tourist locations are being of Umekoji Station connected using advanced information and 1994 Used as a venue for “National Urban communication technology in order to promote Greening Fair Kyoto” 1995: Opened historical and cultural resources. Land Area: 137,129m2 Jurisdiction in Southern Area Green Management Office KCG: and Green Policy Promotion Department, Construction Bureau, Financing: KCG purchased the previous cargo train operation field of Umekoji Station and developed the park also by the use of national-treasury subsidies (national expenditure covered about a half). Kyoto City Central Wholesale Market (Facilities Redevelopment Project) Project Owner: Kyoto City Government (KCG) Construction March 2014 (basic planning) to 2029 Period: (estimated year for completion of development) Source: Kyoto City Government Floor Area: Floor area: 105,000m2, Land area: Figure 2.45: Virtual Reality Sightseeing, Kyoto 178,200m2 Station West Area Jurisdiction in 1st Market, Kyoto City Central Wholesale KCG Market, Industry and Tourism Bureau For example, to help increase numbers of new Notes: This market opened in 1927. A project for and repeat visitors, virtual reality historical redevelopment of facilities is in progress. (The fisheries building is repaired; the sightseeing routes will be developed and historic fruits building is entirely repaired.) events will be reproduced by means of ICT. Financing: 60 billion yen for the project is financed by 84 municipal bonds, national-treasury visitors count some 35,000 persons. No subsidies, and use fees. charge for admission. Rental fees are Source: LCG, Website of the Organizations charged for the cooking classroom and the cooking laboratory. Table 2.6: Station West Subprojects - PPP Financing: KCG (market special account) and Kyoto (land, construction, operation) Prefecture pay charges for rental of facilities and management expenses. Kyoto Aquarium Source: LCG, Website of the Organizations Project Owner: ORIX real estate Co., Ltd. Construction Opened in March 2012 Table 2.7: Station West Subprojects - Private Period: Construction & Operation Floor Area: 10,974m2 Jurisdiction in Southern Area Green Management Office Kyoto Research Park KCG: and Green Policy Promotion Department, Project Owner: Kyoto Research Park Co., LTD. Construction Bureau, Construction 1989, eastern area opened, gradually Notes: Park facility defined by Urban Park Act. Period: expanded until 2010, 9th building opened Entrance fee is JPY 2,050. Land Area Land area: 56,000m2 Financing: 100% from the private sector (Floor area): Floor area: 146,300m2 (15 buildings) Kyoto Railway Museum Jurisdiction in This research Park is private company Project Owner JR East Japan KCG and no KCG department is in charge of Construction Opened in April 2016 this. One KCG research institute is a Period tenant here. Land Area 30,016m2 (Floor area: 30,314m2) Notes As of December 2016, 400 tenant (Floor area) organizations with 4,400 workers. Tenants Jurisdiction in Southern Area Green Management Office include 21 international organizations from KCG and Green Policy Promotion Department, 9 countries and areas. Construction Bureau, Research institute tenants include; Notes Park facility defined by Urban Park Act.  Kyoto Prefecture Small Medium Admission fee is J¥1,200 per adult. 1.5 Enterprise Technology Center million visitors in the first year.  Kyoto Industry 21 Foundation Financing: 100% from the private sector  Kyoto Invention Association New Railroad Station (between Kyoto and Tanba-guchi  Japan External Trade Organization Station of JR Sagano-line) /JETRO Project Owner: JR West Japan  Advanced Science, Technology & Construction September 2017-Spring 2019 (Under Management Research Institute of Period: construction) KYOTO /ASTEM Land Area 1,000m2 under the girders of elevated  Japan Science & Technology Agency (Floor area) railroad Plus platforms /JST Kyoto City Industrial Technology Jurisdiction in Construction Bureau, Road Construction Research Institute KCG: Section (Data as of December 2016) Financing Construction cost is JPY 4.9 billion. Financing 100% from the private sector Shared with JR West Japan (JPY 1.9 Source: LCG, Website of the Organizations billion.), KCG (JPY 1.5 billion) and the National Government (JPY 1.5 billion). (5) Implementation New Vivid Zone of Kyoto City Central Wholesale Market Project Owner: STARTS Corporation Co., Ltd. Organization: Kyoto Station West Area Construction Under construction until fiscal year 2020 Revitalization is an umbrella program, under Period: (scheduled) which there are many subproject interventions Land Area: Land area 4,000m2 and promotion programs. The Kyoto City Jurisdiction in Project Promotion Section, General KCG: Planning Bureau Government is leading program coordination and Financing: KCG makes 60 years land lease contract implementation: for J¥30 million rent per year. 1st and 2nd floors are for commercial facilities (a) Future Concept Development Committee: The centering on restaurants. 3rd-8th floors are Kyoto City Government established a Future for hotel with 200 rooms. KCG induced hotel business by changing Concept Development Committee with diverse Urban Plan and eased the floor area ratio stakeholder members to prepare the draft concept preferably for hotel business. and vision of the plan. Following an additional Kyoto Food Culture Museum (named “Ajiwai-kan”) public consultation program, the plan concept was Project Owner: KCG, Kyoto Prefecture (management has finalized to ensure buy-in. been outsourced to the private sector) Construction Pre-opened in December 2012 Period: Opened in April 2013 (b) Program Joint Council: For program Land Area Approx. 1,000m2 implementation, the Kyoto City Government (Floor area) organized the Kyoto Station West Area Joint Jurisdiction in 1st Market, Kyoto City Central Wholesale Council, with 19 stakeholder members, in March KCG: Market, Industry and Tourism Bureau 2016. The Kyoto City Government’s role includes Notes: Museum occupies the third floor of a private-sector building in the central acting as Joint Council secretariat and providing wholesale market. Activities include budget for the activities of the committee. exhibition, seminar, and cooking school concerning food culture of Kyoto. Annual 85 (c) Activity and Interest Groups: The Kyoto City customer facilities, new businesses, a new railway Government encourages activity and interest station, and accessible public transport groups focused on sub-areas or specific topics to connections), generating synergy effects between take a lead role under the coordination of the them, and conducting promotional events. These program Joint Council. measures aim to increase local economic development and socioeconomic benefits for For example, an activity group named the “Kyoto businesses, restaurants, cafés, and shops by Umekoji Connects Everybody Project” has been rejuvenating the area to attract increased visitors, set up. It includes 45 member organizations – while also improving key infrastructure and private companies, community groups, shopping amenities to benefit local households. More street associations and the museum. Their specifically, this program is revitalizing old intention is to generate vital activities Kyoto shopping streets, and Kyoto Research Park will Station and Umekoji Park. create and develop new businesses. This is part of the strategy to transform the area from an Through the program Joint Council, Kyoto City isolated area on the town outskirts to an urban Government supports some parts of the program core. activities that can contribute to the vitalization of the entire Kyoto Station west area. The local economy will also benefit from tourism, which will be an additional source of revenue for Promotion and Dissemination: Through the the area and provide an economic payoff to the program Joint Council, Kyoto City Government original investment. The heritage restoration and operates a Kyoto Station West Area website and promotion should also boost tourism. For example, distributes area and program news, information on this program area includes various cultural events, maps, and recommended walking routes. properties, such as Nishi and Higashi Honganji The “Kyoto Umekoji Connects Everybody Project” Temple, Toji Temple, Mibu Temple, and the also maintains and manages a website to promote Sumiya building (now a museum) in the Kagai. events and activities such as photo contests, the With this program, more visitors will appreciate “circus of the sun and stars” festival, and the these heritage assets. Other visitor attractions are winter light festival. Together with this event an aquarium, railroad museum, food culture information, printed area maps are intensively museum, Buddhism museum, etc. distributed. These coordination and dissemination activities are raising awareness and promoting the (7) Lessons Learned area. (1) Urban Regeneration Supporting Tourism, Cultural Heritage, and Community (6) Outcomes and Impact Development: By making cultural heritage Outcomes: A prominent outcome of this program (including intangible heritage) and sustainable is the establishment of soft structures for the tourism core components of the comprehensive promotion of the area-wide revitalization plan and urban regeneration plan, synergies between these the generation of synergy effects from the many components are generated. Urban regeneration component projects, stakeholders, and and revitalization of the area are supporting partnerships. Once stakeholders recognize the tourism and cultural heritage (museums, positive aspects of the collaboration and traditional, shopping streets, markets, hotels, etc.) promotion activities, they have actively organized and together are fostering community and financed themselves and taken a lead. The development. Kyoto City Government is successfully regenerating one of the most important target (2) Coordination and Integration: The Kyoto areas in the city and mitigating uneven city City Government understands the importance of development. creating steady momentum for revitalization and incremental growth. It has made great efforts to Socioeconomic Impact: Kyoto Station West coordinate and integrate numerous completed, Area is one of the four parts of the city that was ongoing, and planned projects and bind them into identified for reorganization and revitalization. By one area-wide program with a clear vision. The connecting relevant individual interventions in an aim is that this approach will foster long-term integrated plan and concept alongside strong benefits, partnerships, and resilience. promotion, the area is now a busy quarter making an accelerated contribution to local economic (3) Community Empowerment: The Kyoto City development and livability. Government seeks to revitalize the program area for the benefit of local stakeholders and the city as This program targets local economic development a whole. However, it rarely claims ownership of and revitalization by connecting various area the program, but instead entrusts decision making facilities (such as cultural heritage assets, shops, to the Joint Council comprising local stakeholders 86 and leaves area promotion activities in the hands • The Kyoto City Government gains more of newly organized local business and activity inhabitant tax revenue; groups. Local people thus take the lead • The central government gains more themselves, with the Kyoto City Government personal and corporate income tax acting as an enabler, facilitator, and supporter. revenue; and • JR West increases its fare revenue. (4) Benefit-Based Cost Sharing: The new railway station is under construction with cost Before undertaking major projects, the Kyoto City sharing between the Kyoto City Government, Government carefully considers who will benefit central government, and the railway company (JR from the project, and then leverages these West); each party’s share is around a third. This findings to closely involve prospective new station will deliver benefits for each party: beneficiaries. 87 2.8 Case 7 – Southern Gion Area (1) Overview History: The Southern Gion area has been home to the Yasaka Shrine for hundreds of years and Introduction: The following case study profiles was developed as a Kagai. Kyoto has five districts the Southern Gion area, an authentic cultural called ‘Kagai’ – Gion Kobu, Miyagawacho, district with a long history of urban regeneration, Pontocho, Kamishichiken, and Gion Higashi – that where the community led efforts to hand down Geikos and Maikos have fascinated people with traditions and customs, ensure good residential their traditional dance for generations. The and commercial environments, and preserve the elegant dancing of Geikos and Maikos are one of atmosphere of Gion—while coordinating all these the superlative images of Kyoto. It still is home to goals with tourism through the active work of the Geikos and Maikos today: young girls who wish to Southern Gion Community Association. From the become Geikos and Maikos leave their homes to Downtown area of Kyoto City, Southern Gion is live in an Okiya and learn performance skills, located to the east, just beyond the Kamo River manners, and customs. A significant monument in and not far from the WHS Kiyomizu-dera Temple. the Southern Gion area is the Kennin-ji Temple, established in the 13th century as the oldest Zen Kyoto Palace sect Buddhist institute. Major fire and civil war, which occurred just before the establishment of the modern Meiji Government in 1868, destroyed Nijo much of the wider area of Kyoto and Gion. The Castle new Government took the devastated land, where Down Town it was later redeveloped as a town with the Ochaya (banquet venue with Geikos and Maikos) and a specific townscape characterized by Kyo- Southern Gion machiya. Kiyomizu Temple Kyoto Station Source: Googlebase Figure 2.46: Southern Gion Location Map Source: Kyoto City Kanko Navi Figure 2.47: Geiko and Maiko Performance 88 Kagais have been designated as one of the response to suggestions by the association that “Intangible Cultural Heritages that Connect Kyoto” reflect the wishes of local residents. Local by the Kyoto City Government. residents (association members) observe the city landscape and heritage policy rules and (2) Scoping frameworks, but feel the brunt of so many visitors to their area. Many of the townscape and building Southern Gion Community Association: The regulations are not something imposed from the Southern Gion Community Association takes an top down, but were actually requested by intensive lead role in Southern Gion’s historic and residents seeking to ensure the area is preserved cultural preservation and conservation activities. for future generations. The association was established in 1996 to preserve the historical townscape of the district. The district contains five neighborhoods, and all (3) Planning residents are association members. They are (A) Community Initiatives active in many areas, for example: The Southern Gion Community Association is very Townscape Control: The association concluded a active in managing the district. Residents here “townscape agreement” and examines come to agreements on fire prevention, property applications for building repairs and improvement rights, cleanliness, outside signage, parking, works. The Kyoto City Government has also building design, and business types. The established special townscape regulations for this association has prepared a community rule book area as well as subsidy programs. The of 40 pages. If an undesirable type of business association and Kyoto City Government closely plans to move to the area, the community cooperate with each other to control the association objects to the application. The townscape and offer guidance. community has a strong sense of solidarity and civic pride and is proud to maintain the Control of Business Types: To hand down town distinguished traditions of the area. The traditions and culture, the association helps shape association helps facilitate the Kyoto City the type of businesses present in the area. For Government policy and regulations framework, as example, it tends to avoid cheaper-end explained below. businesses that would further increase tourist flow in the district, such as rental kimono (Japanese (B) Townscape Preservation Policy and costume), rickshaw, rental bicycles, and Planning convenience stores. Overview: Chapter 1 has already explained the Disaster Management: The association’s activities city’s role in enabling regeneration through a legal, include installing equipment such as security planning, and supporting framework, with citizens cameras, fire extinguishers, and burglar alarms. In and local businesses taking ownership, including addition, especially because wooden buildings through the city’s comprehensive support for the account for a large portion of the area’s building preservation of historic Kyo-machiya (historic stock and there are many narrow alleys, the townhouses). The Kyoto City Government has association installs fire hydrants and voluntarily prepared many ordinances and regulations. For conducts regular fire drills and firefighting drills. each area and district targeted for urban regeneration, suitable articles within relevant Tourist Education and Manner Improvement: ordinances and regulations are consolidated and Challenges in Southern Gion include an applied to solve local issues. unwelcome increase in the number of tourists and tourists’ nuisance behaviors. The association As also noted, Kyoto City provides the townscape cooperates with universities to conduct statistical preservation policy and planning framework, but it surveys about tourists and disseminates is the Southern Gion Community Association that educational materials and guidance, including delivers and shapes the policy at the local level. tourism information posters with “dos and don’ts.” Some volunteer activities from members include This section will focus on some of the specific street cleaning to remove chewing gum from the measures and locally relevant policies that have stone pavement. been adopted in Southern Gion. Support of Kyoto City Government: The General City Planning (Use District): In the association has implemented very effective overall city plan, the Southern Gion area is activities for townscape conservation and designated as a Commercial District with control improvement, which the Kyoto City Government of the land coverage ratio (80%) and building floor supports. For example, the Kyoto City ratio (400%). In the Commercial District, there are Government adapts various regulative schemes in few restrictions on land use types according to 89 type of industry. In the building height control zone, the building height is limited to 15m. District Plan: However, in agreement with the local community, the Kyoto City Government has imposed additional regulations in the form of the District Plan: • Land use – Adult businesses, nightclubs, Karaoke premises, etc. cannot operate in the district. • Minimum lot size – A building lot should be more than 80m2 in order to prevent re- division of premises. Figure 2.48: Narrow Street of Traditional Kyo- • Road setback – The district is exempt machiya Townscape from the building code’s road setback rule. Construction Works in the District: In Southern Under the code, buildings must be set Gion, as a Historical Landscape Preservation and back 2m from the road center to secure Adjustment District, any changes to the exterior of 4m of road width. The outer wall of the buildings requires the mayor’s permission in building is lined up at almost 1.35m from advance and the change should meet the the center of the road. Without the requirements of the local conservation and exemption, the townscape would change improvement plan and the local standards. In due to the setback, but the exemption case the building is to be demolished, the mayor preserves the intimate and delicate is to be notified 30 days prior to the streetscape of Southern Gion. commencement of the work. Historical Landscape Preservation and Conservation Measures: In Southern Gion, as a Adjustment District: Historical Landscape Preservation and Adjustment District, traditional buildings including Definition: In 1992, Southern Gion (14.1ha) was Kyo-machiya are supposed to be renovated and designated as a “Historical Landscape preserved to retain their original styles. Those Preservation and Adjustment District” based on historical buildings that have lost their original the City Ordinance on the Betterment of Urban styles are now being gradually renovated under Landscapes. The following three areas have been the aforementioned guidelines. To this end, the designated: city partly covers the cost of the renovation necessary to conserve the traditional styles. This • Gionmachi-minami (Southern Gion) regulation has a scheme of subsidy; significant • Gionnawate-Shinmonzen area conservation or improvement work in the • Kaminokyo-Kokawa area designated district can get financial support of up to JPY 6 million. Furthermore, this regulation These areas have townscapes with many historic stipulates detailed design of the buildings with buildings and need conservation. Southern Gion design guidance illustrations: has many Kyo-machiya that convey Kyoto's historical building style and lifestyle, and their preservation, exterior repair, and improvement are aided and supported. The Historical Landscape Preservation and Adjustment Districts differ from the Preservation Districts of Historic Buildings in that removal or construction of buildings is allowed. Southern Gion has adopted the system for handing down traditional styles and townscape while also allowing the renewal of buildings on a daily basis as a city. Source: Kyoto City Government Figure 2.49: Illustrations of Design Guide Kyoto City Ordinance on Fire Prevention: Fire prevention regulations are eased for this district. The original policy that related to wooden townscapes (Kyoto City Ordinance on Fire Prevention, enacted in 2002) has been lifted in the 90 designated areas such as Southern Gion to allow the community association to upgrade road traditional facades to be preserved. Such areas pavements and, equip security cameras, fire were originally “Sub-Fire Preservation Zones,” extinguishers, and burglar alarms in the district. where it was difficult to preserve traditional designs of wooden buildings, since it was (5) Outcomes and Impact necessary to use fireproof materials for roofs, outer walls, and fittings. However, the ordinance Keeping the Character of the Area: The includes specifications for securing a fireproof Southern Gion area has long been a famous function while utilizing the traditional design. In entertainment district, with traditional Japanese addition, new fire prevention standards are Kagais a key part of the area’s local economy. established for traditional buildings while taking The Community Association, with assistance from account of the fire prevention capacity of the local the Kyoto City Government, has sought to community. preserve the traditional townscape and industries while discouraging low-end tourism. In turn, the Kyoto City Project of Underground Electric aim is for the Southern Gion area to sustain its Cables: Kyoto City deployed a Power Pole status and traditions and support its long-term Elimination Plan with priority given to areas with local businesses. This community aims to perspective landscapes such as the vicinity of the maintain business traditions rather than pursue World Heritage sites and historical landscape new business opportunities that depart from the preservation areas. Under this plan, electric poles character of the area. Quality of life issues for were eliminated from the Southern Gion area as residents (influx and effects of tourists) were shown in Figure 2.50. In fact, back in 1999-2000, discussed above, and mitigation measures have the pipes for water, sewage, and gas as well as been put in place by the active Southern Gion telephone and power lines were consistently put Community Association to address these underground in the area. challenges. Traditional Townscape: As a result of efforts by the community association, this district successfully maintains and preserves its status as an authentic cultural district and historic townscape. Addressing Challenges: However, the Southern Source: Kyoto City Government Gion area and the Community Association still Figure 2.50: Underground electric Cables – face many challenges in ensuring that this Southern Gion Before and After success is maintained. Two examples are introduced below. (4) Financing and Implementation Tourist Impact and Etiquette: With its prominent Management of Community Association: traditional townscape, famous heritage assets Based on community consensus and rules, the such as the Yasaka Shrine and Kennin-ji Temple, community association cares intensively for the and convenient public transport access, the historic neighborhood in line with the landscape Southern Gion area becomes extremely crowded and historic preservation legal, policy, and with tourists. The influx of tourists creates some planning framework. challenges for Southern Gion Community Association, including distribution of traffic flow, Kyoto City Government Control: Kyoto City security issues, cleanliness, orderliness of the Government secures the traditional townscape of area etc. As a “Kagai”, it is home to businesses Southern Gion with overarching regulations, laws, that target high-end guests and accept only and policies, such as procedures for reporting a customers who have an introduction from a building change (Ordinance of Urban Area regular patron. Many businesses in Southern Gion Townscape Improvement) and building do not regard most tourists as their customers. To confirmation (Building Standard Act), as well as assist with keeping the authentic nature of the with some subsidies. district, the Community Association places signboards to help teach proper etiquette. Donations for Townscape Improvement: The Southern Gion Community Association receives financial support from donors. For example, the Japan Racing Association (JRA) (horse racing), which operates a betting shop in the area, is an association member and has provided financial support to the community. This support enables 91 (B) Community-led Townscape Preservation of Traditions and Townscape: The case study of the Southern Gion area has showcased a long history of an authentic cultural district where the community led efforts to hand down town traditions and customs, create good residential and commercial environments, and preserve the atmosphere of Gion, all through the active work of the Southern Gion Community Association. Again, Kyoto City Government provides the overarching Source: KCG regulations, laws, and policies, while the local Figure 2.51: Tourist Behavior Signboards community, through the association, takes a proactive and leading role in preserving the Aging Managers: Although a group of traditional townscape and continuing the traditions. teahouses has been left as a red-light district in the area, the number of teahouses has been (C) Tailoring and Refining Policies for the decreasing due to aging managers. Some Local Context: The Kyoto City Government has buildings are handed down after a change in the prepared many ordinances and regulations. For type of business, and some corporations succeed each area and district targeted for urban in the teahouse business, but it is necessary to regeneration, suitable articles within relevant continue to carry out some measures to help ordinances and regulations are consolidated and ensure teahouses are conserved. applied to solve local issues. In this way, the city adapts, tailors, and refines various regulative (6) Lessons Learned schemes in the Southern Gion area to suit the local context while still meeting the overarching (A) Authentic Cultural Heritage and “Kyoto- goals. ness”: The Southern Gion district provides an example of a town enabling, maintaining, and As Southern Gion’s historic townscape includes enhancing its identity – in this case, its “Gion- Kyo-machiya on very narrow streets, many ness.” This is not done on behalf of tourists. modern urban planning rules and regulations Although the number of tourists has sharply would come into conflict with preserving the increased, control has been exerted to carefully traditional townscape. The Kyoto City Government protect some forms of business from too great a therefore carefully refines the approach where decline. This has been delivered in part from the applicable. understanding and attitudes of local people in the area of how to hand down “Gion-ness,” which has For example, fire prevention regulations have been protected throughout the long history. been eased for this district to allow the traditional wooden facades of the buildings and narrow Recently, “Lacia Kyoto” (small shop) opened after streets to remain, while substituting other repairing a Kyo-machiya along Hanamikoji Street. countermeasures against fire. The Kyoto City In addition, the eminent Daimaru Matsuzakaya Government considered uses various Department Store commemorated the 300th technologies and systems for repair in case of a anniversary of its foundation and used a Kyo- fire. In addition, it installs fire hydrants and machiya for opening a seasonal pop-up store, regularly carries out large-scale fire drills in each which deals in Hermes, Hublot, and other world community. In this way, it avoids nationwide brands. uniform fire prevention measures by adopting its own fire prevention specifications and systems, This approach ensures that both the Southern and by evaluating the community’s fire Gion and wider Kyoto City authentic cultural preparedness. heritage legacy, or “Kyoto-ness,” is preserved and passed on to the next generation. 92 2.9 Case 8 – Intangible Heritage: Gozan-no-okuribi Festival Source: Kyoto City Government (1) Overview and History The Kyoto valley is surrounded by mountains on The Fire Ritual of the Five Mountains event, or three sides (to the west, north, and east) and “Gozan no Okuribi,” takes place on August 16 bonfires or “Daimonji” are lit on five mountains, every year. This event is registered as Intangible encompassing an area of some 20km west to east, Folklore Property of Kyoto City. It is closely and 5km north to south. connected with “Kyoto-ness,” or the civic pride of Kyoto citizens in terms of tradition, community, (2) Planning tourism, and townscape control. Operations, Maintenance, and Safety Planning Local people and preservation groups have taken the lead on operations and maintenance duties, handing the skills and knowledge down from generation to generation. Preservation groups and a large community of stakeholders make significant efforts to prepare for and implement the Matsugasaki Myoho Hunagata Mandouro ritual. Hidari Daimonji Toriigata Taimatsu Source: Kyoto City Government Figure 2.52: Bonfires of the Gozan no Okuribi According to Japanese traditional beliefs, the spirits of ancestors visit the home of their descendants during the Obon period (August 13 to 16). Local people construct five giant bonfires on the mountains around the city to guide the ancestors’ spirits back to heaven. The origin of Source: Kyoto City Government this ritual is not well known, but during the Edo Figure 2.53: Gozan no Okuribi Preparations Era (1603-1868) this event practiced, and 10 figures were lit on the mountains. 93 In the case of the “Daimonji” bonfires themselves, preservation of perspective and borrowed there are 75 fire stacks in total, which are placed landscape,” including enacting the Kyoto City in rows to form each symbol’s shape. Both setting Ordinance on the Creation of Perspective up the bonfires and maintaining the fire stacks are Landscape for the first time in Japan. This important tasks for the preservation groups. Each ordinance stipulates standards governing year some 1,000 people are involved on the structures to protect visible views between the mountainside in the operation of each bonfire, viewing spot and the object to be viewed – for including volunteers who carry firewood and instance, the view of Mt. Daimonji (a Gozan no prepare fire stacks, as well as the fire brigade. Okuribi area) from the Kamagawa River: Fire disaster prevention is clearly a key issue and a demanding task. For example, grass areas and View Protect bushes around each fire location are cleared to Zone Building height prevent the surrounding area from being ignited control Zone by the bonfire. Distant View Traffic Control and Viewing Areas Preservation Zone There are a number of prominent places to best observe the bonfires. Some areas such as Shimo- gamo Shrine south and the Kamo-gawa River area become so very crowded that traffic and/or pedestrian control is imposed. In fact, police figures suggest that 100,000 people observe the event each year. However, many observers enjoy Close View the spectacle from rooftops or by joining hotel and Preservation Zone restaurant observation programs with dinner Figure 2.54: Landscape Policy “View included. Preservation” Concept More specifically, this system contains four Connection with Landscape Policy and different zones to control building height and Townscape Control design to secure the sight of the Gozan no Okuribi as well as suitable design of the buildings. Overview: Historically, Kyoto City planning and policy has helped conserve the Gozan Five • View Protect Zone: To prevent blocking out a Mountains area by restrictions and rules view from viewpoint field to visual object, true conserving historic landscapes, and therefore heights that buildings must not exceed are set. helped directly secure Gozan no Okuribi through • Distant View Preservation Zone: Standards landscape policy and townscape control are set for the color of exterior walls and roofs measures, many of which have been described so as not to damage the quality of the above. Two prominent policy milestones in the perspective landscape. context of the festival are summarized below: • Close View Preservation Zone: Building within 500m of the designated viewpoint to the Expansion of Landscape Regulated Areas direction of the bonfire should be carefully (1996): Following the series of policy measures considered so that the façade and roof design set out in 1991 and 1992 by the Council for Kyoto do not disturb the townscape. City Development on Measures for Land Use and Landscape, discussions then turned to wider (3) Financing issues around the conservation of natural and historical landscapes, including those on the (a) Subsidy: The Kyoto City Government mountains surrounding Kyoto City and their allocates subsidy for the Gozan no Okuribi event. foothills. In 2017 the event received a subsidy of JPY 9.3 million for the event itself and an additional JPY In 1995 the area of the Historical Features Special 6.6 million for maintenance (repairing the fire Conservation District was almost doubled to cover stacks). most of the mountainous areas surrounding the Kyoto basin, including the area for the Gozan no (b) Self-financing of the Preservation Groups: Okuribi festival. Preservation groups bear a lot of the implementation cost, and the labor of operating New Kyoto City Landscape Policy (2007): As the bonfires is considered an honorable duty of earlier discussed, Kyoto City’s Landscape Policy the family from generation to generation. The includes more comprehensive measures for “the groups construct and maintain the fire stacks, purchase firewood, carry it up the mountains, 94 ignite the firewood as part of the Buddhist for cooperation from citizens, for example: a) ceremony, and take care of the site until primary restrictions on climbing the bonfire mountains; b) extinguishment. restriction on drones for photography; and c) reductions in outdoor lighting during bonfire (c) Event Revenue: As the five bonfires can be periods. seen from a wide range of locations across the valley, no fee is charged. To mark the significance (5) Outcomes, Impact, and Lessons of this Buddhist ceremony, preservation groups sell wooden plates called “Goma-gi” for Learned approximately JPY 300 each. People write their (a) Event and Cultural Heritage Legacy: This names on these plates and wish on them, and the annual event successfully continues a tradition traditional belief is that people will gain happiness that is hundreds of years old. In turn, it contributes by burning the wooden plate in the bonfire as part to the historical reputation and civic pride of Kyoto of a Buddhist ritual. The Daimonji Bonfire and promotes cooperation among preservation Preservation Group sells 15,000 plates each year. groups, local people, city government, and other agencies. (4) Implementation (b) Tourism Effects and Impacts: As noted, Institutional System: Bonfires on the five police figures suggest that 100,000 people different mountains are operated by their own observe the event each year. Since the event bonfire preservation groups. Each group is finishes around 9 pm, many visitors require an connected to a specific temple, and traditional overnight stay in Kyoto City, thus contributing duties are enthusiastically passed on from increased tourism revenue. Furthermore, the generation to generation. The five preservation event takes place during the hot summer off-peak groups belong to the Federation of the Five season, and so the event helps mitigate Mountains Bonfire. The federation is responsible seasonality fluctuations. for coordination of the following: (c) Townscape Control: Finally, Gozan no Timing Coordination: Lighting times of the different Okuribi provides a unique example of an bonfires was not coordinated until 1963, when the intangible cultural heritage event that is integrated tourism industry requested synchronization. into townscape control and landscape policy, which help it flourish, and that is supported by the Acceptance of Subsidy: The federation receives local community. Generally speaking, such strict subsidy from the Kyoto City Government and building height and design control policies could delivers funds to the five-member groups. cause issues with the local population, but in Appeal for Cooperation: To ensure smooth Kyoto, heritage and traditional customs create implementation of the event, the federation in such strong civic pride that the policies are a cooperation with the Kyoto City Government and success the police announces and disseminates requests 95 3 Summary of Lessons Learned from Kyoto’s Experience 3.1 Lessons Learned and Suggested Actions (1) Cultural Heritage Lesson 1) Take a Long-term Strategic Planning, Management, and Organization Approach Delivering Cultural Property Restoration Kyoto City is home to 14 well-conserved UNESCO World Heritage properties and many old cultural properties. These sites have been conserved or redeveloped with the utmost consideration for historical authenticity. Except for Nijo Castle, World Heritage temples and shrines are not managed or maintained by the city or state. Instead, they are managed by individual temple or shrine associations (NPOs). The management and organization approach of Kyoto City, and in particular its Cultural Properties Protection Section, provides an overarching system of policies, strategies, promotion, and technical assistance, while much of the conservation, operations, and maintenance is carried out by the owners. In the case of the WHS Kiyomizu Temple, the central and prefectural governments support the temple’s efforts and have prepared a long-term plan of subsidy allocation and technical assistance. Furthermore, various efforts for fundraising with seasonal events, light-up events, and special campaigns are made for improved revenue generation. Suggested Action 1-1: Cultural heritage property owners prepare a long-term restoration plan with realistic costs Suggested Action 1-2: Public sector coordinates subsidy and technical assistance in longer term Suggested Action 1-3: Cultural heritage property owners make effort to improve revenue generation Lesson 2) Leverage and Foster Citizens’ Sense of Responsibility for and Ownership of Their City’s Cultural Heritage Citizens of Kyoto recognize the importance of cultural heritage in their city. For them, the tangible and intangible cultural properties are essential parts of their environment and life. For the maintenance and promotion of cultural properties, the public sector respects the role of property owners and encourages them to take needed actions rather than taking the lead itself. The city conducts extensive initiatives to involve and engage the public. In a successful process, the city facilitates, encourages, and guides protection and restoration works, while NPOs and communities take the lead and assume ownership. Suggested Action 2-1: Help cultural property owners to maintain and repair their assets Suggested Action 2-2: Involve citizens in activities to promote cultural heritage assets Suggested Action 2-3: Open cultural heritage to the public with attractions and events Lesson 3) Foster Linkage of Culture with Urban Regeneration, Sustainable Tourism, and Kyoto Promotion Since cultural heritage is embedded in the entire city, the city’s culture or “Kyoto-ness” is linked with many other policies such as urban regeneration, sustainable tourism, promotion of the city, and in turn economic development. The various events and festivals organized for enjoying and understanding Kyoto culture can encourage tourists to become repeat visitors. Kyoto’s brand can attract not only tourists, but also MICE events, universities and research institutes, and investment for enhanced industry. Suggested Action 3-1: Manage city planning to maximize the value of cultural heritage Suggested Action 3-2: Let tourists enjoy many aspects of cultural heritage for repeat visits Suggested Action 3-3: Apply city brand originating in history and culture to MICE, industry, university, etc. (2) Urban Regeneration Lesson 1) Support System-Led Approach for Conservation and Urban Regeneration The Kyoto City Government has carried out urban conservation and development in its own way. Instead of the conventional urban regeneration project-led approach, Kyoto City has designed a comprehensive system (urban planning system, policy and legal framework, and financial systems) as well as the system’s enabling conditions. In the regeneration area, the Kyoto City Government regulates the height and design of buildings (to recover those destroyed during the high economic growth period); instead of major development to promote tourism, Kyoto relies on its own townscapes and the urban culture and heritage they represent. Increasing buildings can be harmonized with Kyo-machiya townhouses if households or businesses can rebuild their houses or buildings in the downtown “regeneration area”. In addition, the 96 following steps will help Kyoto City safeguard its cultural heritage legacy or “Kyoto-ness” and improve its city environment: a) households incrementally renew their own houses (Kyo-machiya); b) KCCC’s Kyo-machiya Development Fund (funded by private donations) enables households to renew their houses (Kyo-machiya); c) local financial institutions extend and provide credit to KCCC’s Kyo-machiya Karte records for repair or acquisition of Kyo-machiya; and d) specialist traditional carpenters and experts help households to preserve their Kyo-machiya. Suggested Action 1-1: Prepare a clear supporting framework of laws, policies, and strategies in close consultation with NPOs, project owners, academia etc. This collaboration needs a core organization like the aforementioned KCCC. Suggested Action 1-2: Provide supporting systems with both technical and financial support Suggested Action 1-3: Enhance and foster participation to enable community-led townscape preservation Lesson 2) Ensure Good Coordination to Leverage Public and Private Sector Partnerships The civic pride of Kyoto has been and always will be central to its success. It is a major and unique asset for cultural heritage preservation and urban regeneration in Kyoto, one that helps support sustainable tourism. Kyoto has long provided education opportunities for citizens to learn more about their history, culture, and traditions, thus increasing their sense of pride and responsibility. The civic society, consisting of community groups, religious associations, academia, cultural groups, and others, takes a lead role and keeps a careful eye on the city’s development vision and the associated policy interventions. It holds the government accountable for planning and ensuring comprehensive development that maintains and improves the local economy but not at the expense of people’s livelihoods. In this way, civic pride and community participation involve tangible action and results. For its part, the government benefits from citizens’ deep understanding and willingness to adopt strict landscape regulations, architectural standards, and development rules, which would likely not be the case elsewhere. Suggested Action 2-1: Encourage and allow civic society to take a lead role and keep a careful eye on the city’s development vision and the associated policy interventions Suggested Action 2-2: Encourage and allow NPOs, private sector, and private banks to support traditional townscape elements like Kyo-machiya. For this kind of coordination, a core organization like KCCC is important. Suggested Action 2-3: Coordinate various projects under united themes to achieve synergy effects (refer to Kyoto Station West case study) Lesson 3) Adopt a Comprehensive and Detailed Approach to District Planning – Refine, Enhance, Monitor The Kyoto City Government has prepared many ordinances and regulations. For each area and district targeted for urban regeneration, suitable articles within relevant ordinances and regulations are consolidated and applied to solve local issues. In this way, the city adapts, tailors, and refines various regulative schemes in different areas to suit the local context while still meeting the overarching goals. Although Kyoto has demonstrated success using the above approach and its comprehensive Landscape Policy 2007, the Kyoto City Government continues to re-examine, strengthen, and refine its approach. Suggested Action 3-1: Tailor and refine policies for the local context (refer to Case Study 7 – Southern Gion) Suggested Action 3-2: Prepare diversified tools and enhanced policies for historic districts Suggested Action 3-3: Survey and monitor regulation compliance in consultation with local communities to spot issues and ideas for improved policies (3) Sustainable Tourism Lesson 1) Promote Policy Change from Quantity to Quality Each year Kyoto receives more than 55 million visitors, creating an economic ripple effect of around JPY 1 trillion (Kyoto City Government, 2016). Such high visitor numbers present the city with a major management challenge. Kyoto has helped achieve its sustainable tourism successes by shifting the focus of its tourism policy from quantity (number of visitors and tourists) to quality (spending and satisfaction). Suggested Action 2-1: Ensure quality aspects are prioritized in tourism policy and planning Suggested Action 2-2: Plan and deliver quality through hard infrastructure (physical) measures 97 Suggested Action 2-3: Plan and deliver quality through soft infrastructure (policy, regulations, human resource development) measures Lesson 2) Formulate Long-Term Tourism Promotion Plans with Measurable Indicators and Tailored Action Plans for Sustainable Tourism Development To plan for successful outcomes, long-term and short-term policies and strategies are necessary. The experiences in Kyoto show the value of setting logical indicators as targets based on analysis of surveys. This approach has been useful to make tourism promotion planning clearer and more persuasive, with tailored action plans every five years. Moreover, Kyoto City has verified the results applying the PDCA (Plan- Do-Check-Act) approach to clarify and solve issues and challenges. With survey results collected in a database, it has been possible to understand and develop solutions for tourists’ reports of dissatisfaction. From the government perspective, laws and regulations can support the tourism environment and local people. Suggested Action 2-1: Utilize the database of tourism surveys to understand the issues and challenges in improving tourism development Suggested Action 2-2: Set clear targets with indicators and details to formulate the tourism strategies and planning for both the long-term and short-term Suggested Action 2-3: Review tourism policy and make regular tailored action plans to respond to changes, challenges, and issues Lesson 3) Enhance Community and Private Sector Involvement and Empower Civic Pride The active involvement of local people and businesses is crucial for sustainable tourism development to succeed. The case of Kyoto City has highlighted use of a bottom-up approach to tourism development starting from the community level; collaborative efforts by government, public and private sectors, the academy, and local people can lead to effective and efficient approaches. While the relationship and balance between different stakeholders are important and sensitive issues, the role of the government is to communicate with various stakeholders and collect information from them. Furthermore, by providing educational opportunities and developing human resources, the government can build local capacity, offering local people knowledge and experiences related to their culture, history, and city. These instill civic pride and promote community development. Suggested Action 3-1: Create and implement educational opportunities for local people to enhance their knowledge and experiences of their culture, history, and city Suggested Action 3-2: Increase opportunities for stakeholders’ involvement in tourism development and promote a collaborative approach to promote sustainable tourism Suggested Action 3-3: Establish a collaboration mechanism between the city and the tourism association 3.2 Conclusion This report has presented Kyoto’s experience and its main achievements in preserving and developing tangible and intangible cultural heritage; in urban regeneration of historic districts; and in sustainable tourism development. The report sets out key policy, planning, and institutional arrangements at the city level and links to the national level that enabled this process. It also presents specific lessons learned and actions suggested by the analysis of eight case studies, and it identifies some of the key future challenges and pressing questions the city faces. Finally, it demonstrates how the linkages and interrelationships between cultural heritage, urban regeneration, and sustainable tourism create synergies that have allowed Kyoto City to prosper. The principles and guidelines presented above have their limitations. They are based on the best practices and lessons learned from case studies of successful Kyoto initiatives on cultural heritage, urban regeneration, and sustainable tourism. Despite their limitations, these case studies and lessons learned can convey to relevant professionals – those working in urban regeneration, cultural heritage restoration, and tourism development – the possibilities and challenges that lie before them. Kyoto City is indeed a unique case, but the report includes various elements and lessons that are applicable for many cities around the world facing similar issues. We hope that this report will serve as a useful reference for practitioners and researchers who believe that integrating cultural heritage, urban regeneration, and sustainable tourism can facilitate local economic development, promote community development, and preserve and enhance a city’s diverse assets as a lasting legacy for future generations. 98 This work is a product of the staff of the World Bank Group with external contributions. The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of the World Bank Group, its Board of Executive Directors, or the governments they represent. Nothing herein shall constitute or be considered to be a limitation upon or waive of the privileges and immunities of the World Bank Group, all of which are specifically reserved. The Tokyo Development Learning Center (TDLC) program is a partnership of Japan and the World Bank Group. TDLC supports and facilitates strategic World Bank Group and client country collaboration with select Japanese cities, agencies, and partners for joint research, knowledge exchange, capacity building and other activities that develop opportunities to link Japanese and global expertise with specific project-level engagements in developing countries to maximize development impact. World Bank Group Social, Urban, Rural and Resilience Global Practice Tokyo Development Learning Center (TDLC) Program