Chapter

Chapter 2 The History of Landscape formation and Town Development in Kyoto

The History of Landscape and Town
Development in Kyoto before Early Meiji Era
The city development plans launched by the rulers in each period and those carried out by the residents themselves strongly
influenced each other; and frequently changed the landscape of Kyoto. During the long period, this landscape was enriched
deeply by the sophisticated culture of the capital city and the lifestyle of its residents. This chapter will describe how the current
landscape was developed, starting from Heian Period to the early Meiji Era.

1 Heian Period
The History of Landscape formation
and Town Development in Kyoto

Relocation of the capital

~Heian-kyo, a well-designed city Development of Heian-kyo
Since Emperor Kanmu relocated the capital to Heian-kyo As people began to adjust to the new life style, which is
in 794, the land of Kyoto was called ‘Miyako’ or the capital.
living in a city, they gradually changed the original concept
Heian-kyo extended approx.4.5km from the east to the west
of the “designed city”. Being mostly marshy, the conditions
and approx.5.2km from the north to the south. It consisted
in Ukyo town gradually deteriorated, while Sakyo town
of two symmetrical towns, Sakyo and Ukyo. The city was
meticulously designed based on the system called Jobosei became the centre of the city functions of Heian-kyo and its
where streets were laid out on a grid pattern. The framework area was heavily utilized. People converted some parts of
of present Kyoto was laid in this period. The city planning streets for housing and agricultural purposes. These parts
concept of Heian-kyo was modelled after Chinese design. were called “Kosho”. They also constructed new streets
The government at that time placed importance on the called ‘Zushi’ which extended into square blocks in the city.
location of the capital. Kyoto was chosen because it This created more housing space and contributed to the
matched the condition of “Shijin-so-oh”, which is based on
increase of convenience for the people.
the Feng Shui geomancy.

Temple and city development of Heian-kyo

In the early stages of Heian-kyo, the construction of
temples, except Toji and Saiji Temples, were totally
prohibited to curtail the influence of Buddhism. However,
after the late 10th century, other temples were constructed
and the number of their followers started increasing. In the
11th century, aristocrats constructed private temples, villas,
palaces and detached palaces for the retired emperors in
Shirakawa and Toba, the suburbs of Heian-kyo. Thus, the
suburbs were developed and urban space was expanded.

Shijin-so-oh
Shijin means four Gods: the Blue Dragon, the White Tiger,
Red Peacock and Black Turtle/Snake. In the world of
antiquity, each four gods were responsible for four
directions: the east, the west, the south and the north. People
believed that a land with the following four criteria is
Heian-kyo and the Present Kyoto superimposed. appropriate for the guardian gods to reside: a river in the
.

21 The landscape of Kyoto

 2-1 The History of Landscape and Town Development in Kyoto before Early Meiji Era

east, a wide street in the west, a plain or a pond in the south west, Ogura Pond in the west and Mt. Funaoka in the north.
and a hill in the north. Being surrounded by mountains on three sides, also
The northern part of Kyoto Basin met all the criteria, contributed to choosing Kyoto as Heian-kyo capital.
having Kamo River in the east, San-in Trunk Road in the

2 Kamakura to Muromachi Periods

Kyoto in Kamakura Period landscape of Kyoto on folding screens and fans became
In Kamakura Period, the vicinity of Rokuharatandai (the extremely popular. Such pictures were called
bastion of the military force in Kyoto) was urbanized. “Rakuchu-rakugai-zu”.
Although Kyoto had lost its importance as the capital in These pictures not only reveal the liveliness of Kyoto, they
Kamakura Period, it kept prospering as a commercial and manifest the sentiment of people who tried wholeheartedly
industrial city. In the middle of 13th century, the to recover from the ravage caused by the war

The History of Landscape formation

commercial and industrial districts expanded around

and Town Development in Kyoto

Machikoji (present Shinmachi Street). The area north of
Nijo-oji Street was called “Kamino machi” (upper town)
and the area south of it was called “Shimono machi” (down
town).

Kyoto in Muromachi Period

In Muromachi Period, Kyoto regained its power and
importance as a capital. The terminology for the division of
the city such as “Rakuchu” “Rakugai” and “Kamigyo”
“Shimogyo” were introduced. The two districts, Kamigyo
and Shimogyo had different functions. Kamigyo a venue for
government officers including court nobles and warriors and Townscape in Muromachi Period (Model)
Shimogyo as an abode for merchants and businessmen such
as banking business.
Transformation of Cho
Popularity of visiting shrines and temples The original plan of early Heian Period defined a square
bloc of the city as “1-Cho” which was supposed to have
From Muromachi Period onwards, visiting shrines and
houses on the east and the west sides only and they were
temples became more popular among commoners, and their
called Nimencho or a Cho with two faces. Soon people
purpose began to change from faith to sightseeing. People
began to build houses on all four sides of the block which
started sensing the value of attractive sceneries blended with
was called Shimencho or a Cho with four sides.
the natural environment in the notable places in Rakuchu
These changes were caused by the fact that streets
(the urban centre) and Rakugai (the suburbs).
became a living space for people.
For example, markets moved from the centre of blocs
The -Onin War and the establishment of Chogumi surrounded by walls to the outer area along the streets and
In 1467, the Onin war broke out which destroyed and formed shopping malls there. Thus, according to the
burnt most of the urban area to ashes. This incited Kyoto increasing need for streets as living space, Shimencho
citizens to develop autonomous communities and protect became Cho.
their lives by themselves. In the middle of 16th century, As the importance of streets increased, each side of Cho
several communities got together and established the became independent and was called Cho (using different
“Chogumi”, or community federation. character with the same pronunciation ) and
In order to maintain security, temples and Chogumi Yoncho-cho or four side Cho was formed.
constructed “Koh” or fortified mounds with wooden gates Later during the warring states period, for the sake of
around their areas and placed guards at the gates. ease in the defense, a new Cho system was created. In this
system, the sides of two previous Cho facing each other
“Kyo-ezu”or pictures of Kyoto landscape across the street were defined as 1-Cho. Such a Cho was
were in fashion called Ryogawa-cho which later served as a basic single
During the warring states period, drawing pictures of autonomic community of Kyoto

The landscape of Kyoto 22

 2-1 The History of Landscape and Town Development in Kyoto before Early Meiji Era

3 Azuchi-Momoyama Period to Edo Period

Unified administration in Kyoto town. In order to develop Kyoto as a castle city, Hideyoshi
The restoration of Kyoto after the Onin War was carried built “Odoi” or the mound surrounding the central area of
out by Nobunaga ODA and Hideyoshi TOYOTOMI. Since the city and got rid of “Kidomon” or the wooden gates at
there was friction between people with different strata and the entrance of each cho.
interests, it was necessary to reorganize Kyoto under a
unified authority. Moreover, in order to rule the entire
country under a unified regime, it was very important for a
ruler to control Kyoto, the capital of Japan.
In 1569, Nobunaga ODA constructed a castle (Old Nijo
Castle) with stonewalls and donjon on Muromachi Street to
connect Kamigyo and Shimogyo areas. He tried to
strengthen the military domination in Rakuchu or the urban
The History of Landscape formation
and Town Development in Kyoto

area, and attempted to unify Kamigyo and Shimogyo areas.

Nobunaga completed this project by burning down
Kamigyo in 1573 to start a new land development project
under his control.

Hideyoshi:s Urban policy

Hideyoshi took over Nobunaga's agenda and carried out
extensive town renovation.
First of all, he built Jurakudai, a full-scale castle in 1587
on the unused land of Daidairi or the old palace site of
Heian-kyo. This splendid castle symbolized Hideyoshi's
enormous power.
At the same time, he conducted survey on lands in
Rakuchu, twice from 1587, and reorganized the land
owner’s rights. After the land survey conducted by
Hideyoshi, the tax collection by local lords was abolished.
As a result, Hideyoshi's ruling over Kyoto was strengthened.

Renovation of Kyoto by Hideyoshi

After establishing a powerful regime in Kyoto, Hideyoshi
launched a full scale city renovation project.
In 1590, he implemented the “Shichu-machiwari” project
by constructing narrow streets called “Tsukinuke” which
extended into the center of square blocks and divided them
into two rectangular blocks. With this, the open spaces left
untouched at the center of square block were also used
effectively.
Meanwhile, along with “Shichu-machiwari” project, he
created zones exclusively for residents of the same status,
for instance, “Bukemachi”or warrior’s town, “Kugemachi”
or aristocrat’s town, and “Teramachi” or temple town.
Accordingly, commoners had to move to the commoner
Kyoto in the late Middle Ages

23 The landscape of Kyoto

 2-1 The History of Landscape and Town Development in Kyoto before Early Meiji Era

Kyoto in Edo Period Policies of Edo Shogunate

After Toyotomi regime, Tokugawa Shogunate took over The restoration of shrines and temples by Tokugawa
the administrative system that Hideyoshi had created and Shogunate affected today's landscape of Kyoto. The
tried to expand it. The significance of this period was that restoration of shrines and temples which had been destroyed
the feudal government ruled the city by the way of Cho during the warring states period served as a symbol of the
communities. The government respected the independence power of Tokugawa Shogunate throughout the country.
of “Cho-kyodotai”, or the cooperative Cho community, and The government protected and promoted the Kyoto’s
allowed Chogumi to continue their activities. On the other industries, too. Traditional industries such as Nishijin textile,
hand, Chogumi established a system of informing the pottery, ceramics and bronze wares which are handed down
residents about the regulations and laws of the government until today developed dramatically in Edo Period.
by way of Cho-shikimoku the rules of community). To maintain harmony with the surroundings, the
Kyoto in Edo Period was still one of the cultural centers government enforced a law controlling the height and size
of Japan paralleling Edo and Osaka. The three cities were of the houses. Citizens were not allowed to build houses
called “Santo” or the three capital cities. Kyoto was an higher than two stories and larger than three Ken (a unit of

The History of Landscape formation

and Town Development in Kyoto
academic and cultural center which was supported by the measuring the surface area). As a result, an organized and
court noble society. It was also the city of manufacturing for standardized landscape was created.
many luxury items and at the same time was a famous
tourist spot where numerous shrines, temples and scenic
places were concentrated.

The Life in Cho and Cho-shikimoku

The Cho-shikimoku (community rules) was also called Choki, or Cho-sadame. These rules were formulated by the
residents for the purpose of making life comfortable for themselves and maintaining a favorable environment in the
community. Those who broke the rules had to pay penalty. In case of heavy offenses, the house of the offender was
confiscated or even the person was expelled from the community.
The Cho-shikimoku covered a wide range of issues of the communities’ daily life. For example, the residents in a
community were prohibited from doing certain jobs. They also regulated the detailed design of the façade of stores. This
included obligatory installation of shelves inside the store, and the ban on using long curtains and lattice doors. These
regulations created an orderly façade of the town houses and formed a landscape which were matching and in harmony
with different businesses in the community.

A unified landscape of traditional town houses is still preserved in Nishijin area.

The landscape of Kyoto 24

 4 Meiji Era

25
Folding Screen of Rakuchu-Rakugai-zu (Momoyama Period)

26
 Footsteps of Kyoto Landscape Policies

Landscape policy has been one of the important issues in the planning of Kyoto city for a long time. Measures taken to this
end have kept improving to cope with the expansion of urban area and the intensification of business activities for the purpose
of modernization during Meiji, Taisho and Showa Eras. The economic recovery after the World War II and the following
intensive economic growth also had a role in this process. The progress was achieved and supported by those who were
interested in the landscape of Kyoto.

1 Measures for landscape conservation from Meiji to Showa Eras

The History of Landscape formation
and Town Development in Kyoto

Municipalized Kyoto and its landscape conservation for the protection of cultural properties. A program
Japan adopted the municipality system for the first time in providing subsidy for the maintenance and repair of
1889. Three cities, Tokyo, Osaka and Kyoto were regarded buildings and treasures of old shrines and temples was also
as extremely important places supporting the central established.
government. Because of this, these cities were strictly
controlled by the national government as stipulated under
the “Exceptional case of the municipality system”.
Therefore, Kyoto city could not have a mayor or full-time
staff. The governor of Kyoto Prefecture and his staff
concurrently acted as the mayor and the city staff. The
movement of becoming independent from the Meiji
government and being an autonomous body was intensified.
As a result in 1898, the “Exceptional case of the
municipality system” was abolished, and Kyoto city
government was established.
In June 1900, Jinzaburo NAIKI, the first mayor of Kyoto,
presented the city concept to the city assembly. In his
presentation, he clearly mentioned the function of each
region and preservation of scenic beauty and cultural Today's Nishijin District
properties by the phrase “Preservation of the scenic beauty
of Eastern region is needed; the status quo of Nishijin, the
northern region should be maintained, and the policy of
preserving noteworthy sights and historical scenery should
never be abandoned”.
After the Meiji Restoration in 1868, the central
government adopted a new policy called “Haibutsu-kishaku”
which proclaimed eliminating Buddhism. Buddhist cultural
properties in many places of Japan were destroyed.
However, after 1887, people started reviving Buddhism and
called for the preservation of old shrines and temples.
Responding to this, the “Law for Preservation of Old
Shrines and Temples” was passed in 1897. This was the law Today's Higashiyama scenic beauty district
(Okazaki area)

27 The landscape of Kyoto

 2-2 Footsteps of Kyoto Landscape Policies

City planning and conservation of natural areas, industrial areas and undesignated areas in 1924. The
landscape in Taisho Era height of buildings in the residential areas was limited to
In Taisho Era, the capitalistic economy developed less than 19.7 m and in the other areas to less than 30.3 m.
phenomenally. After World War I broke out in 1914, In 1930, in order to conserve natural and historical scenic
industries and population were intensely concentrated in the beauty, a vast area of about 3400ha including the vicinity of
central areas of the city. As a result, the need for Kamo River, Higashiyama and Kitayama was designated as
establishing a city planning law was badly felt. the Scenic Landscape District.
In response to this need, the City Planning Act was The Law of Preservation of Old Shrines and Temples and
promulgated in 1919. Under this law, the regional/ district the Law of Preservation of Historic, Scenic and Natural
system such as the scenic landscape district was also Monuments were aimed at preserving only cultural
established. Furthermore, in the same year, the Urban properties. However, the entire area where such cultural
Building Law which was the predecessor of the Building properties are located is covered for the first time by
Standard Act was enforced. This law created zones and designating the area as Scenic Landscape District.
districts such as “use zone”, “fire prevention district” and
“aesthetic district”, and regulations concerning building

The History of Landscape formation

and Town Development in Kyoto
height and structure.
Under the law, Kyoto city designated four categories of
land on the basis of their use: residential areas, commercial

Map of the stages of transition of Scenic landscape Districts

Legend
Legend
Boundary of City Authorized in January 24, 1930 July 8, 1950
Planning Jurisdiction Designation The 4th time
Notified in February 1, 1930 Construction Ministry Notice No.721

Areas that are Authorized in July 7, 1931 January 16, 1960

The 1st time The 5th time
designated as Scenic Notified in July 14, 1931 Construction Ministry Notice No.89
Landscape Districts Authorized in November 28, 1932 February 23, 1967
The 2nd time The 6th time
Notified in December 2, 1932 Construction Ministry Notice No.316
Special Scenic
June 10, 1949 April 15, 1967
Landscape Districts The 3rd time The 7th time
Construction Ministry Notice No.537 Construction Ministry Notice No.405

The landscape of Kyoto 28

 2-2 Footsteps of Kyoto Landscape Policies

2 Period between the post war era and the time when the Ancient Capitals Preservation Law was established
Actions after the Second World War Birth of landscape policy of Kyoto,
Compared with other Japanese cities, Kyoto city incurred
a government- designated city
less damage due to the war, and most of its historical assets In 1956, the Local Autonomy Law was amended and
survived the fire. Kyoto became a government- designated city. As a result,
After the war, the city initiated a project for the the administrative authority for the scenic landscape was
redevelopment of lands which had been the evacuation sites transferred from Kyoto prefecture to Kyoto city.
during the war. Roads, squares and parks were improved After this transfer, the Kyoto City Ordinance on Outdoor
and main streets including Oike, Gojo and Horikawa Streets Advertisements was established. In the next year, the city
were widened. The foundation of the present city was laid imposed four kinds of restrictions on outdoor advertise-
under this project. ments which covered the whole city area. It also started
To achieve recovery from the war damage, the governm- regulating advertising pillars on the streets and gave
ent established the Special City Planning Law in 1946. The guidance on the colors used for neon lighting and so on. In
The History of Landscape formation
and Town Development in Kyoto

Green Zone system for the production of vegetables was 1958, putting advertisements on the electric poles were
also established where building-to-land ratio was limited to banned. In 1959, the authorized registry system for neon
less than 10%. As Kyoto was not regarded as a war-stricken light makers was established. In 1960, Kyoto City
city, Green Zone system could not be applied here. However, Ordinances on Outdoor Advertisements were amended
the Law for Kyoto International Culture and Tourism City under which the ban on advertisement, ban on areas and ban
established in 1950 allowed Kyoto to apply Green Zones on objects were standardized.
system. Thus, 15.4% of the city was designated as the Green Thus, Kyoto City implemented policies which were of
Zone in 1955. Most of the designated areas happened to be much higher standards than any other city in Japan.
the Scenic Landscape Districts. Effort to conserve natural
landscape in the Scenic Landscape Districts was augmented
by the strict regulation of building-to-land ratio in the Green
Zone.
In 1971, Green Zone System was abolished after
Urbanization Control Areas and Urbanization Promotion
Areas were designated under the new City Planning Act.

All buildings on Horikawa Street were demolished Downtown Kyoto in 1950s

under the evacuation policy during the war

29 The landscape of Kyoto

 2-2 Footsteps of Kyoto Landscape Policies

Period of high economic growth and the movement Enactment of the Ancient Capitals
to establish the Ancient Capitals Preservation Law Preservation Law
From around 1955 to 1960s, Japan's economy grew Triggered by these movements and by the joint actions of
dramatically. The big wave of land development reached Kyoto, Nara and Kamakura, the movement for the
Kyoto and at the same time, that threatened the landscape of enforcement of a special law gained momentum. Public
Kyoto. voices in favour of “protecting ancient capitals” arose. In
In September1964, Narabigaoka hill, where Kenko 1966, the Ancient Capitals Preservation Law was enforced.
YOSHIDA, a famous essayist known for “Tsurezuregusa” Under this law, areas where historically valuable old
had once built a hermitage, was allotted for the construction shrines, temples and monuments that are in harmony with
of a hotel. This project caused a lot of controversy. A voice their vicinities were designated as Historical Climate
against the construction, “Protect Narabigaoka” was Preservation District. Among such districts, those ones that
intensified among the local residents. However, the system were considered the most important ones were designated as
of Scenic Landscape Districts had no power to stop the the Historical Climate Special Preservation District. In the
development. Motivated by the citizen's voices, Kyoto city areas designated as the Historical Climate Special
requested the cooperation of other concerned parties to Preservation District, land development was banned. This

The History of Landscape formation

and Town Development in Kyoto
appeal to the national government the need for the means no land development is permitted in the areas. To
enforcement of special law that would include heavy compensate the losses caused by these regulations, the
penalties on the violation of the landscape protection and system allowed the land owners to sell their properties to the
the land purchasing system by the national government. A government. With this system, important buildings, such as
similar problem arose on the mountain behind shrines, temples, historic sites and beauty spots which stood
Tsurugaoka-Hachimangu shrine in Kamakura, in the same on the outskirts of mountains together with the natural
period and the local people there also demanded the environment surrounding them, could be protected. This was
protection of the place. an epoch-making policy regarding landscape policy in Japan.

Narabigaoka Hill Sagano, a Historical Features Special Conservation District

The landscape of Kyoto 30

 2-2 Footsteps of Kyoto Landscape Policies

3 Enactment of the Ordinance on Urban Landscape

The early years of the implementation of urban Symposium hosted by UNESCO and
landscape measures the Agency for Cultural Affairs
The announcement of the construction of Kyoto Tower In 1970, an “International Symposium on the Conserva-
in 1964 created a big controversy regarding its effect on the tion of Traditional Cultures in Kyoto and Nara” was held by
landscape. At that time, regulations about the conservation UNESCO and the Agency for Cultural Affairs. The
of the mountainous landscape which surrounds the urban symposium recommended the conservation and
area was implemented by designating mountainous areas as development of historical districts of Kyoto and Nara.
Scenic Landscape Districts. However, there were no Accepting the recommendation, Kyoto city decided to
systematic rules for the conservation of the urban landscape, further promote its urban landscape policy.
except for the areas which had been designated as the
Scenic Landscape District and the regulation on
advertisements. Under these circumstances, Kyoto city Conceptual map of Landscape Area based
The History of Landscape formation
and Town Development in Kyoto

on the “City Development Plan” in 1969

studied the possibility of drawing a long-term perspective
and conceptual plan, and also conducted investigations on
the designation of Aesthetic Districts. ConservationArea
Elegant Scenic
Conservation Area
General Development
Area
Formulation of Town Development Plan Development
Promotion Area

In 1969, Kyoto city formulated “Vision of the

Development of Kyoto in the coming 20 Years”, the first
long-term plan after the war. The plan pointed out various
changes caused by high economic growth and set a goal to
create a comfortable city where citizens are given priority.
Thus, to address the issue of keeping a balance between
conservation and development, the basic policy was decided
as “Conserving the north and developing the south” which
meant to conserve the historical townscape and mountain
views of three sides in the north, and develop the south. In
addition, the areas along the mountains and rivers were
designated as Landscape Conservation Area for the sake of
preserving the natural environment. To protect an attractive
environment and perspective view of the residential area
and to improve the urban landscape that copes with the Landscape Conservation Area
demand of new urban functions, the entire city was 1 Conservation Area
The mountainous area should be preserved as an important
designated as Landscape Development Area. This was the
background for the urban center, and as a part of natural
first time for the city to manifest its urban landscape policy. landscape which is in harmony with historical properties.
2 Elegant Scenic Conservation Area
The landscape of the mountainous area and the areas along
rivers should be improved while conserving their historical and
natural environment.

Landscape Development Area

1 General Development Area
The environment around important cultural properties has to
be preserved, and the height of the buildings has to be partly
limited to conserve living environment and perspective views in
the residential and some central business areas.
2 Development Promotion Area
Urban landscape in business and industrial areas should be
developed to cope with the demands of new city functions.

31 The landscape of Kyoto

 2-2 Footsteps of Kyoto Landscape Policies

Enactment of Ordinance on Urban Landscape Establishment of the comprehensive system

Kyoto City Ordinance on Urban Landscape was for landscape measures
enacted in 1972 in which the following four districts In 1970, adopting the floor-area-ratio system from
were stipulated. The Aesthetic District is to promote amended Building Standard Acts, the limitation of building
harmony between historical sites and the scenery around height, which had been enforced since Taisho Era, was
them. Controlled Structure Area is applied to the abolished except in the low-rise residential districts. As a
Aesthetic District to regulate buildings and structures result, tall buildings were constructed and the landscape of
and to assist the owners in designing buildings that
Kyoto was endangered. In 1973, in order to conserve the
match the area. Meanwhile, Large Structure Control
urban landscape and living environment, Kyoto city
District is applied to the wide area and Special Conserva-
designated Height Control Districts in most of the urban
tion and Landscaping District is applied to San-neizaka
area and Gion-Shinbashi area to conserve and improve areas to regulate building heights.

the cluster of traditional buildings there. The comprehensive landscape policy in the urban area
In 1973, Kyoto played a central role in establishing was completed by the designation of Height Control District

The History of Landscape formation

and Town Development in Kyoto
the Historical Landscape Liaison Council which aimed and other regulated districts stipulated under Kyoto City
at preserving historical landscapes in Japan. 13 cities Ordinances on Urban Landscape.
worked together to appeal to the national government for
the authorization of the new system. As a result, the Act
on the Protection of Cultural Properties was amended in
1975 and the system of Preservation District for Groups
of Historical Buildings was established and groups of
Map of designation areas stipulated under Kyoto City
traditional buildings were defined as cultural properties. Ordinance on Urban Landscape (1973 )
In the next year, under this system, Kyoto city
designated San-neizaka Slope and Gion Shinbashi area
as Preservation Districts for Groups of Historical
Buildings.

The landscape of Kyoto 32

 2-2 Footsteps of Kyoto Landscape Policies

4 Conservation, revitalization and creation of city development

Controversy over landscape resumed Conservation of natural and historical
In 1988, the city formulated the “Guideline for Compre-
landscape on the Mountains on the
three sides of the city and their foothills
hensive Design System”. The comprehensive design system
To implement the measures suggested by the first and the
allows to alleviate the limitation of the building height and second reports by the council, intensive discussions were
to increase floor-area ratio by offering public space in the carried out on wider subjects including conservation of
building site. Taking advantage of this system, the plan to historical surrounding and natural scenery, and on the urban
construct a 60m tall Kyoto Hotel building was revealed to landscape measures as well. In order to protect the views of
the public which caused a controversy issue. In addition, the the scenic beauty of the mountains viewed from downtown
area which is one of the important cultural properties, the
JR Kyoto Station building plan, which was a part of the
“Ordinance for the Conservation of Natural Landscape” was
“Heian-Kento 1200 project” or a project commemorating
enacted in 1995. This ordinance ensures to preserve the
the 1200th anniversary of Heiankyo capital, caused another
The History of Landscape formation
and Town Development in Kyoto

natural landscape and to pass them down to the future

controversial problem, especially the height of the building. generations.
This controversy surfaced after the plan for the construction The next year, most parts covered by the Urbanization
of this building was put at international competition in 1990. Control Areas were designated as Natural Scenery Conserva-
tion District. The area of The Historical Features Special
Conservation, revitalization and creation Conservation District was almost doubled, covering most of
of city development
the mountainous areas surrounding Kyoto Basin, including
In 1991, Kyoto city set up the “Council for Kyoto City
the five mountains of Daimonji Bonfire Festival.
Development on Measures for Land Use and Landscape” to
draw the basic guideline regarding city development and
landscape in the future. The council submitted its first report
to the city in 1991 and the second report in 1992. The first
report focused on the “conservation, revitalization and
creation” as its theme and proposed to divide Kyoto into by the Council for Kyoto City Development on Land Use
three regions “Natural and Historical Landscape Conserva- and Landscape Measures
tion Region” in the north and three mountainous areas,
“Harmonized Downtown Revitalization Regions” in the
central area and “New Urban Function Concentration
Conservation
Region” on the south. The second report proposed some
measures including sub classification of the Aesthetic
Districts, promoting usage of pitched roofs, intensifying
guideline on large buildings, and strengthening the regula-
tion of outdoor advertisements.
revitalization

Creation

33 The landscape of Kyoto

 2-2 Footsteps of Kyoto Landscape Policies

Enactment of Kyoto City Ordinance on Establishment of Kyoto Centre for

the Development of Urban Landscape Community Collaboration
In 1995, Kyoto City Ordinance on Urban Landscape was In 1997, the Kyoto Centre for Community Collaboration
entirely amended and renamed as “Kyoto City Ordinance on was established to support community activities and to
Development of Urban Landscape”. This ordinance was promote an excellent landscape and comfortable living
aimed at maintaining the characteristics of old urban area
environment in communities in partnership with citizens,
which existed before the war. Under this amendment, the
enterprises and government.
Aesthetic Districts, which had been divided into two catego-
ries was further divided into five categories.. The object was
to find out the characteristics of each district and to encour-
age community development. Furthermore, Structure
Controlled Area was applied on the Aesthetic Districts to
control both buildings and other structures. A year later,
more wide areas were designated as Aesthetic Districts.
In addition, “Controlled Large Structure District” was

The History of Landscape formation

and Town Development in Kyoto
changed to “Structure Landscape Improvement District” so
as to target not only large structures but also buildings. It
covered a wider area of the city and regulated and supervised
the design of buildings.
Other new systems were also formulated including Histori-
Designation map defined by Kyoto City Ordinance on
cal Landscape Conservation and Adjustment Districts which Development of Urban Landscape (1995)
were aimed at promoting the landscape of historical wooden
buildings; Community Landscape Development Districts
aimed at developing the characteristics of local communities;
and a system for designating Structures of Historical Design
which intended to designate Kyo-machiya houses which
form historical landscape.
In addition, systems to encourage local activities including
Urban Landscape Agreement and a subsidy to the groups of
people working on community development were created.

Development of outdoor advertisement policy

In 1996, Kyoto City Ordinance on Outdoor Advertise-
ments was amended. The standard of height and dimensions
of ad placards was revised in this amendment. Indoor
advertisements displayed on the windows were also
regulated for the first time in Japan. This greatly affected
the townscape in the same manner as the outdoor advertise-
ments. Several other regulations including location, scale
and structural design according to the characteristics of each
region were imposed on advertisements in the areas such as
Preservation District for Group of Traditional Buildings.

The landscape of Kyoto 34

 2-2 Footsteps of Kyoto Landscape Policies

5 Measure for creating harmoniously revitalized urban centers

Measures regarding landscape problems caused the guideline, the business-residential districts are regarded
by the construction of condominiums as the leading area for the revitalization of the city center.
in the business- residential district
The guideline also includes measures to be implemented for
Various businesses including traditional industries are
the development of these districts and their goals, based on
concentrated in the urban area of Kyoto, the repository of
the cooperation between citizens, enterprises and the govern-
traditional culture. The area maintains its unique landscape
ment. To be more specific, the guideline includes 10 action
that consists of Kyo-machiya town houses. However,
plans such as the Community Cooperation Type Regional
because of the stagnant traditional industries and local
Plan, a project to establish the system for the conservation
economy, the number of unused or seldom-used pieces of
and renovation of Kyo-machiya houses, and a project that
land increased and their prices declined. As a result, people
secures residential space by opening up dead-end roads.
started constructing high-rise condominiums that might
The History of Landscape formation
and Town Development in Kyoto

endanger the lifestyle and cultural assets of those localities.

To cope with this problem, Kyoto city formulated the
“Guideline on the Business-Residential Districts” in 1998. In
Goals of community development
< creation of energetic city center and new Kyo-machiya town>

1 Utilizing the Community Cooperation Type 2 Creating a system for the conservation and
Regional Plan in the Business-Residential District renovation of Kyo-machiya houses
3 Securing residential space by opening up
4 Maintaining the charm of townscape
dead-end roads

5 Improving pleasant walking spaces 6 Developing unique residential districts in the urban area

7 Restructuring city blocks 8 Improving disaster prevention measures

10 Promoting urban-type industries and developing

9 Forming community organizations and networks infrastructure to accommodate them

What is business-residential district

It is an area where business offices and residences coexist and play central
role in supporting the vitality of the city for a long period. The districts are
surrounded by trunk roads: It covers Oike Street (and a part of Ebisugawa
Street), Shijo Street and Gojo Street running from the east to the west and
Kawaramachi, Karasuma and Horikawa Streets running from the north to the
south. The upper limit of floor area ratio there is set to 400%.
Business-residential districts are colored red.

35 The landscape of Kyoto

 2-2 Footsteps of Kyoto Landscape Policies

New rules for constructing new buildings Aesthetic Districts and Special Use Districts in the central
in city center area of the city as an immediate countermeasure.
Even after the enactment of the guideline and its action These rules were intended to enhance harmony between
plans, the landscape of city center changed rapidly. To deal vividness and living environment of the city center, and to
with this, the “Council on Conservation and Revitalization encourage building plans quite appropriate for the business-
of Landscape in the City Center of Kyoto” was established residential districts.
in 2001. Based on the report of the Council, Kyoto city
established three new building rules in April 2003 that entail
reviewing Height Control Districts and establishing

Outline of the new building rules in the city center

1. Changes in Height Control District

The History of Landscape formation

and Town Development in Kyoto
In the plans for con structing buildings 20m tall or above that, the issue of sunlight and ventilation for the neighboring
buildings should be considered. The construction should also not disrupt the overall street landscape. The regulation on diagonal
building lines was established to lessen the suffocating feeling seen from the street.
2. Designation of Aesthetic District
Over a long period of time, business-residential districts have maintained a unique landscape with long strand of eaves of
houses and a space under them along the street. In order to positively develop such landscape, such areas were designated as
Aesthetic District.
3. Designation of Special Use District
In building a condominium with more than 300% floor-area ratio, the lower part of the building should be carefully designed
so that it should be in harmony with the atmosphere of commercial center. In addition, running adult-entertainment businesses
were banned so that it can maintain a healthy living environment there.

Changes in Height Change of

In harmony Control District Height
with Control District
In constructing buildings 20m tall
surrounding or above, careful consideration
environment should be given to keep harmony Height
with the neighboring environment. Control District

Review of regulation on diagonal

building lines
In harmony
with
urban landscape
Designation of Aesthetic District

Designation of Special
In harmony Use District
with
Consideration must be given to the
central
surrounding environment
business area
in constructing buildings with more
Business-Residential
and Aesthetic
Special Use District District

The landscape of Kyoto 36

 2-2 Footsteps of Kyoto Landscape Policies

6 Period from the establishment of “Fundamental Policy for the Development

of a Beautiful Country” to the enactment of “Landscape Act”
Background of establishment of Landscape Act Basic philosophy of Landscape Act
As the economic development reached maturity in the Consequently, the Landscape Act was promulgated in
21st century, the concept of value shifted from quantity to June 2004. In December the same year, a part of the act was
quality. As a result, the national government began to expect enforced and in June next year, the act was fully
unique and beautiful landscapes through improving the implemented. This was the first comprehensive law on
living environment. Kyoto as well as other local govern- landscape in Japan. It clearly defines the basic philosophy
ments and their citizens also started showing interest in of the development and conservation of landscape and the
landscape. As a result, a great number of measures were responsibilities of citizens, enterprises and governments.
taken by local governments including the establishment of The Landscape Act articulates its basic philosophy as
more than 500 ordinances related to landscape. However, “good landscape is the property of every citizen in the
without the legal support from the national government, country”. It also stipulates that “local characteristics should
The History of Landscape formation
and Town Development in Kyoto

such regulations were less effective. Local governments had be valued in developing landscape to create diversity. It
many such problems. For instance, there was no common emphasizes that there is a vast variety of good landscape
basic concept among people all over the country for which is influenced by the natural environment, history,
maintaining and conserving landscape. Also the support of culture and climate of each locality. It also makes its
the government on taxation and subsidy program for intention clear which mentions that only conservation of the
landscape development was insufficient. present landscape is not the aim, but to create new high
To cope with these problems, the Ministry of Land, quality landscape is also included in the aims.
Infrastructure, Transport and Tourism formulated the
“Fundamental Policy for the Development of a Beautiful
Country” in July 2003 which drew a guideline for achieving
how to make a beautiful country. The policy outline also
pointed out the necessity of enacting a basic law on
landscape.

Responsibilities of citizens, companies and governments (both national and local) stipulated under the Landscape Act

Citizen National
government
are expected to make efforts to is responsible for comprehensive
promote better understanding policy on the creation of good
and play active roles in creating landscape.
good landscape. Encouraging people to
understand the importance
of landscape conservation
by education and dissemi- Proper role sharing
nating information.
Enterprises Local
Cooperating in the creation governments should
are expected to make efforts to of good landscape. establish and enforce policies to
create good landscape in
create good landscape in harmony
constructing buildings and
with natural and social environment.
conducting other activities.

37 The landscape of Kyoto

 2-2 Footsteps of Kyoto Landscape Policies

The local governments found out that the absence of Measures by Kyoto city after
basic concept of landscape among citizens and the lack of the Landscape Act was promulgated
support from the national law was the problem. Therefore, As stipulated under the Landscape Act, the city of Kyoto
the Landscape Act contributed greatly to the implementa- became a “Landscape Administrative Organization”. It
tion of the landscape policy by local governments. designated Kyoto Center for Community Collaboration as a
Supported by the landscape act, local governments could “Landscape Management Organization” in May 2005. This
achieve their landscape policy. was the first such act in Japan to implement good landscape
creation projects. In December, the city formulated the
Landscape Plan which included systems and measures the
city had adopted by then to manifest the guideline for the
creation of good landscape.

Outline of Landscape Act

The History of Landscape formation

and Town Development in Kyoto
Landscape Act defined those local governments that implemented landscape measures, as the “Landscape Administrative
Organization” and vested in them various authorities for the implementation of the landscape policies.
A Landscape Administrative Organization is able to designate Landscape Planning Areas and formulate a landscape plan to
promote the creation of good landscape in the districts where the regulations are lenient and notifications and guidance are applied.
The city is also able to impose fines on the offender.
To enhance the creation of good landscape in a more positive manner, the city is able to use the system of City Planning in
designating Landscape Planning Area. In such areas, construction is not allowed without getting permission fro
In addition, buildings and trees which are regarded as important components of good landscape are designated as “Structures of
Landscape Importance and Trees of Landscape Importance”. Part of the costs of maintenance and purchase of buildings and trees
are covered by the national government. Since public facilities such as roads, rivers, ports and city parks are important components
of local landscape, there is also a system to designate some of them as Public Facilities of Landscape Importance.
The Landscape Administration Organizations designates NPOs and other public welfare corporations as “Landscape
Management Organizations”. They provide information and consultation for the citizens for the creation of good landscape, give
advice to Landscape Administration Organizations and support local people by establishing the system of landscape agreement to
enhance good local landscape.

3 : reference is on the end

The landscape of Kyoto 38

 2-2 Footsteps of Kyoto Landscape Policies

7 Progress toward New Landscape Policy

Problems countermeasures related to Basic concept of landscape development
the landscape of Kyoto in the historical city of Kyoto
After the high economic growth period, the landscape of The New Landscape Policy has three basic concepts: (1)
Kyoto started deteriorating due to the rapid and irregular Landscape should be developed keeping in view the outlook
urbanization. This was a serious problem to be dealt with of the city in the coming 50 years and 100 years. (2)
because if such irregularities were left unchecked, Kyoto
Although buildings belong to private owners, the landscapes
would have lost its attraction and vitality. Alarmed by this
they form belong to public. (3) Everyone is responsible for
fact, “Japan Institute of Architecture” and “Kyoto Associa-
and has the mission to preserve the landscape of Kyoto and
tion of Corporate Executives” made a proposal regarding
the landscape of Kyoto. In response to the proposal, the city pass it down to the future generations. Based on these

established the “Council for Kyoto Revitalization” in a hope concepts, comprehensive support system including financial
that Kyoto will be recognized as a national property in 2002. support was established to implement the following five
The History of Landscape formation
and Town Development in Kyoto

The strong fear of losing its heritages in the near future major projects: to review building height limitations to
compelled Kyoto to establish the “Council on Landscape review standards for the design of buildings, and designated
Formation of Kyoto Shining Forever” in 2005. Based on the districts; to implement measures for the preservation of
opinion of this council, the city thoroughly revised the
perspective and borrowed landscape, to impose stricter
landscape policy. As a result, the New Landscape Policy
regulations on outdoor advertisements, to conserve and
was established in September 2007.
renovate historical buildings including Kyo-machiya houses.

Review building height limitation

Building
height
Perspective
Measures for the and Building Revise building design
preservation perspective Borrowed design standards, and
and borrowed landscape Landscape designated districts
Five major projects
and
Conservation and revitalization their support system Impose more
of historical buildings including stringent regulations on
Kyo-machiya houses. Historical Outdoor outdoor advertisements
townscape advertisement

Support system to enhance

the five major projects

39 The landscape of Kyoto

 2-2 Footsteps of Kyoto Landscape Policies

The Five major projects and their support system based on the New Landscape Policy

(1)Review of building height limitation

The height of building greatly affects the urban landscape and its environment. Kyoto city imposed stricter building height
limitation with local characteristics in mind in the areas such as historical urban area and residential and industrial areas bordering
mountainous area that account for 30% of city’s total area.

(2)Review of design standards for buildings and designation of the regulated areas
Design standards for buildings were reviewed in detail while paying more attention to local characters because these features are
also important components of the landscape. For example, the conventional design standard was based on the traditional Japanese
design and was divided into five types. However after the review, the classification was based on regions so as to utilize local
characteristics. Areas such as Landscape District and Structure Improvement District where building designs were regulated, were
expanded.

The History of Landscape formation

and Town Development in Kyoto
(3) Measures for the preservation of perspective and borrowed landscape
As a comprehensive measure concerning perspective landscape, Kyoto City Ordinance on the Creation of Perspective Landscape,
was enacted for the first time in Japan. The ordinance stipulates standards governing structures to protect visible views between
viewing spot and the object to be viewed, for instance, the beautiful visible scenery between the west side of the Kamo River and
Mt. Daimonji.

(4)Imposing more stringent regulations on outdoor advertisements

The regulations related to outdoor advertisements were reviewed in order to keep harmony with local characteristics and the
height and design of buildings there. Rooftop advertisements were prohibited so as to maintain beauty of the skylines. Blinking
neon lights and mobile advertisements were also prohibited in the entire city.
In addition, the city improved the support systems including awarding good outdoor advertisements and the subsidy program so
as to develop good urban landscape.

(5) Conservation and revitalization of historical buildings including Kyo-machiya houses.

The city encourages people to use the subsidy system for the renovation and improvement of traditional buildings including
Kyo-machiya which are the core of historical landscape in Kyoto.
In an area when a structure is designated as Structures of Landscape Importance, this will serve as a focal point of the improve-
ment of landscape for the local community. From this point the improvement will extend along the whole street and from there to
the whole community. This is a scheme the city of Kyoto is working on to revitalize and expand the historical townscape.

The New Landscape Policy supports Kyo-machiya houses by (1) dispatching specialists on quake-resistant design (2) providing
subsidy for quake-resistant design.
The support system for condominiums includes (1) dispatching advisors for the reconstruction and renovation (2) providing
subsidy for quake-resistant design, (3) providing loan for reconstruction.

The landscape of Kyoto 40