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1 The harsh reality of rush-hour overcrowding
In Japan's major city areas can be characterized by a concentration
of business centers in the city proper with major residential areas, in the
outerlying suburbs resulting in a large number of commuters journeying between
the two areas and giving rise to the extreme overcrowding during rush-hours.
This situation places great physical and mental stress on individuals, and is
one of the biggest reasons why the people do not feel affluent (Fig.
1, Fig. 2).
Especially in regards to the Tokyo area, in the rapid economic growth after
the war, which became the focal point of a myriad of political, economic and
cultural functions, and thus was formed a city area the likes of which was never
seen before. And to maintain these highly concentrated city functions, much
was done to increase the capacity of the volume of commuters transported. But
with the attaining of income levels of the more developed countries and with
each individual seeking a more affluent life, a qualitative improvement towards
more comfortable commuting is a pressing priority as never before. To be exact,
the overcrowding situation in the Tokyo area is much more intense than other
regions, and while transportation capacity is increasing, sections that have
overcrowding levels exceeding 200% (body contact with substantial pressure)
are not uncommon, and there exists sections with levels above 250% (when train
jolts the body goes into an inclined position and is unable to move, hands are
also unable to move) (Fig. 3).
And also with the high land prices people have to live further and further out
in the suburbs resulting in longer distances to be traveled and longer commuting
hours (Fig. 4). For example the
average commuting time to the center of Tokyo reached one hour and eight minutes
in 1990. While living and working conditions are improving the commuting situation
remains harsh.
2 Increasing Commuter Population
Why is the railway overcrowding situation in the Tokyo area so severe?
If we look at the railway rush-hour capacity in the Tokyo region, we see that
the investments of East Japan Passenger Railway Company and major private railways
over the past ten years have been able to increase it by more than 20%.
But the concentration of the population in the Tokyo area has resulted in
the commuter population increasing by more than 20% (Fig.
5), exceeding nine million already. The role played by railways in transporting
people to work and school in Tokyo is especially large (Fig.
6), and its structure is so that increases in commuter population puts ever
more strain on overcrowded trains.
For these reasons, the railway rush-hour overcrowding levels, despite increasing
capacity, cannot be lessened for the increasing number of commuters
(Fig. 7 ).
3 Promoting Measures Regarding Commuting to Work and School
(1) Increasing Transportation Capacity
(a) Increasing capacity as regards pre-existing railway networks
To lessen the railway rush-hour overcrowding in the greater metropolitan
areas and achieve a more comfortable commuting journey to work and school, there
must be a decentralization of business and government functions that are presently
all concentrated in Tokyo. But even if a policy to correct this situation is
implemented and future population concentration is checked, to further improve
the overcrowding situation, measures on the transportation side are required.
For this, transportation capacity must be increased, for example (Fig.
8). Increasing the number of coaches and the number of trains has been carried
until now, but to further increase the number of trains and their speed, technical
developments such as high-density traffic signal systems and high speed, acceleration/deceleration
coaches etc. become necessary.
Also, for railway lines especially prone to overcrowding and in need of
a drastic increase in capacity, as a basic measure, the Railway Construction
in Designated Cities Fund, where a part of untaxed fare income is accumulated
and used as a fund for capacity increasing construction projects, is being taken
advantage of for construction work on the multiplying of lines. This investment
in capacity increase is not a direct consequence of demand nor profitable for
railway operators but for the seven major private railways of the Kanto region
it has exceeded one trillion yen over the past five years; worth half of total
fare income. But on the other hand, demand has been increasing and the rush-hour
situation remains unchanged.
For these reasons, capacity increase will henceforth be proceeded with a
long-term overall average overcrowding rate target of 150% (shoulders brushing
but able to read a newspaper) for major areas during rush hour. For the Tokyo
area with its especially high overcrowding rates, the target will be 180% (body
contact but newspaper can be more or less read) in roughly ten years.
(b) Establishing a New Railway Network
In the Tokyo area, besides extension work carried out on the subway number
7 and 12 lines, new Joban, Minatomirai number 21, Tokyo Rinkaishinkotsu and
Toyokosoku railway lines among others are being built.
These new lines are being undertaken from the point of view of supply of
new residential areas, redevelopment of cities, filling out areas without railway
lines etc., and their contribution to the lessening of the rush-hour crush will
be not small and therefore their quick completion is looked forward to.
(c) Shortening Commuting Time
To realize a more comfortable journey, shortening the time taken is as important
as increasing transportation capacity.
Increasing speed, advancing mutual direct-running services among plural
railway lines, more rapid transit trains etc are measures being undertaken with
this in mind. Also, the construction of multiple lines is expected to not only
increase capacity but shorten commuting times. Besides these, we believe the
improving of terminals to make transfers easier and increasing the number of
coach doors to speed up entry and exit will also shorten the time.
(2) Furthering Staggered Commuting Times
If we look at the passenger transportation situation for one day (Fig.
9), we see that the office starting hours for most commuters are concentrated
in a short period of time (Fig. 10)
and only the morning peak period exceptionally crowded.
This would mean that if transportation demand can be dispersed over a longer
span period, instead of investing a huge amount of money over a long period
carrying out construction, the overcrowding situation can be lessened in a shorter
amount of time at smaller cost. The leveling of demand that comes with staggered
commuting times we then see, is the most astute way of using public transport
facilities in a big city area (Fig.
11).
For this, the Traffic Management Organization is putting effort into the
steady carrying out of its staggered commuting advancement plan. At the same
time, many commuters realize the need for this and corporations too, are thinking
it beneficial that their workers will be in better condition (Fig.
12). Despite everything, this has not been implemented as much as it could
have been. This is because of inter-company relations and internal factors of
businesses. A broader social consensus is needed for its greater implementation.
The Ministry of Transport has, beginning January 1992, set up a promotion
and study committee comprised of railway companies to study the feasibility
of implementation of a staggered commuting period. Since April of the same year,
conferences including leaders of the business world have been held to study
measures aimed at making staggered commuting more widespread.
(3) Improving the Environment for Bus Transportation
Bus transport that provides feeder transport to rail, for more comfortable
and convenient commuting, needs to have their traffic environment, their reliability
and regularity improved.
Bus transport plays an important role, providing 17% of all access transport
to railways.
To improve the flow of traffic, and thus the environment of bus transportation,
by enhancing roads and intersections, establishing bus preferencial and exclusive
lanes, clearing the streets of illegally parked cars etc., its essential to
work closely together with road management and police. Bus users have been on
the decline in the Tokyo area, but due to these measures, are showing signs
of increase and eventual recovery (Fig.
13).
It is important to go on lessening the traffic congestion of streets with
further efforts at improving public transport facilities, lessening automobile
usage and improving the efficiency of freight fraffic goods delivery.
4 Construction of Railways Being Hastened
(1) Stronger Incentives and Expectations for Railway Companies
Construction of railways is basically carried out by private companies with
funds from fare income.
For example, the seven major private railway companies of the Kanto area
have utilizing the Railway Construction in Designated Cities Fund, spent enormous
sums yearly in investments aimed largely at increased transportation capacity
(Fig. 14,Fig.
15). At East Japan Passenger Railway Company, aiming to shorten commuting
hours and increase seating rates, are working on ideas for the improving of
commuter transport in the Tokyo area.
But the reality is that these constructions cost enormous sums of money
and are recovered only in the very long term. So in order to cultivate investment
willingness on the part of the companies and a steady improvement in railway
transport, while in principle make having users bear the cost burden, it is
also necessary for the Central Government and regional societies to strengthen
incentives to spur investment.
In the case of major city areas, due to escalating land prices and the difficulty
in acquiring land, investment risk is large and often beyond the capability
of private companies.
That is why, in the case of subway lines, besides Special Authorities such
as the Teito Rapid Transit Authority and local governments, there are cases
where joint public-private sectors play the main role. Except for subways, joint
public-private sectors are particularly large in number.
(2) Cost Bearing by the User and the Improvement of Service
Until now as a rule, railways have undertaken Construction and improvements
with funds provided by fare income, in other words, from the direct beneficiaries
of transportation services, the users. For various reasons, until now there
has been an inclination to keep train fares relatively low. Therefore investment
into railways have often been insufficient and improved service for users not
been satisfactorily achieved.
However, recent increases in income levels and in the value placed on saved
time, or the desire to improve the quality of life, has led to an increase in
the number of people who would rather pay more and enjoy a higher level of service
(Fig. 16). This can be seen from
the increase in Shinkansen commuters
(Fig. 17) and the popularity of full-seating rapid-transit trains (Table
1).
While we should continue to ask the railway companies to keep up managerial
effort at providing even better quality service, we must also expect the recipients
of railway convenience such as the users to further cooperate and share in the
bearing of cost.
(3) Role of the Central Government
Improving commuting facilities to improve the living standards of the people
who work and study in the city is an important policy for the Central Government.
For this, with the advancement of railway development as a target, in 1962
the subway High Speed Railway Construction Funding Assistance System, and in
1972 via the Japan Railway Construction Public Corp, the Private Railway Construction
Assistance (P line assistance) System were introduced. And development of the
Joban line stretching from Tokyo to Tsukuba city is being proceeded with, based
on the Special Measures Law for Integrated Promotion of Building Land Development
and Railway Construction in Major Metropolitan Areas in effect since 1989. Also,
the Railway Development Fund established in October 1991 and the Railway Construction
in Designated Cities Fund System established in 1986 are some measures that
were adopted. Henceforth, in addition to making effective use of these measures,
railway development must be aggressively pushed forward with governmental assistance
as and when required.
(4) Support from Regional Society
As for the improvement and maintenance of city functions, regional invigoration
and promotion of regional economies, railways and railway stations are expected
to play an important role as a social base for each region. Also, railway development,
with stations playing a major role, bring huge developmental benefits to the
region.
Based on study of the relationship between the regional society and railways,
with the attaining of the understanding of the regional society, we should examine
how the regional society can support and cooperate with railway development.
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