With foreign visitor numbers to Japan hitting all-time highs, the country is witnessing both economic benefits and the challenges of over-tourism. The Japan National Tourism Organization (JNTO) reported estimates indicating over 36.8 million international visitors to the archipelago for 2024, marking a notable 15% increase compared to the previous record set before the pandemic.
While the influx of tourists has led to record spending—surpassing 8 trillion yen (approximately 52 billion dollars)—officials express concerns about the sustainability of this rapid growth. The surge primarily stems from notable increases in visitors from countries such as the United States and South Korea, both of which saw numbers rise by approximately 58% compared to 2019 levels. Taiwan also contributed to this upswing, with a 23.6% increase. Conversely, the number of visitors from China has seen a significant decline of 27.2%, indicating shifting travel patterns post-COVID.
"The 60 million target seems quite ambitious," stated Haraikawa Naoya, Commissioner of the Japan Tourism Agency (JTA), referring to the government’s goal to attract 60 million foreign visitors and achieve 95 billion dollars in spending by 2030. "But if we work together with the private sector, I believe we can achieve it." This ambitious target reflects Japan's intent to fully capitalize on the recovering tourism market.
Nevertheless, the JTA faces pressing challenges related to over-tourism as regions such as Kyoto and other historically rich cities wrestle with managing tourist flow. This issue has been detailed by JTA’s International Tourism Department Director Kenji Hamamoto, who links the term 'over-tourism' to more than just the descriptors often used like 'tourism pollution'. Hamamoto emphasized, “Over-tourism is sometimes described as ‘Kanko Kogai (tourism pollution)... but I believe it is wrong.” His insights suggest the complexity of the issue, where local resident reactions to tourism dynamics often clash with visitor satisfaction.
To effectively address over-tourism, the JTA set out initiatives, primarily through cross-ministerial meetings led by former Prime Minister Fumio Kishida in mid-2023. The outcome of these discussions yielded comprehensive policy packages by October 2023 aimed at reducing excessive crowds and fostering collaboration with local communities for sustainable tourism development.
These packages encompass three main pillars: first, to tackle overcrowding and etiquette violations commonly associated with tourist behavior; second, to stimulate international travel to local destinations beyond major metropolises; and third, to create cooperative frameworks encouraging tourism promotions in tandem with community development efforts.
A significant step forward encompasses the allocation of 15.8 billion yen within the fiscal budget for 2024—dedicated to countering over-tourism impacts, focusing on local infrastructure enhancements to promote enduring tourist experiences and efficient demand management.
Japan is also rolling out ‘pioneer model areas’—specific regions recognized for their innovative methods to tackle over-tourism challenges. These initiatives may include promoting hand-free tourism solutions, employing digital maps for decentralization, and introducing educational programs for visitors on local customs. Some areas are utilizing electric vehicles to reduce environmental burdens and others are working to improve transportation links to lesser-known destinations.
Hamamoto pointed out the importance of using the Japan Sustainable Tourism Standard for Destinations (JSTS-D) among local areas. By adhering to these parameters, destinations can work on sustainable management practices, maintaining economic viability, and respecting cultural and environmental integrity. Communities are encouraged to adopt these standards progressively, aligning them with their tourism aspirations rather than trying to achieve everything at once.
Engaging local stakeholders is also pivotal; Hamamoto noted the requirement for each pioneer area to establish collaborative discussions about their approach to over-tourism. “It is very important to form a consolidated vision through discussions among stakeholders. To overcome over-tourism challenges, unification as a team is required," he pointed out. This cooperative model will help cultivate shared responsibilities and goals, allowing communities to collaboratively navigate their tourism futures.
For many localities—particularly those hosting significant tourist populations—one challenge remains the cultural differences surrounding tourist behavior. Traditional Japanese etiquette may not always be understood by foreign visitors. The JTA is addressing this through educational materials, creating pictograms and multilingual warnings to promote respectful interactions and compliance with local customs.
“It is important for local communities to cure over-tourism issues with ‘bandages’ first, and then to do ‘improvement of their constitutions’ toward the future,” Hamamoto concluded, highlighting the necessity of immediate fixes balanced against the larger goal of sustainable tourism growth.
Looking to the future, Japan's tourism strategy is embarking on not only recovering from the pandemic fallout but also on ensuring its long-term viability. By addressing over-tourism, and elevatively positioning local communities at the forefront of tourist engagement, Japan strives to create experiences not just for visitors, but sustainable environments for its residents.