2022

time in Japan one-dollar betting tickets on sale for clubsponsored races in Yokohama, the popularity of Westernstyle racing grew throughout the country.

A brief history of horse
racing in Japan

Roots of racing by local governments
Racing by local governments developed mainly as aform of public entertainment, from the ceremonial horse
racing which had been dedicated since ancient times tolocal temples and shrines at festivals around Japan.
The recorded history of racing in Japan can be traced
as far back as 701 A.D., during the reign of the Emperor
Mommu. As time passed, horse racing developed intosuch Imperial Court-sponsored forms as “Kurabe-uma”(“match races”) at Butokuden Pavilion, races forreligious ceremonies at Kyoto’s Kamo Jinja, and othershrines, and road races sponsored by court nobles.

Presently, horse racing in Japan is classified into 2
categories: racing conducted by the Japan Racing
Association (JRA), and racing conducted by local
governments on the prefectural and municipal level. JRA
racing provides revenue to the national treasury, andracing by local governments provides revenue to certain
designated local governments.
European-style horse racing introduced inJapan at the end of the Edo Period
It was in 1861, towards the end of the era of theTokugawa Shogunate, that Western-style horse racing
was introduced into Japan. The first race was conductedin Yokohama under the auspices of the Yokohama RaceClub which was formed by a group of foreign residents ofthat city. This was followed by Western-style races inTokyo and Hakodate. In 1888, with Japan Race Club
(formerly Yokohama Race Club) having put for the first1Flourishing under a New Post-War System
A new Horse Racing Law was promulgated after WorldWar ϩ , in 1948. With the dissolution of the JapanThe operation of racing by local governments has been
unified, and its foundation made more firm through theestablishment of NAR.

Racing Society, which had been established through theunification of a number of race clubs, and which had
exclusively operated horse racing in Japan, horse racing
which had thus far been officially approved was changed
over to a nationally operated form of racing under the
direct control of the national government. After that, in
1954, the government established JRA, a semi-governmental corporation, to conduct all aspects of horse
racing. This has since developed into the horse racing
which is conducted by JRA today. On the other hand, in
accordance with the new Horse Racing Law promulgatedin 1948, races conducted by private equine organizations
at that time were placed under the direct jurisdiction of
local governments. In other words, these races werewhat are referred to today as “racing by local
governments”. The operation of horse racing has beenchanged from the control of private equine organization
to that of local governments.
With the revision of the Horse Racing Law in 1962, theNational Association of Racing (NAR) was established.

Races and racecourses
Structure of horseracing by local governments
Racing by local governments consists of 14 local
governments located throughout the country, which
serve as organizers of the races held within theirjurisdiction. These 14 local governments are comprised of
2 prefectural governments, 2 municipals, and 10 jointorganizations.
NAR is the racing authority that oversees this racing
by local governments organized by 14 local governments.
Racecourses
The map shows the location of racecourses in Japan.
There are 15 racecourses used for racing by local
governments. Of these, the 9 with ‫ ۼ‬are racecoursesthat hold night races.
The lengths of racecourses of local governments range

4

Fixtures / Racing calendar
There are differences in the schedules of racecourses in
the metropolitan areas of Kanto, Tokai, Kansai and
Hokkaido, and those of racecourses in other regions.
Racecourses in major urban areas and Hokkaido holdtheir races on weekdays in order to avoid competition
with JRA which holds races on Saturdays and Sundays.
On the other hand, in regions that are largely
unaffected by JRA meetings, our racecourses primarily
race on Saturdays and Sundays, when it is easier toattract local fans.

from between 1,051 meters and 1,600 meters. Their
track width range is from 16 meters to 27 meters andfrom the home turn to the finish line range is from 194
meters to 386 meters. The maximum number of horses
which can run are from between 10 to 16. Thus, they aresmaller than JRA courses and bends are comparatively
sharp.
All of racing by local governments courses have only
dirt tracks, with the exception of the Morioka Racecourse.
In addition, Oi Racecourse started a counterclockwise
race in 2021, and is currently the only racetrack in theworld on both left and right courses.

When two or more racecourses are relatively close toeach other, the areas they serve become a kind of sharedcommercial market area. In these cases, therefore, we
coordinate the race schedules to avoid races being heldon the same day. We also attempt to boost betting sales
by using racecourse on their off-days as off-track sales
sites.
We also do our best to arrange runners so that
racehorses can run in all racecourses within the same
market area.
In winter, racecourses in Hokkaido and other parts ofnorthern Japan cannot be used for racing due to heavy

5snowfall. Instead, these are used as off-track sales sites
for racecourses in the metropolitan region and otherareas. Racehorses belonging to these northern
racecourses are also sent to run at racecourses where
races are held. This gives local fans more incentive to bet
on horses from their own region.
Statistics of Flat Race
There are many races which attract a lot of attention
including listed races with high prize money conducted
at various racecourses.
Flat races by local governments were held a total of
1,167 race days with about 13,408 races at 14
racecourses in 2022.
The number of different horses having run, the overall
starts, and the average times of running per year are
listed. A total of 133,923 horses ran and the averagetimes of running were 10.0 a horse in 2022.

6

Attendance & Turnover (Flat Race)
The turnover of these races in 2022 was approximately
1 trillion 9.3 billion yen. The record for the amount ofsales in a calendar year in local horse racing wasapproximately 982 billion yen in 1991, and 2022 broke
this record for the first time in 31 years. It also
surpassed 1 trillion for the first time.
As for the breakdown of the turnover in 2022, 2.4% isfrom on-course, 7.6% is from off-course, and 90.1% isfrom telephone and internet betting. The turnover of
online betting amounted to about 908 billion yen and it
is a big factor of increasing. Restrictions on admission to
racetracks due to COVID-19 may have also contributed
to the increase in online betting. The NAR developed a
new integrated totalizator system and this system has
been connected with JRA’s general totalizator centersystem, so it has been possible to bet on the local
government races through a membership of JRA’sinternet betting system since October 3, 2012.

7

The average attendance for all flat racing by local
governments courses per race day was 1,578 (167.3%),
with average turnover of 865 million yen (104.7%). Sales
have increased year on year, reaching a record high of 1
trillion 9.3 billion yen in 2022.
10 local governments withdrew from the horseracing
business during the 13-year period from 2001 to 2013.
After that Japanese economy changed for the better andthe financial situation of the racing organizer isgradually recovering every year.

Off-track sales
Off-track sales, including Internet betting, areincreasing each year. The ratio between racecourse sales
and off-track sales stood at 50:50 in 2001, the ratio of offtrack sales has increased greatly year by year since then,in 2022 it was 2:98.
One of the reasons for this is that off-track sales days
and races are on the increase between racecourses.

8

Another is that a nationwide system of sales for listed
races featuring high-quality racing has been established.
A third reason is that telephone and web betting havegrown dramatically with the development of systems forproviding online race video, odds and other information.
Another factor was the fact that spread of COVID-19
restricted spectators' admission.

The Development of race systems
Traditionally, JRA and racing by local governments
held races separately within their circles. However, inmore recent years, both sides have begun collaborating
and coordinating their efforts to implement exchange
race that is intended to promote all areas of horseracing
in Japan. And in 1973, Oi Racecourse held its firstinvitational race that allows JRA horses to run. Since

Prize money
It shows the average prize money per race for a flat
race. The average prize money per race for flat race is2.357 million yen. Along with the recovery of turnover,
the amount of prize money has been also recovered little
by little.

9then, the number of these races has increased.
Furthermore, amid growing momentum toward theestablishment of a race system, the Dirt Race Grading
Committee was set up in 1996 to make appropriate
selections of excellent dirt horses without distinction
between JRA and racing by local governments.
As a result, major dirt races throughout the country
were ranked and “Graded Dirt Races” came to be
implemented. After that, the Japanese Graded Race
Committee was set up in 2008, and now both turf anddirt races in Japan are graded by this committee.
In 2022, there were 40 dirt races by local governments
which were graded by this committee. And these races
are also noted in the International CataloguingStandards. Ratings of each runner were prepared as afoundation for ranking for Graded Dirt Races and from
1998, each runner was assigned a certain number ofpounds in the JPN Thoroughbred Rankings.

Promotion
Collaboration and coordination among racingorganizers
㸫Expansion of commercial market areas㸫In the past, organizers of racing by local governments
used to take care of betting sales within narrow local
areas based on the prefecture when the racecourse was
located, as prescribed by the Horse Racing Law. However,the legal requirements and other regulations were eased,since there are limits to sales within an area with alimited population. Now it is the norm for organizers of
racing by local governments in neighboring areas tocollaborate in mutual off-track sales, as a way ofboosting sales.
Meanwhile, with the introduction “listed races”
mentioned just now, more and more racing by local
governments organizers have been joining forces inpromoting off-track sales nationwide. This has given rise
to a system of nationwide off-track sales for principal
races, with particular focus on listed races.

10These races, based on the model of the Breeders’ Cup
in United States and created from an initiative bybreeders, consist of four races, namely the JBC Classic,
JBC Sprint, JBC Ladies’ Classic and JBC Nisai Yushun.
In principle, JBC races are held in turn by organizer of
local governments, but currently JBC Nisai Yushun isheld only at Mombetsu Racecourse.

Attractive racing programs㸫JBC races(LR)(JBC Classic, JBC Sprint, JBC Ladies’ Classic)㸫
Financially troubled organizers of racing by local
governments got support by breeders. The 1st JBC(Japan Breeding Farms’ Cup) races were held at Oi
Racecourse on October 31st, 2001.

11

As total prize money, the Classic offers 170 million yen(ҸUS$1,304,000). It is the highest amount in racing by
local governments. The Sprint offers 136 million yen(ҸUS$1,043,000), Ladies’ Classic offers 102 million yen(ҸUS$782,000), JBC Nisai Yushun offers 59.5 million
yen (ҸUS$456,000).
On November 3, 2022, the third JBC race was held at
Morioka Racecourse for the first time in eight years.

㸫Derby Series and other racing series㸫
JRA’s Tokyo Yushun (Japanese Derby) is a very
popular race among racing fans, as the pinnacle of racingfor 3-year-olds in spring. As well as this, several different
Derby races for 3-year-olds are held in racing by local
governments. With the exception of some fans, however,interest in these is not very high, partly because theprize money is low compared to JRA Derby andnationwide recognition is also low.
Therefore, racing by local governments across Japan
has been divided into 6 districts, and steps have beentaken to adjust schedules so that “Derby races” for 3year-olds are held over a continuous 6-day period at six
racecourses. Since 2007, this event has been turned into
“Series of Derby Week” to raise its profile, and we are
striving to expand nationwide off-track sales.
Derby Week has been renewed to “Derby Series” with
8 races in 2019.

12

Generally speaking, the price of fillies is not higher
than that of the price of the colts in the market. Because
the prize money for racing by local governments issmaller than that of JRA, in theory, the local circuit ismore likely to attract fillies (rather than colts) as its
racing resource. We have focused on this characteristic of
local racing, and in an effort to attract and produce highquality fillies, we have initiated the “GRANDAMEJAPAN” series since 2010. This is a coined word with themeaning "Future Grande (Great) + Dam (Mother)". In
this series, NAR selects the most outstanding performing
filly/mare from each age group, and to provide incentive
prize money for that filly/mare.
Also, another characteristic of NAR racing is that the
majority of racecourses are shorter than 1,200 meters
per lap. Hence, a race with around only one time ofcorner is usually on 1,000 meters. With this feature of
NAR racing, we have initiated a nationwide series iscalled “Super Sprint Series” since 2011.

13

Besides these, we are taking steps to develop otherplans unique to racing by local governments. The “Mirai
Yushun”, in which specially selected races for 2-year-olds
had been combined in a series. In addition, from 2021,"2-years-old champion series" has started. With theseand other measures, we are striving to provide attractive
horseracing programs and expand nationwide off-track
sales.

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The variety of betting methods㸫
At present, there are eight standard types of betting
available for racing by local governments. There are Win,
Show, bracket number Quinella, horse number Quinella,
Exacta, Quinella Place, Trio and Trifecta.
Due to differences in the functions of the totalizator
system, however, there is some variance amongorganizers in the systems of betting available.
We introduced a new type of betting which can bepurchased on the internet, Pick 5 in January 2010.

The National Associationof Racing (NAR)
NAR was established on August 1, 1962, as a special
government-affiliated corporation under the Horse
Racing Act. On January 1, 2008, a revision of the Horse
Racing Act led to NAR’s becoming a public regional joint
corporation that executes projects for the mutual benefitof Racing by Local Governments organizers. NAR
continues to “promote the fair and equitable operation of
Racing by Local Governments, and to contribute to theimprovement and breeding of horses and otherwise help
promote the livestock industry.”
1. Registration of racehorses and owners
 NAR registers horses that run in races and theirowners.
2. Licensing of jockeys and trainers
 NAR licenses trainers and jockeys in Racing by Local
Governments. It also conducts research and provides

15

support for organizers’ certification of grooms.

performed at an exceptionally high level.

3. Dispatch and training of racing officials

6. Promotion of planning, public relations, and measures
to advance racing NAR engages in planning and research on the ideal
forms of inter-regional cooperation in Racing by Local
Governments as well as for projects that invigorate
Racing by Local Governments. It also executes necessary
measures relating to racing schedules and programs
while serving to coordinate organizers and others
involved.
 At the same time, NAR serves to develop Racing by
Local Governments infrastructure. This involves (1)developing systems to consolidate the totalizer systems
used in Racing by Local Governments and for mutual
sales with Japan Racing Association; (2) developing andoperating information systems that collectively manage
information on racing results and sales at racecourses
throughout Japan; and (3) building a network systemthat integrates network systems for distributing thisinformation and Racing by Local Governments videos,and promoting sales growth, quick information supply,
and the streamlining of race administration.

 NAR dispatches employees possessing specialized
knowledge and skills in the holding of races̿namely,
stewards, judges, and starters̿to racecourses to ensure
racing fairness. It also provides training to racing
officials to help them improve their expertise.
4. Promotion of racing fairness and operational
improvement
 NAR assists in efforts by organizers and racingorganizations to promote racing fairness and improvetheir operations.
5. Recognition of racing personnel
 NAR holds a “NAR Grand Prix” to recognize
racehorses, trainers, jockeys, and others who haveachieved noteworthy success in Racing by Local
Governments as well as people and horses that havemade outstanding contributions to Racing by Local
Governments. It also presents a President’s Award to
racing personnel who won major prizes or otherwise

16 Moreover, NAR engages in public relations that
include providing racing-related materials and topics tothe mass media and posting real-time information onraces at each racecourse on its website.
7. Projects to invigorate racing NAR assists with racing invigoration projects thatorganizers execute to improve their revenue andexpenditures through better mutual cooperation andactions to strengthen Racing by Local Governments.
8. Support for projects promoting the livestock industry
 NAR uses grants from organizers to support various
initiatives to promote the livestock industry, including
projects to improve and breed horses.
9. Support for projects promoting racehorse breeding NAR supports projects to breed and improve light
breed horses, sanitation projects, and distribution
projects to facilitate racing with a stable supply of light
breed horses.

10. Training of trainers, jockeys, and racing professionals
 NAR established the Racing by Local Governments
Education Center to train jockeys and others who willbear the future of Racing by Local Governments.
 In addition to training and developing trainers, jockeys,
and other personnel, the center provides training for
employees of organizers on the holding of races andassists in horse-related training and practice.
Racing by Local Governments and Daily Life
Racing by Local Governments is about more than justpromoting horse improvement and breeding andsupporting other areas of the livestock industry throughraces and their sales. It also contributes to local financesby generating revenue for local governments.
Of the total sales (proceeds) from purchased betting
tickets, a percentage set by the organizer of total sales is
paid to winners. The remaining amount is first applied
to cover prize money and other expenses necessary to
hold the race and then to grants to NAR (National
Association of Racing grants), contributions to the Japan
Finance Organization for Municipalities (contributions
from the proceeds of public racing), and other expenses.

17

The remainder becomes the organizers’ earnings.

How Organizers’ Earnings Contribute to the Community
In 2021, organizers’ earnings amounted toapproximately 15.83 billion yen. These proceeds are used
to develop regional education and culture, enhance social
welfare, expand medical care, promote sports, anddevelop urban plans and public facilities.

18

Projects to Help Promote the Livestock Industry
Organizers grant a portion of their proceeds to NAR(amount in 2021: approximately 13.7 billion yen). These
grants are divided into two categories depending on how
they are used. The first category consists of grants usedin projects to promote the improvement and breeding ofhorses and other areas of the livestock industry. And thesecond category consists of grants used in projects topromote the fair and equitable operation of Racing by
Local Governments by, for example, registering horses
and their owners, licensing trainers and jockeys, andtraining jockeys.
 NAR supports projects to promote the livestockindustry using grants in the first category. Projects
eligible for this support include projects concerning
livestock production measures for dairy farming, beef
cattle, poultry and swine, and the like; projects toimprove the distribution of produced livestock andlivestock products; and projects to improve livestock
breeding environments.
 Moreover, since 2005, NAR has been combining grants
from JRA with its own grants to support the introductionof stallions, the introduction of broodmares, andregistration of breeding as projects to promote racehorse
breeding.
 NAR subsidies to projects promoting the livestockindustry and projects to promote racehorse breeding
amounted to 1.85 billion yen in 2021. Since NAR ̓ sfounding, the total amount of such subsidies has
surpassed 210 billion yen (as of the end of 2021).
The “Contributions from the Proceeds of Public Racing”
SystemUnder this system, a portion of the earnings fromgovernment-controlled gambling sports is paid to theJapan Finance Organization for Municipalities. In 2021,
the total amount paid by Racing by Local Governments
organizers nationwide reached approximately 3.32
billion yen. A total of 8.4 billion yen was paid during thefive years between 2017 and 2021. Payments fromgovernment-controlled gambling sports are used toreduce the interest on public enterprise bonds andordinary account bonds for water supply and sewerage,electricity, gas, and other local government utilities.
In other words, Racing by Local Governments earnings
contribute to a broad spectrum of society, as they are19

returned in various ways to not only the local
governments that hold races but other local governments
as well.

owner’s qualifications, obtains an evaluation from the
Owner’s Registration Screening Committee and thenmakes a decision on whether or not to license theownership.

*Japan Finance Organization for Municipalities: A
public body that helps promote the sound managementof local government finances as well as citizens’ welfare
by providing long-term, low-interest financing to local
government projects throughout Japan.
Racing by Local Governments earnings help make life
better for everyone, not only members of racecourse
communities.
About the organizational structure of NAR
NAR currently consists of nine departments. Asidefrom those departments, there is an executive committee
and other external board committees that discuss anddecide on a variety of measures regarding theagreements with the local public authorities that hostracing by local governments mainly to ensure fairness
and transparency of its business.
When it receives an application of owner registration
for racing by local governments, NAR examines the20

local organizers. At the same time, NAR works to
implement fair racing to integrate racing rules.

㸫Racing Education Center㸫   Furthermore,      we have  the Racing   Education    Center in
Nasu, Tochigi Prefecture to educate jockey candidates for
Currently, NAR has received registrations for racing by local governments.
approximately 12,400 racehorses for flat racing. The
Every spring, the center accepts some 15 people that
Horse Racing Law provides that only trainers andhave passed testing from applicants ranging from 15jockeys that have received NAR licenses can engage
years old junior high school graduates to 20-years-old
training or riding for racing by local governments.
NAR dispatches specialist advisors that include
stewards, starters and other experts to each racing by
local government’s racecourses with the cooperation of

adults. The training period lasts two years and includes
a five-month practical training period under theguidance of a trainer with whom the candidate will
become affiliated.

21

The center has a track of 1,100 meters incircumference with four riding grounds and a riding hall.
There are uphill training track, stables where 160 horses
can be stabled, a veterinary clinic, a farriery andfacilities for communal living, accommodations forvarious activities and so on.

㸫Project for the improvement andmultiplication of horses, and for the promotionof the livestock industry㸫NAR implements support projects aimed at livestockorganizations located throughout the country in order tocontribute to the improvement of breeding of horses andother livestock improvements which is one objective ofracing by local governments. In 2021, NAR granted as
subsidies 1,408 million yen in total to these 127 projects.
And recently we are addressing to promote the care ofThoroughbred horses during their lifetime.
In addition, NAR provides subsidies to the Laboratoryof Racing Chemistry which conducts doping control ofracehorses. NAR provides subsidies to the Horse Racing
Protection Foundation of Japan which conducts
investigations of crimes committed by horserace
personnel. NAR provides subsidies to the Racing by
Local Governments Benefit Society which operates
mutual aid programs for trainers, jockeys and groom.
Moreover, since 2005, support projects have been
available for various measures designed to boost sales by
racing by local governments. Specifically, we support thecreation of nationwide data management systems, race22

video network systems and so on as well as theinstallation of new facilities enabling evening races to beheld.

㸫NAR GRAND PRIX㸫
Each year, NAR holds the “NAR GRAND PRIX”, whichgive horses, trainers, jockeys and so on a special award.
In 2022, the award ceremony was held only for relevant parties
due to COVID-19.

NAR GRAND PRIX 2022

23

Friendly international
exchange
㸫International races㸫The first international invitation race conducted by the
local government was held in 1978. Mary Bacon who is alady jockey of The United States rode at Oi Racecourse.
Steve Cauthen jockeyed there in the following year. Theinternational invitation races known as the “Ladies Cup”
were held for four consecutive years in the first half ofthe 1980’s, with female jockeys from Europe, the UnitedStates, Canada and Japan competing with one anotherat Mizusawa, Kaminoyama and Niigata Racecourses.
During the five-year period from 1989 to 1993 at
racecourses located in different regions in Japan, NAR
conducted “International Queen Jockey Series”, forwhich Japanese female jockeys rode together withfemale jockeys invited from the United States, Canada,
the United Kingdom, France, Australia and New Zealand,
for the purpose of promoting technical exchange amongfemale jockeys and international friendship.

During the 16 year period from 1982 to 1997, Niigata
Racecourse invited jockeys from the Republic of Korea tohold the Japan-Korea Challenge Cup races, and held
exchange races, cooperating with the Republic of Korea
to alternately invite jockeys from the two nations eachyear.
In 1995, Oi Racecourse formed a relationship offriendship and cooperation with Santa Anita Park of theUnited States. Tokyo Metropolitan Racing Association(Oi Racecourse) invited jockeys who usually ride on the
California circuit. The friendship Jockey Series has raced
for several years.
In recent years, foreign jockeys who are issued shortterm licenses by NAR or JRA have been increasing. They
have opportunities to ride in the exchange race between
JRA racing and racing by local governments including
the graded dirt races and other races at local government
racecourses in Japan.

24Tokyo Metropolitan Racing Association (TCK) andKorea Racing Authority had been continued aninternational exchange race to promote development anda friendly relationship of each other’s horseracing
business.

Seoul Horse Park






In 2014, not only Japanese horses but also theSingaporean horses were invited to a race in Seoul, andwas named “Asian challenge cup”. The race was held atSeoul Horse Park on August, Choegang Schiller (USA)(Korean horse) won a clear-cut victory. The next race washeld at Oi racecourse on October, Satono Tiger (JPN)(Japanese horse) gained speed at the inside of good
position on the home straight and won.

© Tokyo City Keiba

Oi Racecourse

International exchange races had been held once a
year at each racetrack from 2013 to 2016.

© Tokyo City Keiba

25© Tokyo City Keiba

㸫TOKYO DAISHOTEN (G1) 㸫(International race)
The TOKYO DAISHOTEN (Total Purse: 170 million
yen Right-Handed, 2,000 meters Dirt/ about 10 furlongs,
3yo & up) to be held at Oi Racecourse was approved as a
Grade 1 race by the Japanese Graded Race Committee in2010.

Ushba Tesoro (JRA)In 2022, “Ushba Tesoro (JRA)” won the championship.
That horse became the new champion after theretirement of “Omega Perfume (JRA)”, who had achieved
the great feat of four consecutive victories. JRA’s horses
were strong and occupied a high rank. This race wasdelivered to overseas two countries (Australia and New
Zealand), and accepted bets in separate pool.

Oi Racecourse

26

Ban-ei (Draft Horse Racing)
In addition to flat races are unique draft races, called
Ban-ei races, which are held only in Obihiro-City,
Hokkaido region. These races are run by such heavy
horses as the sturdy Percherons, Bretons and Belgians,
which pull a sleigh weighing from about half a ton to one
ton, along a 200-meter separated straight track with two
humps. The dynamic Ban-ei races, which enjoy a large
following, originated as a popular game among local
people in horse-breeding areas in Hokkaido and Tohoku.
Draft horses registered by NAR are on the increase
year by year. The Hokkaido government authorizes Banei horse racing as the Hokkaido inheritance as the one
which it should keep in the coming ages. The Ban-ei
horse racing is a style of the only horse racing in theworld.

27

28