Making Best Use of Spaces in Railway Facilities

Use and Area Management of Railway
Under-Viaduct Spaces and UndergroundSpaces near Stations
Takayuki Kishii
Introduction

Railway companies in Japan are more than simply railway
operators—they are also developers of trackside real estateand providers of urban services for trackside residents.

This section presents a simple review of how railway under-

Running such combined businesses while keeping railway

viaduct spaces and station underground spaces came

operations at the core of their activities is a key characteristic

about. Japan’s first railway was built in 1872 betweenof Japanese railway companies.

Shimbashi and Yokohama. The line ran along the coast with

To demonstrate combined utilization of railway spaces,

some sections on embankments. During this introductory

this article introduces examples of effective use of under-

period, the expanding line was not welcomed by everyone,

viaduct spaces in the greater Tokyo area. It also considers

so tracks and stations in many cities were constructed away

use of diverse underground spaces near major stations

from urban areas. Even the west-side track of the Yamanotethat started with introduction of subways. Finally, it covers

Line from Shinagawa through Shibuya and Shinjuku, which

the future direction for providing even more amenity-richstarted loop operation in 1925, was built initially outside therailway spaces.

urban area. And the private railways radiating from Yamanote

Ikebukuro Station encircled by department stores owned by railway companies Japan Railway & Transport Review No. 69 • Mar 2017

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(JR East)Making Best Use of Spaces in Railway Facilities

Line stations to the suburbs also ran through farmland. As aand switched to subways or buses. With the building of theresult, railways constructed in this early period ran mostly at

subway network, some stations on the Yamanote Line, suchground level when terrain permitted without causing division

as Shibuya, Shinjuku, and Ikebukuro, where private railwaysof the city. But Yamanote Line from Ueno to Shimbashi wasserving the suburbs and subways serving the city centre

the exception. When a general railway network plan forintersect, developed into major stations. Consequently,

Tokyo was first proposed in 1888, railway engineer Kaname

commercial buildings and department stores operated by

Haraguchi and others insisted that urban tracks should be

private-railway companies were built successively adjacent

on viaducts. Therefore Yamanote Line sections runningto major stations, and those station spaces formed combined

through the city centre were built on viaduct from the start.

station structures conjoined with surrounding buildings.

As urban areas expanded rapidly during the post-WWII

Combined Utilization of Under-Viaduct
Spacesperiod, they swallowed-up the railways initially on the city
outskirts, causing problems with many level crossings atroad and rail intersections. Not only do level crossings
cause accidents, they severely disrupt road traffic flows

Viaduct railways and under-viaduct spaces resulted fromwhen closed for long periods at peak times, especially invarious developments, but all under-viaduct spaces areurban areas.

administered by railway operators to support railway facilities.

The only comprehensive solution was grade separation

In parts where viaducts intersect roads, the structural gaugeof tracks and roads. Ordinarily, grade separation would be(or minimum clearance outline) required by government laws

realized by putting in place structures for roads built afteron road design standards requires securing an overheadrailways to go over or under the railway, but giving the railway

clearance of at least 4.5 m. In other words, under-viaducta continuous viaduct structure or underground structure isspaces are railway-operator-owned voids with sufficient

more logical and economical than raising or lowering manyheight to locate buildings. Of course columns are necessary

roads in places with many level crossings close to eachto support railways running overhead, and the viaductother. As a result, many such ‘continuous grade separation

height decreases at transitions from elevated to ground-levelprojects’ were implemented to move existing tracks mainly

sections, so not all spaces can be used. However, manyin urban areas on to viaducts, resulting in creation of under-

locations have sufficient width and height for small buildings,

viaduct spaces throughout the city. On the other hand, untiland many under-viaduct spaces came to be used for various

1960, there were many trams running on roads inside thepurposes. As an example, black markets (stalls occupying

Yamanote Line loop. Then increasing automobile traffic

spaces illegally) sprung-up around stations after World

gradually caused congestion and tram service delays.

War II, but the Tokyo government, police, fire department

Finally, all tram lines except one were eventually closed

and others proposed a policy of removing stalls at thebehest of the post-war occupation
administration in September 1949.
Stalls in front of stations were helped
to gain access to public land andthe like, and station-front spaces
in plazas and roads were cleared.
At that time, some stalls moved tounder-viaduct spaces of railways.
Even today, the area around Kanda
Station on the Yamanote Line is one
example where there are many smallbars and restaurants located underthe viaduct near the station. Areas
surrounding Ueno Station are anotherexample. In order to help rehabilitate
people relocating back to Japan
from Asia after the war, some areas
granted business rights for underviaduct spaces to repatriated groups.
The Ameyoko commercial district near

The Ameyoko commercial district near JR Ueno Station (Author)7

Ueno Station is a remaining holdover,Japan Railway & Transport Review No. 69 • Mar 2017

Entrance to 2k540 under-viaduct commercial facility (Author)and such areas maintain a retro atmosphere that draws

under-viaduct space free of charge (amount equivalent tomany tourists.

taxes and public charges), but where that is secured is not

There are also modern moves to renovate and use under-always clearly expressed. Naturally, places near station ticket

viaduct spaces that have not been used as commercial

wickets see more customers, so railway operators attempt tospaces previously. The ‘2k540’ commercial facility in theplace commercial facilities close to the ticket wicket to obtainunder-viaduct space between Akihabara and Okachimachi

high rents. Conversely, local governments want to placestations utilizes the length of railway viaduct facilities topublic facilities, such as bicycle parking lots, in convenient

operate a commercial facility in partnership with local hand-locations near stations. In the end, usage is adjusted throughmade crafts businesses, drawing many customers.

discussions involving local residents as well.

Use of under-viaduct spaces created by relocating

Usage is very diverse based on recent examples ofexisting tracks on to viaducts in continuous gradeuse of spaces under continuous grade separation projects;

separation projects requires usage plans produced by local

common uses are as transportation nodes, administrative

governments under negotiation with railway operators. Duefacilities, commercial facilities, bars and restaurants. Other

to the nature of these projects, the road authority (local oruses include libraries, medical facilities, day-care centres,

national government) leads the project and bears most ofcentres for the elderly and disabled, plazas, community

the expenses. However, the completed railway structure

terraces and cafés, disaster management warehouses,

becomes the property of the railway operator, so use of thebusiness incubation facilities, bicycle and car parking lots,

under-viaduct space is decided by negotiation. Ordinarily,

and railway-operator-run bicycle sharing ports.

local agencies are able to use up to 15% of the area of theJapan Railway & Transport Review No. 69 • Mar 20178

Making Best Use of Spaces in Railway Facilities

Interior of 2k540 (Crafts shops line under-viaduct passage.) (Author)Commercial facility in new under-viaduct space of Chuo Line (The interior design prevents the facility feeling like railway under-viaduct space.)  (Author)

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Japan Railway & Transport Review No. 69 • Mar 2017

Under-viaduct space commercial facility near Ochanomizu Station on Chuo Line (The space under an old brick arch viaduct was renovated with athrough passage in shops and along the river.) (Author)Exterior of stylish community café in under-viaduct space Japan Railway & Transport Review No. 69 • Mar 2017

(Author)10

Making Best Use of Spaces in Railway Facilities

Railway-operator bicycle sharing port (Author)Otemachi private-sector building passage (The naturally lit underground passage of a private-sector building is used for
subway transfers.)
(Author)Combined Utilization of UndergroundSpace near Major Stations

for operating lines and maintaining stations is oftenThis section covers underground spaces near major stations

and the like are located nearby in some cases. Pedestrianthat are used in a combined manner. Looking at use ofconcourses are common at stations with multiple exits andunderground space with subways as an example, the tracks

stations where passengers change to other lines. Theseand stations are—of course—underground, and equipment

station concourses can extend under roads too.

underground too. Passages and staircases are needed toreach the station platforms, and kiosks, commercial facilities

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Japan Railway & Transport Review No. 69 • Mar 2017

Figure 1 Administrative Sections of Underground Spaces at Shinjuku Station

Shinjuku No. 1 underground pedestrian walkway

Toei Oedo Line concourse

Shinjuku No. 2 underground pedestrian walkway

Tokyo Metro Marunouchi Line concourse

Shinjuku No. 4 underground pedestrian walkway

Shinjuku East exit underground mall

Keio Shinsen concourse

Shinjuku Subnade underground mall

Keio underground mallPedestrian walkway in underground floor of Shinjuku Center Bldg

Odakyu Ace underground mall

However, not all underground spaces near stations

In this situation, ‘underground shopping malls’

are administered by subway operators. In stations at

administered by underground shopping mall companies play

Tokyo, Shibuya, Shinjuku, and Ikebukuro where multiple

a major role. These underground shopping malls are actuallylines connect and many passengers board and exit trains,

more than just shopping centres. Here shopping mall means

spaces administered by railway and subway operators,

spaces for shops, offices, and the like along with parking

and underground pedestrian roads by local governments

garages and pedestrian spaces (underground walkways,

intertwine in a complex manner. Moreover, undergroundrailway station concourses, etc.) under public spaces (forspaces of department stores run by railway operators,

example, roads and station-front plazas). This definition was

spaces administered by underground shopping mall

published in 1974 by the Central Liaison Council concerningcompanies, and underground passages of private-sector

Underground Shopping Malls organized by the then Ministry

office buildings adjacent to stations connect and result inof Construction and Ministry of Transport (currently merged

combined and complex spaces in terms of administration.

as Ministry of Land, Infrastructure, Transport and Tourism

Figure 1 shows the situation for underground spaceor MLIT), the Fire and Disaster Management Agency, andadministered by various entities at Shinjuku Station.

the National Police Agency. The nature of the definition isJapan Railway & Transport Review No. 69 • Mar 201712

Making Best Use of Spaces in Railway Facilities

clear from looking at the construction criteria of undergroundwith demand for parking, public walkways, and commercial

shopping malls. In the criteria, construction of undergroundspaces, and the like, where sufficient rent to cover costs

shopping malls is limited to those that meet certain

could be charged. Thus, combined underground spaces

conditions and built along with public underground parking

spread out underground around major stations in major

garages or public underground walkways. Specifically, iturban areas, connecting underground shopping floors, andrequired that the garage floor area encompass more thanpedestrian passage spaces (concourses) constructed byhalf the total area if a public parking garage is present, andrailway operators as station facilities, underground floors of

public pedestrian walkways to encompass more than halfbuildings alongside roads, and underground walkways. In

the remaining floor area.

day-to-day use, ordinary people find it hard to differentiate

In other words, underground shopping malls were forbetween underground shopping malls, railway facilities, roadthe purpose of securing underground public parking thatfacilities, and building underground floors.

was lacking in the city centre and for securing underground

Combined Use of Spaces Joining Railways
and City and Management of Areas

pedestrian walkways that cross under or run alongsideroads. To achieve these goals, bodies constructing andadministering malls meeting the specified conditions could
build facilities under roads, such as shops and offices,

In April 2016, the MLIT Council for Transport Policy released

that could be let. In other words, underground shoppinga report on the future of urban railways in the greater Tokyo

malls were a type of public–private partnership (PPP)

area. It covers quality improvement of station spaces

using spaces under roads. However, government notices

in creation of next-generation stations, a major issue foron underground shopping malls were abolished in 2001

railways in Greater Tokyo.

with decentralization and the Central Liaison Council

Specifically, it states that although urban railways

concerning Underground Shopping Malls no longer exists.

in Greater Tokyo are quite substantial in terms of network

As a result, local governments decide whether or not todensity and service levels compared to other countries, thepermit construction of underground shopping malls, but

importance of stations as bases for urban development iseven today local governments separate ‘undergroundincreasing in addition to stations playing roles as transport

shopping malls’ from underground floors of buildings

network nodes. There is much room for improvement

constructed on private property, such as department-store

in areas such as lack of coordination between parties atunderground food halls. Underground shopping malls are

stations. In the future, it will be important to create next-

strictly those where roads and commercial facilities are

generation stations with the participation of many parties

built in an integrated fashion by private-sector companies,

in unison with surrounding areas, and which are easy tooccupying public underground spaces such as roads andunderstand, comfortable, and stress-free for all users. It will

station-front plazas.

be important to create venues at individual stations underA few such underground shopping malls constructed

the lead of local public organizations and the like wherein the early 1930s merged with subway station concourses.

related railway operators (and if necessary, administrators

They were constructed rapidly from about 1955 as post-of facilities around stations) can share issues related to

war recovery projects came to an end. At that time, it was

stations and work to solve issues while going through thenecessary to plan what to do about black market stalls

PDCA cycle. For railway operators and personnel from areas

illegally occupying places such as station-front plazas.

around stations to work together to solve such issues, theSome shopping malls under roads and station-front plazas

station and city area must be managed to raise the value of

were built to relocate these stalls. In the late 1960s, many

the area as a whole.

shopping malls under roads and station-front plazas

It can be said that problems surrounding under-viaduct

were constructed more like modern shopping malls due

spaces and underground spaces near stations must be

to the impact of factors, such as high economic growth,

discussed by such mechanisms, starting with railways andrapid urban development, and skyrocketing land prices.

the surrounding community considering problems and roles

However, regulations on underground shopping mallsof under-viaduct spaces and underground spaces near

were strengthened in response to disasters, such as a gas

stations, usable location, and land use of next-generation

explosion at a subway construction worksite in 1970 andrailways, stations and transport systems.

a department store fire in 1972. In 1974, a basic policy on

Such movements are underway in Shibuya, Shinjuku,

underground shopping centres was established, expressing

and Toranomon.

the aforementioned definition of ‘underground shopping

The locations of railways at Shibuya Station is complex.

malls’ and guidelines for setting them up.

Until March 2013, the terminal of the Tokyu Toyoko Line

Underground shopping malls were simply built in areas

was on the second floor, and the JR East Yamanote and13

Japan Railway & Transport Review No. 69 • Mar 2017

Shibuya Station before renovation (The semi-cylindrical roofed building is the old Tokyu Toyoko Line Shibuya Station.) 

Common guide signs in Shinjuku Station Japan Railway & Transport Review No. 69 • Mar 2017

(Author)(Author)14

Making Best Use of Spaces in Railway Facilities

Saikyo lines ran parallel on the second floor from distantdiverse and combined management increasing the quality

platforms. The Tokyu Corporation department store wasand value of the community as a whole.

sandwiched between Shibuya Station and the tracks with
the Ginza subway line location on the third floor aboveground part of the department store. Underground, theFurther Reading

Hanzomon subway line crossed the JR East lines. Due

Fujiki TDC, Tokyo Sengo Chizu: Yami Ichi Ato wo Aruku [in Japanese](Jitsugyo no Nihon Sha, Ltd., 2016)

to this complex layout, it was decided to relocate theMasakazu Ishigure, Sengo Tokyo to Yami Ichi [in Japanese](Kajima Institute Publishing Co., Ltd., 2016)

Tokyu Toyoko Line underground to connect with the new
Fukutoshin subway line on its east side.
This relocation provided an opportunity to discuss
major renovations to Shibuya Station, resulting in a seriesof projects now underway to build five high-rise structures
above the lines and around the station. The JR East
Saikyo Line platform will be relocated so it is parallel withthe redesigned island platforms of the Yamanote Line. The
Ginza subway line platform will be relocated over Meiji
Avenue and renovated, and a plaza will be built in the spaceover the JR lines on the fourth floor. To achieve these goals,
a council was set up chaired by a university professor whereparties such as the railway operators, Shibuya Ward, theTokyo Metropolitan Government, and local representatives
meet to discuss plans. An area management organization
has already started activities.
At Shinjuku Station, a council for Shinjuku terminal has
been launched for related parties to meet. Efforts are being
made to make Shinjuku Station easier for people to navigate
using unified maps and common guidance signs as well as
to enhance barrier-free pedestrian flows, and expand free
wi-fi access areas.
A project is also underway to construct a new subway
station near Toranomon where the Hibiya subway line
and loop road No. 2 intersect; the station design is being
considered together with plans for redevelopment ofadjacent areas to achieve an integrated design from thestart. The discussions cover how to smoothly move fromsubway ticket gate to above ground, how to build an easyto-understand and attractive underground space, and whattypes of activities are expected near the station.
Efforts to view the station and city together result in
more combined railway-related spaces that go beyond
use of individual under-viaduct spaces and construction ofpassages as railway infrastructure. This method of treating
the station and the city as a whole is expected to grow evenmore in the future.
Railways are important facilities used by many people
every day to support urban activities, but space for thesefacilities and space near stations is very valuable yet limited
for both railways and cities. Therefore, expectations fordiverse and combined use of these spaces will probably
increase in the future.

Takayuki Kishii

Railways, their stations, and the city must work as one

Dr. Kishii is the professor of the Department of Civil Engineering in theCollege of Science and Technology at Nihon University

to secure space required for future communities and foster

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Japan Railway & Transport Review No. 69 • Mar 2017