Socio-Economic Change of Islands and Development Policies in the Seto Inland Sea of Japan

Socio-economic Change of Islands and Development Policies in the Seto Inland Sea of Japan

Tsunekazu Toda

Abstract In this article the socio-economic change of Islands and development policies in the Seto Inland Sea of Japan will be discussed. In the former half of this article, various problems particular to the islands will be sorted out. In order to examine the problems, it will be clarified that socio-economic changes in various relations between the mainland and the islands are generating many different problems today. In the latter half, a framework for the development of the islands is suggested, especially from the viewpoints of sustainable tourism development including a case of the Miyajima Island, and important measures to cope with those problems are discussed. Especially, the relationship between community and tourism is focussed here. In today’s economy with its highly developed service sector the tourism industry has come to occupy an important position and is now an inseparable part of the fabric of many communities especially in the islands.

Key words：Socio-economic Change, Island, Sustainable Tourism Development, the Seto Inland Sea, Miyajima

1. Introduction At first, various problems particular to the From the 1950s to the 1960s, the Seto In- islands will be sorted out. In order to examine land Sea coastal areas of Honshu Main Island, the problems, it will be clarified that changes in Shikoku and Kyushu (hereafter called“the various relations between the mainland and the mainland”) were heavily developed for iron and islands are generating many different problems steel, petrochemical, shipbuilding and other in- today. Then, a framework for the development dustries. During this period, islands in the Seto of the islands is suggested, especially from the Inland Sea supplied workforce for the mainland, viewpoints of sustainable tourism development and the living of the islanders was supported by including a case of the Miyajima Island, and im- remittances from those who had gone to the portant measures to cope with those problems mainland to work. This means that the living of are examined. the islanders was heavily dependent on the economy of the mainland. More than half a cen- 2. Conditions particular to the islands, tury has passed since then, and as the sustain- and their socio-economic changes ability of the local communities of the islands is 2.1 Natural conditions particular to islands, and worried, now is the time we should review their their utilization problems and the direction for future develop- Ethnologist Miyamoto(1965) who was born ment in a fresh light. This review would not in Suo-Ohshima Island lists four natural condi- only envision the future of the islands, but also tions particular to islands: (i) being surrounded to look at their culture and environment from by the sea, (ii) the transportation means to reach the perspective of the islands in the Seto Inland outside areas is mostly by ships, (iii) the land is Sea. small and the living territory is small, and (iv)

― 181 ― production activities on land is largely restricted from the mainland and caught fish en masse. Is- because of only little flat land. In this article, I landers did not know what to do for this change. will call condition (i)“sea surroundedness”, con- They could not afford to have bigger boats. dition (ii)“isolation”, conditions (iii) and (iv) They did not have the money nor a port for big- “smallness”. These conditions are generally un- ger boats. Thus, though surrounded by the sea, favorable for residents’ socio-economic activities. they had to turn their back to the sea.” Still people have inhabited these islands since The fishermen went on land, and were the old days. Miyamoto (1965) explains the rea- forced to live away from the sea. son for this as follows: Before, islands were used for refugee in “First, because of“sea surroundedness”, the case of bad weather and rest for the ships’ islands were inhabited by“sea people” who en- crew, but the situation underwent drastic gaged in catching fish and gathering seaweed changes when navigation techniques advanced, and salt, and were skilled in shipbuilding and ships became bigger and powered, and above navigation. Islands were also used for places of all, mainland transportation was modernized refugee/rest, landmark and military purposes. from ships to railroads and automobiles. Miya- Some inhabitants aimed to transport large quan- moto(1969) says, tities of islands’ products to larger markets. Due “Over the last 50 years, the biggest factor to their“isolation”, islands were at times used as that outdated the living and industries in the is- places of exile located outside the political sphere. lands was the changes in transportation. Up Taking advantage of their“smallness”, some until 50 years ago, there still were many sailing small islands were specialized in a single use boats, and steamers ferrying between mainland such as ranches, gathering grounds of firewood/ and islands. --- However the development of grass. In larger islands such as Awajishima, land transportation changed the scene dramati- Shodoshima, Suo-Ohshima, the usages were var- cally, making the islands dead-ends connected ied --- beaches were used by“sea people”, and in- to the terminals of railroads. --- In other words, land areas by farmers.” the establishment of new transportation sys- tems pushed forward a shift from feudal society 2.2 Changes in conditions of“sea surrounded- to capitalist society. The islands could not keep ness” up with this trend, and their full-fledged partici- In former days islanders made a living tak- pation in the change was delayed.” ing advantage of“sea surroundedness,” but the modernization of fishing, the appearance of larg- 2.3 Food shortages due to“smallness” er ships made the lives there --- which were Thus, there are many constraints for island- only centering around islands --- difficult. Miya- ers in the means of earning a living. Among moto (1969) explains this change as follows: them, the biggest constraint was food shortages “The biggest cause that drove the lives of is- stemming from the“smallness.” (Note 1) If food landers into an impasse was the fishing boats production fails to meet the islanders’ demand that came from other areas and ravaged the is- due to natural disasters or unfavorable weather, lands’ fishing grounds. Before, most of the is- remedies was either reducing mouths or in- landers owned small boats and fished around the creasing food production. islands to make a living. The income from this To reduce mouths to be fed, islanders mi- fishing supported their lives. --- But when pow- grated to other areas in Japan or emigrated to ered and bigger fishing boats started to come other countries. Through these measures, both

― 182 ― reduction of mouths and receiving remittances 3.2 Closer ties between islands and mainland could be expected. (Note 2) Actually Seto In- after WW II land Sea islands are close in distance to the In the 1950s-1960s, (i) in the Seto Inland Sea mainland. After WW II when rapid industrial coastal areas, the Sanyo Shinkansen Line and development took place along the coast of the Sanyo Expressway were constructed, which mainland around the Seto Inland Sea, there strengthened the east-west mainland transpor- were more than enough employment opportuni- tation routes, (ii) iron and steel, petrochemical ties for the migrant islanders. and shipbuilding and other heavy industries To increase the supply of food, food can be came to be concentrated in the Seto Inland Sea either imported from outside or food production coast, and the Inland Sea became a major canal can be increased in the islands. Money is neces- as an important east-west sea route connecting sary to import food. Money is brought in the these production bases, and (iii) as the concen- form of pensions and remittances mentioned tration of industries and urbanization proceeded above, but what’s more important is to produce quickly, large-scale land reclamations were car- commercial products in the islands and sell ried out, and environmental pollution emerged them in outside markets. It is not easy to in- due to waste discharges from factories, bringing crease food production in the islands, but there harm to the islands. In this industrial develop- is an successful example in the 18th and 19th cen- ment, many male adults and youths removed to turies of sweet potato growing contributing to the mainland to occupy working opportunities. the increase in the population. (Note 3) There were two factors in population mi- gration;“push factor” on the islands’ side, and 3. Relations between mainland and Seto “pull factor” on the mainland’ side. The push Inland Sea islands factor consists of food/water shortages, hard la- 3.1 Islands’ openness bor, vulnerability to natural disasters. Moves Due to the rigorous living conditions of the for receiving education was not negligible as Seto Inlalnd Sea islands as mentioned above, it well as moves seeking for employment. Influ- is said that the lives of the islanders were main- enced by the standardization of education and tained through certain relations formed with the an education-oriented society, youths went to mainland. (Note 4) Miyamoto (1969) explains the mainland for secondary and higher educa- about this as folows: tion. “The reason for the relatively stable lives in On the other hand, the mainland’s pull fac- these islands compared to those in islands in the tor relates to islands’ proximity to the mainland outer seas can be explained this way; unlike the (Note 4), influx of information from the mainland, outer sea islands where the residents tend to abundant employment opportunities, education, solve problems by themselves in the islands higher wages, and attraction of big cities. Thus, alone, Seto Inland Sea islanders started to find many of the adult and young men went out, and solutions in relations to the surrounding areas in only the elderly and women remained in the is- the latter modern age when currency and trans- lands. This type of emigration well explains the portation systems began to develop. I find some- islanders’ characteristic that community bond- thing common between these islands and the ing is stronger than blood relations in the Seto present-day Japan.” Inland Sea islands.

― 183 ― 4. Direction of development in the islands The environment is easily affected by human ac- 4.1“Vision for Promotion of Sanuki Seto Area” tivities.” (Seto Inland Sea Environment Preser- “Vision for Promotion of Sanuki Seto Area” vation Association (2009)) compiled by Kagawa Prefecture (2002) lists is- sues related to the islands,“Dwindling and ag- (2) Interaction/collaboration with areas outside ing population”,“Slowing economic activities in islands the islands”. The former refers to social issues The economy and environment of the is- stemming from aging of community leaders for lands can never be sustained without consider- improving lives in the islands, and youths going ing the relations with the Seto Inland Sea and out for education, while the latter local economic the mainland. The economic basics here should problems caused by a doldrums in agriculture/ be to produce high-value-added goods and ser- forestry/fisheries, declining local industries, and vices in the islands, and sell them in the outside the decreasing number of tourists markets to gain income. To do so, increasing the value in existing local products, developing For a sustainable development of the is- new local products, finding sales routes to urban lands, it is important to preserve the islands’ en- markets and coordinating function are impor- vironment, and promote local industries to se- tant. cure stable and peaceful lives for the islanders. And to prevent an outflow of money, goods To this end, various issues have to be solved, (i) and services which are being bought from other not only administering the issues by islanders areas should be switched to locally -produced alone, (ii) but trying to solve them in the context ones (import substitution). Specifically recom- of relations with the Seto Inland Sea and the mended are utilization of local resources, pro- mainland, and (iii) securing and training of per- curement of locally produced marine/agricultur- sonnel to take charge of the efforts. al/mineral products, and local consumption of locally produced products. In the service area, 4.2 Important points in each aspect mutual aid and use of local currency could be In Vision compiled by Kagawa Prefecture encouraged. (2002), a comprehensive framework proposes Hori (2002) and Miyamoto (1970) have made measures to be taken under six pillars. In this important suggestions regarding industrial de- article the measures suggested by this Vision velopment in islands. (Note 6) Remittances from will be reorganized into the (1)～(3) aspects, and outside, pensions, public works projects in civil important points in each aspect will be dis- engineering, construction, agriculture/forestry/ cussed. fisheries, financial funds appropriated by the central government to local governments such (1) Efforts on the side of islanders as tax grants and subsidies for social security of Improving living conditions in a way as is- healthcare/welfare are sources of revenue, but landers can live comfortable and peaceful lives, due to the financial straits, governmental funds and preserving islands’ natural environment are are on the decline. essential. Easy-to-use healthcare/welfare servic- As for environmental issues, “garbage es, shopping and education, waste disposal and washed up on the beaches, garbage brought in other basic living functions are required. from the mainland, pollutants coming from the “The environment of the islands are gener- mainland, these are the problems to be tackled by ally vulnerable. The land is small, and covered the entire Seto Inland Sea region.” (Seto Inland with poor soil which does not hold water well. Sea Environment Preservation Association

― 184 ― (2009)) formed from the integration of large numbers of value judgments held by the people living in (3) Securing/training of human resources them, and having been created are sustained or To create lives where residents take the disappear according as such integration is or is initiative, maintaining the size of population is not sustained. essential, especially the presence of the youth is crucial. For this, the importance of recruitment 5.2 Community and tourism of public employees for town halls and post of- As outsiders come to recognize the local fices, and school education is needless to say. culture of islands that is created by a local com- Miyamoto(1965) says, munity, together with the intrinsic value － dif- “Secondary living conditions (new living en- ferent from those of other communities － that vironment: commented by the author) are at inheres in the community, the local culture will times discovered or created by islanders them- in time become an object for island development selves, but often brought about by new comers or as a tourist resource. through the influence from outside.” Tourism exerts many beneficial economic Hori (2002) also says, effects on a community, among which are: “When islands prospered in the past, people (i) securing of new employment and busi- moved in to live from outside, and there were ness opportunities, various forms of interaction with outside commu- (ii) additional income, nities. Island communities should be originally (iii) new markets for local products, open to I-turn residents, and have a capacity to (iv) improved social base and community incorporate them in their development. In the is- facilities/services, lands which have various possibilities, people are (v) new technologies, not judgmental about which is better or worse, (vi) heightened consciousness for environ- but all the residents, whether long-time, I-turn, mental preservation and protection of or U-turn, function making good use of their own the local culture, and strengths, being united, inspiring each other, and (vii) improved land utilization. giving a try to new possibilities”. But besides these economic effects tourism It has to be kept in mind, however, that will exert diverse other effects that will enhance the results of accepting U-turn and I-turn resi- the quality of the local residents’ lives. dents are not necessarily the same to all islands. However if modern forms of mass tourism involving droves of people invading a locality 5. Tourism and Community Development are allowed free rein, there will ensue problems 5.1 Community and local culture such as disorderly development, air pollution, Local culture is an element that simply can- noise and increased volumes of garbage, result- not be left out when considering community. In ing in (i) destruction of nature and ecosystems, each community a locally unique culture is cre- and (ii) destruction of the local community, cul- ated that can be said to constitute the intrinsic ture and traditional townscapes. value of the locality. It is because of this that the tourism has ar- One might say that the local culture in a rived at a turning point where it is now being community, or in other words the locality’s in- required to assume new shapes that will replace trinsic value, is created in accordance with the mass tourism. One likely concept for such new code of values of the residents living in the com- style tourism is“sustainable tourism”; the im- munity. This is because local cultures are portance of tourism development premised on

― 185 ― preservation of tourism resources and their sur- and other of the island’s tourism resources as rounding environments is now being pointed items of World Heritage has brought about a out. heightening of consciousness for protection of culture and heritage within the island, and 6. A case of tourism development in study activities to promote such consciousness Miyajima Island are being organized. 6.1 Overview of Miyajima Island Some of the residents are involved in tour- The island of Miyajima, which is a tourist ism － the island’s basic industry － and even spot renowned both in Japan and all over the those who do not come into direct contact with world, being a World Heritage Site as well as tourists wish for the vitalization of the locality. one of the Three Scenic Beauties of Japan, is se- Fortunately perhaps, the island’s small size ren- lected as a case to examine the relationship be- ders the residents’ opinions easily reflected via tween community and tourism. It is blessed gossip grapevines. This means that their views with tourism resources of both the natural-eco- flow by a natural process to the members of the logical and socio-historical varieties, of which the Tourism Association, making consensus not so Itsukushima Shrine is but one among many. difficult to form among the residents. Miyajima has been an object of religious Some point out that the islands being a veneration since the earliest times as an island tourist spot brings certain benefits as regards with a shrine. From the founding of the Itsuku- living convenience, including the long service shima Shrine in the year 593 through its re- hours of the ferries and fuller water supply and building by Kiyomori Taira (1168) and beyond, sewerage services compared to other localities. the island flourished continually. The communi- The residents can be said to receive ample ty formed by the single island called“Miyajima” benefits from the service provision that accom- can be said to have developed in step with the panies tourism development. In these respects Itsukushima Shrine. And today to the residents also it can be appreciated that Miyajima’s tour- of Miyajima can be said to lead lives closely ism is closely interwoven with the lives of its connected with the Itsukushima Shrine, in view residents. Miyajima’s history, culture, tradition- of the fact that tourism is the island’ s major in- al rituals and festivals have been conserved and dustry. passed on by generations of local population, es- Miyajima is an island situated in Hiroshima pecially, those residing in the area. Bay off the western coast of Hiroshima Prefec- ture. It is 500 meters from the mainland shore 6.3 Successful Promotion of Sustainable (Ono Town), has a circumference of approxi- Tourism mately 30 km and is 30.39 km2 in area. One of Tourism promotion is a means and its ob- its features is that the only means of crossing to jective is to make local people’s life more afflu- it from the mainland is by ferry or high-speed ent and pleasant. Generally, the tourism promo- boat. tion generates positive and negative effects on The population is 1,760 (as of year 2010) and the local population. has been on a decreasing trend in the postwar Positive effects on the local community gen- period. Moreover the phenomenon of the low- erated through tourism promotion are shown as birth, aging society is advanced here. follows: (i) Recognition of local resources and enhanced 6.2 Consciousness of the local residents pride in their local community with a feeling The registration of the Itsukushima Shrine of attachment, which brings conservation and

― 186 ― utilization of local resources, local residents’ Type B receive benefit through tourism devel- participation in promotion of their community opment and collaborate together for tourism via communication and kind attention to visi- promotion. However, the people of Tape C will tors with hospitality. receive negative impacts without benefit. It is (ii) Income and employment generation in the most important issue how to distribute benefit tourism-related business sector including ser- fairly among local people, where sometime vice businesses such as restaurants, shops weaker people like children and aged persons and hotels, production of food and other com- will be excluded from positive effects. The role modities. These business sector usually be- of public bodies as well as NPO/NGO, profes- come strong promoters for tourism develop- sionals is not small. ment. The method to set limits to tourists’ entry (iii) Tax revenue of the local government is in- to local people’s living environment below is creased, and support for tourism promotion, sometimes effective. improvement of infrastructure, improvement (i)“Michi no Eki”,“Machi no Eki” of public services such as dissemination of in- Establish a base facility to offer local prod- formation, crime prevention are expected for ucts, such as vegetables and fruits, for sale and public bodies. other services for visitors, while also providing On the other hand, the tourism promotion a space where they can communicate with local causes negative impacts on the local community. people to obtain information about the area. Traffic congestion, noise, increase of garbage, (ii) “Antenna Shop” (pilot shops to promote lo- destruction of natural ecology or increased bur- cal products of particular area) den to it (i.e., bringing of species new to the lo- Yume-terrace Shop on the Hondori Street cality), tourists’ entry to disturb local people’s in Hiroshima city, Kakinoki Village Shop in Hat- living environment, crimes, bullying, crimes to sukaichi city, etc. trouble weaker people like children and aged (iii) Buses which loop around the town. persons are listed as an example. Services for both tourists and local The relation between local people and tour- residents ism-related activities can be considered as shown in Table 1. The people of Type A and

Table 1 Relation between local people and tourism-related activities Benefit from positive effects Not benefit from positive effects Affected by nega- Type B Type C tive effects Those who reside in the area and are Those who reside in the area who do engaged in tourism-related businesses. not benefit from positive effects of the (Local tourism-related business opera- tourism-related activities but are af- tors) fected negatively. Not affected by neg- Type A Type D ative effects Those who commute to the area from Those who do not neither benefit from outside and are engaged in tourism-re- nor be affected by tourism promotion. lated businesses. (Non-local tourism-related business op- erators)

― 187 ― 7. Conclusions al Areas in Japan, Mirai-Sha (In Japanese) For the formation of communities with tour- Miyamoto, Tsuneichi (1969) Islands in Japan, ism at their center, the exchange of goods, mon- No.1, Mirai-Sha (In Japanese) ey, information and of course people is indispens- Miyamoto, Tsuneichi (1970) Islands in Japan, able. It can probably be said that the creation of No.2, Mirai-Sha (In Japanese) communities will come about through environ- Sanuki Seto Juku Program (2002) Islands of Sa- mental preservation style civic creation by public nuki Seto Area --- The Tales of Twenty- administration, enterprises (local industries) and Four Islands (In Japanese) the local residents acting in unison, along with Seto Inland Sea Environment Preservation As- the consciousness of the tourists. sociation (1999)”Report on Seto Inland Sea It is to be hoped that the“national trust,” Environment Information Investigation --- “civic trust” and similar movements focused on Environmental Problems seen from View- environmental preservation that are now enjoy- point of Islanders and Suggestions for Resi- ing a vogue in many places will continue to dents’ Participation (In Japanese) spread even further. Moreover it will be indis- pensable to examine future community forma- Notes tion encompassing municipality and village (Note 1) Though only food is mentioned here, it merger, together with interregional exchange. is possible to expand our consideration to Finally,. turning back to the subject of is- areas of goods and services such as lands, stated in the Sanuki Seto Juku Pro- education,healthcare, welfare and amuse- gram(2002) are: this program was set up in Sep- ment. tember 2001 with the aim of training“Island (Note 2) Miyamoto writes (1967, p.65) on Suo Life Creating” leaders, and network-building of Ohshima Island, the people involved; every year participants are “Food alone would not be sufficient to sup- recruited from the islanders, and from those port a life. Money is necessary. To earn who are willing to work for the islands; there money, people migrated. --- It can be said were 44 people (in total 84 people) from 11 is- this migration enabled sons other than the el- lands participated so far; conducted workshops dest to have their own households away from and held product fairs moving venues in differ- their parents’ and eldest brother’s home. ent islands. This is an example of wide-area col- Therefore, at the time the island’s population laboration. If such collaboration takes place reached 70,000, not all the people perma- among many Seto Inland Sea islands, and be- nently lived in the island, but many lived tween islands and mainland in many forms, then away in other areas, and came back for sum- the future of the islands will be a bright one. mer Bon Festival and New Year’s Holiday.” (Note 3) Miyamoto (1967, p.63) writes on Suo References Ohshima Island, Hori, Hajime(2002)“Slowly, Steadily and Togeth- “From 1732 to 1751, it is supposed that a er, Let’sTalk about Island” Journal of Indus- great deal of sweet potato was grown in the trial Promotion,No.412(In Japanese) island. They were mainly grown in the Kagawa Prefecture (2002) Vision for Promotion eastern part of the island where there was of Sanuki Seto Area (In Japanese) more faming land. As the food production Miyamoto, Tsuneichi (1965) Study on the Seto In- increased, people’s lives stabilized and the land Sea, Mirai-Sha (In Japanese) population increased rapidly. It increased Miyamoto, Tsuneichi (1967) Central and Region- three folds over 100 years or so. In Mizuta

― 188 ― Village in the western part of the island saw an island which is close to the mainland but a two-fold population increase, while the the sea still stands in-between, and an is- eastern part population increased three to land which is directly connected to the four times.” mainland with a bridge. (Note 4) To study the relations between islands (Note 5) As for changes brought about by the and mainland, the following two points are introduction of secondary living conditions, noteworthy. Miyamoto (1965) classified changes in life 1. Miyamoto (1969, pp.32-33), and culture into three patterns: “There are great differences in situation be- 1. Older culture is retained by primary resi- tween depopulated areas in islands and the dents, and does not merge with secondary mainland. In islands due to their rigorous residents’ culture, living conditions, the population problem is 2. When primary residents create living condi- even more difficult. --- The biggest differ- tions for secondary residents, the two types ence is related to motorization. Roads alone of cultures merge in the primary residents, are not enough to reach islands. First of all, 3. When primary residents move out or are islands are not connected to outside with extinct, their culture is rarely succeeded by roads. Except for in-the-island transporta- secondary residents. tion, islands does not benefit from motoriza- (Note 6) Hori and Miyamoto suggest important tion. They are cut off from other areas. points related to industrial promotion in the Therefore, people tend to regard construct- islands. ing bridges as the best possible solution. First, Hori (2002) says about agriculture/ Residents living in islands where construc- forestry/fisheries,“Especially in islands, the tion of bridges is possible strongly desire for flow of activities in these industries --- pro- bridges.” ducing, catching, selling --- should be re- 2. Hori (2002) speculates as follows about viewed in order to find and use various the reason why population decreases more methods and ideas for adding values to their in the islands which are located closer to products. That can provide a key to new the mainland, and look more convenient tourist attractions. Fresh products of these than other islands. industries can inspire the development of “(i) They daily look at urban lives in the new markets, and consumers’ feedback will mainland which is just across the channel be obtained directly, which will lead to find- and constantly compare urban and island ing various methods which can benefit both lives. As the mainland’s urban functions producers and consumers.” are incorporated in their living territories, Miyamoto (1970) says about the tourist in- their perception of inconvenience in the is- dustry,“Traditional group tours which take land is even more intensified. large groups of tourists to scenic or historical (ii) Even if they move to the mainland, places would not be possible in islands, be- their home islands are not distant, and they cause most islands have no such places. Still would be able to look on their islands just in islands have their own charm to attract tour- front of them, look after their island houses, ists. That is because it is a secluded world. and visit their family graves with ease. They can be used for different purposes such Thus they would have little reservation as places for relaxation, marine sports, recre- about leaving their islands.” ation, and islanders too will be able to partic- He explains comparing two different cases; ipate in those enjoyments.”

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