During peak tourist season, Kyoto's city buses draw constant complaints: too packed to board, and queues at stops that never seem to move. As a countermeasure, the city will switch its buses to front boarding with prepayment by the end of fiscal 2028. Here is how transport is set to change in an ancient capital wrestling with overtourism.

Kyoto City Bus to Change Boarding System After 70+ Years

On January 29, 2026, Kyoto City officially announced a major change to its municipal bus system: switching from the current "rear-entry, front-exit, pay-when-you-leave" system to "front-entry, rear-exit, prepay-when-you-board." Mayor Koji Matsui stated at a press conference that implementation is targeted for the end of fiscal 2028. While the vehicle and bus stop modifications are expected to cost about 2 billion yen (approximately $13 million), the city has committed to this decision as a countermeasure against the increasingly severe overtourism problem.

Currently, Kyoto city buses operate with passengers boarding through a door in the middle of the vehicle and paying their fare near the driver when exiting through the front door. This system has been in place for over 70 years but has created persistent issues with passengers crowding toward the front, making it difficult for those at the rear to move through and exit smoothly.

Why Change the Boarding System Now?

Since 2017, Kyoto City has conducted multiple pilot tests of the front-boarding system. Results showed that dwell time at busy bus stops was reduced by an average of approximately 11.5 seconds, and passenger flow became noticeably smoother.

Under the new system, passengers will board through the front door, pay their fare immediately, and exit through the middle door. This reduces the distance passengers need to move inside the bus, making it especially easier for elderly passengers and tourists carrying large luggage to disembark.

Overtourism: The Numbers Tell Kyoto's Story

According to a Kyoto University survey, over 80% of Kyoto residents report being "troubled by public transportation congestion." On routes heading to popular destinations like Kiyomizu Temple and Kinkaku-ji (Golden Pavilion), the following situations have become commonplace during tourist seasons:

Passengers waiting at stops cannot board due to overcrowding, sometimes waiting through multiple buses. Packed conditions prevent passengers from reaching the exit in time, causing them to miss their stops. Complaints flood city offices from local residents unable to use buses for commuting. Schedule delays have become chronic, making punctual operation nearly impossible.

The combination of yen depreciation and social media's expanding influence has driven a surge in foreign tourists visiting Kyoto. Photos of beautiful geiko (geisha) and videos of historic streetscapes spread across language barriers, generating unprecedented tourism demand.

The Tourist Express Bus Initiative

In June 2024, Kyoto City launched the "Kanko Tokkyu Bus" (Tourist Express Bus) as part of its overtourism countermeasures. This was a nationwide first utilizing a new national system that allows different fare structures from regular route buses.

The Tourist Express Bus connects Kyoto Station to Gojo-zaka (the nearest stop to Kiyomizu Temple) nonstop in about 10 minutes, and reaches Ginkaku-ji (Silver Pavilion) via Gion and Heian Shrine in approximately 24 minutes. The fare is 500 yen for adults, roughly double the regular bus fare of 230 yen, but passengers with the "Subway & Bus One-Day Pass" (1,100 yen) can ride at no additional cost.

Operating only on weekends and holidays, the express buses depart from Kyoto Station approximately every 7-8 minutes during morning hours. By design, regular commuter passes and senior citizen passes cannot be used, creating a separation between tourist and resident usage. The initiative received the "JCOMM Project Award" in September 2025, recognizing its effectiveness.

The Critical Bus Driver Shortage

Another factor driving the boarding system change is the severe personnel shortage. In September 2024, the Kyoto City Transportation Bureau issued an "Emergency Declaration of Bus Driver Shortage," revealing that routes are being maintained only through drivers working on their days off.

Due to staffing constraints, the March 2025 schedule revision will unavoidably include service reductions and route truncations. Shortening boarding and alighting times has become an urgent priority to maximize transportation efficiency with limited drivers and vehicles.

Challenges and Future Outlook

The transition to front-boarding presents several challenges.

First, bus stopping positions will shift rearward, requiring understanding from nearby residents. This change comes while communities are already bearing burdens from noise and litter left by waiting passengers.

Additionally, fare zones where prices vary by distance traveled will need to maintain the current rear-boarding system. This means different boarding methods for different zones, potentially creating confusion, especially for tourists.

Furthermore, at bus stops near crosswalks or intersections, changing stopping positions may raise safety concerns requiring careful evaluation.

A Challenge Facing Tourist Cities Worldwide

The overtourism that Kyoto faces is a common challenge among the world's popular tourist destinations. In Barcelona, Spain, a mayor campaigning on tourism regulation was elected in 2015, leading to a ban on new accommodation construction in designated areas. Venice, Italy, launched a trial system in 2024 charging entry fees to day-trip tourists.

Kyoto's approach is distinctive in seeking harmony between resident life and tourism through public transportation efficiency and usage separation, rather than excluding tourists. Whether Kyoto can build a "cycle where tourism profits return to the city" will determine its future as a sustainable tourist destination.

In Japan, Kyoto's bus congestion is often cited as the symbol of overtourism. But how does your country or region handle increasing tourist numbers? What measures exist for public transportation crowding, or for coexistence between residents and visitors? We'd love to hear about your experiences.

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