It looks different on OS X between Safari and Chrome - Safari uses the built in Lucida Grande font to render a full color unicode love hotel, chrome tries to use the black and white symbola font.
You actually see a fallback image with the transparent character on top in all other browsers, since there isn't support for unicode characters this high (U+1F3E9). If you highlight and right click on the love hotel character on OS X you'll see "Search google for '🏩'" with the full color love hotel character.
The Unicode Consortium manages the process of defining the unicode standard. Various committees are formed, composed of representatives from whatever other standards bodies are interested and from companies with a stake in the standard.