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Multicultural Policies in Kawasaki Since 2014: Education and Social Implications

Introduction

Kawasaki is known as Japan’s Multicultural vanguard. This city within the Kanagawa prefecture stands out from all other prefectures in Japan as a symbol of diversity. Japan is strongly associated with the myth of homogeneity but Kawasaki is living proof that debunks that myth. The term “multicultural coexistence” refers to recognizing the cultural distinctions among individuals of varying nationalities, ethnicities, and backgrounds, and fostering relationships within the local community rooted in equality.^[1] This is exactly the type of internationalism that Kawasaki attempts to foster. Local governments now advocate for local internationalization, centering on 'international exchange' and 'international cooperation' as their mainstays. However, given the noted shifts in local communities, there's an expectation for them to persist in advancing local internationalization with an emphasis on 'multicultural coexistence.'

As of 2020, Kawasaki is home to over 38,000 foreigners with diverse backgrounds. The majority of them are from Brazil, China, South Korea, Filipino, Vietnamese, and Nepal.Cite error: A <ref> tag is missing the closing </ref> (see the help page).Foreigners in Kawasaki are placed into these notions of multiculturalism which can be called for a celebration or a call to action. Attempting to assimilate into Japanese culture while staying true to their identity is something that Japan is trying to create a safe space for.^[2] Traditions, culture, and politics are common excuses for many groups who advocate for homogeneity to promote multiculturalism. Kawasaki is positioned to highlight the effects of multiculturalism throughout history, education, social implications, hate speech, and a culture of protection.

History of Multiculturalism in Kawasaki

Kawasaki is one of the first cities to incorporate the notion of multiculturalism. Multicultural education is an essential component of the integration of multiculturalism in Japan. The importance of access to education creates a beginning in multicultural integration efforts for foreign students. Local initiatives often offer language support programs, including Japanese language classes, bilingual education models, or assistance within mainstream classrooms to aid foreign children in overcoming language barriers and integrating into Japan's education system. Local authorities and schools arrange cultural integration activities, like exchange events, festivals, or sensitivity training to foster understanding and acceptance between Japanese and foreign students. They also engage communities to form partnerships among schools, families, and local groups. Involving parents, leaders, and volunteers helps create supportive environments for foreign children's academic and social integration. Admission policies can be made flexible for foreign children, helping them by allowing late enrollment, waiving residency requirements, or providing extra support during transitions. Programs local to Kawasaki could include professional development for teachers, or resources and guidance on multicultural education.^[3] It’s policies such as these that created Kawasaki as a model of education throughout all of Japan to encourage integration and inclusion.

Multiculturalism goes beyond school borders; the influence of Kawasaki has begun to influence the effectiveness of Japan's multicultural policies in promoting inclusivity, and addressing the needs of diverse communities throughout the city, and outside the prefecture. These policies have begun to analyze government initiatives, legislation, and programs supporting multiculturalism. This initiative tackled the challenges and opportunities related to social integration and cohesion in a multicultural society like Japan. Japan has started examining issues such as intercultural communication, identity formation, and community relations.^[4]

“Japan’s Human Rights Commitments and Pledges” was published by the Ministry of Foreign Affairs in 2019 to provide an overview of Japan's dedication to human rights principles. The outline of this document provided a blueprint of Japan's commitments on both domestic and international levels, detailing the initiatives and pledges it has undertaken to promote and protect the human rights of international communities. This included legislation, policies, and programs to ensure equality, dignity, and justice for all individuals within Japan's borders and its engagement with the global community. It also highlighted Japan's role and efforts concerning human rights, reflecting its commitment to upholding fundamental freedoms and values. ^[5]

The historical movement of Kawasaki as a trailblazing community allowing multicultural integration to expand throughout Japan sets a goal not only for international communities to be recognized, but also for discussion of multicultural policies. Japan is entering the topic of voting rights for foreign residents of Kawasaki into discourse, and the political participation by non-citizens. ^[6]

Traditionally, Japan has been characterized by a strong sense of cultural homogeneity, with a predominant emphasis on shared values, traditions, and customs. However, the influx of foreign residents brings forth new cultural perspectives and practices that challenge this notion of homogeneity. This upbringing of diverse cultural backgrounds prompts a reassessment of what it means to be "Japanese" and how society defines and understands cultural identity. The social reconstruction of difference also entails promoting intercultural understanding and dialogue within Japanese society. ^[7]

Education Today

Multicultural policies—and therefore related educational policies—have historically been controlled at a local level in prefectures, so the Ministries of Education and Internal Affairs have not taken responsibility for these.^[8] That means it is up to the prefectures and individual cities in Japan to create a model for the rest of Japan to follow. As outlined in the History section, Kanagawa prefecture and the city of Kawasaki are known for their foreign educational policies, which are often the first of their kind in Japan. ^[9] This is because Kawasaki has a large foreign population, which extends to its students. While much of the education of foreign students is up to volunteers in cities where the population is lower or the policies more lax, Kawasaki has instituted plans for foreign student integration and education, such as Kawasaki’s Plan for a Multicultural, Harmonious Society.^[10]This includes guaranteed school entrance, education focused on individual learning, academic support by the community, and support for families.

Another example of this is the quota system, which was implemented in Kanagawa Prefecture in 1997, but was used in 13 schools by 2017.^[11] This provided academic help for immigrant students in the area, particularly for the Japanese language. This help even extended to high school students, which is infamously harder for foreign students to attend because of entrance exams. The quota system ensures that at least some foreign students will be admitted to the school, with the aim of providing students with educational opportunities that would be hard to come by otherwise. While a third of all Japanese prefectures have started using the quota system as of 2016, Kanagawa is still one of the leaders in foreign educational policy.^[12]

Continuing its educational innovation in 2019, Kawasaki held an event to help educate foreign students over the summer, to help them catch up with their local peers.^[13] With 38,000 residents with foreign citizenship in 2020, Kawasaki is determined that the children of these immigrants don’t fall behind because of a lack of knowledge of the Japanese language.^[14] These classes were focused on students who immigrated in the last 3 years, especially older children who would have greater difficulty learning the language and continuing in higher education without that knowledge. This comes with a recent influx of immigrant workers, looking for job opportunities in Japan due to the new visa system introduced a few months before.

For elementary schools, the Kawasaki International Association has provided a guide to help non-native speakers of Japanese navigate the school system.^[15] Parents and guardians of foreign children may be just as new to the Japanese language and educational system as their kids, so it is important for them to be knowledgeable of the structure and resources available. An example of this is the Kawasaki International School, which was a primary and kindergarten school established in 2009 to provide a good foundational education equally accessible to everyone.^[16] The official Kawasaki city website also aims to be accessible to speakers of all languages, and outline different school events and grades in Japan.^[17]

Higher education opportunities for foreign residents are also improving in Kawasaki. Established in 1989, the Kawasaki International Association aims to provide equal access to opportunities to all residents of Kawasaki, with lots of ties to grassroots organizations.^[18] In 2023, a scholarship program was opened to foreign students for financial assistance for college attendees.^[19] This organization also provides other help to foreign residents, including free counseling.^[20] This is crucial assistance, especially since discrimination in education is not the only problem that foreign residents of Japan face. 40% of foreigners have experienced housing discrimination, and more recently, COVID-19 has increased racially motivated discrimination.^[21][22] While Kawasaki is taking steps in the right direction for education, a lot still has to change to improve the lives of foreign residents.

Social Implications

Hate Speech

Hate speech in Japan refers to the spread of discriminatory narratives and ideologies that target marginalized communities within the country. Influenced by various socio-political factors, hate speech movements have gained prominence over the years and sparked debates regarding freedom of expression and social unity.

Kawasaki has struggled with the issue of hate speech, particularly targeting groups such as Koreans and Chinese residents.^[23] The phenomenon of hate speech in Kawasaki reflects the broader societal tensions and xenophobic sentiments spread throughout Japan. Hate speech is dealt with firsthand by constant internet backlash and dissemination of information online through social media.

In response to the rise of hate speech issues, the Kawasaki Municipal Government enacted the Hate Speech Ordinance to address and lessen discriminatory actions and rhetoric within the city.

Origins to Ordinance

Choi Kang-ija is a third-generation Zainichi Korean and local of Japan who was near the racist rallies that happened on November 8, 2015.^[24] There were crowds of protestors throwing around hate speech and waving rising sun flags shouting “Purify Japan” near Kawasaki Station and then eventually her neighborhood.^[25] This act of discrimination has caused many problems for the Zainichi community, targeting them as victims. Choi brought up the issue of the Kawasaki City Council denying these rallies due to the fear of these protestors coming again and they denied her.^[26] She then brought it up in 2016 to the local Legal Affairs Bureau and pleaded her case to the Committee on Judicial Affairs.^[27] Yakura Katsuo, one of the board members of the committee, recalled an event about a high school student begging Yakura that those of the hate rally in the student’s words “They’ll kill me–please help” which has created constant fear.^[28] Choi has started human rights workshops to better support marginalized communities from the outcome of World War II.^[29] That was the day they started in a better direction due to the result of Choi Kang-jia’s experience with hate crime. Kawasaki City introduced the ordinance.

On December 16, 2019, Kawasaki City’s ordinance was created to aim to uphold the rights and dignity of all residents, regardless of nationality or ethnicity to foster a more inclusive community.^[30] With the legalities of Japanese Law involved with the Hate Speech Ordinance of Kawasaki, this act guarantees freedom of speech while prohibiting acts that incite discrimination or hatred against specific groups. The ordinance seeks to create a balance between protecting freedom of expression and preventing the spread of harm.^[31]

The Kawasaki ordinance is to remind the city, citizens, and businesses to respect human rights and it is free from unfair discrimination.^[32] The purpose is to promote and develop the community of the city and society to respect human rights and understand that all people can live together. According to Article 2, It is “Unjustifiable Discrimination to go based on race, nationality, ethnicity, creed, age, sexual orientation, gender identity, origin, disability, or any other grounds.”^[33] There is mention that the mayor is the one who formulates the plan to implement these policies to eliminate any discrimination that involves human rights. The ordinance incorporates a plan to educate those about human rights and encouragement of awareness in the community.^[34]

In the past years recently, there have been continual discrimination issues towards individuals based on their origin, race, or ethnicity. The implementation of the anti-hate speech law has improved action in addressing hate speech activities like leading protests or having gatherings in Kawasaki. There has been a decrease in this behavior but it continues to still hinder victims of hate speech.^[35]

Protecting Culture

The Japanese continue to look down on foreigners who contribute to the homogeneity of Japan. In April 2019, revisions were made to the Immigration Control and Refugee Recognition Act allowing lower-skilled foreign workers in Japan.^[36] With these revisions made and the Anti-Hate Speech Law enacted, it is still not enough. Kawasaki City has an International Policy Promotion Plan to promote international measures and allow foreign workers into the industry.^[37] June 2019, there was the Act for the Promotion of Japanese Language Education to provide language for foreigners who are living in Japan.^[38] This has been an issue for students and adults for quite a long time due to the language barrier. The act has been able to prevent bullying between students who look different. Without this Act and preventative measures, discrimination and hate speech can lead to affecting children and adults in the long term.^[39]

Calls for Action

Surveys can help assess the current situation accurately and help formulate a well-informed plan to eradicate discrimination. Having stricter regulations is necessary to ban discriminatory acts online and offline. Enforcing punishment against hate speech violators and having a human rights relief agency can help to relieve the burdens of victims.^[40] The effort to fight against hate speech must be carefully balanced with freedom of expression.^[41] Highly encouraging and integrating appreciation for the history and culture of foreign people living in Japan through the education system and spreading awareness to society helps to value diversity and reject hate speech.

Conclusion

Throughout the years, Kawasaki has defied Japan’s myth of homogeneity again and again, engaging in multiculturalism, promoting educational policies for foreign students, and enforcing acts against hate speech and discrimination. Education for foreign students has improved a lot over the last 10+ years, and now some of the policies are being expanded for all of Japan. Anti-discrimination laws are also being enacted, and while Kawasaki must be careful in providing a good model for the rest of Japan because of concern about restriction of freedom, progress is being made. Although Japan has a long way to go in ending racism and xenophobia, Kawasaki is taking steps in the right direction and leading others towards a brighter future. Hopefully, Kawasaki's policies will eventually be implemented at a higher level, and all foreigners in Japan will be able to benefit from their modern ideas of human rights and equal access to education. The national Japanese government may be lacking in its enforcement of anti-discrimination policies now, but Kawasaki has truly set an example for how this country can improve and build on its existing law.