THE SITUATION of FOREIGN RESIDENTS in TOKYO

Yoshikuni Higashi
Researcher
National Institute for Research Advancement
Yebisu-Garden-Place-Tower, 4-20-3, Ebisu , Shibuya-ku ,150-6034
Tokyo Japan
E-mail: yhigashi@nira.go.jp

Presented at the Third International Metropolis Conference
Zichron Yaacov, Israel
November 30--- December 3, 1998

Providing a Demographic Profile of Tokyo’s Immigrant and Multicultural Population

As of June 1998, a total of 271,640 foreigners residing in Tokyo Metropolis had completed mandatory registration procedures. The population of the metropolis is 11,958,932, so this means that 2.3% of Tokyo Prefecture is made up of foreign residents.

The following is a breakdown of these registered foreigners by nationality and population (top 10 nationalities only):

History explains why people with North Korean, South Korean and Chinese (including Taiwanese) nationalities occupy first and second place in this table. During the time Japan ruled the Korean Peninsula and Taiwan (until 1945), large numbers of people migrated to Japan from these lands, which were considered to be part of Japan. In 1945, with the end of World War, Taiwan has been returned to China, and North Korea and South Korea have become independent of Japan. Strictly speaking, with the Treaty of Peace with Japan in 1951, the Japanese Government has accepted this situation. From 1945 to about 1950’s, Japan was very poor, probably poorer than the Korean Peninsula. So, a few people wanted to return to the Korean Peninsula and Japanese Government helped them to return. However, many still reside in Japan, as do their descendants. It would thus be hard to call them "immigrants" in the true sense of the word, even though they intend, more than any other foreign nationality, to remain in Japan as permanent residents. However, some of Chinese are considered immigrants. They are cooks for Chinese dishes. Japanese Government permits Chinese restaurants and hotels to invite Chinese cooks who have a high-level skill. And, some of these Chinese cooks want to reside in Japan forever. They are considered to be immigrants. We cannot find Korean Town or Chinese Town in Tokyo. But we can find Korean Town in Osaka, and China Town in Yokohama and Kobe.

Many of the people from the Philippines (3rd most populous demographic group of foreigners in Tokyo), Brazil (6th), Thailand (7th) and Myanmar (8th) came to Japan in search of work. We can hardly classify them all as "immigrants," in part because it is quite difficult for foreigners to obtain permanent resident status in Japan. It has been more difficult for them to reside in Japan. Because of a business depression, Japanese companies have discharged temporary employees. These people belong to the temporary employees, so that they have lost their jobs. And, finally, they have to return to their countries. The Supreme Court has established the rule of discharge: that is, a company should fire temporary employees first, and at last should fire normal employees. So, people from these countries are placed at a disadvantage.

Many of the people from the U.S.A. (4th), the U.K. (5th), Australia (9th) and France (10th) are in Japan for business purposes, so there is no reason to assume that they wish to live permanently in Japan. We cannot, therefore, classify them as "immigrants" either.

Most of these foreigners, no matter what their nationality, are of course different from the Japanese majority in terms of religion and culture, and their values are different as well. In other words, Tokyo Prefecture finds itself with a "multicultural" presence in its midst.

Discussing Patterns of Immigrant and Multicultural Political Participation

Foreigners residing in Japan are denied the right to participate in the political process. This is true both at the national level and at the local government level in Tokyo Prefecture. Two reasons given to justify this lack of political rights are that: (1) it is the exclusive right of citizens to participate in the political affairs of the national and local governments of their own country, and (2) recognizing the principles of national sovereignty, Article XV, § 1 of the Constitution of Japan gives to the people (i.e., the citizens of Japan) "the inalienable right to choose their public officials and to dismiss them."

On 26 February 1993, the Supreme Court refused to recognize the right of foreigners to vote in national elections. Then, on 28 February 1995 it found in favor of the argument that foreigners do not have the right to vote in the election of local governing bodies either. In the latter case, though, the Supreme Court left the door somewhat ajar. It suggested that foreigners who are permanent residents have an especially strong interest in the administration of local affairs, so legislation permitting permanent residents to express their voice in local government affairs would not be unconstitutional. Academic circles have recently tended to support this judgment, arguing that permanent residents should have the right to participate in the local political process.

In October 1998, Mr. Kim Dae Jung, President of Republic of Korea, visited to Japan and requested Mr. Keizo Obuchi, Japanese Prime Minister, to give permanent residents from Korea the right to vote in the erection of local governing. Mr. Obuchi answered as follows:

It is concerned to national sovereignty, local government affairs and the relation between nation and local government. We would like to investigate this matter from different view points.

On the other hand, some opposition parties announced that they would introduce a bill that gives permanent residents who stay legally in Japan over three years the right to vote in the erection of local governing.

Foreigners residing in Japan face a high barrier when trying to join the civil service. In the case of the national civil service, the law prohibits foreigners from becoming foreign service employees (diplomats, etc.), and rules established by the National Personnel Authority state that foreigners are not eligible to sit for civil service examinations, which means, in effect, that they are excluded from joining other parts of the national civil service as well.

Nevertheless, a special law does give foreigners the right to serve as professors and instructors at national universities. Foreigners are also permitted to serve in institutions under the jurisdiction of local governments, holding professional positions as public health nurses, nurses, medical technicians, nutritionists, nursery school teachers, etc. But in the case of general administrative positions that could possibly involve the exercise of official authority or the formation of public policy, local governments have required Japanese citizenship as one condition to employment in the local public service. In this, they are following guidelines established by the Ministry of Home Affairs.

Recently, though, the Ministry of Home Affairs has relaxed its stance somewhat. This has prompted some local governments to hire foreign residents, after first obtaining their understanding that their chances of promotion are somewhat limited. But the Tokyo Metropolitan Government has not followed this development—it maintains Japanese citizenship as a condition for eligibility to work in its general administration. The argument made here is that, if this condition were removed, foreigners could eventually rise to positions that involved the exercise of official authority (for example, making decisions regarding taxation).

Discussing Tokyo Metropolitan Government Responses to Immigration and Multiculturalism

The Tokyo Metropolitan Government offers a number of services to foreign residents, including the following:

1. Its information booklets on living in Tokyo are printed in Chinese, English, French and Korean. Its pamphlets on putting out garbage for collection (a matter which now receives much attention) are printed in these and other languages, including Farsi.

2. It has posted signs giving some information in English within its offices, and publishes English booklets presenting an overview of the metropolitan government.

3. It offers information in Chinese, English and Korean on how to cope with natural disasters. It also provides information in these and other languages on how to prepare for a severe earthquake and how to cope with the substantial damage that would result.

4. It distributes pamphlets explaining the national health insurance plan and the national pension plan in Chinese, English, Korean, Portuguese and Spanish.

5. It distributes pamphlets giving information on nursery schools in English.

6. It distributes pamphlets containing information on inoculations, printed in Chinese, English and Korean.

7. It issues Maternal and Child Health Handbooks printed in Chinese, English and Korean.

8. It issues English-language pamphlets giving information on libraries and other public facilities.

9. It issues information on taxation, printed in Chinese, English and Korean.

As can be seen, many of these publications are printed in English, which has become an "international language," and in Chinese and Korean, languages spoken by the two largest groups of foreigners residing in Tokyo.

Identifying New Research and Policy Directions

Foreigners residing in Tokyo Prefecture do not have the right to vote in elections for the Governor or members of the Tokyo Metropolitan Assembly. They are also prohibited from serving in general administrative positions within the metropolitan government. As explained earlier, the Supreme Court has indicated that some foreigners could be granted the right to participate in the political process at the local level, but for this to be achieved, legislation would have to be introduced by the national Government. Such a process could prove to be extremely difficult.

The Foreign Advisory Council of the Tokyo Metropolitan Government was established as a way to compensate foreigners somewhat for their lack of representation. This body is empowered to offer suggestions directly to the Governor, and to make known the opinions and wishes of resident foreigners regarding policies affecting them. The Council had its first meeting on 26 November 1997, and is scheduled to meet about four times a year. Council members serve a two-year term, and are chosen so that both genders and different nationalities are represented in a balanced fashion. Establishment of the Council is a welcome attempt to offer foreigners a form of representation at the metropolitan government level, and to let them participate more fully in the community.

Tokyo Metropolitan Government gives seats for each nationality as follows:

Korea 4 , China 3 , The Philippines 2 , U.S.A. 2 , U.K. 2 , Brazil 1, Thailand 1, Myanmar 1, France 1 , Australia 1 , Iran 1, Vietnam 1, Colombia 1

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