Opinions on Domestic and International Communications on Territory and Sovereignty

January 19, 2023
Advisory Panel on Communications Concerning Territorial IntegrityMembers of the Advisory Panel on Communications Concerning Territorial Integrity(Names after the Chair in order of Japanese syllabary)(Chairperson)

Nishihara Masashi

Vice-Chairman, Research Institute for Peace and Security

Kawashima Shin

Professor, University of Tokyo

Sasaki Shigeru

Lecturer, Shimane University

Takai Susumu

President, Security Strategy Research Institute of Japan

Tsukamoto Takashi

Former Professor, Tokai University

Nakatani Kazuhiro

Professor, University of Tokyo

Nakano Tetsuya

Professor, Kansai UniversityHyodo Shinji

Director, Policy Studies Department, National Institute for Defense Studies

Hirano Satoshi

Professor, University of Tokyo

Hosoya Yuichi

Professor, Keio University

Masuo Chisako

Professor, Kyushu University

Watanabe Shino

Professor, Sophia University

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The Advisory Panel on Communications Concerning Territorial Integrity (Chairperson:Nishihara Masashi, Vice Chairman of the Research Institute for Peace and Security) released policy
recommendations titled “For Practical Initiatives to Strengthen Communication based on Changes
in the Domestic and Overseas Environment” on July 29, 2019.
On November 15, 2022, and December 15, 2022, the Advisory Panel held follow-up meetings toevaluate the Japanese government's efforts to disseminate information on territory and sovereignty
and make and compile further recommendations on policy directions and priorities. The opinions ofthe Advisory Panel members were submitted to Tani Koichi, the Minister of State in charge ofTerritorial Integrity by Chairperson Nishihara Masashi on January 19, 2023, and made public on thesame day.
The following is the background information on the discussion in the Panel, the Panel’srecognition of the current state of affairs, its review of the government actions so far, and its opinions
on policy priorities and directions based on the review.

I Background and Challenges Related to the Initiatives on Domestic andOverseas Communications Concerning Territory and Sovereignty
Since the first appointment of a Minister of State in charge of Territorial Integrity in December
2012, the Government of Japan has been taking initiatives to strengthen domestic and overseas
communications concerning the territorial integrity of Takeshima and the Senkaku Islands, inaddition to the Northern Territories, which had already been addressed under a crossgovernmental framework. In July 2013 and June 2015, the Advisory Panel submitted a report andrecommendations, respectively, on such initiatives to the Ministers of State in charge of TerritorialIntegrity. Taking into consideration the direction of policies suggested in these documents, theGovernment has taken measures related to overseas communications, domestic awareness, andarchival research. In January 2018, the National Museum of Territory and Sovereignty(hereinafter referred to as the "National Museum") was established as an institutional hub for
public communication, both domestically and internationally, and later expanded and moved toToranomon, Tokyo, in January 2020.
The Advisory Panel held meetings from May to July 2019, where its members discussedchanges in the domestic and international environment surrounding Japan’s territory andsovereignty, examined government initiatives at the time, and compiled recommendations titled“For Practical Initiatives to Strengthen Communication based on Changes in the Domestic andOverseas Environment” (hereinafter referred to as the “Previous Recommendations”). The
Previous Recommendations were presented to the Minister of State in charge of Territories
Integrity and made public on July 29, 2019.
Concerning the developments after the issuance of the Previous Recommendations, since2

FY2020, textbooks based on the new National Curriculum Standards have been introduced inschools step by step. As for the National Museum, exhibitions on the Northern Territories,
Takeshima, and the Senkaku Islands have expanded, and new initiatives, such as special
exhibitions and exhibition tours to regional cities, have been implemented. Three years havepassed since the relocation of the National Museum as of January 2023.
Meanwhile, the situation concerning Japan's territory and sovereignty has become even more
severe with Russia's aggression against Ukraine, persistent attempts by Chinese Coast Guardvessels to unilaterally change the status quo by force in the waters surrounding the Senkaku
Islands, and the continued illegal occupation of Takeshima by South Korea.

II The Follow-up Meetings of the Advisory Panel
In light of the developments mentioned above, the follow-up meetings of the Advisory Panel
were held twice under the auspices of Tani Koichi, the Minister of State in charge of TerritorialIntegrity. At the Meetings, the government explained the measures that had been taken toimplement the Previous Recommendations covering four areas of related policies, including the“Overall Matters” and 14 items. In the meetings, the members of the Advisory Panel discussed
the policy priorities and directions. In addition, prior to the follow-up meeting, some of themembers of the Advisory Panel visited the relocated National Museum.

III Opinions of the Advisory Panel
1.

Review of the government’s measures that have been taken to implement thePrevious Recommendations
As a result of the deliberations in the follow-up meetings, the Advisory Panel concludes that,

despite the spread of the new coronavirus and various movement restrictions, the government hastaken various measures, and some progress has been made.
The review of the Advisory Panel on the four main areas of government actions (overseascommunications, domestic awareness, the National Museum, and archival research on documents
and materials related to Takeshima and the Senkaku Islands) is summarized as follows:(1) Overseas Communications
The progress that has been made: Through the publication of pamphlets and the launch of
the multi-language Research and Commentary Website, the government has disseminatedinformation to overseas on the grounds of Japan’s territorial rights based on objective factssuch as historical documents and materials.
The areas for further action: The current affairs surrounding Japan's territory and sovereignty
are one of the universal challenges in the sense that the free and open international order based3

on the rule of law is being challenged. From this perspective, Japan should strengthen its
overseas communications vis-a-vis the current state of affairs surrounding its territory andsovereignty. Furthermore, it is also necessary to enhance capabilities to respond to various
changes, including those of the arguments of other countries and those in the internal andexternal environment.
(2) Domestic AwarenessThe progress that has been made: Some progress has been made on the diversification of PR
tools, including the use of social media and the provision of materials on the website. Someefforts have also been made to appeal to younger generations, including children.
The areas for further action: The overall level of awareness of the situation surrounding
Japan’s territory and sovereignty in Japan is still far from satisfactory, and there are regionalvariations in understanding and interest. Therefore, it is necessary to strengthen various efforts
to increase "triggers" for people to think about territory and sovereignty as something close tothem. In addition, as for education, the government should grasp how topics related to territoryand sovereignty are handled in classes, including new subjects such as “Advanced Geography”
and “Advanced History,” and provide support to schools, if necessary.
(3) National Museum
The progress that has been made: Exhibits have been substantially enriched compared tothose before the relocation, including those introducing the arguments by other countries andregions and those using new technologies. Due to the expansion of the exhibition space, thenumber of exhibits, especially those related to the Northern Territories, has increased. Inaddition, the museum has tried to appeal to various audiences, including young people(including children) and foreigners. In general, the National Museum has fairly cooperated withrelated facilities and organizations to implement their projects.
The areas for further action: The National Museum should provide visitors with easy-tounderstand information about the severe situation surrounding Japan's territory and sovereignty
and the Japanese government's policies and responses. It is also necessary to increase exhibitsthat meet the needs of visitors and promote their understanding by using such tools as audio
guides and QR codes. It is also important to strengthen the hub function of the National
Museum among the related facilities and museums in Japan. It cannot be said that the National
Museum is well known, and publicity for the National Museum itself needs to be further
strengthened. The National Museum should provide an environment where young people,
including children, feel free to visit and enhance awareness of the situation surrounding Japan’sterritory and sovereignty.

4(4) Archival research on documents related to Takeshima and the Senkaku Islands
The progress that has been made: There has been substantial progress in the government’s
efforts to collect, organize, and analyze historical documents and materials related toTakeshima and the Senkaku Islands and to disseminate information on them in light of making
Japan's position more objective and persuasive. Such efforts include the expansion of theResearch and Commentary Website.
The areas for further action: The government should continue its survey of related documents
and materials and add documents and materials that show China’s attempt to unilaterally
change the status quo by force since the 1970s in the target of its research.

2. Policy priorities and directions based on the evaluation of the government’sefforts
The following is a summary of the Advisory Panel’s opinions on policy priorities and directions
based on its review of the government’s efforts.
(1) General Issues(a) Promote an overall understanding of the situation surrounding Japan's territoryand sovereignty
Currently, attempts to unilaterally change the status quo by force are being made invarious parts of the world, such as Russia's aggression against Ukraine. These attempts
could destabilize law and order in the international community. The severe situation
surrounding Japan's territorial integrity and sovereignty can be seen as part of this overall
trend and is attracting increasing attention overseas. Therefore, it is important to makefurther efforts to communicate, both domestically and internationally, that the situation
surrounding Japan's territory and sovereignty is a universal challenge, including throughthe exhibitions at the National Museum.
(b) Fundamentally enrich the exhibitions and strengthen the hub functions of theNational Museum through the use of digital technology
The government should fundamentally enrich the exhibitions and strengthen the hub
functions of the National Museum through the use of digital technologies. For instance,
it would be helpful to create a database of documents and materials held by relevant
institutions and local facilities and make it available to users, including researchers, andto create a digital space in which visitors can go around to see the exhibits of the National
Museum and local facilities related to territory and sovereignty.

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(c) Continue efforts to realize an easy-to-understand website
The government should continue its efforts to build websites that allow visitors toquickly reach the information they want according to their level of interest. In addition,
reciprocal links with the websites of local governments and other public institutions andorganizations should be promoted to increase the number of "entry points" for informationon territory and sovereignty.
(d) Promote education on topics related to territory and sovereignty and strengthenawareness among young people
The domestic awareness of the situation surrounding Japan’s territory and sovereignty
is still far from sufficient. Moreover, there are regional variations in understanding andinterest. Therefore, it is necessary for the government to promote domestic awareness bystrengthening efforts to increase "triggers" for people to think about territory andsovereignty as something close to them. In this regard, the government should consider
the following: optimizing the operation of exhibition tours, providing textbooks related toJapan’s territory and sovereignty, dispatching lecturers, and promoting the use of theNational Museum. Furthermore, regarding awareness-raising among young people, it isnecessary for the government to consider and implement practical measures, including
using social media.
(e) Consider effective communication methods and content for each target
The government should obtain advice from appropriate experts on effective
communication methods and content for each target audience, such as the general public,
the press, teachers, students, and experts, including those from overseas.
(f) Enhance capabilities to respond to various changes, including those of the argumentsof other countries and those in the internal and external environment
In addition to continuing efforts to disseminate information on Japan’s territory andsovereignty through the National Museum and the Research and Commentary Website
based on analyses of the claims made by China, South Korea, and other countries/regions,
it is also necessary for the government to enhance its capabilities to respond to various
changes including those of the arguments of other countries and those in the internal andexternal environment. In addition, in order to prepare for changes in the internal andexternal environment, the Japanese government should organize its documents involving
China's attempts to unilaterally change the status quo by force since the 1970s, the6Japanese government's responses to these attempts, and its interactions with foreign
governments regarding the situation surrounding Japan’s territory and sovereignty.
(2) Overseas Communications(a) Disseminate Japan's various views on territory and sovereignty
Diverse views and opinions in the form of research results and academic papers should
be disseminated through various media by respective organizations. In particular, thesituation surrounding Japan's territory and sovereignty is perceived as a universal
challenge in the sense that the free and open international order based on the rule of law
is being challenged. It is important to disseminate such views to the international
community as a whole.
(b) Enhance flexibility to respond to various changes
It is necessary for the government to enhance readiness to take actions required in
response to various changes, including those of the arguments of other countries/regions
and those in the internal and external environment. In addition, the government should
continue strategically disseminating persuasive facts in domestic and internationalcommunications.
(c) Support institutions that promote discussions and cooperation with third-country
experts
The government should deepen cooperation with experts and research institutions that
promote discussions and cooperation with third-country experts on the situation
surrounding Japan’s territory and sovereignty and continue its efforts to support thoseexperts and research institutions.
(d) Strengthen the dissemination of information in English on the situation
surrounding Japan's territory and sovereignty
In order to gain a deeper understanding from the international community, Japan should
strengthen its communications in English on the situation surrounding its territory andsovereignty, including attempts to unilaterally change the status quo by force in Japan'svicinity. In particular, the government should grasp the information demands of thirdcountry experts interested in the situation surrounding Japan's territory and sovereignty
and disseminate their analyses and thoughts. The government should endeavor todisseminate as much relevant information as possible.

7(3) Domestic Awareness(a) Strengthen support for education on topics related to territory and sovereignty inelementary, middle, and high schools
In light of the fact that the National Curriculum Standards, with enriched contents on
territory and sovereignty, have been implemented in elementary, junior high, and highschools step by step since FY2020, the government should grasp how topics related toterritory and sovereignty are handled in classes including new subjects such as “AdvancedGeography” and “Advanced History” and provide support to schools, if necessary. At thesame time, it is necessary for the government to actively promote the use of the National
Museum for educational purposes.
(b) Exhibit at events sponsored by related organizations
The government should actively exhibit panels and other exhibits at events organized by
the Self-Defense Forces, Japan Coast Guard, etc., and promote the dispatch of staff who
can provide commentary whenever possible.
(c) Strengthen awareness among young people
As the majority of visitors to the National Museum, including those for exhibition tours
in regional cities, tend to be middle-aged and older, it is necessary to consider furthermeasures, including social media and other means of communication, to enhance theawareness of younger visitors, and put them into practice.
(4) National Museum(a) Add exhibits on the severe situation surrounding Japan's territory and sovereignty
and Japan’s related policies
Exhibits on the severe international situation surrounding Japan's territory andsovereignty should be enhanced, including those on challenges to the law and order of theinternational community and the Japanese government's policies, and on-the-groundresponses to this situation. In addition, visual exhibits, such as those showing how people
live on the islands, should be introduced.
(b) Satisfy various needs of visitors
While the Advisory Panel highly appreciates the current exhibition in the sense that it
is based on archival research and historical documents and the National Museum should
maintain its academic approach for its exhibition, it is also necessary for the National
Museum to strengthen efforts to satisfy the various needs of visitors, including those of8elementary and junior high school students on social studies field trips. In this regard, theNational Museum should introduce exhibitions that use web-related technologies, apps,
audio guides, QR codes, etc.
(c) Promote visitors' understanding by increasing interactive exhibits
While the current exhibits consist mainly of panel displays, in order to further promote
visitors’ understanding, visually appealing exhibits should be increased, including the useof dioramas, replicas, and exhibits utilizing new technologies. In this regard, the National
Museum should refer to the excellent efforts of other museums and exhibition facilities.
In addition, since there are limited opportunities to view authentic historical materials, itis necessary to consider displaying such materials, if possible, while improving theNational Museum’s environment for holding and storing them.
(d) Use the space of the National Museum more effectively
The National Museum should use its space more effectively. In particular, concerning thearea mainly used for special exhibitions, the National Museum should consider using itfor purposes other than exhibitions, including small-scale lectures and workshops.
(e) Make efforts to raise awareness of the National Museum
It cannot be said that the National Museum is sufficiently known among the generalpublic. While introducing attractive content, as mentioned above, the public relationsactivities of the National Museum should be further strengthened, including appealing touniversities, public facilities, and those involved in school excursions.
(5) Archival research on documents related to Takeshima and the Senkaku Islands(a) Continue archival research projects and collect materials showing China’s attempts
to change the status quo by force
With regard to the archival research project that is being conducted with the advice of experts,
in order to make Japan's position more objective and persuasive, and to better clarify theproblems with the claims made by other countries or regions, the collection, organization,analysis, and dissemination of relevant materials, including materials from the pre-modernperiod, should be continued. Furthermore, it would also be helpful to add research materials
that show China's attempts to unilaterally change the status quo by force since the 1970s.
(b) Enrich the contents of the Research and Commentary Website and make it easy tonavigate

9The Research and Commentary Website should be further improved by enhancing links toprimary sources and organizing the website's multi-layered structure so that it is easier for users
to understand and access necessary information.
(6) Follow-up of the above-mentioned opinions
Approximately three years after the follow-up meetings, the government should ask a thirdparty, such as this Advisory Panel, to evaluate the extent to which the contents of the Previous
Recommendations, including the above-mentioned opinions, have been reflected in actual
measures and how effective these measures are, and to propose new measures based on the resultsof the evaluation.

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