The Japanese Journal of Population, Vol.2, No.1 (March 2004)

Western Experiences with International Migration in the Context ofPopulation Decline

Michael S. Teitelbaum1

Introduction

During World War II, the Vichy regime in France
enthusiastically embraced the pronatalist agenda propounded by the National Alliance for the Growth of theFrench Population. In 1941, Marshall Petain himself
sponsored a Mother’s Day festival at Rheims. Women
with 5 children were awarded bronze medals; those with
7 got silver; while gold medals went to French womenwith 10 or more offspring.4
In 1945 the new government of the Fourth Republic established and amply funded a large governmental demographic research institute, the l’Institut National
des Etudes Démographiques (INED), 5 directed by theConcerns about population decline are time-honored in Western countries. In recent years such disquiet
has become conjoined with other longstanding disagreements about appropriate levels and composition of immigration. Taken together, these represent a convoluted
and often passionate set of issues to which full justicecannot be done in a brief treatment. This paper offers an
overview of these issues as they have been experienced
in Western countries, and seeks to link these to similar
trends and debates in Japan.

well-known French demographer Alfred Sauvy. In its
founding documents, INED stated clearly that it “had beencreated for the purpose of studying the conditions of anational healing, after the French population had been
weakened quantitatively and qualitatively by a chronic
disease—meaning, presumably, low fertility.”6Lest one imagine that such concerns in France are
artifacts of the tumult and violence that plagued the period between 1870 and 1945, consider the following opinions expressed in 1984 by President Jacques Chirac, when
he was Mayor of Paris:7
Two dangers stalk French society: social democratization and a demographic slump....If you look at Europe and then at other continents, the comparison is
terrifying. In demographic terms, Europe is vanishing. Twenty years or so from now, our countries will
be empty, and no matter what our technologicalstrength, we shall be incapable of putting it to use.”
Such concerns were by no means limited to France. Germany under the Nazis, Italy under the Fascists, and theSoviet Union under Stalin adopted strong policies intended to increase fertility rates well above the low levels in the 1930s and early 1940s. In 1935 the Nazi government began payments to families with four or morechildren, though it limited these to “hereditarily healthy”
German families only. The Mussolini government paidbonuses to those in the Italian military and civil service

Western Concerns about Population
DeclineIn modern times, Western concerns about population decline have been most urgently expressed by intellectuals and political leaders in France, spanning a verybroad range of political views. This French tradition ofconcern began as early as the 1870s, when some intellectuals attributed the crushing military defeats of the FrancoPrussian War to France’s low rates of population growthcompared with those of Germany. By the 1890s, theNational Alliance for the Growth of the French Population was established to promote higher fertility in France,with Emile Zola prominent among its leadership.2 The
tensions that preceded World War I, and the mayhem andslaughter that resulted, only increased such French concerns. Indeed it is poignant to note that in the 1919 parliamentary debate over ratification of the Treaty of
Versailles, then-Premier George Clémenceau saw fit to
speak about low fertility in France:
The treaty does not say that France must undertaketo have children, but it is the first thing which ought
to have been put in it. For if France turns her backon large families, one can put all the clauses one wants
in a treaty, one can take all the guns of Germany, one
can do whatever one likes, France will be lost because there will be no more Frenchmen.3
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The Japanese Journal of Population, Vol.2, No.1 (March 2004)
blance of security. Since Australia’s population was thenabout 7 million, Australian political elites recognized that
increased fertility would not be sufficient to this end, andagreed to promote large-scale immigration. Immigration
was initially limited to source countries in Europe, in
keeping with the “White Australia” policy embraced ahalf-century earlier,10 but during the 1960s these geographical and/or racial restrictions were eliminated.
In Canada, too, elite leaders have long proclaimed
the desirability of a population of least 30 million—mysteriously enough, the same target numbers as that embraced in Australia. To this end, Canada too pursued policies of active immigration recruitment. But after Canadian fertility rates declined sharply during the 1960s and1970s, an expert group advised the Canadian to provide
financial incentives favoring higher fertility, asking rhetorically:
whether the goal of maintaining the population was
not as important as that of national defence. Perhaps as much could be spent for the first as for thesecond; in the long term, there is no point in ‘defending’ a population that is disappearing!11

upon the birth of each child, and more generally provided
financial assistance to large families.8 In 1941, the Presidium of the USSR established special taxes on citizens
who were unmarried or had fewer than two children, andin 1944 declared women who bore large families as “Heroic Mothers” eligible for official decorations such as the“Medal of Maternity” and “Glory of Motherhood.”9After World War II, fertility rates in West Germanyrose and did not again decline to low levels until the early
1970s. There it has stayed however, and it is notable thatthese sustained levels of very low fertility have gone relatively un-remarked in political and intellectual circles.
Meanwhile, in East Germany similarly low fertility levels led the Communist government to adopt strong
pronatalist measures, though these apparently had only
modest effects. The relative quiet about low fertility rates
in West Germany (and subsequently in unified Germany)
may in part be due to the “tainting” of such demographic
concerns that resulted from the vigorous pronatalist policies adopted by the Nazi regime. Even the discipline ofdemography itself seems to have been somewhat compromised by the Nazi era, in view of the involvement ofa few German demographers of the period with the Nazi
regime. The number of research positions for demographers in Germany has been small since World War II,
and the country has not developed demographic research
centers of the stature of INED in France or the National
Institute of Population and Social Security Research andits predecessors in Japan.
Some with a sense of the ironic might say that,with respect to population decline, postwar Germany has
been characterized by sang froid about its very low fertility, while postwar France has been beset with angst
over perceived low fertility even though its rates are muchhigher.
Western countries outside of Europe include allof the “traditional countries of immigration”, conventionally the USA, Canada, Australia, and New Zealand (somemight wish to add Argentina and Chile to this list.) All ofthese countries were ensnared in both World Wars of the20th Century, and these violent and threatening periods
did raise demographic concerns. During World War I,
the Prime Minister of Australia William (“Billy”) Hughes
warned Australians that they must “Populate or Perish.”World War II and the threats posed by a militarized andexpansionist Japan caused Prime Minister Curtin to proclaim that Australia, given its location, would need toincrease its population to 30 million to achieve a sem-This recommendation was not embraced by the Canadian government, although the provincial government ofQuebec did adopt some measures thought to support
higher fertility rates. The Canadian government did, however, increase its targeted annual number of immigrants.
In the United States there have been far fewer expressions of concern than in France or Canada. One exception is Ben J. Wattenberg, a persistent proponent of
the view that the West is “committing slow-motion demographic suicide.” Wattenberg is a political journalist
and syndicated columnist at the American Enterprise Institute, a conservative think-tank in Washington. He began to express such concerns in the 1980s, both in his
nationally-syndicated newspaper column and in a 1987
book described by its author as “this alarmist tract,”12 andtitled evocatively as The Birth Dearth: What Happens
When People in Free Countries Don’t Have Enough Babies? In this book, the author put forward his own assumptions that future fertility in the industrial Communist world of the USSR and Eastern Europe would behigher than that in the industrial democracies of the West.13
He then incorporated these assumptions into 100-year
projections, on the basis of which he argued that this differentially high fertility would lead to the military andeconomic ascendancy of the Warsaw Pact during the 21stCentury. To avoid this unhappy outcome, he called for30

The Japanese Journal of Population, Vol.2, No.1 (March 2004)
urgent action by Western governments to increase thefertility rates of their populations.
In a 1987 review of Wattenberg’s book, the present
author wrote as follows about the predictive value of suchvery long term projections:
One wonders...what political scientists would
make of forecasts that hold national characters andmilitary alliances constant for a full century; put another way, if Wattenberg had been writing 100 years
ago, when the Czar ruled Russia and Britain ruled
the waves, what would he have predicted about therelative strength of NATO and the Warsaw Pact in
1987?14
The Wattenberg book was deeply flawed, and ofcourse the Warsaw Pact (and eventually the USSR itself)
dissolved into political and economic chaos within only
a few years of its 1987 publication. Nonetheless its flawedarguments seemed to impress at least a few American
political leaders of some stature: the back cover of thebook carried endorsements from then-Senator Daniel P.
Moynihan, former UN Representative Jeanne J.
Kirkpatrick, and former Presidential candidate Malcolm
S. Forbes, Jr.15

lation, but unless mortality or migration changes are verylarge in magnitude, their effects on age composition aremuch more modest than those caused by fertility change.
Given that this symposium is focused on low fertility andinternational migration, I will not say much more about
mortality.
International migration can have effects on age
composition, given that such migrants are typically dominated by young adults. However, such affects tend to besmall in magnitude, in part because young adults represent only part of the total flow of migrants, and hence theeffects of international migration on age structure are lessconcentrated than are those of fertility changes.
During the 1930s and 1940s, when low fertility
and fertility declines were common in Europe, there
emerged what we might call an “hypothesis of demographic senescence”: the claim that that populations with“older” age compositions are less vigorous, creative,
ambitious, vital, dynamic, and powerful. Once again,
some of the most evocative language of the day was
French. In 1946, two prominent political intellectuals,
Robert Debré16 and the demographer Alfred Sauvy (later
to become Director of INED) offered the following lugubrious portrayal:
The terrible failure of 1940, more moral than material, must be linked in part to this dangerous sclerosis. We saw all too often, during the occupation, old
men leaning wearily towards the servile solution, at
the time that the young were taking part in the national impulse towards independence and liberty. This
crucial effect of our senility, is it not a grave warning?17
In another setting, Sauvy characterized an aging society
in vivid terms, as one comprised of “old people, living in
old houses, ruminating about old ideas.”18 Different but
related concerns were expressed by Gunnar Myrdal.19“Ageing” Populations
The age structure of a population can in principle
be affected by fertility, mortality, and migration. Of these,
fertility is quantitatively the most important by far. Other
things equal, a high fertility rate will produce a youthfulage composition, while low fertility yields an older age
structure. It follows that any population in transition fromhigh to low fertility rates will experience a shift in its age
structure from more to less youthful — this is the phenomenon known as population or demographic “ageing.”
Increases in fertility will shift the age structure in the
opposite direction.
The world is such a diverse place—in terms ofhistory, culture, economics, religion, etc.—that it is usually unwise to even make attempts at global generalizations. Yet over the past five decades, fertility declines
have been a very common experience among most(though not all) countries. As a result, most countries are
now also experiencing age structure shifts towards “older”
populations, i.e. toward declining proportions of children
and increasing proportions of older residents.
Changes in both mortality and international migration can also affect the age structure of a nation’s popu-

Demographic Interactions between Low
Fertility and Immigration
As noted, fertility decline shifts a country’s age
composition significantly toward higher average age,while increased international migration tends to operate
in the opposite direction. Hence it is sometimes argued
in a rather general and qualitative way that one approachto reverse current tendencies toward older populations
would be to increase admissions of international migrants.
In 2000, the United Nations Population Division pub-

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The Japanese Journal of Population, Vol.2, No.1 (March 2004)
The UN press release carried a subtitle that ended with aquestion mark— Replacement Migration: Is It a Solution to Declining and Ageing Populations?—but the Le
Monde story translated the Report’s title into French without the question mark, so that it now read as a declarative“Replacement Migration: A solution to declining andageing populations.”23 Other articles appeared in newspapers across Europe, including one on January 10 in the
French paper Le Figaro entitled “The Report That
Alarmed Europe.”24 It is worth noting that at this point
there still was no UN report available, only the hastilywritten 2-page press release produced on 6 January 2000.
Given the high level of attention to its preliminary estimates, the UN Population Division expedited preparation of a full report, which was produced and publishedonly 3 months later. Following the release of the formal
report, there was a second pulse of active press coverage, especially in Europe. Much of the reaction was quite
critical: the UN report was criticized directly by JeanPierre Chevénement, then the French Minister of the Interior, and by the European Union’s Representative to
the United Nations, who complained that the UN should
not have been published without permission from member Governments.25

lished a useful report that provides some quantitative
understanding of what have heretofore been qualitative
proposals.
The UN report, entitled Replacement Migration:
Is It a Solution to Declining and Ageing Populations?
was based on a series of hypothetical scenarios projected
out to the year 2050. These simulations explored thenumbers of immigrants that would be required hypothetically over this 50-year period in selected countries in order to meet certain specified outcomes:– Prevent a decline in the total population size
– Hold constant the size of the population between
ages 15-65– Hold constant the “old age dependency ratio” (defined as persons 65+ to those 15-64).
This project began in the summer of 1999 as informal estimates in anticipation of possible questions thatmight arise during the pending annual UN General Assembly meeting as to how many immigrants would be
required to compensate for Europe’s low levels of fertility. In the event, the issue was not raised at the General
Assembly, and the estimates lay fallow until Barbara
Crossette, the New York Times reporter covering the UNbeat included them in a story that was published during a“slow news day” on January 2, 2000. The headline
writer20 for the story sought to capture its message using
somewhat exaggerated language, rendering it as “Europe
Stares at a Future Built by Immigrants: It’s the American
Way.”
When the New York Times story was reprinted in
the International Herald Tribune based in Paris, the result was “sudden mayhem.”21 Within days there weremore than 50 inquiries received from journalists, many
directed toward the Office of the UN Secretary General.
When the Secretary General’s press director sought a copyof the “study,” the UN Population Division found itself
in the awkward position of reporting that there actuallywas no “study” as such, only some informal estimates
prepared for the General Assembly. The Population Division was asked to prepare a formal press release on the“study,” which it did within 24 hours.
The results of the UN preliminary estimates were
widely (sometimes wildly) misinterpreted, especially by
the European press, politicians and advocacy groups. The
elite Paris newspaper Le Monde published a story threedays after the International Herald Tribune story, with aheadline that a “pre-report” of the UN indicated that “Europe Would Need 159 Million Immigrants by 2025.”22

Yet the actual conclusions of the UN Replacement
Migration report differed rather dramatically from its portrayal in the press. Its key conclusions may be briefly
summarized as follows:- In countries with very low fertility rates, halting
demographic ageing via immigration policy would
require extraordinarily large numbers of immigrants- Such a high level of immigration “…seems out ofreach because of the extraordinarily large numbers of
migrants that would be required.”For example, the Report’s scenario that specifies a constant ratio of working age to “dependent” population (defined respectively as 15-64 and 65+) would require admission of some 188 million immigrants to Germany by2050 (who then would account for some 80 % of the population in Germany). For Italy, the comparable numbers
under this scenario would be 120 million immigrants (79% of 2050 population); for the EU as a whole, the scenario would produce a flow of 700 million immigrants(accounting for 75 % of the 2050 EU population).
The UN Replacement Migration report included
Japan as one of its key case studies. Given the future
fertility rates in Japan that were assumed in the Report,
the above scenario would require admission of 553 mil-32

The Japanese Journal of Population, Vol.2, No.1 (March 2004)
lion, who by 2050 would account for 87 % of the population in Japan.26 It is no wonder that the Report concluded
that such a level of immigration “seems out of reach because of the extraordinarily large numbers of migrantsthat would be required.”tury societies need be repetitions of the violence and turbulence of 19th Century North America. In reality, however, what will happen is fundamentally unknowable. We
simply lack the ability to accurately forecast likely outcomes, as these depend indeterminately upon differencesamong societies and their circumstances that are often
quite intangible. Consider, for example, how societies
and eras differ in their degrees or homogeneity or heterogeneity (whether real or perceived); in the extent to which
foreign immigrants desire and/or succeed in integratingwith the indigenous population or remain separate anddistinct; and in the nature and flexibility of economies,
labor markets, and legal systems.
Unlike Native American tribes, modern industrialized societies do have the organizational and technicalcapacity to restrain migratory movements. Whether or
not they seek to do so will be determined by the ways inwhich immigration is viewed in these countries, and by
the relative political influence of those who benefit from
immigration and those who lose.

Rapid Demographic Transformations
As might be guessed from the above hypotheticalscenarios, there is another kind of demographic interaction between low fertility and immigration which involves
aspects of demography other than age, and that needs tobe considered. Specifically, large inflows of immigrants
into a country with low levels of fertility implies unusually rapid transformations in the proportions that are native- and foreign-born. If the immigrants are concentrated among a small number of national or ethnic groups,
there can be rapid shifts in population composition in the
direction of such groups.
There are in fact some notable experiences withsuch transformations in regions that are now consideredpart of the West. In less than a century, internationalmigration from Europe (and from Africa via Europeaninitiated slavery) transformed the demographic composition of North America and much of Central and SouthAmerica, from predominantly Native American/American Indian to populations dominated by European, African, and mixed population groups. These migrations wereof sufficient magnitude to have had such dramatic effects on their own, even though it seems unlikely that
fertility rates of the indigenous populations were low. In
addition, however, the migrations led to sharp increases
in mortality among the indigenous population, due to violence and war, exposure to European diseases (measles,
smallpox) for which they had no immunity,27 and coercive exclusion from territories on which they had longdepended for sustenance. While many among the native
populations may have opposed this rapid demographictransformation (hence some of the violence and warfare
that accompanied it), these traditional societies simply
lacked the capacity to restrain or reverse the influxes ofEuropean migrants.
In the 21st Century, rapid demographic transformations are possible in many industrialized countries, inpart because indigenous fertility rates have declined tovery low levels while substantial inflows of immigrants
are occurring. There is no reason that the consequencesof such rapid demographic transformations in 21st Cen-

Western Views regarding International
Migration
There is no consensus whatever among Westerncountries regarding international migration. Indeed, it is(perhaps) rather surprising that in this set of otherwise
comparable countries—with their shared histories andcultures, economic prosperity, low fertility, and common
commitments to individual rights, social mobility, mixed
economies, and a variety of state-provided benefits andsafety nets—one can find a remarkably wide range ofperspectives on the admission and integration of foreign
nationals.
Among these Western countries are the traditionalcountries of immigration—the United States, Canada,
Australia, and New Zealand. All are former colonies ofGreat Britain, and as such share common characteristics
of a cultural, linguistic, and legal variety and as destinations of emigrants moving abroad from Britain. In addition, all might be fairly characterized as developing countries of the 19th Century, rich in land and natural resources,
but limited in population and labor. All four havelongstanding traditions of admitting and integrating large
numbers of foreign nationals, and a belief and legal system supportive of the view that nationality can be acquired by each individual by virtue of place of birth (jussoli) or by an affirmative act of naturalization, rather than33

The Japanese Journal of Population, Vol.2, No.1 (March 2004)
inherited from his/her parents (jus sanguinis).
At the other end of the continuum of Western perspectives on immigration, one might point to the German concept of the volk (people). This perspective, shared
to a greater or lesser degree in other European countries
such as Italy, Spain, and Austria, defines nationality in amore ethnic rather than political form. In the German
traditional view, for example, a person born in Siberia
who is an 8th-generation descendent of German migrants
to Russia in the 18th Century is entitled to take up residence in Germany, and to be counted as a “returning”
German national rather than as a migrating “foreigner”.
Meanwhile, a third-generation German-born descendentof Turkish immigrants to Germany in the 1960s can be
defined as a “foreigner” by virtue of the nationality of
his/her parents and grandparents. After much fractious
debate, the German laws dealing with such matters wererecently revised.
Somewhere toward the middle of this continuumof Western perspectives is that of France, in which Frenchborn offspring of non-French migrants have the right toclaim French nationality. In this view, anyone can become French, but only if he/she become fluent in Frenchand embraces French civic and cultural values. This tradition owes much to the French Revolution’s concept of
the citoyen, enhanced by French success during the firsthalf of the 20th Century in integrating into the French

Current Debates

mainstream large numbers of migrant workers from Eastern Europe, Italy, and elsewhere.
With respect to immigration policies per se, there
is much variation among these otherwise similar Western countries. Policies in the US, Canada, Australia, and
New Zealand are explicitly welcoming toward substantial immigration. In addition, ineffectual enforcement
policies in the US have allowed the accumulation of millions of “undocumented”, “illegal”, or “unauthorized”
immigrants to enter and reside in the country. Canada’s
refugee and asylum system is such as to implicitly admit
thousands of would-be migrants with less-than-fully-convincing claims to have been persecuted.
Meanwhile, European countries such as Germany
have long declared explicitly that they are “not countriesof immigration”, although their implicit policies haveadmitted millions of international migrants as “guest
workers” who were allowed to stay, asylum-seekers, andtemporary humanitarian admissions. Italy, like the US,
has laws and regulations that have made it difficult tocontrol the smuggling of would-be migrants into the country.

The debates on these issues have been energetic,
sometimes emotional, in Europe, which is one reason for
the exaggerated responses in the European press to the
UN report Replacement Migration, described earlier.
In the US, there is little or no debate about population decline, but a longstanding debate about US immigration policy, both explicit and implicit. This debate
has been much affected by security concerns emerging
out of the September 11, 2001 attacks on New York andWashington, which apparently were carried out mostly
by Saudi nationals who entered lawfully under US under visa programs for visitors and students.

The topics of this symposium—population decline
and international migration—are highly topical is many
Western countries. The possibility of population decline
in the future evokes concerns that are of both economic/
policy and nationalistic forms. Economic concerns tend
to concentrate upon impacts upon the relative sizes of
the working-age and “dependent-age” populations, whichleads in turn to debate about the viability of current policies regarding retirement and pension benefits, and about
the negative economic effects of increased taxation rates
that would be required to continue financing them in theircurrent form.
The nationalist concerns have more to do with theprospect of declining numbers of co-nationals (or in somecases co-ethnics), with latent fears that population declines once established may be difficult to reverse andmight even accelerate.
Increases in admissions of international migrants
have been proposed by some as a means to preempt such
population decline, and thereby to avoid politically difficult changes in state-financed retirement and pension
systems. In addition, some groups in a few Western countries (e.g. Germany) have argued that there is an economic
need for special temporary work visas for persons withskills in high-tech fields, on grounds that domestic supply of such skills is deficient.28

Free Trade Agreements and International
Migration
Debates about proposed free trade agreements
have often involved debates about international migration, in at least two forms. The first debate addresses
whether freer movement of goods and capital should or
should not be accompanied by freer movement of labor.

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The Japanese Journal of Population, Vol.2, No.1 (March 2004)
reduce the pressure felt by Mexican working people tocome here for jobs.”
An opposite view was put forward by Reform
Party presidential candidate Ross Perot:[It is a myth that] NAFTA will reduce illegal immigration. As manufacturing in northern Mexico expands, hundreds of thousands of Mexican workers will
be drawn north. They will quickly find that wages in
the Mexican maquiladora plants cannot compete withwages anywhere in the US. Out of economic necessity, many of these mobile workers will consider illegally immigrating into the US. In short, NAFTA has
the potential to increase illegal immigration, not decrease it.31
With the 20/20 vision of hindsight, all would agree
that unauthorized Mexican immigration to the US substantially increased after implementation of the NAFTA
agreement, but there is no consensus among immigration researchers in Mexico and the US as to whether the
NAFTA agreement itself decreased or increased the propensity toward such migration. Some believe that theincrease in Mexican migration would have occurred withor without NAFTA, while others believe that provisions
in NAFTA that opened Mexican markets to cheaper USproduced farm products had the effect of displacing 25
million Mexican farmers, millions of whom subsequently
migrated unlawfully.32

The series of agreements that culminated in formation of
the European Union envisioned free movement of laboras an ultimate goal, but there was recognition that large
differentials in economic prosperity and demographic
characteristics implied that such goals must be deferred
until economic and demographic convergence could besubstantially achieved. One common arrangement has
been to delay unfettered labor migration for seven years
after the accession of a new member state.
In negotiations and debates that culminated in the
North American Free Trade Agreement (NAFTA) of 1993
among the United States, Mexico, and Canada, the Mexican government argued that free movement of labor must
accompany free movement of goods and capital. However, the US and Canadian governments rejected thesearguments on grounds that the very large economic differentials between Mexico and the other two countries(earnings differentials on the order of 8:1 to 10:1, depending on exchange rates) would unleash unacceptably
large migratory movements. Hence the NAFTA agreement limits Mexican labor movement to its northernneighbors to a category termed “Professionals Under the
North American Free Trade Agreement.”29
The term “Professionals,” however, was construed
quite broadly. It initially included some 63 categories,
ranging from traditional “professions” such as architect,accountant, engineer, and dentist, to less typical categories such as interior designer, hotel manager, scientifictechnician/technologist, vocational counselor, and “disaster relief insurance claims adjuster.” Most of the “professional” categories required only a first university degree (Baccalaureate or Licenciatura); some (e.g. the scientific technician/technologist category) had no educational requirements. Unlike most other employmentbased visa categories, US employers wishing to hire Canadian workers under this provision may do so even if
qualified US workers are available. For Mexican hires,the employer must file a “labor condition application” 30that proponents argue protects US workers from any negative impacts of workers imported from a low-wage country, a contention rejected by critics of this provision.
The second type of debate about free trade andinternational migration concerns whether such free trade
agreements reduce the pressures favoring unauthorized
migration to Western countries. For example, in September 1993 then-President Bill Clinton argued that “Oneof the reasons that I so strongly support this North American Free Trade Agreement is...that [it] will dramatically

It is striking that over the past decade, countries
such as the United States have allowed their trade negotiators to negotiate complex international agreements that
included binding limitations on their subsequent ability
to change their immigration policies, a prerogative normally jealously guarded by legislators. The NAFTA
agreement is one example of this. A second is the General Agreement on Trade in Services (GATS), under Mode
4 of which the United States Special Trade Representative agreed to “bind” the US to continue its politicallycontroversial “H-1B” visa program that provides up to
65,000 temporary visas per year for foreign “specialty
occupation” workers with a bachelors or higher level of
education.33 Both the NAFTA and GATS treaties requireda “yes/no” vote of ratification by the US Senate (with noamendments allowed), but given the complexity of these
agreements it is impossible to know whether most Senators could have understood the effect of this “binding”
on their subsequent ability to modify immigration laws.

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The Japanese Journal of Population, Vol.2, No.1 (March 2004)
in these countries, whereas in Japan over this same period, the percentage of births occurring extramaritally wasless than 2%.39
One of Japan’s most sophisticated demographers,
Shigemi Kono, concludes that “the recent decline ismainly attributable to recent declines in marriages and in
the percentage married among the women aged 20-29.”
He cites a recent study of Iwasawa that shows that “reductions in the first marriage account for 70 percent of
the decline in Japanese fertility between 1970 and 2000.”
40
While it appears that there is no clear explanation ofthese marriage patterns of younger Japanese women,some speculate that they may be associated with rising
education and labor force participation of women, weakening of the traditional arranged marriages and family
value system, increasing attractiveness for young adults
of maintaining residence in the parental home, or a tightening marriage squeeze resulting from better-educatedwomen unable to find marriageable males with comparable or higher levels of education or occupational status.41

Some Demographic Particularities ofJapan
Japanese fertility as measured by the “period” (orannual) total fertility rate (TFR) has declined by nearly
one-third between 1975 and 2001, from 1.91 to 1.33. 34
Yet it is interesting to note that over roughly the same
period the number of children ever born among married
women exhibited but little decline, from 2.21 in 1982 to2.13 in 1997.35 Similarly, regular surveys of Japanesewomen between 1977 and 1997 show little or no change
in their “expected” number of children; indeed the number was 2.17 and 1977 and 2.17 in 1997.36
To a demographer’s eye, such apparently contradictory trends suggest that there may be substantialchanges underway in marriage behavior. And indeed,examination of data on age at first marriage of Japanesewomen shows that this key element of fertility trends has
indeed been rising, especially for women:
Such data indicate that substantial deferment ofmarriage is underway among Japanese women who eventually marry.
However, the most fascinating characteristic ofJapanese marriage trends is the remarkably high percentage of Japanese women who have never married while in

Others have suggested that traditional Japanese
views regarding the proper roles of women have beensustained in Japan despite dramatic transformations inother characteristics of Japanese society since World War
II.42 Here we might pose questions such as:- To what extent is there consensus (or not) in Japanese society that working careers for women are incompatible with the roles of Japanese motherhood?
- To what extent are such views shared by Japanesewomen, even professionals, who feel that if they wish
to work they must defer marriage or not marry, or ifthey do marry decide to not have children?
- And, to what extent have powerful urbanization
trends in Japan had the effect of weakening the traditional support for childrearing that used to be available from extended kin networks, while alternative
sources of such support have been slow to emerge?

their 20s, normally the prime decade of childbearing. For
example, of Japanese women aged 25-29 in 2000, overhalf (54.0%) were never-married, while nearly 9 out of
10 (87.9%) of those 20-24 were never-married.37 These
percentages are much higher than the roughly 30-40 percent never married for ages 25-29, and the 60-70 percent
for ages 20-24, in comparable countries such as Canada,
Netherlands, UK, France, and US.
There are a few other countries reporting similarly high percentages of women 20-29 who are nevermarried, but these tend to be Nordic countries such as
Iceland, Norway and Sweden, countries in which onehalf or more of births are extra-marital.38 In other words,
non-marriage is not a strong impediment to childbearing

The Need to Understand the Phenomena
Age at First M arriage, Japan
M ale
Female
2001
29.0
27.2
1997
28.5
26.6
1987
28.4
25.7
1977
27.4
25.0
Source: NIPSSR, Latest Demographic Statistics ,Table 6-12

Are recent and prospective Japanese fertility rates
too low for the wellbeing of Japanese society? What are
the appropriate levels and characteristics of internationalmigration to Japan?
Fundamentally, these are questions of societal
values rather than scientific analysis, and hence can beassessed only by Japanese leaders supported by sophisti-

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The Japanese Journal of Population, Vol.2, No.1 (March 2004)
cause decisions taken earlier to adjust to such trends are
far less burdensome than such decisions delayed. Yet
the truth is that no one can forecast accurately 30-50 years
out. Demographers do better than most—but still badly.
In Dante’s Inferno, there is a very special punishment
reserved for “prognosticators” or “diviners.” Their heads
are rotated permanently to the rear, so those who in life
sought to peer too far ahead into the future can no longer
even see in front of them, for all of eternity…43
Any policy proposals that emerge from such assessments should be informed by an understanding that
there is no simple answer to such complex questions. A
single-minded focus on any one type of policy measureis unlikely to be sufficiently powerful to address the multidimensional forces that underlie recent trends in Japanese demographic change. Instead what will be neededis an array of approaches, each of modest magnitude andslow of pace, but all operating in the same direction, andhopefully with cumulative effects.
Those who worry about the sufficiency of the future labor force in Japan might usefully address the feasibility of incremental modifications of policies that affect the current allocation of labor in Japan. Thesechanges might include measures to allocate future Japanese labor resources away from those sectors that show
relatively low levels of productivity (e.g. wholesale/retail distribution, parts of agriculture) and toward thosewith world-class productivity levels such as Japan’s export manufacturing sectors.
Measures to increase Japanese fertility rates might sensibly be focused on factors that may be driving the unusual
pattern of large percentages of never-married women in
their peak childbearing years. Is this pattern affected by
the high costs of family housing? By conflicts between
career paths for women and marriage/childbearing? If
so, are there subtle changes that might be considered thatwould reduce such conflicts, and thereby facilitate Japanese women’s pursuit of careers with marriage and children?
Given the very large economic differentials involved, immigration to Japan can easily be increased,
especially from China and other parts of Asia. Leaders inJapanese politics and industry who support such measures should understand that large-scale immigration
would produce rapid changes in demographic composition if Japanese fertility rates were to remain at recent
lows, and should seek credible data as to how suchchanges would be seen by Japanese public opinion.

cated understanding of the measurement, implications,and alternatives involved. Advice on such matters fromoutside is inappropriate, and in any case unlikely to bewell-informed, since the appropriate answers also require
nuanced and subtle understanding of the complexities ofJapanese society and values.
An outside observer might be forgiven, however,for offering some thoughts as to how responses to suchquestions might be approached.
First, it will be critical to first understand what is
actually happening with respect to Japanese fertility. The
fact that annual (or “period”) fertility rates such as thetotal fertility rate have declined to very low levels while
completed family sizes have remained quite high suggests some of the complexities that will need to be addressed. In this respect, the Government of Japan is wellserved by its support for sophisticated data collection andresearch on the part of the National Institute of Population and Social Security Research, the Institute of Developing Economies/JETRO, as well as by academic andother researchers outside of Government agencies.
A second watchword is quantitative realism: proposed actions need to be tested against the plausibility of
their claimed outcomes. If financial incentives favoringhigher fertility are proposed, are they of sufficient magnitude to affect the fertility behaviors of Japanese couples?
Here the experience of countries (mostly in Europe) thathave tried such approaches in the past would warrant
careful assessment. If expansion of immigration is proposed to reverse trends toward demographic ageing inJapan, advocates must provide realistic quantitative analyses (such as those in the UN Replacement Migration report) demonstrating what volumes of immigration would
be needed to do so.
Third, discussions and projections about “dependency ratios” should be informed by understanding of
the critical assumptions that underlie a fixed life-course
definition of “dependency”. In a society with Japan’shigh levels of life expectancy and health, the first wordof “dependency ratio” actually does not mean dependency
at all. Instead, it reflects arbitrary boundaries of age categories (60 or 65) that were adopted during a different
era, since which time life expectancy and productivity of
those 65 and over have risen sharply.
Fourth, while very long-range (e.g. 50-100 year)
projections are useful, it is important to be aware of how
profoundly misleading these can be. A long time horizon for demographic trends is essential, especially be-

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The Japanese Journal of Population, Vol.2, No.1 (March 2004)
A variety of relatively modest and gradual changes
could be considered to address the “ageing” of the Japanese population and attendant fiscal stresses on public
pensions and other age-related benefits. Candidate actions might include some of the following:- The age of pension eligibility can be raised, but
only modestly and gradually.
- The rate of “contributions” or taxes paid by active
workers could be increased, but modestly and gradually;- The rate of labor force participation could be increased among groups with low levels;- The rate of increase in future payouts to pension
recipients could be constrained;
None of these possible actions will be of sufficient magnitude on its own, but the sum of their effects taken together could be quite powerful.
At their core, most of these matters rest upon
tradeoffs among rather fundamental values as to the future of Japanese society and its population: Is it important that the current population of Japan be sustained at
its current size? Should the population resident in Japanremain overwhelmingly Japanese in origin and culture?
Have forces favoring globalization substantially diminished the importance of national states such as Japan, with
their long-established territorial boundaries and political
identities, vis-a-vis the impacts of multinational firms,
regional trading blocs, and transnational populations
moving among large metropolitan areas such as Tokyo,
Manila and Sao Paulo?44 Should the apparent cultural
conflicts between the status of Japanese women and theirpropensity to marry and bear children be addressed?
Should current practices with respect to retirement age
in Japan be sustained, or should future retirement age belinked to any increases in life expectancy, independence
and productivity of some of those currently deemed to be
dependent on grounds of their age?
The answers to such questions go to the very heartof how Japanese society perceives itself, and its future.

August 1941, pp. 249ff.
In 1946, and for similar reasons, the British government
established a Royal Commission on Population, but
this was a temporary enterprise that concluded its work
only a few years later.
6
Etienne van de Walle, book review of Paul-André
Rosental, L’intelligence démographique: sciences etpolitiques des population en France (1930-1960),
Population and Development Review, 29 (3), pp. 518.
7
“Interview with Jacques Chirac,” Libération, 30 October 1984. p. 1.
8David L. Hoffmann, “Mothers in the Motherland:
Stalinist pronatalism in its pan-European context,”
Journal of Social History, September 2000, p. 7.
9
R. Schlesinger, The Family in the U.S.S.R. London:
Routledge & Kegan Paul, 1960, pp. 251-274.
10
Lines 1992:199
11
Canada 1984:5-8.
5Wattenberg 1989:10
Appropriately, Japan is included in the industrial democracies category, but Wattenberg adds some confusion by referring frequently to this category as the“West”.
14
Teitelbaum 1987.
15
Wattenberg 1989:177.
16
Robert Debré’s son Michel later became the first Premier of the Fifth Republic.
17
Debré and Sauvy 1946:58.
18
Teitelbaum 1978:xx-xxi.
19
Myrdal 1940:165.
20
In US newspapers, journalists do not normally write
the headlines for their own stories.
21
J-F Grinblat, UN Population Division, personal communication, March 2003.
22“L’Europe aurait besoin de 159 millions d’immigrés d’icià 2025”, Le Monde, 6 January 2000.
23“Migration de remplacement: une solution aux populations en déclin et vieillissantes” Le Monde, 6 January
2000.
24“Le rapport qui alarme l'Europe,” Le Figaro, 10 January 2000.
25
Approvals by governments are not required for publication of reports by the UN Secretariat.
26
Source: UN, Replacement Migration, 2000, Tables IV.4
and IV.7
27
Such sharing of infectious diseases seems to be an inevitable by-product of encounters between previously
quite separate human populations, though some believe
12
13

Notes
The author wishes to thank Shigemi Kono, Keiko Osaki,
Yasuko Hayase, Ryuzaburo Sato, Hiroshi Kojima, andJay Winter for their assistance.
2
Teitelbaum and Winter 1985:27-38.
3
Teitelbaum and Winter 1985:27.
4
Revue de l’alliance national contre la dépopulation, July1

38

The Japanese Journal of Population, Vol.2, No.1 (March 2004)
that the spread of some infectious diseases to American Indian populations was deliberate. There was, ofcourse, disease transmission in the opposite direction
as well, e.g. the spread of indigenous American diseases such as syphilis to Europeans and thence to Europe.
28
The German debate on this issue is much confused byits use of the term “green cards” for such temporary
visas for skilled workers. The notion of a “green card”(there was a popular Hollywood film titled “Green
Card”) comes from US visas for permanent residence
leading to citizenship, rather than for temporary admission. Moreover, the US “green card” has not evenbeen green in color for a very long time.
29
http://travel.state.gov/tn_visas.html
30
Details available at http://www.lca.doleta.gov/
31
Perot, et al., p. 72
32
For recent US journalistic coverage of this issue, see
http://www.thedesertsun.com/topics/nafta/stories/
20030707021740.shtml

APEC Member Economies, Chiba, Japan, January 1922, 2000. Typescript, 26 pages.
Hayase, Yasuko. “Japanese foreign direct investment,
employment, and international migration in East Asia.”
Typescript, no date, 20 pages.
Hoffmann, David L. “Mothers in the Motherland: Stalinist
pronatalism in its pan-European context,” Journal ofSocial History, September 2000, p. 7.
Iwasawa, Miho. 2002. Kinnen no Kikan TFR Hendo ni
okeru Kekkon Kodo oyobi Fufu no Shussho Kodo noHenka no Kiyo ni tsuite (On the Contribution of the
Changes in First Marriage Behavior and Couples’ Reproductive Behavior to the Recent Change in Total
Fertility Rates of Japan), Jinko Mondai Kenkyu (Journal of Population Problems), Vol, 58, No.3, September, pp. 15-44.
Kono, Shigemi, “Relationship between population ageing and immigration in Japan.” Unpublished research
paper. 46 pages.
Le Figaro, “Le rapport qui alarme l”Europe,” 10 January
2000.
Le Monde, “L’Europe aurait besoin de 159 millions
d’immigres d’ici a 2025”, Le Monde, 6 January 2000.
Libération. 1984. “Interview with Jacques Chirac.” 30
October.
Lines,W. J. 1992. Taming the Great South Land: A History of the Conquest of Nature in Australia. Sydney:
Allen & Unwin.
Maier, Charles S. 2000. “Consigning the 20th Century toHistory:Alternative Narratives for the Modern Era”,
American Historical Review, Vol. 105 pp. 1-30.
Myrdal, G. Population: A Problem for Democracy (1940).
Reprinted 1962. Gloucester, Mass:Peter Smith.
NIPSSR (National Institute of Population and Social Security Research), Latest Demographic Statistics, 2001/
2002, ISSN 1343-5345, Research Series, No. 302, Tokyo, March 1, 2002.
NIPSSR (National Institute of Population and Social Security Research), Population Statistics of Japan, 2003,
Tokyo, March 31, 2003.
Perot, H. Ross, Pat Choate, Ross Perot Jr. 1993. Save
Your Job, Save Our Country: Why Nafta Must Be
Stopped-Now!,Hyperion.
Rager, F.A. 1941. “Japanese Emigration and Japan’s“Population Pressure.” Pacific Affairs. September:300321.
Revue de l’alliance national contre la dépopulation, JulyAugust 1941, pp. 249ff.

See Mode 4 GATS Commitments by Country, USA,a v a i l a b l e a t h t t p : / / w w w. e s f . b e / e _ p a g e s /Mode%204%20GATS%20Commitments.htm
34
NIPSSR, “Population Statistics of Japan 2003,” Table
4.3)
35
NIPSSR, “Latest….,” Tables 4-26 and 4-27.
36
NIPSSR, “Latest…,” Table 4-22
37
NIPSSR, “Population Statistics of Japan,” Table 4.15
38
Ventura and Bachrach, p. 15.
39
NIPSSR, “Latest…, “ Table 6-25.
40
Kono, “Relationship between…”, p. 15. Iwasawa, 2002.
41
Kono, p. 15.
42
Keiko Osaki, UN Population Division, personal communication, September 2003.
43
Canto XX: Circle Eight (Bolgia 4).
44
See, for example, the arguments of Mayer, 2000.
33

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