Research InstituteDiscussion Paper Series№18
Title：

Bukatsudô reform: extracurricular club activities in Japanese schools.

Atsushi Kawaguchi
ats_kwgc@andrew.ac.jp

2021 年 5 月

http://www.andrew.ac.jp/soken/

Bukatsudô reform: extracurricular club activities in Japanese schools.
ATSUSHI KAWAGUCHI
Faculty of Economics, Momoyama Gakuin UniversityJAPAN
ats_kwgc@andrew.ac.jp
Abstract:
This paper examines government policies to reform bukatsudô (extracurricular activities) since 2010 when the
new teachers’ manual for student guidance was issued. It considers the assumed pedagogical significance ofbukatsudô, concerns regarding excessive corporal punishment and the impact of bukatsudô on increasing teachers’
working hours, and also explores strategies for developing management structures to ensure the long-termsustainability of bukatsudô. I argue that MEXT (Ministry of Education, Culture, Sports, Science and Technology)
has reformed bukatsudô in response to changing social conditions, namely, two cases of corporal punishment in2013 (the Sakuranomiya High School Incident and the female judo practitioners’ incident), the problem of teachers’
long working hours, and the need for sustainable bukatsudô management systems in schools promoted by MEXT.
The government’s bukatsudô reform, mainly aimed to change the bukatsudô management system by requiring
schools to manage bukatsudô in line with 'The national guidelines for supervision of extracurricular sports club
activities'. But there are concerns that this may diminish the capacity of bukatsudô to develop students’interpersonal relationships (both vertical and horizontal). Bukatsudô have provided all students with theopportunity to engage in sporting and cultural activities, regardless of their place of residence and family resources,
and played a vital role in their human development. The challenge facing schools is the creation of a sustainable
management structure for bukatsudô based on the promotion of a sustainable bukatsudô management system anda recognition of the educational significance of bukatsudô.
Key Words: bukatsudô, corporal punishment, long working hours of teachers, sustainable management
structure
Introduction
Bukatsudô [extracurricular club activities] have played a significant role in the development of students(Blackwood, 2016; Kawaguchi, 2020). Many decades ago, their benefit was seen in terms of guiding students who
were often in trouble. Over time their function has changed as new issues have arisen within society. With theincrease in technology use amongst adolescents, bukatsudô now provide students with opportunities to develop
better interpersonal skills. The importance of bukatsudô has persisted; however, the societal issues that they
address have changed over time. Thus, government policies have also adjusted to the continuous changes withinsociety.
This paper examines national government policy initiatives to change bukatsudô in junior high and high schools
since 2010, as seen in MEXT’s “The Teacher’s Manual for Student Guidance (Seito Shidô Teiyô, 2010)”. Building
on studies about the pre-2010 situation (e.g., Rohlen, 1983; Le Tendre, 1994; Cave, 2004), I will discuss thesechanges with reference to current debates (e.g., Nishijima, 2007; Kamiya, 2009; Nakazawa, 2014; Okano, 2021).
First, this paper provides an overview of the reform of bukatsudô by MEXT, especially after the suicide of an
Osaka city high school student in December 2012 (The Sakuranomiya High School Incident) because of corporalpunishment by a teacher supervising bukatsudô. Next, this paper looks at the reform of bukatsudô carried out by
MEXT as part of improvements of teachers' long working hours, which came to be viewed as a problem after the
publication of the OECD’s June 2014 survey (OECD 2014; National Institute for Educational Policy Research,2014). Finally, this paper outlines the government reforms aimed at constructing sustainable bukatsudô systems
in schools. This study is significant in that it illuminates current government policy regarding bukatsudô and the
problems inherent in the government’s bukatsudô reform. In so doing, it contributes to discussions of how schools
should manage bukatsudô and how bukatsudô should develop students' social competence.
I argue that MEXT has reformed bukatsudô in response to changing social conditions: (1) the two corporalpunishment cases mentioned above, (2) the highlighting of the problem of teachers’ long working hours by the
media and the Teacher’s Union in 2014, and (3) MEXT’s own realization of the need to promote sustainablebukatsudô management systems in schools. MEXT has driven the bukatsudô reforms, which mainly aimed tochange the bukatsudô management system. Schools came to manage bukatsudô in line with 'The guidelines forsupervision of extracurricular sports club activities'. This change risks diminishing bukatsudô’s capacity to developinterpersonal relationships (both vertical and horizontal). After discussing these matters, I consider what the
government’s announcement regarding proposals related to creating sustainable bukatsudô since the publicationof "Chûgakkô gakushû shidô yôryô" [ The junior high school course of study] in March 2017. To this end, I provide
a perspective on future bukatsudô reform. Bukatsudô is an essential element of Japanese education. Schools must1

create a sustainable management structure for bukatsudô by paying attention to promoting the development of asound bukatsudô management system and to the educational significance of bukatsudô.
Corporal punishment
In January 2013, two corporal punishment cases made the headlines of Japanese newspapers. The first caseconcerns the suicide of a high school student, who was a bukatsudô captain (The Sakuranomiya High School
Incident). Reports indicate that a teacher supervising an extra-curricular activity used a degree of force against thestudent that had a severe impact on his physical and emotional wellbeing (Osaka shi kyôiku iinkai, 2014). The
second case happened shortly after the Sakuranomiya High School Incident, when fifteen female judo athletes,
including the London Olympic team players, submitted a document of complaint against their coaches to theJapanese Olympic Committee (Female Judo Incident). Their accusations detailed the violence and harassment of
athletes by coaches (Yomiuri-Shinbun, 2013a). Both these incidents were instrumental in bringing about the
bukatsudô reforms of the 2010’s.
The government responded with a series of proposals and by banning corporal punishment in schools. MEXT
issued ‘Taibatsukinshi no tettei oyobi taibatsu ni kakaru jittaihaaku ni tsuite [Prohibition of the use of corporalpunishment and a survey of the use of corporal punishment]’ in January 2013 (MEXT, 2013a). MEXT stated that
the School Education Law prohibits corporal punishment, and that bukatsudô supervisors must not adopt a 'win at
all costs' mentality which is used to justify corporal punishment as part of a strict education. Then, MEXT
conducted surveys to establish the incidence of the corporal punishment of students. Kyôiku Saisei Jikkô Kaigi[Education Rebuilding Implementation Council], a private advisory body to The Second Abe Cabinet, announced‘Ijime no mondai nado eno taiô ni tsuite (Dai ichi ji Teigen) [Approach to the problem of bullying (The First
Proposal)]’ in February 2013. This proposal clarified that any use of corporal punishment against students wasprohibited. It also mentioned that schools must establish bukatsudô guidelines in order to motivate and promote
the growth of students. MEXT issued ‘Taibatsu no kinshi oyobi jidouseito rikai ni motozuku shidô no tettei ni
tsuite [On the enforcement of the prohibition of the use of corporal punishment and the supervision of students
based on understanding their situations]’ in March 2013 (MEXT, 2013b). MEXT declared that the law prohibits
teachers from using corporal punishment, and that they must consider the student’s physical and emotional
wellbeing. With this provision in place, students are more likely to form better interpersonal relationships. MEXT
created ‘Undô bukatsudô deno shidô no gaidorain’ [Guidelines for supervision of extracurricular sports club
activities] based on the first proposal which was made by Kyôiku Saisei Jikkô Kaigi in May 2013 (MEXT, 2013c).
This guideline stressed the importance and responsibilities of teachers. Teachers who supervise bukatsudô have toabide by the policies aimed at eliminating any use of corporal punishment in these groups. The government
announced these notifications and proposals to ensure the prohibition of corporal punishment. Moreover, MEXT
asked schools to create bukatsudô guidelines. The government promotes these reforms to strengthen the
management of bukatsudô in schools.
During this period, when the Board of Education began creating bukatsudô guidelines to help teachers improvetheir leadership skills in bukatsudô, I was a supervisor of school education in a Japanese city. Several cities
conducted seminars for teachers around Japan. Schools had to create space for more democratic sports practices
without threatening the positive social and physical education that occurs within bukatsudô (McDonald & Kawai,2016).
Two factors had a significant impact on bukatsudô reform in the first half of the 2010s. The first was the Second
Abe Cabinet, which was inaugurated in December 2012, and listed educational and economic regeneration aspriority issues. The ruling party, the Liberal Democratic Party, set up Kyôiku Saisei Jikkô Honbu [the Headquartersof Education Rebuilding Implementation] to consider education policies. Then, the cabinet established Kyôiku
Saisei Jikkô Kaigi to promote education reform based on the proposals outlined by Kyôiku Saisei Jikkô Honbu.
This was the context in which the Abe Cabinet proceeded with education reform (Arai, 2014). The second factor
was that the International Olympic Committee (IOC) would be selecting the 2020 Olympics host city in September
2013. Shimomura Hakubun, the minister of MEXT, announced the government initiative 'Supôtsu shidô ni okeru
bôryoku konzetsu ni mukete’ [Towards the eradication of violence in sports instruction] in February 2013 when
the Female Judo Incident occurred (MEXT, 2013d). After making the announcement, the minister explained thatits aims were to make clear, at home and abroad, that the government had wiped out violence in sports and got ridof the harmful effects of this on the Olympic bid (Yomiuri-Shinbun, 2013b). The government had to deal with thecorporal punishment incidents in order to succeed in its bid for the Olympics.
This section has illustrated how corporal punishment triggered the bukatsudô reform and has also described thebackground to these reforms. The widespread discussion of corporal punishment in Japan gave the government a
convenient reason to advocate major educational reforms (Okano & Tsuchiya, 1999). In the first half of the 2010s,
two political events, the inauguration of the Second Abe Cabinet in December 2012 and the bid to host the 2020
Olympics, had a significant impact on the reform.

2

Long working hours of teachers
The media began talking about teachers’ long working hours as a social problem. A 2013 study revealed thatjunior high school teachers in Japan worked an average of weekly 53.9 hours a week, longer than other surveyedcountries (Teaching and Learning International Survey (TALIS), 2013). For other surveyed countries, thesupervision hours for extracurricular activities were 2.1 hours a week (Yomiuri-Shinbun, 2014). This issignificantly different to Japan which has an average of teachers supervising extra-curricular activities for 7.7
hours a week. The media and the teachers’ union recognized teachers’ working long hours as a social problem
after this survey was released (Nikkyôso, 2014; Mainichi-Shinbun, 2014). Awareness of this problem has
influenced the reform of bukatsudô.
MEXT began considering how this burden on teachers could be reduced. Chûôkyôiku shingikai (The Central
Council of Education), an advisory body to the minister, issued a proposal to MEXT ‘Cîmu to shite no gakkô noarikata to kongo no kaizen hôsaku ni tsuite (toshin)’ [School as a team and a plan for future improvement (report)]
in December 2015. In this proposal, Chûôkyôiku shingikai suggested ways to improve the management system ofschools such as participation by professional staff not only teachers. Additionally, Chûôkyôiku shingikai proposed
institutionalizing the practice of allowing schools to utilize Bukatsudô shidôin [extracurricular activities
instructors] who supervise bukatsudô and accompany students to games against other teams without the supportof teachers. Subsequently, MEXT established a task force; the Jisedai no gakkô shidô taisei ni fusawashii
kyôshokuin no arikata to gyômu kaizen no tameno tasukufôsu [Task force to consider suitable teacher working
conditions and the necessary improvements for the next generation of schools] in November 2015. MEXT
constituted this task force after Chûôkyôiku shingikai delivered its reports and then tried to promote improvements
in teacher's working conditions.
MEXT established a legal framework for supporting teacher's bukatsudô supervision. In July 2016, the task
force mentioned above published 'Jisedai no gakkô shidô taisei no arikata ni tsuite (saisyuu matome)' [Nextgeneration school leadership (final report)]. In this report, the task force announced the following proposal to
improve long work hours for teachers engaged in extracurricular activities: acknowledge the placement of the
Bukatsudô shidôin [extracurricular activities instructors] as bukatsudô supervisors. Though schools havepreviously used volunteers and external coaches as bukatsudô instructors, these staff members have not been able
to supervise students to date. The task force suggested that bukatsudô shidôin be able to supervise bukatsudô onbehalf of teachers. After the task force’s proposal in March 2017, MEXT revised Gakkô kyôiku hô shikô kisoku 78[Enforcement regulations for the school education law 78], to acknowledge the placement in schools of bukatsudô
shidôin [extracurricular club activities instructors]. These regulations assume that bukatsudô shidôin are
responsible for the following roles in bukatsudô: Accompanying students to sports conventions, supervising
bukatsudô, and carrying out guidance and counselling activities. Subsequently, principals were empowered toassign bukatsudô shidôin as sole supervisors of bukatsudô without support from teachers.
In this section I have outlined the process of the legal acknowledgement of the placement of bukatsudô shidôin
following the recognition of teachers’ long working hours as a social problem. The government amended the law
to provide support for teachers in bukatsudô as a part of the effort to improve working conditions for teachers.
Creating a sustainable management structure for bukatsudô
In the second half of the 2010s, MEXT promoted bukatsudô reforms to build a sustainable bukatsudômanagement system in schools. The 2017 course of study for junior high and high school mentions the need forschools and communities to create a sustainable management structure for bukatsudô. Moreover, Kyôiku Saisei
Jikkô Kaigi announced Dai Jû-ji Teigen [The Tenth Proposal]. This proposal addressed the necessity of changing‘bukatsudô managed by schools’ into ‘bukatsudô managed by social communities’; for example, a school could
engage in discussions with a community sports club or a social community to consider how to manage bukatsudô.
Also, on February 18, MEXT announced “Gakkô ni okeru hatarakikata kaikaku ni kansuru kinkyû taisaku nosakutei narabini gakkô ni okeru gyômu kaizen oyobi kinmujikan kanri tô ni kansuru torikumi no tettei ni tsuite“ [Formulating urgent measures regarding matters such as work reform in schools, implementing successful work
hours management and improved working conditions in schools] (MEXT, 2018). According to this announcement,
it is unnecessary for teachers to supervise bukatsudô, respond to a survey, instruct students during break time, orclean school with students. In addition, this announcement stresses the importance of further improvements inworking conditions in schools. In this announcement, MEXT further suggests that schools implement
improvements such as utilizing a bukatsudô shidôin or an external coach who supports bukatsudô, organizing gôdôbukatsudô [joint extracurricular club activities] which are composed of several schools or establishing rules for
activity hours and a rest day for bukatsudô. The government is attempting to create a sustainable management
structure for bukatsudô; social community-based bukatsudô management and supervision structures in whichteachers and experts cooperate.
Moreover, the central government has responded well to the challenge of bukatsudô reform. The Japan Sports
Agency [Supôtsu chô] issued “Undôbukatsudô no arikata ni kansuru sôgôteki na gaidorain” [Comprehensive
guidelines for extracurricular sports club activities] in March 2018 (The Japan Sports Agency, 2018), in which it3emphasized the necessity of establishing a bukatsudô management system, establishing rest days and creating agood school sports environment that considers students’ needs. In this announcement, MEXT also demands thatthe Board of Education in each area create an “Extracurricular Sports Activities Policy” and that junior high andhigh schools create an “Action Plan for Extracurricular Sports Activities”. The government has been attempting
to promote bukatsudô reform by controlling the policies of local education boards and schools.
This section has detailed how MEXT promoted building sustainable bukatsudô management in schools in thesecond half of the 2010s. The government took control of the bukatsudô management policies of local governments
and schools to carry out a thorough reform.
Conclusions
First, this paper provided an overview of the reform of bukatsudô by MEXT, especially after the Sakuranomiya
High School Incident. Next, it looked at the reform of bukatsudô conducted by MEXT as part of its improvementof teachers' long working hours which was publicly recognized as a problem after the publication of the OECDsurvey June 2014 (TALIS 2013). This discussion then turned to the government’s announcements regarding its
proposals for creating sustainable bukatsudô following the publication of "Chugakkô gakushû shidô yôryô" [Thejunior high school course of study] in March 2017.
This section considers the educational significance of bukatsudô and discuss a way for ensuring sustainablebukatsudô. In 2016, the Japanese government announced 'Dai goki kagaku gijutsu kihon keikaku' [The 5th Scienceand Technology Basic Plan], through which it aims to realize a "super-smart society" (Society 5.0) that equips
people to be able to respond to the changing world. This plan refers to 'Society 5.0' as follows.
Through an initiative merging the physical space (real world) and cyberspace by leveraging ICT to its fullest, we areproposing an ideal form of our future society: a “super smart society” that will bring wealth to the people.

Bukatsudô has a significant function in schools (Cave, 2004; Blackwood, 2005; Niki 2010): it provides students
with social anchoring (Rohlen, 1983), and students develop social competence through the vertical relationships
between senpai [senior] and kôhai [junior] in bukatsudô (Kawaguchi, 2020). The vertical structural principle,
which has developed in the course of the history of the Japanese people, has become one of the characteristics ofJapanese culture (Nakane, 1970). Even in the case of Japan achieving a "super-smart society", vertical relationships
such as senpai and kôhai or jôshi [superior] and buka [inferior] would still persist as part of the nature of Japanesesociety in the future (Kawaguchi, 2020). Therefore, schools need to foster the qualities and skills of interpersonal
relationships required in a vertical society, the hallmark of Japanese society, through educational activities forstudents, and schools must encourage students' social development. Generally, students work on educational
activities in groups composed of students of the same age, such as class and school year groups. In contrast,
bukatsudô provide opportunities for students to work and communicate with students of different ages such as<seniors-juniors>; seniors teach juniors, and juniors regard seniors as role models for their lives. Bukatsudô havethe critical guidance and counselling functions and they help schools to support students in developing the social
literacy that they need in interpersonal relationships (Kawaguchi, 2020).
This study has described how the government promoted bukatsudô reform in response to changing social
conditions since 2010. MEXT has carried out the bukatsudô reforms, which mainly aimed to change the bukatsudômanagement system. From now on, schools will shift from school-based club activities to community-based clubs,
and teachers will supervise bukatsudô in cooperation with bukatsudô shidôin [extracurricular activities instructors]
and external coaches. However, we should keep in mind that bukatsudô reform is not a goal but a process.
Bukatsudô are an essential element of Japanese education (Blackwood, 2016); they have provided theopportunity to engage in sporting and cultural activities for all students, regardless of their place of residence andfamily resources, and have played a vital role in their human development. Schools must create a sustainable
management structure for bukatsudô by paying attention to promoting the development of viable bukatsudômanagement systems and to the educational significance of bukatsudô.
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