Tokyo Guidelines for the Promotion
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February 2016
February 2016

February 2016
Tokyo Metropolitan
GovernmentTokyo
Metropolitan
GovernmentTokyo
Metropolitan
Government

February 2016

Formulation of Tokyo Guidelines for
the Promotion of Intercultural Cohesion
Currently, foreign residents with diverse ethnic, religious, and cultural
backgrounds live in Tokyo, numbering about 450,000 as of January
2016. Moreover, the number of foreign visitors to Japan in 2015 hit arecord annual high of about 19.74 million. With the Tokyo 2020
Olympic and Paralympic Games ahead, the number of foreign nationals
who visit and live in the city is expected to continue to rise.
In December 2015, the Tokyo Metropolitan Government formulated“Towards 2020̶Building the Legacy.” The plan outlines a range ofinitiatives, both tangible and intangible, aimed at creating valuable
legacies to last beyond the Games, and making Tokyo a city where allresidents can feel happy.
Establishing an environment where all Tokyo residents, including
those from abroad, can live with a sense of reassurance and realize
their potential to the fullest is a requirement for Tokyo to continue toachieve sustainable growth and be a leading global city.
Japan has taken in various outside cultures. It has a tradition ofrespect for people with diverse values, as well as people helping andsupporting each other.
I believe that further developing such culture and tradition to createa city where Japanese and foreign residents coexist and play activeroles together will help enhance the presence of Tokyo as a global city.
Tokyo Metropolitan Government initiatives aimed at multiculturalcoexistence to date were mainly developed as a means to support the
lives of foreign residents, with a focus on the concept of “Japanese andforeign residents living together in the community.”
Tokyo is now entering a new stage with developments such as the
rapid increase in the number of foreign nationals coming to the cityand the Tokyo 2020 Games. We must further build upon the concept
we have pursued to this point, and establish an inclusive, interculturalsociety based on a more proactive concept where all foreign nationals,
including exchange students and expats, can participate in society andbe successful alongside Japanese people.
Taking these points into account, we will use Tokyo Guidelines for the
Promotion of Intercultural Cohesion formulated for this new stage,
which encourages participation in society and success, and promote anintercultural society unique to Tokyo. And, we will work with thecitizens of Tokyo to steadily advance initiatives aimed at making Tokyo
one of the worldʼs best cities, a city where anyone lead a fulfilling life.

Yoichi Masuzoe
Governor of Tokyo

Table of Contents

1

PURPOSE AND BACKGROUND・・・・・・・

１

1) Purpose

・・・・・・・・・・・・・・・・・・・・

12) Background・・・・・・・・・・・・・・・・・・・・

4

２ REALIZING A SOCIETY THAT VALUESINTERCULTURAL COHESION: CURRENT

・・・・・・・

10

・・・・・・・

10

・・・・・・・

25

・・・・・・・

41

1) Key Objective

・・・・・・・・・・・・・・・・・・・・・・・・・・・・・・・

412) Policy Goals

・・・・・・・・・・・・・・・・・・・・・・・・・・・・・・・

42

SITUATION AND CHALLENGES
1) Situation of Foreign Residents in Tokyo
2) Current Situation of and Challenges toPromoting Intercultural Cohesion
３ TOKYO GUIDELINES FOR THE PROMOTIONOF INTERCULTURAL COHESION:

MAKINGTOKYO A LEADING GLOBAL CITY

3) Policy Implementation Scheme

・・・・・・・・・・・・・・・・・・

4) Role of Each Actor in an Intercultural Society
Appendix44

・・・・・・・

56

・・・・・・・・・・・・・・・・・・・・・・・・・・・・・・・・・・・・・・・・

63

1 PURPOSE AND BACKGROUND
1) Purpose
Tokyo not only serves as the center of politics, economy,
education, culture and other activities as the capital of Japan,
but also offers a rich diversity of attractions: it is remarkably
safe and clean for a huge metropolis, has an excellent public
transit system, substantial facilities to support daily life, andpossesses the great natural beauty of the Tama area andTokyo islands as well. The Tokyo Metropolitan Government isadvancingmeasurestopreparean

excellent

urban

environment across all areas from economics to culture, ona par with other global metropolises such as London, Parisand New York, and to build a society that will enable its
residents feel that Tokyo is truly a good place to live.
In four yearsʼ time̶2020̶Tokyo will host the Olympic andParalympic Games for the second time. The development of
infrastructure around Tokyo such as the Shinkansen bullet
train and expressways made rapid progress in preparation
for the previous Olympic and Paralympic Games in 1964,
allowing Japan to display to the world its remarkable postwar reconstruction and growth. In preparation for the Tokyo
2020 Games and the legacy beyond, Tokyo is aiming tobecome “a leading global city where everyone can feel happy
and where everyone wants to continue to reside.” To develop
further as a leading global city, an environment must be built
to allow all those who live and work here to demonstrate1their full capabilities.
There are currently around 450,000 foreign nationals livingin Tokyo, which represents about 3.3 percent of the total
population.

This number is expected to increase as theTokyo 2020 Olympic and Paralympic Games approach.

Forthese foreign residents, together with the Japanese residents,
to be engaged members of Tokyo will be vital for thesustainable development of this global city. It is thus
necessaryintercultural

to

build

upon

cohesion,

the

which

traditional

focusesonconcept

offoreignandJapanese residents living together in the community, andrealize a society based on a new line of thought in which they
together play an active role in Tokyoʼs development; this willraise Tokyoʼs profile and allow it to become a city that attracts
even more talent from overseas.
Accordingly, the metropolitan government has drawn up
the Tokyo Guidelines for the Promotion of Intercultural
Cohesion, which is based on this new perspective, to present
the fundamental concept and policy direction for thepromotion of intercultural cohesion. The key objective ofpromoting policies for intercultural cohesion will be:“ Embrace diversity and build a city where allresidents can participate and play an active rolein its development and feel safe.”
In order to advance these policies, it is crucial that the Tokyo
Metropolitan Government, a regional government, take the2lead in ensuring coordination between the various actors,
including municipalities, which directly provide administrative
services to citizens, the national government, and NPOs andothers providing support to foreign residents (“foreign
resident support organizations”), so that they can properly
fulfill their respective roles. These Guidelines have included,
to all possible extent, details that can be employed inconcrete initiatives promoting intercultural cohesion throughthe cooperation and collaboration of all actors, in order toachieve Tokyoʼs goal of becoming a leading global city. The
Guidelines take into account the policy recommendations
from the Committee to Study Promotion of Intercultural
Cohesion, which was set up in July 2015 for expert advice onmatters such as the current conditions of and challenges
facing initiatives taken for foreign residents in Tokyo, andpolicy direction based on features characteristic to Tokyo.

(Ref: “Recommendations for the Guidelines for Promotion ofIntercultural Cohesion”)

32) Background① Central and local government trends related tointercultural cohesion
The number of foreign nationals living in Japan stood at over
2.17 million as of end of June 2015, which represents 1.7
percent of the total population. Although the number offoreign residents in Japan dipped temporarily following the2011 Great East Japan Earthquake, it has been growing overthe long term, rising by a factor of 2.5 over the 30 years
since 1985.
Looking at the composition of the foreign population in
Japan, up until the 1970s it largely comprised Koreans andtheir descendants who had been living in Japan since before
WWII. Some local governments provided them with support
such as public housing and child benefits. From the 1980s,
theforeign

population,

largely

from

Asia,

dubbed“newcomers,” began to swell. Local public bodies led
internationalization initiatives to welcome and promoteinteraction

withforeignresidents,

suchinformationinforeignlanguages

andasprovidingestablishingconsultation services. From 2000 onwards, with the surge ineconomicandsocialglobalization,theinternational

movement of people increased further. It became necessary
to put in place measures drawn up from an intercultural
cohesion perspective to help both foreign and Japanese
residents accept cultural differences arising from nationality
and ethnicity, and live together as members of their local
communities. Based on these developments, the Ministry ofInternal Affairs and Communications drew up a plan for4

promoting intercultural cohesion at the local level* in 2006,
and began encouraging local governments to promoteintercultural cohesion.
* Intercultural cohesion (tabunka kyosei) at the local level: People of different
backgrounds such as nationality and/or ethnicity accept their culturaldifferences and live together as members of the local community whileworking to build a relationship of equality.

Furthermore, the Ministry of Justice, which has jurisdiction
over immigration, formulated the Basic Plan for Immigration
Control (5th Edition) in 2015, which sets forth the policy ofcontributing toward the realization of an intercultural society
through measures such as smooth acceptance of foreign
nationals who will help vitalize the economy and society, andproper operation of the residency management system. This
plan also included promotion of measures to realize a safe
and secure society, including countermeasures at the port ofentry to prevent terrorists and other suspect persons fromentering the country, and cooperation with the police andother law enforcement agencies to deal with illegal residents.
② Efforts taken in Tokyo to date
A. Municipalities
Municipalities, centering on those with a proportionately
high number of foreign residents, have been implementing
a range of measures in line with local circumstances,including offering support for Japanese language learning,providing information on government services in foreign
languages, giving advice on daily life, registering andsending out volunteers, and organizing exchange events.
5

B. International associations and foreign resident
support organizations
Within Tokyo there are 20 international associations
promotinginternational

exchangeandintercultural

cohesion in partnership with the city or special-ward
governments, as well as some 250 foreign resident support
organizations. These bodies focus on providing Japanese
languagelessonsor

supportingchildrenʼslearning,

cultivating volunteers, arranging “international exchangesalons,” and other such activities closely tied to thecommunity.
C. Tokyo Metropolitan Government
As a regional government, the Tokyo Metropolitan
Government

has

been

advancingmeasuresforthemunicipalities, international associations, foreign resident
support organizations and other such groups to share
information and build networks. Regarding provision of
information to its international population, the Tokyo
government has foreign language pages on its official
website, which provide information on metropolitan affairs;
offers information on daily life in multiple languages
through

the

Tokyo

International

Communication

Committee*; provides information on medical institutions
that can offer foreign language assistance, and so on. The
Tokyo Metropolitan Government has a consultation system
for foreign residents, providing consultation on labor issues
andmatters

concerningschoolchildren,

and

also

undertakes efforts for disaster control by providing them6with information on disaster preparedness and hostingdisaster drills.
* Tokyo International Communication Committee: An organization recognizedby the Ministry of Internal Affairs and Communications as a central privateorganization for local international exchange.

As described above, the municipalities, private groups,
and the Tokyo government have been carrying out a rangeof activities for foreign residents, but these efforts centeron activities from a welfare perspective that views foreign
residents as being on the receiving end of support.
③ Tokyoʼs population
Tokyoʼs population is expected to peak at 13.36 million in2020 and start to decline after that. Breaking this down
into areas, the 23-special-ward areaʼs population is set topeak in 2020, while the population of the Tama and island
areas is projected to peak earlier, in 2015. There areconcerns in Tokyo as well that the shrinking workforce
brought about by the graying population will lead to acontraction of the economy, slowing down the cityʼs
dynamism and economic activities, and increasing theburden of social insurance, among other issues.
At the same time, the foreign population of Tokyo is on
the increase, standing at 450,000 as of January 2016. This
represents about 3.3 percent of the total population. Not
only does Tokyo have the largest foreign population of any
prefecture in the country, but it also has the highest
percentage of foreign nationals in the resident population.
7

In particular, since Tokyo has a large number of businesses
boasting superb technologies, as well as universities andresearch centers, it is host to the largest number of skilled
professionals* and their families, as well as international
students, in the country. Moreover, with 179 countries
represented as of January 2016, the foreign population ofTokyo is highly diverse, with people of many nationalities,
ethnicities and cultures making their lives in the city.
Because the number of international families is also high,there are also children who are Japanese citizens, but haveroots abroad**.
*Skilled professionals: Foreign workers with status of residence in expert or
technical fields (Researchers; software engineers; sales, accounting,marketing, planning and other business staff positions; business managers;
legal and accounting services, etc.)**Children with foreign roots: Children whose parent(s) is/are foreign
national(s), including those children who have Japanese citizenship.

④ Becoming a leading global city
The national government is focusing on driving structuralreform of the economy, and with a view to improving
international industrial competitiveness and forming centers
for international economic activities, the Act on National
Strategic Special Zones was passed, and a range of projects
arecomingunder

approval.

The

Tokyo

Metropolitan

Government is employing this system to attract foreignbusinesses and human talent, and aims to establish the“Tokyo Global Financial Center,” which will position Tokyo as
an international financial capital that stands on a par withNew York and London.
8In order to make Tokyo a disaster-resilient city, community
building is underway to make this city a place where people
can live safely and with peace of mind. These include making
progress in the quake resistance and fireproofing of buildings,
and furthering the efforts of residents to help themselves andhelp each other.
With the goal of establishing Tokyo as an international
tourist destination, which welcomes people from overseas
with a spirit of omotenashi (hospitality), Tokyo is advancing
thedevelopment

of

both

tangibleandintangible

infrastructure, including the preparation of Wi-Fi hotspots
and multilingual signage, and cultivating volunteers who canoffer assistance to tourists.
In the area of the arts and culture, measures are being
progressed to realize Tokyo as a city bursting with cultural
attractions, where all kinds of people conduct creative
activities, and where many can easily experience arts andcultural events.
In order for Tokyo to become such a leading global city, it
will be imperative to build upon the 2006 plan for promotingintercultural cohesion at the local level formulated by the
Ministry of Internal Affairs and Communications, and form asociety where everyone can take an active part regardless ofnationality, ethnicity, or other backgrounds. To do that,policies must move on to the next stage and be implemented
from a new perspective of intercultural cohesion.

9

２ REALIZING A SOCIETY THAT VALUESINTERCULTURAL COHESION: CURRENTSITUATION AND CHALLENGES
1) Situation of Foreign Residents in Tokyo① Foreign population
A. Changes in Tokyoʼs number and share of the foreign
population
The number of foreign residents* in Tokyo stood at
approximately 450,000 as of January 2016. The figure
declined after the Great East Japan Earthquake in 2011, but
started to rise again in 2014. While Tokyoʼs total population
increased by about 15 percent over the past two decades,
the foreign population grew by some 70 percent during thesame period to reach a record high. [Figure 1]
Among the prefectures in Japan, Tokyo has the largest
number of foreign residents, and also has the highest ratioof foreign residents to the total population. Of all foreign
nationals in Japan, some 20 percent live in Tokyo. Osaka ishome to the second largest number of foreign residents,
followed by Aichi, Kanagawa, and Saitama prefectures.
[Figures 2, 3]* Foreign nationals legally residing in Japan for over three months who are
registered in the Basic Resident Register1010

[Figure 1]

Tokyo’s total population and foreign population

Foreign population (left)(in thousands)(in millions)449

Tokyo’s total population (right)

450

14

13.51
400

11.77

12

350

10

300

8

260

2016

2015

2014

2013

2012

2011

2010

2009

2008

2007

2006

2005

2004

2003

2002

2001

2

2000

150

1999

4

1998

200

1997

6

1996

250

Source: “Population of Tokyo” (TMG Bureau of General Affairs)
Note: Figures as of January 1 of each year

[Figure 2]

Foreign residents by prefecture (as of June 2015)

Tokyo
20.6%

Other
27.7%

Osaka
9.5%

Ibaraki
2.4%
Fukuoka
2.7%
Shizuoka
3.5%
Hyogo
4.5%

Aichi
Chiba Kanagawa 9.4%
5.5%
8.1%
Saitama
6.2%
Source: “Statistics on Foreign Residents” (Ministryof Justice)11

[Figure 3]

Ratio of foreign residents to total population (as of June 2015)

3.32%

Tokyo
2.73%

Aichi
Mie

2.37%

Osaka

2.35%

Gumma

2.28%

Gifu

2.23%

Kyoto

2.00%

Shizuoka

1.99%

Kanagawa

1.93%

Chiba

1.91%
0%

1%

2%

3%

4%

Source: Prepared from “Statistics on Foreign Residents” (Ministryof Justice) and population estimates for each prefecture

12

B. Foreign workers
Tokyo has the largest percentage of foreign workers inJapan at 30.5 percent [Figure 4].
In Tokyo, the number of foreign workers has been rising
constantly, reaching 277,000 in 2015, a 2.3-fold increase
from 2008. [Figure 5].
[Figure 4]

Foreign workers by prefecture(as of October 2015)

Tokyo
30.5%

Other
44.0%

Aichi
Osaka
10.4%
5.0%
Shizuoka
Kanagawa
4.4%
5.7%
Source: “Situation of Notification of Foreign Nationals’ Employment
Status” (Ministry of Health, Labour and Welfare)[Figure 5]

Number of foreign workers in Tokyo(in thousands)

277

300

229

250
200
150

118

139

155

168

177

2011

2012

196

100
50
0
2008

2009

2010

2013

2014

2015

Source: “Situation of Notification of Foreign Nationals’ Employment Status”(Ministry of Health, Labour and Welfare)Note: Figures as of the end of October each year13

② Nationality
By nationality, people of Korean nationality accounted formore than half the foreign residents in Tokyo some 30 years
ago at 57 percent, followed by Chinese and Americans. Today,
people of Chinese nationality are the largest in number,
followed by Koreans and Filipinos [Figure 6].
Residents of Vietnamese, Nepalese and other nationalities
have been increasing in recent years, contributing to morediversity in Tokyoʼs international population. As of January 1,
2016, foreign nationals of 179 different countries resided inTokyo. It can be said that the city brings together people ofvarious cultures, values, and other backgrounds [Figure 7].

[Figure 6]

Foreign residents in Tokyo by nationality
2016

1985
Thailand
1.6%
India
2.1%

Other
17.3%
USA
9.5%

UK
Myanmar
1.2%
1.6%

Other
12.0%

USA
3.7%
Nepal
4.0%

Korea
57.2%
China
16.1%

Vietnam
4.9%

Philippines
6.6%

China
41.4%

Korea
20.8%

Source: “Foreign Population” (TMG Bureau of General Affairs)

14

[Figure 7]

Foreign population by nationality (top 6 countries)(in thousands)

200
180
160
140
120
100
80

China
Korea

35
30
25

Philippines

20

USA

15

Nepal

10

Vietnam

5
0
2008

2009

2010

2011

2012

2013

2014

2015

2016

Source: “Foreign Population” (TMG Bureau of General Affairs)15

③ Number

and

share

of

foreign

populationbymunicipality
By municipality, Shinjuku-ku has the largest number offoreign residents. Edogawa-ku is a distant second, followed
by Adachi-ku. In Shinjuku-ku, foreign people account for
more than 10 percent of the population, a higher ratio than in
any other municipality in Tokyo. Minato-ku, which is home to
many embassies and foreign company offices, has the second
highest percentage of foreign residents at about 8 percent of
its total population. Although there are many foreign
residents in Edogawa-ku and Adachi-ku, the ratios are notvery high as these special wards have large populations.
Comparing the special-ward area and the Tama area, thespecial-ward area has a higher number and share of foreign
residents [Figure 8].
By nationality, Shinjuku-ku is home to the largest number ofChinese and Koreans. Similarly, many Vietnamese and
Nepalese live in Shinjuku-ku, and also, in the adjacentToshima-ku.

ThelargestnumberofFilipinos

lives

in

Adachi-ku, and Indians in Edogawa-ku [Table 1].
As can be seen by this distribution of foreign nationals, thesituation of foreign residents differs from municipality tomunicipality.

16

[Figure 8]

Number and share of foreign residents by municipality in Tokyo (top30 municipalities) (as of January 2016)

in thousands

45

12.0%

40

10.0%

35

Population

30

8.0%

Share

25

6.0%

20
15

4.0%

10

2.0%

Fussa

Nishitokyo

Tachikawa

Chofu

Fuchu

KodairaChuo

MachidaMeguroBunkyoShibuyaSumidaHachioji

Shinagawa

NakanoSuginami

Taito

NerimaKatsushika

Setagaya

Kita

Arakawa

MinatoItabashi

Koto

Ohta

AdachiToshima

Edogawa-

Shinjuku

50.0%

Source: “Population of Tokyo (Estimates)” “Foreign Population”(TMG Bureau of General Affairs)[Table 1]

Foreign population by nationality by municipality in Tokyo (top 3
municipalities)(as of January 2016)

Nationality
1

China

2

Korea

3

Philippines

4

Vietnam

5

Nepal

6

USA

7

India

8

Thailand

9

Myanmar

10

UK

1st

2nd

3rd

Shinjuku
14,069Shinjuku
10,142Adachi
3,372
Shinjuku
3,186
Shinjuku
2,869
Minato3,231
Edogawa
2,840
Shinjuku
712
Shinjuku
1,686
Minato771

Edogawa
13,227Adachi
7,784
Edogawa
2,484
Toshima
2,575
Toshima
2,340
Setagaya
1,359
Koto
1,606
Edogawa
460
Toshima
1,425
Setagaya648

Koto
12,548
Arakawa
5,686
Ohta
2,257
Edogawa
1,367
Ohta
1,620
Shibuya
1,294
Taito
655
Ohta
408
Kita
778
Shibuya619

Source: “Foreign Population” (TMG Bureau of General Affairs)17

④ Age demographics
Over 25 percent of Tokyoʼs population in 2015 was 60 years
old and older, with about one out of four residents a seniorcitizen. In contrast, for foreign residents, those in their 20s
make up the largest age group, followed by those in their 30s
and 40s. More than 50 percent of foreign residents in Tokyo
are in their 20s or 30s [Figure 9].

[Figure 9]

Tokyo’s total and foreign population by age group (as of January 2015)

30%
25%

Tokyo’s total
population20%

Foreign residents

15%
10%
5%
0%

Under 10

10‐19

20‐29

30‐39

40‐49

50‐59

60‐

Source: “Households and Population in Tokyo Based on the Basic Resident
Register” (TMG Bureau of General Affairs)18

⑤ Features distinctive to Tokyo in terms of status ofresidence
Tokyo is home to many companies and educational
institutions. Because of this, by status of residence, there is ahigher ratio of students and so-called skilled professionals,
including specialists in humanities/international services andengineers, in Tokyo than in other parts of Japan [Figure 10,
Table 2].
The number of skilled professionals has been rising
constantly since 2008, and the number of international
students, which showed a drop after the 2011 Great East
Japan Earthquake, is now growing again [Figure 11].
Among the prefectures in Japan, Tokyo has the largest shareof skilled professionals at 52 percent, and the highest portionof students at about 35.6 percent [Figure 12].

19

[Figure 10]

Breakdown by status of residence（As of June 2015）

Japan

Tokyo

Spouse orchild ofJapanesenational
6.2%

Long-term
resident
4.6%

Engineer or
specialist in
humanities/
international
services
11%

Spouse orchild ofJapanesenational
6.5%

Other
11.9%
Permanent
resident
27.8%

Dependent
9.9%

Specialpermanent
resident
10.2%

Other
15.7%
Long-term
resident
7.4%

Permanent
resident
31.7%

Dependent
5.9%
Engineer or
specialist in
humanities/
international
services
6.1%

Student
18.0%

Student
10.4%

Specialpermanent
resident
16.3%

Source: “Statistics on Foreign Residents” (Ministry of Justice)[Table 2]

Tokyo’s share of companies, etc. in Japan
Tokyo

Share of total(Survey year)

No. of companies

259,771

15.2%(2012)

No. of companies capitalized at 1
billion yen or more

2,748

46.1%

(2012)

No. of foreign affiliates

2,376

76.5%

(2014)

No. of universities

139

17.8%

(2014)

Source: “Industry and Employment in Tokyo: A Graphic Overview”(TMG Bureau of Industrial and Labor Affairs)

20[Figure 11]

Skilled professionals and students in Tokyo(in thousands)

90

Skilled professionals

Students

80
70
60
50
40
30

2008

2009

2010

2011

2012

2013

2014

2015

*Skilled professionals: Foreign workers with status of residence in expert or technical fields(Researchers; software engineers; sales, accounting, and other business staff positions; business
managers; legal and accounting services, etc.)
Numbers of skilled professionals as of the end of October each year (Source: “Situation of
Notification of Foreign Nationals’ Employment Status” Ministry of Health, Labour and Welfare)
Numbers of students as of the end of December each year (Source: “Statistics on Foreign
Residents” Ministry of Justice)[Figure 12]

Breakdown of skilled professionals and students by prefecture
Skilled professionals

Students

Other
29.5%

Other
33.0%

Tokyo
52.0%
Osaka
6.0%
Kanagawa
6.1%

Kanagawa
5.5%

Aichi
6.4%

Saitama
5.7%

Source: “Situation of Notification of
Foreign Nationals’ Employment Status (asof end October 2015)” (Ministry of
Health, Labour and Welfare)

Tokyo
35.6%

Chiba
5.8%

Osaka
7.9%

Fukuoka
6.4%

Source: “Statistics on Foreign Residents(as of the end of June 2015)” (Ministry ofJustice)21

⑥ Summary of the situation of foreign residents
Tokyo is home to the largest number of foreign nationals inJapan, and also has Japanʼs largest foreign working
population. The nationalities of Tokyoʼs residents cover 179
countries, with people of a wide variety of nationalities
living in various communities.

Trends can also be seen by area in Tokyo. To mention afew, many citizens of China, Korea, Vietnam, Nepal,
Thailand, and Myanmar, citizens of the USA and UK, citizensof the Philippines, and citizens of India live in the specialward areas of Shinjuku-ku, Minato-ku, Adachi-ku, and
Edogawa-ku, respectively. A large percentage of foreign
residents reside in Tokyoʼs special-ward area, and as for thecities of Tokyo, many live in Hachioji where there is aconcentration of universities. In this way, each area has its
distinct characteristics.

22

Viewing Tokyoʼs residents by age, the overall population ofTokyo is graying, with those 60 years old and older
accounting for over 25 percent of the population. For
foreign residents, on the other hand, those in their 20s
make up the largest age group at over 25 percent, followedby those in their 30s and 40s.

By status of residence, those with permanent resident
status constitute the largest group, with this tendency forsettling down in Tokyo similar to the trend in Japan as awhole. But because of Tokyoʼs high concentration ofcompanies, including foreign affiliates, and educational
institutions such as universities, Tokyo has a higher
percentage of international students and skilled
professionals in areas such as engineering, humanities, andinternational services.

These facts show that foreign residents of various culturaland economic backgrounds live in a variety of areas in23

Tokyo. In addition, while there are many foreign residents
who are living in Tokyo for a comparatively short period oftime, long-term residents are also increasing. Their needs
for working, studying, and living in Tokyo differ according totheir circumstances. It is thought that as more and more
foreign residents become long-term residents of Tokyo, they
will take on a larger position as members of theircommunity. It is thus considered necessary to take acomprehensive approach in providing them with support fordaily living and for more engagement in society, andpromoting mutual understanding between Japanese andforeign residents in order to achieve intercultural cohesionin Tokyo.

242) Current Situation of and Challenges toPromoting Intercultural Cohesion
In July 2015, the Committee to Study the Promotion ofIntercultural

Cohesion,

made

up

of

academics,

NPOs

engaged in supporting foreign residents, companies, foreign
residents of Tokyo, and others, was established to conduct
studies in line with the situation of foreign residents in orderto advance intercultural cohesion and achieve Tokyoʼs goal of
becoming a global city. In addition, surveys were conducted
and views heard from the municipalities, international
associations, foreign resident support groups, educationalorganizations,andcompanies,

amongothers,anddiscussions were held within the committee based on the
results. The current situation and challenges facing thepromotion of intercultural cohesion, which became clear
through this process, are summarized as follows.

① Active roles of foreign residents
In order for Tokyo to become a city where everyone canfeel happy and where everyone wants to continue to reside,
it is essential to build an environment where all foreign
residents can fully demonstrate their capabilities and play
active roles as members of Tokyo. The current situation andthe challenges facing the realization of such an environment
are as follows.
* Key views expressed at the committee-

By receiving proper Japanese language support and education,
the children of foreign long-term residents of Tokyo can become25

globally-proficient talent who contribute to the development ofTokyo.
-

Doing nothing to help children who cannot speak Japanese willlead to them becoming unable to go to school or to find work.

-

Unless we start considering not only how to help foreigners, but
how to actively engage them in building the community, no
progress will be made in intercultural cohesion.

-

Foreign nationals who have been transferred to Japan or are
here on long-term work contribute to Tokyoʼs economy. Other
places in Asia such as Singapore and Hong Kong employ thestrengths of their foreign residents to boost their economic
activity. Tokyo also needs to establish a system that can accept
talent from overseas.

-

Foreign residents probably have interest in the activities of theirneighborhood or residentsʼ associations, but the reality is that
there is not much participation.

A. Nurture children and bring out their capabilities〇 There are more than a few cases of children of foreign
nationality or those who have Japanese nationality but
have roots abroad, lacking sufficient mastery of theJapanese language, especially at the level needed forstudies. There is also the issue of how to provide
educational opportunities to children above compulsory
education age. Currently in Tokyo, metropolitan highschools have established a quota for foreign residents inTokyo, and various entities, such as the municipalities,municipal international associations, and organizations
supporting foreigners, are providing support, including
Japanese language studies, to children of long-term
residents. However, because of issues such as lack of26

Japanese language ability, there are cases where some ofthese children are unable to go to high school even if theywish to do so and find it difficult to later find jobs, thus
hindering opportunities for them to demonstrate theirabilities.
◆ Enhance support to children
If children of long-term foreign residents of Tokyo canlearn Japanese and receive a proper education, we canhold high expectations on their active involvement in avariety of areas as members of Tokyo and a bridge
between their native country and Japan. It is essential topromote efforts to enable these children, who hold thefuture in their hands, to lead lives in which they can holdhopes for what lies ahead. Initiatives should be taken toenhance support that responds to the diverse educational
needs of children, and link this to future employment.

B. System to support foreign residents as a part of
attracting foreign companies〇 Tokyo is recognized by the worldʼs companies as an
ideal city for business. In order for Tokyo to drive thesustainable development of the Japanese economy, sincethedesignation

of

the

Special

Zone

for

Asian

Headquarters in 2011, the Tokyo government has been
aggressively rolling out activities to attract foreigncompanies.

Specifically,

in

order

to

attract

many

companies to Tokyo, the Business Development Center
TOKYO and other support desks currently provide
27

prospective startups and foreign companies thinking
about

advancing

into

Tokyo

with

consultations

ondeveloping business in Tokyo and one-stop assistancewith the necessary paperwork.
○ In addition, when foreign businesspeople come to
Japan to work at foreign affiliates and others, they are
greatly concerned about their familyʼs living environmentand childrenʼs education. They especially have a highinterest in their childrenʼs education, with many seeking
an educational environment on a par with that of theirhome country.
◆ Establish a support system for foreign businesspeople
In addition to offering business support to foreigncompanies setting up operations in Tokyo, it is essential toprovidemore

detailedandcomprehensive

supportconcerning information beneficial for businesspeople tolive in Tokyo such as various Japanese systems including
the procedures needed for companies to establish
business in Tokyo, health care systems, and theirchildrenʼs educational environment.

C. Promote the active roles of international students〇

As a part of Japanʼs global strategy, the national
government launched the “300,000 Foreign Students
Plan” with the goal of accepting 300,000 foreign students
by the year 2020. While the future increase of foreign
students is expected, according to a study by the Japan

28

Student Services Organization, although 65 percent ofprivately financed international students wished topursue a career in Japan after graduating, in fiscal year
2013 only about 25 percent of the total graduates foundemployment in Japan, with a large gap existing between
the hopes of these students and reality.**Sources: “FY 2013 survey on living conditions of privately financed
international students” and “FY 2013 survey on the career and degree
status of international students”◆

Promote employment of and business startups byinternational students
Opportunities to work and play an active role in Tokyo will

be broadened to cover international students. The
employment of international students will be beneficial toboth the students and companies as they can play avaluablerole

atorganizations

such

as

small

and

medium-sized companies planning to develop businessabroad, as a bridge linking their country and Japan. It willbe essential to develop a system for support that allows
international students living in Tokyo to play an evengreater role in Tokyo after they graduate.

D. Community participation by foreign residents〇 Just as are the Japanese, foreign residents are also
members of the community. If they have children going toelementary or middle school, they have opportunities toparticipate in parent-teacher associations and otheractivities. But the fact is that even in areas where there

29

are

many

foreignresidents,

few

participateintown/neighborhood associations or other community
activities.
◆ Promote participation in community activities
As Tokyoʼs population ages, communities with a growing
proportion of elderly Japanese and foreign residents
emerge. If a disaster occurs in such a community,
Japanese senior citizens and foreign residents must work
together to evacuate or take other responses. Thus,
rather than considering foreign residents as recipients ofassistance, it will be necessary to strive to broaden
opportunities for foreign residents to participate incommunity activities so that they can serve as pillars of
the community.

30

② Daily lives of foreign residents
In Tokyo, the municipalities, international associations,foreign resident support organizations, and other groups
are undertaking various efforts to ensure that foreign
residents can live with peace of mind in the community. The
current situation and challenges facing the lives of foreign
nationals in Tokyo are as follows:* Key views expressed at the committee-

If all the information on government services such as health care,welfare, and housing is available in one place, foreign residents
will be able to use the services more.

-

More information, especially on health care, housing, education,and disaster preparedness, should be provided in multiple
languages.

-

Some municipalities are preparing many brochures on living
information for foreign residents, but whether they are actually
getting their hands on this information and how much of thisinformation is being used are not known.

-

It is estimated that expats and their families will continue toincrease. Wonʼt it be necessary to give them more active
support?

-So that businesspeople from overseas are able to live in Japanfor a long time, it will be necessary to provide them with support
such as preparing a living environment that prevents theirfamilies from becoming isolated in the community.

-

From the perspective of taking in skilled professionals, as manyof these people are intent on giving their children a goodeducation, an environment where they feel reassured about
their childrenʼs education would be a big incentive to them.

31

A. Provision of information about daily life〇

So that foreign residents can go about their daily lives

with a sense of reassurance, it will be necessary to
prepareanenvironment

where

they

can

acquireinformation on matters such as health care, education,and disaster preparedness. However, as the nationalitiesof the foreign citizens in Tokyo grow increasingly diverse,
it will be difficult to provide information in all theirlanguages. In a survey conducted by the metropolitan
government, 70 percent of international associations,which have many opportunities to come into actual
contact with foreign residents, raised “how to provide
information” as a current challenge they face. In addition,
there are also views that while there are many measures
to support foreign

nationals, information

on

these

measures is not necessarily reaching those who seek
support.
◆ Provision of information to allow foreign residents to feelreassured about their daily lives
In order for foreign residents to go about their lives withpeace of mind, the government must consider ways toeffectively convey health care information and otherneeded information, so that even those who do not havesufficient Japanese ability can obtain the information theyrequire. This includes engaging in efforts to provide as
much information as possible in multiple languages
centering on main languages used in Tokyo, and further
advancingtheprovision

32

ofinformationin“simpleJapanese.”** Simple Japanese: When the Great Hanshin Awaji Earthquake hit in January
1995, many foreign residents were unable to obtain necessary information
because of their lack of understanding of Japanese. Simple Japanese wasdevised as a simplified form of Japanese, which could be understood byforeigners in order to allow them to take proper action in times of disaster.

B. Support for more fulfilling lives〇

Among the foreign nationals residing in Tokyo, there
are many who would like to contribute to their society
through volunteer activities, participation in community
activities, and other means, but not only are there few
activities that they can easily participate in, it is also a factthat such information is not effectively disseminated tothem.

◆ Support for their participation in the local community
through volunteer activities, etc.
In order to facilitate the participation of foreign residents
in volunteer activities and other social activities, it isnecessary

that

the

government

andinternational

associations play a central role in improving the provisionof information to them such as by adopting information
media

for

the

effectiveandefficientdeliveryofinformation and promoting multilingual provision of
information.

〇

In the past, many expats and their families used to lead33

lives only within communities built around their company
or their childrenʼs educational environment, but in recent
years, many have been showing interest in enjoying life
in Japan more by coming into contact with Japaneseculture through activities such as visiting sightseeing
spots.
◆ Broad support to respond to various needs
In addition to providing support to ensure that they canlead daily lives with peace of mind, initiatives need to betaken to improve the provision of various information toforeign businesspeople and their families, such as onsightseeing, the arts, culture, and sports, which can makelife more enjoyable and fulfilling.

34

③ Awareness of intercultural cohesion
To realize a society that values intercultural cohesion, anawareness of coexistence, which embraces diversity arisingfromdifferences

includingnationality,

ethnicity,andreligious beliefs, is essential. The current situation and thechallenges facing awareness of intercultural cohesion are as
follows.
* Key views expressed at the committee-

Many troubles concerning housing stem from differences inrental systems. As there are apartment owners who shunforeigners, it is necessary for both parties to deepen theirknowledge.

-

It is important that Japanese and foreign citizens accept andrecognize their differences in culture and religious beliefs
through exchanges.

-

There are cases, such as trash disposal, where issues arise
between foreign residents and Japanese due to differences inculture and customs. Educating Japanese as well on the concept
of intercultural cohesion is felt necessary.

-

It is important that Japanese and foreign residents accept theirdifferences and build an environment where they can work
together.

-An awareness of helping each other is necessary to prevent
views that foreign and Japanese nationals are in competition
with each other in matters concerning work.

A.

Awareness of intercultural cohesion and understanding ofdifferent cultures〇 Regarding housing matters, rules differ from country tocountry with, for instance, some countries not requiringthat the room be returned to its original state when the35tenant vacates it. There are more than a few cases oftroubles arising due to both Japanese and foreign
residents not understanding each otherʼs rules andmanners. These include a lack of understanding by
Japanese on the customs of foreign residents, and cases
where foreign nationals are refused rooms just because
they are not Japanese. There are also incidents ofprejudice and bias leading to words and actions calling forthe expulsion of specific ethnicities and nationalities.
〇

An effective way to understand a different culture is forthe parties to actually come in contact with each otherand hold exchanges, but there are few such opportunities.
In a survey conducted by the Tokyo Metropolitan
Government,“increasing
residents

there

were

who

thoughtforJapanese

and

such

as

opportunities
tointeract,

many

that

foreignencouraging

theparticipation of foreign residents in the social activities of
the community” is necessary to have both parties respect
each other. There are also issues such as limitations in theexisting platforms for exchange and the fact that many
people do not know that such platforms for exchange
exist.
* In the “Public Survey on Human Rights” conducted by the Bureau of Citizens
and Cultural Affairs, Tokyo Metropolitan Government, April 2014, as “aninitiative necessary to have foreigners and Japanese live while respecting eachother,” 44 percent of the respondents said, “increasing opportunities forJapanese and foreigners to interact, such as encouraging the participation offoreigners in the social activities of the community,” with this placing second.

◆ Promote understanding of different cultures to both
Japanese and foreign residents
In order to spread an awareness of intercultural cohesion36

among both Japanese and foreign residents, it isnecessary to broadly diffuse information among Tokyo
residents on various foreign cultures, customs and others,
and at the same time, advance efforts to have foreign
nationals properly understand the culture and rules ofJapan as residents of Japan. It is also important toincrease opportunities for casual interaction in thecommunity between Japanese and foreign residents, andadvance initiatives to ensure that such exchange is nottransient,

but

grows

deeper

and

leads

to

mutualunderstanding. Moreover, it is essential to engage in
effective provision of information so that more people canlearn about platforms for exchange.

B. Cultivation of globally-proficient talent〇 The globalization of the Japanese is also needed forTokyoʼs development. In Tokyoʼs global enterprises,business is not something that can be conducted byforeign citizens alone; rather, large accomplishments canbe made if both foreign and Japanese citizens work
together as business partners. With regard to economic
activities, it is essential to refrain from considering thetwo groups separately, and to be mindful of the fact thatthey support each other and do splendid work together.
◆ Cultivation of globally-proficient talent to support Tokyo
So that Japanese and foreign residents in Tokyo cancooperate and work well together based on mutual37

understanding,itisessential

tocultivate

globally-

proficient talent who will form the core of such efforts. To
this end, we need to raise internationally minded young
people starting from the school education stage through,among

others,improving

Englishlanguageability,experiencing living abroad or holding exchanges withdifferent

cultures,andfosteringunderstandingofJapanese history, tradition and culture.
④ System to promote intercultural cohesion
Support has been provided to foreigners living in Tokyothrough efforts promoted by the Tokyo Metropolitan
Government,

the municipalities

Intercultural

CommunicationofTokyo,

Committee,

the

Tokyo

international

associations, and others. The current situation and thechallenges facing the system to promote the new form ofintercultural cohesion in Tokyo are as follows:* Key views expressed at the committee-

It seems that private groups are very powerful as a grassroots
force.

-

It would be good if the Tokyo Metropolitan Government had ascheme to support initiatives difficult for the municipalities tocarry out alone, such as translation and interpretation from andinto minority languages.

-

With

regardtoeducational

support,themetropolitan

government and municipalities should collaborate more toprovide support to children.
-

Collaboration between various departments and bureaus is very
important in advancing measures.

-

The division of roles between the metropolitan government andmunicipalities should be clearly defined.

38-

When an event concerning intercultural cohesion is held, the agegroups and those showing interest will be limited if this is only
promoted by the government. Educational and informative
platforms that engage a wider range of people should beestablished through a little more collaboration with private
grassroots groups.

〇 The bureaus of the Tokyo Metropolitan Government,
municipalities, international associations, foreign resident
supportgroupsandotherorganizations

are

each

conducting various support programs, but there are few
connections between them, and information sharing is
also insufficient.
〇 The

municipalities

aremainlychargedwithcommunication support, such as Japanese language
studies and provision of information in multiple languages,
and daily living support, including the labor environmentand disaster preparedness. As the situation of the foreign
residents, such as their nationality, population and aim ofstay, differ from community to community, it is desirable
for support programs to be implemented in line with thesituationintherespective

community.

However,

according to a survey conducted by the metropolitan
government, about 46 percent of the municipalities are“not making much progress” or are “hardly making
progress” in measures for intercultural cohesion, with a
gap existing between municipalities in the degree of theirmeasures.
〇 Tokyo also has many NPOs and other groups providing
assistancelanguagetoforeignclasses,

residents

consultation
39

throughservices,

Japanese
and

other

support. Support has been given to many foreigners
through the efforts of these groups. However, the small
size of most of these groups places limits on how mucheach group can respond to the various needs that exist inTokyo.
◆ Strengthening cooperation between the various parties
promoting intercultural cohesion
As measures for intercultural cohesion cover a wide rangeof areas including education, healthcare, welfare, labor,anddisaster

preparedness,itisindispensabletostrengthen the system for collaboration among the Tokyo
Metropolitan

Government,

municipalities,municipal

international associations, and foreign resident support
groups in order to connect these areas, strengthen
collaboration, and provide more effective and efficient
support.

In

particular,

the

Tokyo

Intercultural

Communication Committee has been recognized by the
Ministry of Internal Affairs and Communications as a local
internationalization association that is at the core ofinternational exchange in Tokyo. With the committee
positioned at the center of promoting of intercultural
cohesion in Tokyo, further strengthening of cooperationand collaboration with related organizations and efforts toimprove the system to advance intercultural cohesion will
be a matter requiring immediate attention.

40

３ TOKYO GUIDELINES FOR THE
PROMOTION OF INTERCULTURALCOHESION:

MAKING TOKYO A

LEADING GLOBAL CITY
1)

Key Objective

In order for Tokyo to continue to develop as a worldleading city beyond 2020, it is essential to realize a society
based on a new line of thought for intercultural cohesion inwhich both Japanese and foreign nationals play an active rolein society and support each other. The following key objective
has been established to realize this new intercultural society.
< Key Objective >Embrace diversity and build a city where allresidents can participate and play an active rolein its development and feel safe.

To achieve the society described in the key objective, initiatives will
be advanced based on three policy goals. And to advance these
initiatives, the Tokyo Metropolitan Government will work closely with
the Tokyo International Communication Committee to handle
challenges that go beyond municipal borders and to actively findsolutions to issues difficult for municipalities to address alone. Tokyo
will

also

enhancesupportformunicipalities,

international

associations, foreign resident support organizations and others.

412) Policy Goals
Policy Goal 1
Prepare an environment where both Japanese andforeign residents can play active roles.

Prepare an environment that allows foreign residents ofTokyo to demonstrate their full potential and play activeroles in society, by steadily advancing initiatives such asproviding educational support for children. Also build anenvironment where foreign nationals can play even greaterroles in Tokyo by providing daily living support to foreignbusinesspeople and residents, as well as assistance tointernational students and others in finding jobs, startingup businesses, or other activities. Furthermore, facilitate
the participation of foreign residents in community
activities and volunteering so that they can be involved inlocal society as members of that community.

Policy Goal 2
Enhance support needed for all foreign residents
to live with a sense of reassurance and to enjoy
life more.
Allow all foreign residents of Tokyo to lead lives with asense of reassurance by enhancing provision of information
on daily life, including multilingual information on education,
44
42

health care, and disaster preparedness. Moreover, in addition
to conveying information on sightseeing, the arts, culture,and sports, also enhance opportunities for local interaction sothat foreign residents can lead more enjoyable lives and gain
a sense of fulfillment as members of the Tokyo community.

Policy Goal 3
Raise awareness that respect for diversity andmutual support are indispensable for a global city.

Build a society where Japanese and foreign nationals can liveside by side with an open mind about diverse cultures andvalues stemming from differences in nationality, ethnicity andother backgrounds, by enhancing initiatives encouraging
both Japanese and foreign members of the community tounderstand foreign cultures. In addition, cultivate awarenessamong Japanese and foreign residents of helping each other
based

on

mutualrespect

andunderstandingof

responsibilities, by promoting initiatives to help the foreign
residents of Tokyo better understand Japanese customs andrules.

45
43

3) Policy Implementation Scheme
In order to resolve challenges facing the realization of asociety that values intercultural cohesion, more effective
initiatives tailored to various needs will be implemented byorganizing the policies and measures based on the key
objective

andpolicygoals,

andbyconsideringcharacteristics of Tokyo.
Key Objective
Embrace diversity and build a city where all residents canparticipate and play an active role in its development and feelsafe.

Policy Goal １
Prepare an environment where both Japanese andforeign residents can play active roles.

Policy Goal 2
Enhance support needed for all foreign residents tolive with a sense of reassurance and to enjoy life
more.

Policy Goal ３
Raise awareness that respect for diversity andmutual support are indispensable for a global city.

44

the

Examples of Policy Implementation● Help raise the next generation of foreign residents.
● Enhance support for Japanese language learning.
● Support international students and other foreign nationals in finding
employment and starting up companies.
● Support foreign companies expanding their business to Tokyo.
● Promote participation by foreign residents in community activities,
volunteering, etc.

< Support for added peace of mind in daily life>● Centralize information on topics such as daily life and disaster
preparedness.
● Enhance multilingual capabilities at facilities such as medical
institutions.
● Improve multilingual signage and displays in transit systems, etc.
● Provide information on educational institutions offering programs
equivalent to those found in the foreign residentʼs home country.
● Support municipalities in enhancing their measures to support foreign
residents.
< Support to enrich the lives of foreign residents>● Provide information that will make life in Tokyo more enjoyable.
● Promote participation by foreign residents in community activities,
volunteering, etc.

● Foster awareness of accepting diverse values.
● Cultivate awareness of respect for human rights and promote this effort

in Japan and abroad.
● Enhance education to cultivate globally-proficient talent.
● Increase opportunities for interactions between Japanese and foreign

nationals.

45

Examples of Policy Implementation

Policy Goal １
Prepare an environment where both Japanese andforeign residents can play active roles.
● Help raise the next generation of foreign residents
By receiving a proper education in Tokyo, the children of
foreign nationals will become the next generation of
globally-proficient talent. Extending essential support tothis generation now could be very valuable in years to come.
To this end, work will be undertaken to enhance education
for the children of foreign nationals at public schools. This
will include studying ways to increase the number of foreign
residents accepted at metropolitan high schools, such as
opening a new metropolitan international high school, andholding instructor training programs for the teaching ofJapanese.
In addition, support will be given to foreign resident
support organizations and other groups engaging in efforts
that will help raise global talent for the future, such asproviding children of foreign nationality or those who haveJapanese nationality but have roots abroad, with assistancein acquiring the Japanese language skills necessary forstudies to advance to high school or university.
● Enhance support for Japanese language learning
The biggest obstacle in the lives of foreign nationals is theJapanese language. Increasing opportunities for them to46

learn Japanese will expand situations in which they can
actively participate in society and will also help cultivate
supporters of the community. In Tokyo, the municipalities,
local

international

associations,andforeignresident

support organizations hold Japanese language classes
tailored to the needs of each respective area and student
capabilities. By more widely publicizing these Japaneseclasses through a multilingual portal site and making thisinformation easily accessible, foreign residents will be given
more opportunities to learn Japanese.
● Support international students and other foreign nationals
in finding employment and starting up companies
International students and other foreign nationals whowish to work in Tokyo are anticipated to be talent
contributing to globalization or innovation from reasons
includingtheirconnectionswithdifferent
theirculturalhomebackgroundcountry.

andTherefore,

international students and other foreign nationals whowant to work in Tokyo will be provided with knowledge on
how to find employment or start a business. Support also
will be given for smoother employment placement by,among others, introducing companies and organizations to
successful cases of globalization brought about by foreign
employees as well as examples of problems that havearisen due to differences in culture and customs.

49
47

● Support foreign companies expanding their business toTokyo
In cooperation with organizations such as the Business
Development Center TOKYO, businesspeople of foreigncompanies thinking of developing business in Tokyo andtheir families will be introduced to life in Tokyo, including
social rules and manners, via multilingual websites andbrochures to help them move to Tokyo and start their lives
here.
● Promote participation by foreign residents in community
activities, volunteering, etc.
Awareness of participation in the community by foreign
residents will be cultivated, and a richer environment will
be built where foreign residents can actively participate
alongside Japanese residents. Specifically, through newpartnerships with companies, universities, and others,
information on volunteer activities where foreign residents
can employ their capabilities such as interpreting ortranslating, and those that do not require proficiency inJapanese, will be actively provided to foreign residents toencourage their participation. In addition, efforts to build
an environment where foreign residents can participate as
membersofthecollaboration

withcommunity
the

will

be

municipalities

advanced
and

in

other

organizations, such as promoting their participation in town
and neighborhood associations.

48

Policy Goal 2
Enhance support needed for all foreign residents to livewith a sense of reassurance and to enjoy life more.
< Support for added peace of mind in daily life >● Centralize information on topics such as daily life anddisaster preparedness
For foreign nationals to lead safe and secure lives, anenvironment where they can easily obtain information
related to daily life and disaster preparedness is crucial. A
portalsite

that

consolidates

information

provided

separately by the Tokyo Metropolitan Government andmunicipalities on matters such as daily life and disaster
preparedness will be launched to build an environment
where necessary information can be easily acquired. With
respect to language, in addition to advancing measures tomake the information available in as many languages as
possible, starting with the languages used most by foreign
residents of Tokyo, provision of information in “simple
Japanese” will also be advanced. In cooperation with themunicipalities,

information

such

as

socialrules

andmanners will also be provided to foreign nationals starting
life in Tokyo.
●

Enhance multilingual capabilities at facilities such as
medical institutions
To ensure peace of mind for foreign nationals living inTokyo, it is essential that they are able to obtain information
related to medical care. Along with enhancing multilingual49

information on medical institutions and other such services,a system that provides easy access to information will also
be established. Consultation in multiple languages at Tokyo
metropolitan hospitals and other facilities will be provided
to create a more substantial environment for foreign
nationals to receive treatment with peace of mind.
● Improve multilingual signage and displays in transit
systems, etc.
To promote and enhance signage, displays and othermultilingual

support,

which

are

indispensablein

preparations for the Tokyo 2020 Olympic and Paralympic
Games, a council was established for cooperation andcollaboration among the relevant national agencies, local
governments and organizations, private organizations andcompanies, and others. Based on initiatives set forth by the
council, Tokyo will also enhance multilingual support by
improving signage and displays, including those used inpublic transportation.
● Provide information on educational institutions offering
programs equivalent to those found in the foreign
residentʼs home country
Children of expats stationed in Japan for a short time whoare educated at Japanese public schools sometimes facehurdles in continuing their education upon return to theirhome country due to issues such as differences between
the education systems. More information on academic
institutions such as international schools will be provided toforeign nationals who wish to receive an education50

equivalent to that of their home country.

● Support municipalities in enhancing their measures tosupport foreign residents
The situation of foreign residents varies by municipality,anddifferences

exist

in

the

contentofmeasures

implemented respectively by the municipalities. The Tokyo
Metropolitan Government will play a central role inenhancing measures to support foreign residents of themetropolis though efforts such as information sharing
between the municipalities and studying support measuresthat incorporate foreign resident perspectives. In addition,
Tokyo will also proceed with the development of staff,
centering on municipality office staff, who will be able todeal with and advance collaboration and cooperation withthe government authorities, foreign resident support
groups, and other various organizations to address thediverse issues arising from language, cultural and other
differences.
< Support to enrich the lives of foreign residents >● Provide information that will make life in Tokyo moreenjoyable
For foreign residents to play an active role in Tokyo, it isalso important that they are able to enjoy life here. This will
also link to building fans of Tokyo who can introduce theattractions of Tokyo to people in their home country. To that
end, an environment that allows foreign residents to leadmore comfortable and fulfilling lives will be prepared51

through central provision of information on tourism, thearts and culture, sports and other topics that make life in
Tokyo

more

enjoyable

by

the

Tokyo

International

Communication Committee.
● Promote participation by foreign residents in community
activities, volunteering, etc. <reposted>
Awareness of participation in the community by foreign
residents will be cultivated, and a richer environment will
be built where foreign residents can actively participate
alongside Japanese residents. Specifically, through newpartnerships with companies, universities, and others,
information on volunteer activities where foreign residents
can employ their capabilities such as interpreting ortranslating, as well as activities that do not require
proficiency in Japanese, will be actively provided to foreign
residents to encourage their participation. In addition,
efforts to build an environment where foreign residents canparticipate as members of the community will be advancedincollaboration

with

the

municipalities

and

other

organizations, such as promoting their participation in town
and neighborhood associations.

52Policy Goal ３
Raise awareness that respect for diversity and mutual
support are indispensable for a global city.
● Foster awareness of accepting diverse values
A lack of understanding by Japanese and foreign residentsof each otherʼs cultures and customs could generate
misunderstandings and prejudiced views, causing bothparties to become unable to accept each otherʼs values.
While taking in the opinions of experts and others, studies
will be advanced on tools and content that can widely
introduce national characteristics and religious beliefs, andvarious

culturesandcustomsthatrequirespecialconsideration. For foreign nationals starting life in Japan,
the Internet, brochures, and other mediums will be used to
explain Japanese culture and customs and facilitate proper
understanding. In addition, more substantial support will
be provided to foreign resident support groups andinternational associations that engage in raising awarenessamong Tokyo residents through the hosting of forums andsymposiums.
● Cultivate awareness of respect for human rights andpromote this effort in Japan and abroad
To build a society where Japanese and foreign nationals
respect each other, it will be necessary to take initiatives toeradicate all forms of discrimination arising from differencessuch as race, color, and ethnicity. Along with mounting alarge-scale campaign based on the Tokyo Metropolitan
53

Guidelines for Promotion of Human Rights Policies, centers
for activities to educate the public will be strengthened to
improvethedisseminationof

information.

Also,

in

preparation for the Tokyo 2020 Olympic and Paralympic
Games, Tokyoʼs initiatives for respect of human rights will
also be made known within Japan and overseas.
● Enhance education to cultivate globally-proficient talent
School education efforts from the compulsory educationlevel must be taken to cultivate individuals who can work
alongside people of different cultural backgrounds and play
an active role on the global stage.
In

line

with

the

Tokyo

Metropolitan

Governmentʼs

Fundamental Principles for Educational Policies, measures
will be promoted throughout elementary, junior high, andhigh school, including English education that enables
children to acquire English listening, speaking, reading, andwriting skills; programs to experience and understandJapanese tradition and culture; and initiatives to develop
communication skills through interaction with foreign
nationals such as the English language instructors of the
JET program. Through such efforts, people who can play anactive role on the global stage, with practical English skills
that can be used in the world, an awareness and pride inbeing a Japanese and a rich cosmopolitan outlook will be
nurtured.

54

● Increase opportunities for interaction between Japaneseand foreign nationals
To foster an awareness that Japanese and foreign
membersofthecommunity

supporteach

other,

cooperation and collaboration will be promoted among
diverse actors including embassies, private organizations
such as companies and universities, municipalities, andinternational associations, and platforms for interculturaland intergenerational exchanges between Japanese andforeign residents will be created. Specifically, in addition to
traditional forms of exchange, pioneering initiatives thathave been producing results will be expanded. These
includeexchange

eventsthat

Japaneseandforeignresidents have worked on together from the planning stage
to operation.
Furthermore, support will be given to arts groups andother such organizations that engage in furthering thesocial participation and understanding of foreign residents
through initiatives including expansion of opportunities forforeign residents to experience or participate in activities
related to the arts and culture554) Role of Each Actor in an Intercultural Society
In order to steadily implement measures to promoteintercultural

cohesion,government,

the

it

Tokyo

is

indispensable

International

that

the

Communication

Committee, local international associations, foreign resident
support organizations, and other actors strive to cooperatewith each other while taking into account their respectiveroles. To this end, the division of roles between the actors
will be clarified and a system to promote initiatives will be
developed.
① The roles of the government, Tokyo International
Communication
associations,

Committee,
andforeign

local

international

resident

supportorganizations, and developing the foundation topromote activities
A. Roles of the actors● Tokyo Metropolitan Government
As a regional government, the Tokyo Metropolitan
Government

will

supporttheinitiatives

of

the

municipalities and along with engaging in matters such as
issues difficult for the municipalities to handle alone, will
promote collaboration and cooperation between thevarious actors in Tokyo that are involved in intercultural
cohesion.
- Collect information on initiatives concerning intercultural
cohesion implemented by the various actors and build asystem that permits those who need this information to56

easily obtain it.
-

Conductbroad

educational

programstospreadawareness of intercultural cohesion among Tokyo
residents as a whole.
- Train specialized personnel in municipalities who cancomprehensively coordinate over a wide variety of areas
such as education, health care, welfare, labor, anddisaster preparedness in order to provide detailed
support for the diverse needs of local foreign residents.
- Information on matters such as the needs of foreign
nationals will be collected from embassies and otherforeign representative offices, foreign resident support
organizations, experts, and others, and reflected inpolicies.
● Tokyo International Communication Committee
For the Tokyo International Communication Committee
to continue to play a central role in promoting intercultural
cohesion and international exchange in Tokyo, it muststrengthen support and coordination functions for the
programs conducted by international associations andforeign resident support organizations, and also work toenhance their networks and promote their cooperation.
The

Committeeʼs

structural

foundation

will

be

strengthened to steadily advance these initiatives andrealize a society that values intercultural cohesion.

57

● Municipalities
Municipalities are the government entities most closely incontact with foreign residents, and are the most important
actors in building communities that value intercultural
cohesion. It would be desirable for the municipality, as theentity providing direct support to its foreign residents to
preparesystemsthatcanappropriately

deliveradministrative services based on their current situation in
the community, and advance the formation of a community
where foreign nationals can, together with Japanese
residents, participate and play an active role.
● International associations
It would be desirable for the international associations ofTokyoʼs special wards and cities to work with the Tokyo
Metropolitan Government, municipalities, and the Tokyo
International

Communication

Committee,

and

push

forward initiatives tailored to the issues and needs of each
community, including provision of information in multiple
languages, consultations, and activities for interaction
between foreign and Japanese residents, in order toadvance international cohesion.
● NPOs and other organizations that support foreign
residents
Privatesupportgroupsthat

promoteintercultural

cohesion not only employ their respective expertise toprovide detailed support to foreign residents concerning
issues they face, but also aggressively roll out initiatives
such

as

those

encouraging
58

their

participationincommunity activities. Going forward, it is anticipated thatthese organizations will take on the role of supporting
more active participation in society by both foreign andJapanese residents together.
● Central government
Along with advancing the establishment of systems forthe formation of a society that values intercultural
cohesion,

promotingtheacceptanceofskilledprofessionals and international students, and working forproper immigration control for the realization of a safe andsecure society, the central government is expected towork closely with the related agencies to provide
comprehensive support for the various intercultural
cohesion measures implemented by local governments.

B. Developing a foundation● Building a system for information provision andconsultation
The Tokyo Intercultural Communication Committee,
which is central to the promotion of intercultural cohesionin the metropolis, will be restructured, and, along withestablishingsystemsforinformation

provisionandconsultation, comprehensive support for the lives offoreign nationals in Tokyo will be enhanced throughinformation

sharingandcooperation

organizations

such

as

municipalities,

associations, and support groups.

59

with

relevant

international●Cultivate personnel for the establishment of afoundation to provide total support
In order to create an environment where foreign

nationals can play active and responsible roles in thecommunity, it is essential to address in detail the diverse
needs of the communityʼs foreign residents. Accordingly,
the

Tokyo

Metropolitan

Government

and

Tokyo

International Communication Committee will take the leadin cultivating specialized personnel in municipalities,
international associations and others who will be capableof comprehensively coordinating various matters in themunicipalities including support in a wide range of areas
such as education, health care, welfare, labor, anddisaster preparedness, and cooperation with variousorganizations.

② Promotion
participationofintercultural

by

all,

includingcohesionthroughTokyo

residents,

companies, and academic institutions
In addition to the aforementioned entities, there are roles
to be played by Tokyo residents, companies, and academic
institutions. United efforts by these actors are needed
throughout Tokyo to realize a society that values intercultural
cohesion.
○ Tokyo residents
It is crucial for Tokyo, which will host the Tokyo 2020
60

Olympic and Paralympic Games, to be a city thatembraces and respects diverse cultures, values, andcustoms. To that end, it would be desirable for all Tokyo
residents, both foreign and Japanese, to be tolerant andaccepting of diversity resulting from differences innationality, ethnicity, religion, and other factors. It would
also be desirable for foreign residents of Tokyo to live withan understanding of Japanese culture and customs, aswell as social rules and manners, and as importantmembers supporting local society, join Japanese residents
in playing active roles in the community, with both parties
helping and supporting each other.
○ Companies
Recognizing that diversity generates new creativity andleads to innovation, it is hoped that companies employ
and train international students and long-term foreign
residents as important talent who will support company
activities in the same way as Japanese employees, andbuild an environment that respects the culture andcustoms of foreign employees, helps foreign employees tobecome acclimatized, and allows them to demonstrate
their capabilities. It is hoped that companies widely informsociety of the initiatives they are taking to promote theactive participation of foreign nationals and work withentities such as governments and universities to promote
the development of a diverse society.
○

Universities and other academic and research

institutions.
Along with promoting the acceptance of international61

students by making universities more attractive throughmeans such as advancing globalization and raising thelevel of education and research, it is hoped that these
institutions

furtherenhancepropersupporttointernational students for their education and research,and daily lives. It would also be desirable for them toactively

supportemployment

ininternational

students

infindingTokyo

graduating

throughafter

cooperation with governments and companies. Moreover,
it is hoped that these institutions strive to cultivate people
who will advance the realization of intercultural cohesion
by collaborating with communities and companies to,among others, promote the participation of international
students in the local community and secure opportunities
for interaction.
○ Schools (elementary, junior high, and high schools)
It is hoped that schools enhance proper language andstudy

supporttochildren

who

lack

sufficientunderstanding of Japanese, based on awareness that they
will help support Tokyoʼs future development. It is also
hoped that schools foster an inclusive mindset throughinitiatives such as the Olympic and Paralympic educational
program and cultivate globally-proficient talent capable ofbuilding a society where Japanese and foreign nationals
can actively participate together.

62

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64

Tokyo Guidelines
for the Promotion of Intercultural Cohesion
Published on March, 2016
Edited and issued by: Community Activity Promotion Section, Citizenʼs Affaires
Division, Bureau of Citizens and Cultural Affairs, Tokyo Metropolitan Government
2-8-1 Nishi-Shinjuku, Shinjuku-ku, Tokyo 163-8001 Japan
Tel: +81(3)5320-7738
Printed by: Shinso Printing Co., Ltd.
Print Number: 27(85)

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