Hate Speech in Japan: The Possibility of a Non-Regulatory Approach ed. by Shinji Higaki and Yuji Nasu

Reviewed by: Hate Speech in Japan: The Possibility of a Non-Regulatory Approach ed. by Shinji Higaki and Yuji Nasu Celeste L. Arrington (bio) Hate Speech in Japan: The Possibility of a Non-Regulatory Approach. Edited by Shinji Higaki and Yuji Nasu. Cambridge University Press, 2021. xviii, 506 pages. $125.00, cloth; $100.00, E-book. Hate Speech in Japan is an information-packed new book about a significant recent development in Japanese society: hate speech. Public demonstrations [End Page 435] and online comments against ethnic Korean residents of Japan (zainichi Koreans) attracted media attention within Japan and worldwide a decade ago and spurred international criticism. Particularly shocking was the targeting of a Korean primary school in Kyoto by the Zaitokukai (Zainichi Tokken o Yurusanai Shimin no Kai, or Citizens Association against Special Privileges for Resident Koreans). This book analyzes such hate speech and its relationship to older forms of discrimination against Japan's Korean and outcaste (burakumin) communities. It also details and assesses the diverse recent efforts to address the problem of hate speech, including via new national legislation, subnational government ordinances and guidelines, administrative measures, and court rulings. Through both formal legal analysis and nuanced examinations of policy implementation, this book's 20 chapters significantly advance scholarship about regulatory styles, law and social change, and the balance between freedom of expression and the right to human dignity in Japan. The term "hate speech" (heito supiichi) gained currency in Japan in the early 2010s, and new legislation to address the problem was enacted within just a few years. The 2016 Hate Speech Elimination Act (HSEA) defines hate speech as "unfair discriminatory speech and behavior against persons originating from outside Japan" or "their descendants who are lawfully residing in Japan." This narrow definition reflects what Erin Chung has called "rights hierarchies" in the South Korean context; noncitizens have different human rights protections depending on their visa category.1 And it excludes Japanese minorities like burakumin, Ainu, and Okinawans (for political debates about the definition, see pp. 233–36). Many of this book's contributors document discrimination against burakumin and zainichi Koreans long before the term "hate speech" began circulating and grapple with why zainichi Koreans were targeted most recently (chapter 16). This volume is empirically rich, drawing on formal legal analyses, comparisons of legal scholars' arguments, media and online content analyses, and interviews. For example, chapter 12 uses interview quotes to expose the traumatic impacts of hate speech on members of Kyoto's Korean community. And the social psychological discussion of discrimination, prejudice, and stereotypes illuminates phenomena adjacent to hate speech and the hateful Internet content analyzed in chapter 17. Despite such evidence, the Japanese government reported to the UN Committee on the Elimination of Racial Discrimination as recently as 2013 that it "does not believe that, in present-day Japan, racist thoughts are disseminated and racial discrimination is incited to the extent that … legislation to impose punishment … [End Page 436] should be considered even at the risk of unduly stifling legitimate speech" (p. 66, note 30). Indeed, Japan long resisted regulating discriminatory speech, which led some of this book's contributors to worry that Japanese people were unaware of hate speech until the Zaitokukai demonstrations (pp. 222, 239–40). This volume persuasively documents, in a great service to scholars without Japanese-language abilities, one reason for the lack of hate speech regulations: Japanese legal scholars tended to privilege freedom of expression, usually citing the U.S. model rather than the German approach, which emphasizes human dignity (chapters 1 and 15, pp. 242–43, 415–21). Part 2 of the volume (chapters 7–9) details how few legal tools existed for addressing hate speech and racial discrimination in Japan. Criminal and civil claims can be made regarding defamation or insult, but such speech must be targeted against specific individuals or organizations. Since hate speech generally targets broader categories of people, it falls outside existing criminal and tort frameworks in Japan. The book's contributors conclude that it is unlikely that Japanese courts will recognize racist speech and discrimination as a new type of tort anytime soon (p. 204). Ryangok Ku summarizes the weaknesses of Japan's legal and institutional frameworks...