Japanese Refugee Policy: Is Japan fulfilling its obligation under the 1951 Convention or Not? B14457os Sonoko Otani

(Nikkei Shinbun 2016)

Japanese Refugee Policy: Is Japan fulfilling its obligation under the 1951 Convention or Not?

OUTLINE Introduction Defining Terms Evidence for fulfilling its obligation Evidence for Not fulfilling its obligation Analysis Conclusion

OUTLINE Introduction Defining Terms Evidence for fulfilling its obligation Evidence for Not fulfilling its obligation Analysis Conclusion

2. Defining Terms Title Japanese Refugee Policy: Is Japan fulfilling its obligation under the 1951 Convention or Not?

2. Defining Terms Refugee They have fled from own countries and cannot or are unwilling to return, because they have “well- founded fear of being persecuted for their race, religion, nationality, membership of a particular social group or political opinion” (UNHCR 2011). →based on Convention Relating to the Status of Refugees (1951). Title Japanese Refugee Policy: Is Japan fulfilling its obligation under the 1951 Convention or Not?

Japanese Refugee Policy: Is Japan Doing Enough or not? 2. Defining Terms In 1981, the Japanese Government signed to… the Convention Relating to the Status of Refugees (1951) （難民の地位に関する条約） Title Japanese Refugee Policy: Is Japan fulfilling its obligation under the 1951 Convention or Not? Title Japanese Refugee Policy: Is Japan Doing Enough or not? Japan acceded to the Convention Relating to the Status of Refugees on October 3, 1981, and then to the Protocol Relating to the Status of Refugees on January 1, 1982.

In the preamble of this Convention,

In the preamble of this Convention, ”　（中略）難民に対する庇護の付与が特定の国にとって不当に重い負担となる可能性のあること並びに国際的な広がり及び国際的な性格を有すると国際連合が認める問題についての満足すべき解決は国際協力なしには得ることができないことを考慮し、 　　すべての国が、難民問題の社会的及び人道的性格を認識して、この問題が国家間の緊張の原因となることを防止するため可能なすべての措置をとることを希望し、 　国際連合難民高等弁務官が難民の保護について定める国際条約の適用を監督する任務を有していることに留意し、また、各国と国際連合難民高等弁務官との協力により、難民間題を処理するためにとられる措置の効果的な調整が可能となることを認めて、次のとおり協定した。”

In the preamble of this Convention, ”　（中略）難民に対する庇護の付与が特定の国にとって不当に重い負担となる可能性のあること並びに国際的な広がり及び国際的な性格を有すると国際連合が認める問題についての満足すべき解決は国際協力なしには得ることができないことを考慮し、 　　すべての国が、難民問題の社会的及び人道的性格を認識して、この問題が国家間の緊張の原因となることを防止するため可能なすべての措置をとることを希望し、 　国際連合難民高等弁務官が難民の保護について定める国際条約の適用を監督する任務を有していることに留意し、また、各国と国際連合難民高等弁務官との協力により、難民間題を処理するためにとられる措置の効果的な調整が可能となることを認めて、次のとおり協定した。” Sharing the Burdens with Other Countries recognizing the social and humanitarian problem Cooperating with UNHCR Sharing the Burdens with Other Countries recognizing the social and humanitarian nature of the problem the Cooperation with UNHCR

2. Defining Terms Fulfil “ to do or have what is required or necessary ” (Oxford ADVANCED LEANER’S Dictionary 2010) Title Japanese Refugee Policy: Is Japan fulfilling its obligation under the 1951 Convention or Not?

2. Defining Terms Obligation “ something which you must do because you have promised, because of a law, etc” (Oxford ADVANCED LEANER’S Dictionary 2010) Title Japanese Refugee Policy: Is Japan fulfilling its obligation under the 1951 Convention or Not?

Japanese Refugee Policy: Is Japan Doing Enough or not? 2. Defining Terms Title Japanese Refugee Policy: Is Japan fulfilling its obligation under the 1951 Convention or Not? Title Japanese Refugee Policy: Is Japan Doing Enough or not?

2. Defining Terms Sharing the Burdens with Other Countries recognizing the social and humanitarian problem Cooperating with UNHCR Title Japanese Refugee Policy: Is Japan fulfilling its obligation under the 1951 Convention or Not? Title Japanese Refugee Policy: Is Japan Doing Enough or not? Is Japanese Refugee Policy carrying out these three points or not?

OUTLINE Introduction Defining Terms : Refugee, the 1951 Convention, fulfil, Obligation Evidence for fulfilling its obligation Evidence for Not fulfilling its obligation Analysis Conclusion

OUTLINE Introduction Defining Terms : Refugee, the 1951 Convention, fulfil, Obligation Evidence for fulfilling its obligation Evidence for Not fulfilling its obligation Analysis Conclusion

3. Evidence for fulfilling its obligation 3.1 Japanese Funding 3.2 Third Country Resettlement

3. Evidence for fulfilling its obligation 3.1 Japanese Funding 3.2 Third Country Resettlement

3.1 Japanese Funding Japanese Funding for UNHCR Japan has contributed to donor for UNHCR Japan is the third BIGGEST donor country in the world in 2016 http://reporting.unhcr.org/donor-profiles?y=2016

3.1 Japanese Funding Figure1 Source: UNHCR(2016) http://reporting.unhcr.org/donor-profiles?y=2016 Japan was the UNHCR’s third-largest donor country in 2006, with a $75 million (¥8.1 billion) contribution, after being the second-largest donor for eight years through 2005. Source: UNHCR(2016)

3.1 Japanese Funding Japan’s Current Donation In Abe’s speech at the summit led by Obama in 2016… 難民等への人道支援、自立 支援及び受入れ国・コミュニティ支援として、 2016年から3年間で総額28億ドル（２８００億円）規模の 支援を実施します 。 また、日本は、オバマ大統領のイニシアティブ で設立された世界銀行のグローバル危機対応プ ラットフォームへ、総額1億ドル（１００億円）規模の協力を 行うことを表明します。 (MOFA 2016) http://www.mofa.go.jp/mofaj/files/000189801.pdf

3.1 Japanese Funding Japanese Funding for UNHCR Japan’s Current Donation

3.1 Japanese Funding Japanese Funding for UNHCR Sharing the Burdens with Other Countries recognizing the social and humanitarian problem Cooperating with UNHCR Japanese Funding for UNHCR Japan’s Current Donation

3.1 Japanese Funding Japanese Funding for UNHCR Sharing the Burdens with Other Countries recognizing the social and humanitarian problem Cooperating with UNHCR Japanese Funding for UNHCR Japan’s Current Donation

3. Evidence for fulfilling its obligation 3.1 Japanese Funding 3.2 Third Country Resettlement

3.2 Third Country Resettlement 2010 Japan started the third country resettlement program as the first Asian country.

3.2 Third Country Resettlement 第三国定住 Third Country Resettlement: The refugees who have been granted temporary asylum in refugee camps and other locations are transferred to a third country . UNHCR encourages this program 2010 Japan started the third country resettlement program as the first Asian country. 日本語で説明

3.2 Third Country Resettlement (Japanese Case) Accepting 30 people consisting of families 1/year for 3 years in Japan the objects : Myanmar refugees in the Mae La Camp in Thailand the project admited approximately 30 people consisting of families once a year for three years and the objects are Myanmarese refugees in the Mae La Camp in Thailand

3.2 Third Country Resettlement Ministry of Foreign Affairs explains the reasons of starting this program: “Also, the importance of resettlement is emphasized from the view point of burden sharing of refugee issues among the members of international community. In view of these international trends, Japan started to take the admission of Refugees through pilot resettlement project to respond to the refugee issues occurring in the Asia region (MOFA 2013c)” rena

3.2 Third Country Resettlement

3.2 Third Country Resettlement http://www.unhcr.org/news/latest/2010/9/4ca1dbe66/welcome-japan-first-asian-country-joins-unhcrs-resettlement-programme.html

3.2 Third Country Resettlement Johan Cels commented,,, “This marks a new chapter in Japan’s strengthening of its refugee and asylum policies…” “…(Japan is) not only does the country provide generous financial support for refugees in many parts of the world, but now also provides a future for refugees in the country. We very much hope Japan will set an example in resettlement for other Asian countries to follow.” http://www.unhcr.org/news/latest/2010/9/4ca1dbe66/welcome-japan-first-asian-country-joins-unhcrs-resettlement-programme.html

3.2 Third Country Resettlement Accepting Myanmar Refugees The First Asian Country Introducing This Program Highly Praised by UNHCR

3.2 Third Country Resettlement Sharing the Burdens with Other Countries recognizing the social and humanitarian problem Cooperating with UNHCR Accepting Myanmar Refugees The First Asian Country Introducing This Program Highly Praised by UNHCR

3.2 Third Country Resettlement Sharing the Burdens with Other Countries recognizing the social and humanitarian problem Cooperating with UNHCR Accepting Myanmar Refugees The First Asian Country Introducing This Program Highly Praised by UNHCR

3. Evidence for fulfilling its obligation 3.1 Japanese Funding 3.2 Third Country Resettlement

OUTLINE Introduction Defining Terms Evidence for fulfilling its obligation Evidence for Not fulfilling its obligation Analysis Conclusion

4. Evidence for Not fulfilling its obligation 4.1 Low Number Accepted 4.2 Refugees Experience poor conditions in Japan

4. Evidence for Not fulfilling its obligation 4.1 Low Number Accepted 4.2 Refugees Experience poor conditions in Japan

4.1 Low Number Accepted Question : How many applicants for refugee status were there in Japan in 2015? about 7,000 people about 3,000 people about 1,000 people

4.1 Low Number Accepted Question : How many applicants for refugee status were there in Japan in 2015? about 7,000 people about 3,000 people about 1,000 people

4.1 Low Number Accepted 7,596 27 2015 Figure2 https://www.refugee.or.jp/jar/postfile/QA.pdf 法務省入国管理局ウェブサイトを元にJAR作成 27 2015 Source: Japan Association for Refugees (2016)

4.1 Low Number Accepted Figure 3 Source: Japan Association for Refugees (2016)

4.1 Low Number Accepted António Guterre (UNHCR General Assembly) Japan helps too few refugees and the system is “too rigid and too restrictive” (Japan Times 2014). http://www.japantimes.co.jp/news/2014/11/18/national/japan-helps-too-few-refugees-unhcr-chief/#.WC0A_Hd3xxg

4.1 Low Number Accepted The Rate of Refugee Recognition UNHCR Comment

4.1 Low Number Accepted The Rate of Refugee Recognition UNHCR Comment Sharing the Burdens with Other Countries recognizing the social and humanitarian problem Cooperating with UNHCR The Rate of Refugee Recognition UNHCR Comment

4.1 Low Number Accepted The Rate of Refugee Recognition UNHCR Comment Sharing the Burdens with Other Countries recognizing the social and humanitarian problem the Cooperation with UNHCR The Rate of Refugee Recognition UNHCR Comment

4. Evidence for Not fulfilling its obligation 4.1 Low Number Accepted 4.2 Refugees Experience poor conditions in Japan

4.2 Refugees Experience poor conditions in Japan

Figure 4 Source: JAR (2016)

Figure 4 Not every applicants : strict screening Source: JAR (2016)

4.2 Bad Life Situation Figure 4 Not every applicants : strict screening難民への公的支援は、年間300から400人程度であり、難民申請者の1割に満たない人しか受給できない予算措置である。そのため、難民申請中に、就労することが前提となった制度設計であるといえる。  Read more at: https://www.refugee.or.jp/jar/release/2015/02/13-1830.shtml Copyright © Japan Association for Refugees Official Support by Refugee assistance Head Quarters (RHQ) → Financial Support for about 1 year for living expenses, rent of accommodation, medical expenses, ect… Source: JAR (2016)

4.2 Bad Life Situation Figure 4 Under 12 year- old: 750 yen / day Over 12 year-old : 1500 yen / day (source: 日本弁護士連合会人権擁護委員会編『難民認定実務マニュアル』現代人文社,2006) Not every applicants : strict screening Official Support by Refugee assistance Head Quarters (RHQ) → Financial Support for about 1 year for living expenses, rent of accommodation, medical expenses, ect… Source: JAR (2016)

2-3 months without official support 4.2 Bad Life Situation Figure 4 Not every applicants : strict screening Screening Term for 2-3 months without official support Homeless

Survival Guide Made by JAR (NPO難民支援協会)

Survival Guide Made by JAR (NPO難民支援協会)

4.2 Refugees Experience poor conditions in Japan UNHCR(2015) suggested... 日本が加入している難民条約のもとに生じる義務を明確に規定し、 その一端として 難民認定申請者が日本の国境(空港や港)あるいは領域内で迫害からの保護を求める意思を明確にした時点から、必要とされる支援を国家が提供するという責任を確認 するべき。 難民認定手続中は、在留資格に関わらず必要な経済的、さらに衣食住および医療を 含む基本的なニーズが満たされるように、現行の難民認定申請者への支援に関する 枠組みが見直されること。 Source: UNHCR『日本と世界における難民・国内避難民 ・無国籍者に関する問題について(2015年7月)』

4.2 Refugees Experience poor conditions in Japan Risk of Becoming Homeless UNHCR suggestion

4.2 Refugees Experience poor conditions in Japan Sharing the Burdens with Other Countries recognizing the social and humanitarian problem the Cooperation with UNHCR Risk of Becoming Homeless UNHCR suggestion

4.2 Refugees Experience poor conditions in Japan Sharing the Burdens with Other Countries recognizing the social and humanitarian problem the Cooperation with UNHCR Risk of Becoming Homeless UNHCR suggestion

4. Evidence for Not fulfilling its obligation 4.1 Low Number Accepted 4.2 Refugees Experience poor conditions in Japan

OUTLINE Introduction Defining Terms Evidence for fulfilling its obligation Evidence for Not fulfilling its obligation Analysis Conclusion

OUTLINE Introduction Defining Terms Evidence for fulfilling its obligation Evidence for Not fulfilling its obligation Analysis Conclusion

5. Analysis 3.1 Japanese Funding 3.2 Third Country Resettlement 4.1 Low Number Accepted 4.2 Refugees Experience poor conditions in Japan

5. Analysis for 3.1 Japanese Funding for UNHCR Sharing the Burdens with Other Countries recognizing the social and humanitarian problem Cooperating with UNHCR Japanese Funding for UNHCR Japan’s Current Donation Mofa praised itself

5. Analysis for 3.1 >4.2 Refugees Experience poor conditions in Japan Takamatsu (2012) said... Japanese Government has inconsistency (矛盾) in terms of external refugee policy and internal refugee policy.

5. Analysis 3.1 Japanese Funding △ 3.2 Third Country Resettlement 4.1 Low Number Accepted 4.2 Refugees Experience poor conditions in Japan

5. Analysis for 3.2 Accepting Myanmar Refugees Sharing the Burdens with Other Countries recognizing the social and humanitarian problem Cooperating with UNHCR Accepting Myanmar Refugees The First Asian Country Introducing This Program Highly Praised by UNHCR

5. Analysis for 3.2 (Japanese Case) Accepting 30 people consisting of families 1/year for 3 years in Japan the objects : Myanmar refugees the project admited approximately 30 people consisting of families once a year for three years and the objects are Myanmarese refugees in the Mae La Camp in Thailand 5 families (27 people) 4 families (18 people) 2 families (9 people) (Yomiuri Shinbun 2012)

5. Analysis for 3.2 (The first group of Resettlement Program case ) Two families said the working condition was longer-hour and harder than ‘training’ (10 hours/day and more than 60 hours /week), differed from what they were explained beforehand. 　 (Watanabe 2011:2, JAR 2011) 日本行きの希望者が減少する背景には、過去の移住者の生活が言 葉の壁や不慣れな仕事などで、必ずしもうまくいっていないこと がある。 　(Yomiuri Shinbun 2012) In the first group of resettlement program, all five families had a Vocational Training in agricultural job. those conditions made the first group of refugees frustrated and finally they said they want to go back to refugee camp (JAR 2011).

5. Analysis 3.1 Japanese Funding △ 3.2 Third Country Resettlement △ 4.1 Low Number Accepted 4.2 Refugees Experience poor conditions in Japan

5. Analysis for 4.1 The Rate of Refugee Recognition UNHCR Comment Sharing the Burdens with Other Countries recognizing the social and humanitarian problem the Cooperation with UNHCR The Rate of Refugee Recognition UNHCR Comment

5. Analysis for 4.1 Figure2 あくま で本人の個別事情や出身国の事情に照らして個々に審査した結果であると する法務省の説明に対し,各方面から,法務省の審査が結果的に厳格に過 ぎることに要因があるとし,難民認定手続の公平性・透明性に問題がある のではないかとの指摘がなされているところである。

5. Analysis for 4.1 False & Same Applicants http://www.moj.go.jp/content/001130133.pdf

5. Analysis for 4.1 False & Same Applicants False Applicants : Aliens claiming refugee status on the basis of situations that are not listed in the Refugee Convention 就労や定住目的による日本 での滞在継続を意図して難民条約上の迫害理由に該当しない事情を申し立 てる案件,難民認定を求めて同じ事情を繰り返し主張する複数回申請案件, さらには退去強制令書の発付を受けた者が単に送還を免れようとするため の手段として申請を利用する案件などが見受けられる 平成26年12月 第6次出入国管理政策懇談会・ 難民認定制度に関する専門部会 Source: 第6次出入国管理政策懇談会・ 難民認定制度に関する専門部会 (2014)

Just for Jobs or Residents in Japan 5. Analysis for 4.1 Just for Jobs or Residents in Japan False & Same Applicants False Applicants : Aliens claiming refugee status on the basis of situations that are not listed in the Refugee Convention Same Applicants : Aliens repeatedly applying for refugee status on the basis of situations for which their application was previously denied 就労や定住目的による日本 での滞在継続を意図して難民条約上の迫害理由に該当しない事情を申し立 てる案件,難民認定を求めて同じ事情を繰り返し主張する複数回申請案件, さらには退去強制令書の発付を受けた者が単に送還を免れようとするため の手段として申請を利用する案件などが見受けられる Refugee They have fled from own countries and cannot or are unwilling to return, because they have “well- founded fear of being persecuted for their race, religion, nationality, membership of a particular social group or political opinion” (UNHCR 2011). Source: 第6次出入国管理政策懇談会・ 難民認定制度に関する専門部会(2014)

(Yomiuri Shinbun 2015)

5. Analysis for 4.1 False & Same Applicants Same Applicants : Aliens repeatedly applying for refugee status on the basis of situations for which their application was previously denied 就労や定住目的による日本 での滞在継続を意図して難民条約上の迫害理由に該当しない事情を申し立 てる案件,難民認定を求めて同じ事情を繰り返し主張する複数回申請案件, さらには退去強制令書の発付を受けた者が単に送還を免れようとするため の手段として申請を利用する案件などが見受けられる Immigration Bureau of Japan (入国管理局) said... 申請者全体の約１９％に当たる１，４２５人が，過去に難民認定申請を行ったことがある(2015) Source: 第6次出入国管理政策懇談会・ 難民認定制度に関する専門部会(2014)

5. Analysis for 4.1 False & Same Applicants But... Japanese government does not disclose all information regarding the determination process. Even UNHCR does not have full access to such information normally granted to the agency in other industrialized　countries (Migration Policy Institute 2015) the Japanese government does not disclose all information to external parties regarding the determination process. Even UNHCR does not have full access to such information, as is normally granted to the agency in other industrialized countries with established refugee status determination systems. http://www.migrationpolicy.org/article/open-wallet-closed-doors-exploring-japans-low-acceptance-asylum-seekers

5. Analysis 3.1 Japanese Funding △ 3.2 Third Country Resettlement △ 4.1 Low Number Accepted △ 4.2 Refugees Experience poor conditions in Japan

5. Analysis for 4.2 Risk of Becoming Homeless UNHCR suggestion Sharing the Burdens with Other Countries recognizing the social and humanitarian problem the Cooperation with UNHCR Risk of Becoming Homeless UNHCR suggestion

5. Analysis for 4.2 The Japanese Government entrust a refugee support to Refuge Assistance HeadQuarters (RHQ) (MOFA 2016)

5. Analysis for 4.2 Assistance for Refugees to Promote Settlement A. Japanese Language Education Course 572 units (1 unit = 45 minutes) B. Guidance for Japanese Life 120 units (1 unit = 45 minutes) C. Vocational Counseling Service Career Counseling and Employment Assistance Japanese language education focusing on basic communication skills such as reading, writing, listening and speaking is provided. Knowledge of social systems in Japan, such as social insurance system, taxation system, etc. is provided. Career Counseling and Employment Assistance are provided to those who look for a job by job counselors in the same way as the services provided by public employment offices. Source: RHQ (2016)

5. Analysis for 4.2 But ... These support are not the top priority ↓ food/ clothing/ shelter 難民への公的支援は、年間300から400人程度であり、難民申請者の1割に満たない人しか受給できない予算措置である。そのため、難民申請中に、就労することが前提となった制度設計であるといえる。  Read more at: https://www.refugee.or.jp/jar/release/2015/02/13-1830.shtml Copyright © Japan Association for Refugees The refugee applicants’ risk of becoming homeless has still remained.

5. Analysis 3.1 Japanese Funding △ 3.2 Third Country Resettlement △ 4.1 Low Number Accepted △ 4.2 Refugees Experience poor conditions in Japan ◯

OUTLINE Introduction Defining Terms Evidence for fulfilling its obligation Evidence for Not fulfilling its obligation Analysis Conclusion

6. Conclusion 3.1 Japanese Funding △ 3.2 Third Country Resettlement △ 4.1 Low Number Accepted △ 4.2 Refugees Experience poor conditions in Japan ◯

6. Conclusion The answer is that... Japan is not fulfilling its obligation under the 1951 Convention Sharing the Burdens with Other Countries recognizing the social and humanitarian problem Cooperating with UNHCR

OUTLINE Introduction Defining Terms Evidence for fulfilling its obligation Evidence for Not fulfilling its obligation Analysis Conclusion

OUTLINE Introduction Defining Terms Evidence for fulfilling its obligation Evidence for Not fulfilling its obligation Analysis Conclusion

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