Policy Forum: Global Approaches to Plurilingual Education
28-29 June 2004, Council of Europe, Strasbourg
Foreign Language Education in Japan:
A Japanese Perspective
Satoshi HASHIMOTO
Graduate School of International Media and Communication
Hokkaido University (Sapporo/JAPAN)
satoshi@ilcs.hokudai.ac.jp
Summary
It is commonly perceived that the Japanese are poor communicators in foreign languages.
They rank low in international English proficiency tests. Generally speaking, Japanese
university graduates need an additional two years of intensive study to attain a
reasonable ability in English.
In the new environment of economic depression and globalised business, proficiency in
English is seen as vital for most Japanese. This is reflected in the current English
language teaching boom in Japan. The Ministry of Education has also produced a long
term action plan to raise the level of English in Japan. Though it will take a long time,
English language teaching in Japan is finally headed in the right direction.
In contrast to the English boom, however, the status of other modern European languages
in Japan is in decline. One reason for this is the raised interest in other Asian languages,
but the biggest reason is the de-emphasis on learning a second foreign language at third
level.
For this reason, the language policies of the Council of Europe can provide a new model for
the teaching of European languages in Japan. Implementing this model could help lead to
a revival of language learning, particularly modern European languages, in Japan.
1. The Standard of English in Japan: Myth or Reality?

The Lack of Ability in English by the Japanese

Comparing International Standards: TOEFL and TOEIC

Standard of English at Third Educational Level
2. Japanese People under Pressure

Should English Be an Official Language of Japan?

The English Language Industry Boom

Language Education Policy: A New Approach by the Ministry of Education
3. Teaching Modern European Languages in Japan

The Current Situation: Modern European Languages in Danger

Factors Contributing to the Decline

The Language Policy of the Council of Europe: a Good Model for Japan?
1
4. Conclusion
2
Table 1
Levels of the Major International English Proficiency Tests
TOEFL
Test of English
as a Foreign
Language
TOEIC
STEP
(Eiken)
Test of English The Society for
for
Testing
International
English
Communication
Proficiency
IELTS
Cambridge
International
English
Language
Testing System
University of
Cambridge
Local
Examinations
Syndicate
9
667
990
8.5
CPE
8
600
530
890
7
730
6.5
660
6
Pre-1
5.5
520
5
450
4.5
380
400
7.5
810
590
460
1
2
4
310
3.5
220
3
Pre-2
2.5
CAE
FCE
PET
KET
2
1.5
SOURCE: URL:http://www.eigokyoikunews.com/exam/index.shtml
3
Table 2: TOEFL scores
ASIA
(1997-1998)
Number of Examinees
score
1318
603
33,586
581
8738
577
Brunei Darussalam
45
567
Bhutan
50
567
79,964
560
7 Pakistan
9,850
538
8 Sri Lanka
2,983
537
9 Malaysia
9,530
530
10 Hong Kong
22,343
523
103,674
522
12 Nepal
2,153
521
13 Myanmar (Burma)
1,244
518
16,538
517
15 Afghanistan
376
516
16 Cambodia
321
514
17 Macau
1,070
512
18 Vietnam
3,251
511
19 Bangladesh
5,703
510
52,826
508
21 Laos
135
506
22 Mongolia
243
502
31,403
502
1,611
498
146,439
498
1 Singapore
2 India
3 Philippines
4
6 China, People’s Republic of
11 Korea (ROK)
14 Indonesia
20 Taiwan
23
Thailand
Korea (DPR)
24
Japan
SOURCE: ETS: TOEFL Test and Score Data Summary: 1998-99 Edition
4
Table 3: TOEFL scores (1997-1998)
Region
# of test takers
% of test takers
Total Score
54059
1474
8200
5594
45452
405822
862509
3.9
0.1
0.6
0.4
3.3
29.3
62.4
633
581
547
544
493
480
451
Europe
Africa
North America
South America
Asia
Korea
Japan
SOURCE: ETS: TOEIC Report on Test-Takers Worldwide 1997-98
TABLE 4: TOEFL-ITP Scores at Hokkaido University
Classified by Faculty (2003)
5
(January 2000)
The Prime Minister's Commission on Japan's Goals in the 21st Century: “Japan's Goals in the
21st Century. The Frontier Within: Individual Empowerment and Better Governance in the New
Millennium. “
“Everyone recognizes that Japan is at a major turning point---one might even say a critical point.
Based on that awareness, the report sets forth the new ideals and organizational principles with which
Japan should equip itself for the twenty-first century, the qualities it is hoped the Japanese people will
possess fifteen or twenty years hence, and the way to get there.“ (Preface)
“The advance of globalization and the information-technology revolution call for a world-class level of
excellence. Achieving world-class excellence demands that, in addition to mastering information
technology, all Japanese acquire a working knowledge of English---not as simply a foreign language
but as the international lingua franca. English in this sense is a prerequisite for obtaining global
information, expressing intentions, and sharing values. Of course the Japanese language, our mother
tongue, is the basis for perpetuating Japan's culture and traditions, and study of foreign languages
other than English should be actively encouraged. Nevertheless, knowledge of English as the
international lingua franca equips one with a key skill for knowing and accessing the world.
To achieve this, it is necessary first to set the concrete objective of all citizens acquiring a working
knowledge of English by the time they take their place in society as adults. We should think about
organizing English classes according to students' actual level of competence rather than their grade in
school, improving training and objective assessment of English teachers, greatly increasing the number
of foreign teachers of English, and contracting language schools to handle English classes. We should
also think about requiring the central government, local governments, and other public institutions to
produce their publications, and home pages, in both Japanese and English.
In the long term, it may be possible to make English an official second language, but national debate
will be needed. First, though, every effort should be made to equip the population with a working
knowledge of English. This is not simply a matter of foreign-language education. It should be regarded
as a strategic imperative.” (Chapter 1: Overview)
“English has become the international lingua franca, a process accelerated by the Internet and
globalization. So long as English is effectively the language of international discourse, there is no
alternative to familiarizing ourselves with it within Japan. Even if we stop short of making it an official
second language, we should give it the status of a second working language and use it routinely
alongside Japanese.” (Chapter 6: Japan's Place in the World)
6
Table-5
Foreign Language Schools in Japan (2001-2003)
C.Year
Total sales
(million Euro)
Tuition
Teaching material
2001
889
851
38
2002
919
865
41
2003
969
919
50
C.Year
Number of students
(persons)
Of whom, new students
2001
7133836
288362
2002
7581783
300043
2003
8026558
322667
C.Year
Total number of classes
opened
(times)
Number of Business
Establishments
2001
11958316
3168
2002
12738666
3047
2003
13664173
3118
C.Year
Total Number of
employees (persons)
Regular
Others
(part-time workers,
short-time-workers)
2001
6478
4770
1708
2002
6699
4941
1758
2003
7026
5182
1844
C.Year
Total instructors
(persons)
Full-time-instructors
Part-time-instructors
2001
12384
7879
4505
2002
12366
8186
4180
2003
13365
9134
4231
SOURCE: Ministry of Economy, Trade and Industry
7
(March 31, 2003)
Ministry of Education, Culture, Sports, Science and Technology
Action Plan to Cultivate “Japanese with English Abilities”
SOURCE: http://www.mext.go.jp/english/topics/03072801.htm

For children living in the 21st century, it is essential for them to acquire
communication abilities in English as a common international language.

English abilities are important in terms of linking our country with the rest of the
world, obtaining the world’s understanding and trust, enhancing our international
presence and further developing our nation.

Due to the lack of sufficient ability, many Japanese are restricted in their exchanges
with foreigners and their ideas or opinions are not evaluated appropriately. (It is also
necessary for Japanese to develop their ability to clearly express their own opinions in
Japanese first in order to learn English.)
Goals to Cultivate “Japanese with English Abilities”
【Goals】
English language abilities required for all Japanese nationals
“On graduating from junior high school and senior high school, graduates can communicate in English”

On graduation from a junior high school, students can conduct basic communication with
regard to areas such as greetings, responses, or topics relating to daily life. (English-language
abilities for graduates should be the third level of the Society for Testing English Proficiency
(STEP) on average.)

On graduation from a senior high school, students can conduct normal communication with
regard to topics, for example, relating to daily life. (English-language abilities for graduates
should be the second level or the pre-second level of the Society for Testing English
Proficiency (STEP) on average.)
English language skills required for specialized fields or for those active in international society
“On graduating from university, graduates can use English in their work”

Each university should establish attainment targets from the viewpoint of fostering personnel
who can use English in their work.
Action to Improve English education
１．Improvement of English classes
【Goals】
“Cultivating communication abilities through the repetition of activities making use of
English”

The majority of an English class will be conducted in English and many activities
where students can communicate in English will be introduced.

Small-group teaching and the streaming of students according to proficiency in the
English classes of junior and senior high schools will be positively adopted.
8

Progressive schools in terms of English education will be formed within local
communities.
２．Improving the teaching ability of English teachers and upgrading the teaching system
【Goals】

Almost all English teachers will acquire English skills (STEP pre-first level, TOEFL
550, TOEIC 730 or over) and the teaching ability to be able to conduct classes to
cultivate communication abilities through the repetition of activities making using of
English.

Centering on leading teachers at the local community level, the improvement of
English abilities in the community will be enhanced.

A native speaker of English will attend English classes at junior and senior high
schools more than once a week.

People living in the local community proficient in English will be positively utilized.
3. Improving motivation for learning English
【Goals】

10,000 high school students will study abroad every year.

Opportunities to use English outside the class will be enhanced.

International exchange will be further developed
communicating with the world using English.
through
such
means
as
４．Improvement in the evaluation system for selecting school and university applicants
【Goals】

Communication abilities, including listening and speaking, will be appropriately
evaluated.

Utilization of listening tests or external proficiency examinations will be encouraged
for entrance examinations of universities and high schools.
５．Support for English conversation activities in elementary schools
【Goals】

At elementary schools where English conversation activities take place in the Period
for Integrated Study, approximately 1/3 of these sessions will be guided by personnel
such as foreign teachers, those who are proficient in English and junior high school
English teachers.
9
６．Improvement of Japanese language abilities
【Goals】

In order to cultivate communication abilities in English, the ability to express
appropriately and understand accurately the Japanese language, which is the basis of
all intellectual activities, will be fostered.
７．Promotion of practical research
【Goals】

Practical research relating to English education at junior high schools, high schools,
and universities will be comprehensively implemented for promoting approaches to
improve English education. (A report will be issued in the autumn of 2003 including
initial conclusions.)
25 May, 2004
about 284,000 Japanese pages
for TOEIC
about 110,000 Japanese pages
for TOEFL
about 37 Japanese pages
for ”Common European Framework of Reference”
about 26 Japanese pages
for “European Language Portfolio”
10