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State management of bilingualism: a comparative analysis of two educational language policies in Japan

ABSTRACT This paper presents a comparative analysis of two language policies developed in the 2000s by the Japanese Ministry of Education, Culture, Sports, Science and Technology (MEXT). The two language policies analyzed in this paper are the ‘Action Plan to Cultivate Japanese with English Abilities’ and ‘JSL [Japanese as a Second Language] Curriculum in School Education,’ developed within the same temporal and spatial frame at the turn of the millennium in Japan. Focusing on lexical labeling in language and population management, it is argued that these two policies have dealt with mutually exclusive groups of the student population, for whom different kinds of bilingualism and Japanese language are imagined. Cumulatively, these two policies represent an unequal access to bilingualism in the Japanese context, combined with the Japanese dualism that indexes national and other speaker-hood through the distinction between kokugo- and nihongo-Japanese education, which has been a key mechanism in the creation of national boundaries in modern Japan. Through this analysis, this paper identifies the particularities of the Japanese case, as well as situating it in the global trend of unequal management of bilingualism. Abbreviations: MEXT: Ministry of Education, Culture, Sports, Science and Technology, Japan [Monbu kagaku sho]; CNL: Council of National Language [Kokugo shingi kai]; CCA: Council of Cultural Affairs [Bunka shingi kai]; CJGTC: Commission on Japan’s Goals in the Twenty-First Century