Ideational Models of Immigrant Integration in Japan: A Multi-Scalar Approach to the Dynamics of Policy Frames

Abstract

This article explores migrant integration policy frames in Japan based on a multi-scalar research design. The development of migrant integration frames mirrors a process where the local scale has contributed to the development of a national policy based on the concept of “multicultural coexistence.” Under the impulsion of immigration reforms, the central government has consolidated the national framework and strengthened its involvement in the governance of migrant integration turning to a more economic framing of migrants. While the cases of Aichi prefecture and Nagoya and Toyohashi cities (located in Aichi prefecture) reflect a gradual convergence of frames with the national level, policies in Kyoto prefecture and Kyoto city do not echo such shifts. Surprisingly, Kyotango city located in Kyoto prefecture has drawn on national level policies turning to a more economic framing of migrants. A focus on “relationality” and stakeholders in policy formulation and relationships between different scales of governance suggests that the assemblage of local political actors bringing their priorities to the discussion table are important shaping forces of local policy frame development. At the same time, exchanges in horizontal and vertical networks exhibit the vitality of the circulation of ideas, even in the absence of formal coordination mechanisms.