Japan’s equal educational opportunity faces funding dilemma – East Asia Forum

Report on Japan’s High School Tuition Policy and its Alignment with Sustainable Development Goals

Introduction: Pursuing SDG 4 in Japanese Secondary Education

Japan is currently engaged in a significant policy debate concerning the provision of free high school tuition, a measure directly impacting the nation’s progress towards Sustainable Development Goal 4 (SDG 4), which aims to ensure inclusive and equitable quality education for all. While Japan boasts a high school enrolment rate of nearly 98% as of 2023, financial and structural barriers persist, challenging the principle of equal educational opportunity central to the SDGs.

Analysis of Educational Disparities and Financial Burdens

The Dual Education System and Economic Inequality

Japan’s secondary education is characterized by a dual system of public and private institutions. This structure contributes significantly to disparities in household educational expenditure, creating challenges for SDG 10 (Reduced Inequalities). The distribution is as follows:

• Nationwide, approximately 65% of students attend public schools, while 35% attend private schools.
• In major metropolitan areas like Tokyo, the proportion of private school students exceeds 50%.

Cost Discrepancies as a Barrier to Equitable Access

The financial gap between public and private schooling presents a substantial obstacle to achieving equitable access as mandated by SDG 4. A 2023 survey by the Ministry of Education, Culture, Sports, Science and Technology highlighted the following costs for a three-year high school education:

• Public Schools: Approximately 1.78 million yen (US$11,900)
• Private Schools: Approximately 3.08 million yen (US$20,500)

This difference, primarily due to tuition, admission fees, and facility charges, undermines the goal of providing equal opportunities regardless of a household’s economic status.

Policy Interventions for Universal Secondary Education

Evolution of the High School Tuition Support Fund

Japan initiated the High School Tuition Support Fund program in 2010 to subsidize tuition for households below a certain income threshold. The program was later expanded to include households with an annual income up to approximately 9.1 million yen (US$61,000), representing a step towards more inclusive education.

The 2026 Reform: A Move Towards Universalism

A major policy reform scheduled for 2026 aims to fully align with SDG Target 4.1 (free, equitable, and quality secondary education) by abolishing the income limit for tuition support. Key features of the new system include:

1. Universal eligibility for all households, regardless of income.
2. Tuition-free public high schools from 2025.
3. An increased subsidy cap for private school students, expected to be 457,000 yen (US$3050) per year, covering the national average tuition.

This policy is intended to reduce the financial burden on families and increase the freedom of educational choice, thereby promoting greater equity.

Challenges to Achieving SDG Targets

Incomplete Financial Relief

The policy’s designation as “free tuition” is misleading, as it does not cover all educational expenses. This limitation means the goal of completely free secondary education remains partially unmet. Families will still be responsible for significant costs, including:

• Admission fees
• Facility maintenance fees
• Textbook fees
• Uniform costs

Unintended Consequences Impacting Educational Equity

Prefectures like Osaka and Tokyo, which implemented similar policies ahead of the national rollout, have experienced outcomes that could potentially undermine the objectives of SDG 4 and SDG 10.

1. In Osaka:
   • A shift in preference towards private schools has led to under-enrolment and the closure of some public schools, potentially reducing local educational resources.
   • Some private institutions have raised tuition in response to increased subsidies, negating the intended financial relief for households.
2. In Tokyo:
   • Competition for private junior high school entrance has intensified, as many elite high schools limit new admissions at the high school level.
   • This has fueled the private cram school industry, raising concerns that the tuition subsidy indirectly benefits affluent families who can afford private junior high education, thereby exacerbating inequality rather than reducing it.

Conclusion: Building a Sustainable and Equitable Education Model

Japan’s policy to make high school tuition-free is a critical effort to reconsider how education is supported by society and to advance the nation’s commitment to the Sustainable Development Goals. The challenge lies in developing a uniquely Japanese model that ensures true equity and quality, avoiding the pitfalls of a system that inadvertently deepens existing social and economic divides. The full implementation in 2026 will require close monitoring to assess its effectiveness in achieving the inclusive and equitable vision of SDG 4.

Analysis of Sustainable Development Goals in the Article

1. Which SDGs are addressed or connected to the issues highlighted in the article?

• SDG 4: Quality Education
  • The entire article revolves around Japan’s policy on high school tuition, aiming to provide “equal access to education.” It discusses the quality and accessibility of secondary education, which is the core of SDG 4.
• SDG 10: Reduced Inequalities
  • The article highlights the “disparities in household education expenditures” between public and private schools and how the tuition support fund targets households based on income. The policy’s goal to abolish the income limit is a direct attempt to reduce economic inequality in access to education.
• SDG 1: No Poverty
  • By addressing the high cost of education—”1.78 million yen (US$11,900) at public schools and about 3.08 million yen (US$20,500) at private schools”—the policy aims to reduce the “financial burdens” on households. This helps prevent families from facing financial hardship or falling into poverty due to educational expenses.

2. What specific targets under those SDGs can be identified based on the article’s content?

1. Target 4.1: By 2030, ensure that all girls and boys complete free, equitable and quality primary and secondary education.
   • The article directly discusses Japan’s move towards “free high school tuition” for all students, regardless of whether they attend public or private schools. This policy is a clear step towards providing free and equitable secondary education, building on the existing high school enrolment rate of “nearly 98 per cent as of 2023.”
2. Target 4.5: By 2030, eliminate gender disparities in education and ensure equal access to all levels of education… for the vulnerable.
   • The policy’s evolution from a system with an income cap to one where “all households will be eligible for tuition subsidies” is designed to ensure equal access for economically vulnerable families. It aims to remove the financial barriers that create disparities in educational opportunities.
3. Target 10.3: Ensure equal opportunity and reduce inequalities of outcome, including by eliminating discriminatory policies and practices.
   • The article describes the “High School Tuition Support Fund program” and its revision to abolish the “income limit.” This policy change is a direct action to ensure more equal opportunities for students from all economic backgrounds to choose their educational path, thereby reducing inequalities of outcome that stem from financial constraints.

3. Are there any indicators mentioned or implied in the article that can be used to measure progress towards the identified targets?

1. Proportion of students in secondary education (Indicator 4.1.1 related)
   • The article explicitly states the “high school enrolment rate already reached nearly 98 per cent as of 2023.” This figure serves as a baseline indicator for participation in secondary education.
2. Government expenditure on education as a percentage of total government expenditure (Indicator 1.a.2/4.5.3 related)
   • The article details the government’s financial commitment through the “High School Tuition Support Fund program.” The subsidy amount, which is set to increase to “457,000 yen (US$3050) per year” for private school students, is a direct indicator of government spending aimed at ensuring equitable access to education.
3. Proportion of households with high education expenditures
   • The article provides concrete data on the cost of education: “1.78 million yen (US$11,900) at public schools and about 3.08 million yen (US$20,500) at private schools.” The effectiveness of the free tuition policy can be measured by tracking the reduction in these household expenditures over time.
4. Policies ensuring equal access to education (Indicator 10.3.1 related)
   • The existence and details of the tuition subsidy policy itself are an indicator. The article notes the policy change where the “income limit will be abolished” in 2026, which is a measurable change in policy designed to promote inclusion and equal opportunity.

SDGs, Targets, and Indicators Table

Source: eastasiaforum.org