Workers by any other name: comparing co-ethnics and ‘interns’ as labour migrants to Japan

In the field of comparative immigration politics, Japan has been described as a ‘negative case’: despite structural shortages in the domestic labour supply, scholars have commonly pointed to the nation’s extremely restrictive, ethno-nationalist policies as an antithetical case against which traditional migration states can be compared. Applying an approach focused on the viewpoint of the state, I argue that in response to market pressures, Japan simultaneously implemented two schemes: an ethnic return migration programme centred on the discourse of rekindling ancestral ties, and a de facto guest worker programme officially represented as an internship initiative to disseminate Japanese technical knowledge. The perceived failure of co-ethnic migrants to integrate themselves on Japanese terms led to the expansion of the latter programme. Juxtaposing the two, I examine the processes through which the Japanese state ‘learned’ and reacted to differing policy outcomes. In doing so, I argue that policy revisions since the early 2000s have signalled the birth of a Japanese ‘developmental migration state’, in which restrictive immigration policies that uphold a narrow view of a homogenous nation are repeatedly reoriented to accommodate economic and development goals.