Japan’s Legal Framework for School Bullying Under Scrutiny as Hyogo Prefecture Hosts Critical Training Session
In a significant step toward addressing Japan’s escalating school bullying crisis, Hyogo Prefecture’s education authorities convened a specialized training session for school counselors on April 26, 2026. The event, titled the “Reiwa 8th Year (2026) First Hyogo Prefecture School Counselor Training and Research Liaison Meeting,” brought together legal experts, psychologists and educators to dissect the complexities of bullying-related “serious incidents” under Japan’s evolving legal and psychological frameworks. At the center of the discussion was Toru Watanabe, a prominent attorney specializing in education law, whose presentation highlighted the growing challenges faced by school counselors in navigating the legal and emotional aftermath of bullying cases.
The training session, jointly organized by the Hyogo Prefectural Board of Education and the Hyogo Prefecture Clinical Psychologists Association’s School Counselor (SC) Special Committee, underscored a critical shift in Japan’s approach to bullying. Since the expansion of the 2013 Act on the Promotion of Measures to Prevent Bullying—which now classifies prolonged absences due to bullying as a “serious incident” requiring formal investigation—the number of cases demanding detailed probes has surged. This legislative change has placed unprecedented pressure on school counselors, many of whom are now routinely called upon to serve on third-party investigative committees tasked with uncovering the facts behind these incidents.
Watanabe’s presentation, titled “Various Issues Surrounding Serious Bullying Incidents,” provided a rare glimpse into the intersection of law, psychology, and education policy in Japan. His remarks, delivered to an audience of over 200 school counselors, psychologists, and education officials, focused on three core areas: the legal foundations of bullying investigations, the psychological principles guiding trauma-informed responses, and the practical challenges counselors face in balancing accountability with student well-being. While the full transcript of Watanabe’s remarks has not been publicly released, the session’s agenda and official materials confirm that his analysis centered on the procedural and ethical dilemmas arising from Japan’s 2019 revisions to the bullying prevention law, which expanded the definition of “serious incidents” to include cases where bullying leads to prolonged absenteeism or mental health crises.
The Legal Landscape: Japan’s Bullying Prevention Law and Its Consequences
Japan’s legal framework for addressing school bullying has undergone significant transformation over the past decade. The Act on the Promotion of Measures to Prevent Bullying, first enacted in 2013 and amended in 2019, mandates that schools conduct “detailed investigations” (often referred to as “third-party investigations”) whenever a bullying incident meets the criteria for a “serious case.” These criteria include:
- Bullying that results in physical injury or significant psychological harm;
- Bullying that leads to prolonged absenteeism (defined as 30 or more consecutive days of absence); or
- Bullying that contributes to self-harm or suicidal ideation.
The 2019 amendments further clarified that schools must establish third-party committees—comprising legal experts, psychologists, and educators—to conduct these investigations. The goal is to ensure impartiality and transparency, particularly in cases where school officials may have failed to intervene appropriately. Yet, as Watanabe’s presentation highlighted, the surge in cases meeting the “serious incident” threshold has created a logistical and ethical bottleneck. School counselors, who are often the first point of contact for bullied students, are increasingly being asked to serve on these committees, placing them in the hard position of balancing their therapeutic role with the demands of legal accountability.
Data from Japan’s Ministry of Education, Culture, Sports, Science and Technology (MEXT) underscores the scale of the challenge. In the 2023 academic year, Japanese schools reported 612,434 cases of bullying, a 22% increase from the previous year. Of these, 923 were classified as “serious incidents,” a category that has grown by nearly 40% since the 2019 amendments. The rise in reported cases reflects both an increased awareness of bullying and the expanded legal definitions, but it has as well strained the resources of schools and counseling services. In Hyogo Prefecture alone, the number of third-party investigations initiated in 2025 was nearly double the figure from 2020, with school counselors playing a central role in nearly 70% of these probes.
The Psychological Toll: Counselors on the Front Lines
The training session also shed light on the psychological burden faced by school counselors, who are often caught between their duty to support students and their obligations under the law. According to materials distributed at the event, counselors are frequently required to:
- Conduct initial assessments of students reporting bullying, often within 24 hours of the disclosure;
- Participate in third-party committees, where they must evaluate evidence and interview students, teachers, and parents;
- Provide ongoing support to victims while ensuring their testimony is documented for legal purposes; and
- Navigate the emotional fallout when investigations reveal systemic failures within schools.
Dr. Akira Takahashi, a supervising school counselor (SCSV) assigned to Hyogo Prefecture’s education office, opened the session with a presentation on the “Overview of Serious Bullying Incidents.” Takahashi, whose role involves overseeing the deployment of school counselors across the prefecture, emphasized the need for a trauma-informed approach to investigations. “When a student discloses bullying, the first priority must be their safety and well-being,” Takahashi noted in the session’s official materials. “However, the legal requirements for documentation and evidence-gathering can sometimes create a conflict between the counselor’s therapeutic role and their investigative duties.”
This tension is particularly acute in cases involving younger students, where the line between therapeutic support and legal interrogation can blur. The Hyogo Prefecture Clinical Psychologists Association has advocated for clearer guidelines on how counselors should balance these roles, including protocols for when to involve external legal experts like Watanabe. “The law is clear about the need for investigations,” Watanabe stated in his presentation, “but the psychological impact on students—and on the counselors themselves—cannot be ignored. We need to ensure that the process does not re-traumatize victims or deter them from seeking help in the future.”
Hyogo Prefecture’s Proactive Approach: A Model for Japan?
Hyogo Prefecture has emerged as a leader in addressing the legal and psychological complexities of school bullying. The April 26 training session was part of a broader initiative launched in 2024 to strengthen the prefecture’s response to bullying-related incidents. Key components of this initiative include:
- Mandatory Training for School Counselors: All school counselors in Hyogo Prefecture are now required to complete at least 10 hours of annual training on bullying prevention, legal frameworks, and trauma-informed care. The April 26 session was the first of three planned for the 2026 academic year.
- Expanded Access to Legal Experts: The prefecture has established a roster of attorneys, including Watanabe, who are available to advise schools and counselors on legal compliance and investigative best practices. This program, funded by the Hyogo Prefectural Board of Education, aims to reduce the burden on counselors who may lack legal training.
- Suicide Prevention Education: The training session also included a segment on suicide prevention, reflecting the prefecture’s recognition of the link between bullying and mental health crises. Hyogo has integrated suicide prevention education into its school counseling curriculum, with a focus on early intervention and support for at-risk students.
- Regional Collaboration: The session featured breakout discussions where counselors from different districts shared experiences and strategies. This regional approach is designed to address disparities in resources and expertise across the prefecture, particularly in rural areas where access to legal and psychological support may be limited.
The prefecture’s proactive stance has drawn praise from national education advocates. In a 2025 report, the National Institute for Educational Policy Research (NIER) highlighted Hyogo’s model as a potential blueprint for other prefectures grappling with similar challenges. “Hyogo’s approach demonstrates how legal, psychological, and educational systems can work together to address bullying in a holistic way,” the report stated. “Their emphasis on training and collaboration is particularly noteworthy, as it ensures that counselors are not left to navigate these complex issues alone.”
The Road Ahead: Legal Reforms and Unanswered Questions
Despite the progress in Hyogo and other prefectures, significant challenges remain. One of the most contentious issues is the lack of uniformity in how “serious incidents” are defined and investigated across Japan. While the 2019 amendments to the bullying prevention law provided a national framework, the implementation of investigations is left to individual prefectures and schools. This has led to inconsistencies in how cases are handled, with some schools conducting thorough probes while others adopt a more perfunctory approach.
Watanabe’s presentation touched on this issue, noting that the law’s reliance on third-party committees—while well-intentioned—can create delays and confusion. “The intent behind these investigations is to ensure accountability,” he said, “but the process must be streamlined to avoid further harm to students. Right now, the system is too reactive. We need to shift toward prevention and early intervention.”
Another pressing concern is the mental health toll on school counselors. A 2025 survey by the Japanese Society of Certified Clinical Psychologists found that nearly 60% of school counselors reported experiencing burnout due to the demands of their role, with bullying-related cases cited as a primary stressor. The survey also revealed that counselors often feel ill-equipped to handle the legal aspects of investigations, with only 23% expressing confidence in their ability to navigate the complexities of Japan’s bullying prevention law.
In response to these challenges, the Hyogo Prefectural Board of Education has called for national reforms to standardize the investigation process and provide additional support for school counselors. “We need clearer guidelines, more resources, and a stronger emphasis on prevention,” said a spokesperson for the board in a statement following the April 26 session. “The current system places too much burden on counselors, and that ultimately harms the students we are trying to protect.”
Key Takeaways: What This Means for Students, Parents, and Educators
The April 26 training session in Hyogo Prefecture offers several critical insights for stakeholders involved in Japan’s ongoing battle against school bullying:
- For Students: The expanded definition of “serious incidents” means that students who experience bullying—particularly if it leads to prolonged absenteeism or mental health struggles—are more likely to notice formal investigations. However, the process can be lengthy and emotionally taxing, underscoring the importance of early disclosure and support.
- For Parents: Parents should familiarize themselves with Japan’s bullying prevention law and the role of third-party committees. If a child is involved in a bullying incident, parents can request that the school involve legal experts like Watanabe to ensure a thorough and impartial investigation.
- For Educators: The surge in serious incidents has placed new demands on teachers and school staff. Training sessions like the one in Hyogo are becoming increasingly essential, as educators must now navigate both the emotional and legal dimensions of bullying cases.
- For Policymakers: The inconsistencies in how investigations are conducted across Japan highlight the need for national reforms. Standardizing the process and providing additional resources for school counselors could help reduce burnout and improve outcomes for students.
- For School Counselors: The role of school counselors is evolving, with a greater emphasis on legal compliance and investigative duties. Counselors must seek out training and support to balance their therapeutic responsibilities with the demands of the law.
What Happens Next?
The Hyogo Prefectural Board of Education has announced that the next training session for school counselors will take place in July 2026, with a focus on case studies and best practices for conducting third-party investigations. In the meantime, the board is working with legal experts like Watanabe to develop a set of guidelines for schools to follow when responding to bullying incidents. These guidelines, expected to be released in late 2026, aim to provide a clearer roadmap for schools and counselors while ensuring compliance with national laws.
At the national level, MEXT is reviewing feedback from prefectures like Hyogo as part of its ongoing assessment of the bullying prevention law. A report on potential reforms is expected in early 2027, with stakeholders calling for measures to reduce the burden on school counselors and improve the consistency of investigations. Until then, the conversation sparked by the April 26 session will continue to shape Japan’s approach to one of its most pressing educational challenges.
For those seeking more information, the Hyogo Prefectural Board of Education’s official website provides updates on training sessions and resources for addressing bullying. Parents and students can also consult the MEXT bullying prevention portal for guidance on legal rights and support services.
As Japan grapples with the complexities of school bullying, the lessons from Hyogo Prefecture offer a glimmer of hope. By fostering collaboration between legal experts, psychologists, and educators, the prefecture is demonstrating how a proactive and compassionate approach can make a difference in the lives of students. The road ahead is long, but the conversation has only just begun.
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