Political Development in Modern Japan. Studies in the Modernization of Japan

650 Pages·1973·20.059 MB·English

by  Robert E. Ward

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POLITICAL DEVELOPMENT
IN MODERN JAPAN
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This is the fourth in a series of six volumes published by
Princeton University Press for the Conference on Modern
Japan of the Association for Asian Studies, Inc. The others
in the series are:
Changing Japanese Attitudes Toward Modernization,
edited by Marius B. Jansen (1965)
The State and Economic Enterprise in Japan, edited by
William W. Lockwood (1965)
Aspects of Social Change in Modern Japan, edited by
R. P. Dore (1967)
Tradition and Modernization in Japanese Culture, edited
by Donald Shively
Dilemmas of Growth in Prewar Japan, edited by James
Morley
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Political
Development
in Modern Japan
Edited by Robert E. Ward
CONTRIBUTORS
ARDATH W. BURKS TAKESHI ISHIDA
ALBERT M. CRAIG MARIUS B. JANSEN
ROGER F. HACKETT ROBERT A. SCALAPINO
JOHN WHITNEY HALL BERNARD S. SILBERMAN
DAN FENNO HENDERSON KURT STEINER
NOBUTAKA IKE KIYOAKI TSUJI
ROBERT E. WARD
PRINCETON UNIVERSITY PRESS
PRINCETON, NEW JERSEY
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Copyright © 1968 by Princeton University Press
ALL RIGHTS RESERVED
Library of Congress Catalog Card Number: 66-14309
ISBN 0-691-00017-4 (paperback edn.)
ISBN 0-691-03045-6 (hardcover edn.)
Printed in the United States of America
by Princeton University Press at Princeton, New Jersey
First PRINCETON PAPERBACK Edition, 1973
This book is sold subject to the condition that it shall not,
by way of trade, be lent, resold, hired out, or otherwise
disposed of without the publisher's consent, in any form of
binding or cover other than that in which it is published.
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Foreword
CHOLARLY STUDIES of Japan have had a remarkable
growth in the United States and other English-speaking
countries since the end of World War II. To some
extent this has been the natural result of the popular boom of
interest in Japan stimulated by the war and its aftermath and
by the increased opportunities which Westerners had to asso­
ciate with the Japanese people. But it is more directly the result
of the spread of academic programs devoted to Japan and par­
ticularly the growing number of specialists trained to handle
the Japanese language.
In the fall of 1958 a group of scholars gathered at the
University of Michigan to seek some means of bringing to­
gether in more systematic fashion the results of the widely
scattered studies of Japan which had appeared in the years
since the end of the war. The Conference on Modern Japan
which resulted from this meeting was dedicated both to the
pooling of recent scholarly findings and to the possibility of
stimulating new ideas and approaches to the study of modern
Japan. Subsequently the Conference received a generous grant
from the Ford Foundation for the support of a series of five
annual seminars devoted to as many aspects of the history of
Japan's modern development. Recently the number of seminars
planned by the Conference was expanded to six.
The Conference on Modern Japan exists as a special proj­
ect of the Association for Asian Studies. The Conference is
guided by an executive committee consisting of Ronald P. Dore,
Marius B. Jansen, William W. Lockwood, Donald H. Shively,
Robert E. Ward, and John W. Hall (chairman). James
W. Morley subsequently joined this group as the leader of the
sixth seminar. Each member of the executive committee has
been responsible for the organization of a separate seminar
devoted to his particular field of specialization and for the
publication of the proceedings of his seminar.
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FOREWORD
Although the subject of modernization in the abstract is not
of primary concern to the Conference, conceptual problems
are inevitably of interest to the entire series of seminars. Be­
cause of this, two less formal discussions on the theory of
modernization have also been planned as part of the Confer­
ence's program. The first of these was held in Japan during
the summer of i960 and has been reported on as part of the
first volume of published proceedings. The second will seek at
the conclusion of our series to review whatever contributions
to the realm of theory the six annual seminars may have
made.
The present volume edited by Robert E. Ward is the fourth
in a series of six to be published by the Princeton University
Press for the Conference on Modern Japan. The other vol­
umes, of which the first three have already appeared, are:
Changing Japanese Attitudes toward Modernization, edited
by Marius B. Jansen; The State and Economic Enterprise in
Japan, edited by William W. Lockwood; Aspects of Social
Change in Modern Japan, edited by Ronald P. Dore; Tra­
dition and Modernization in Japanese Culture, edited by
Donald H. Shively; Dilemmas of Growth in Prewar Japan,
edited by James W. Morley.
As their titles suggest, the annual seminars have adopted
broad themes so as to cast a wide net about a variety of
scholars working within each of several major fields. Within
these broad fields, however, the seminar chairmen have fo­
cused upon specific problems recommended either because
they have received the greatest attention of Japanese specialists
or because they seem most likely to contribute to a fuller under­
standing of the modernization of Japan. We trust, as a conse­
quence, that the six volumes taken together will prove both
representative of the current scholarship on Japan and com­
prehensive in their coverage of one of the most fascinating
stories of national development in modern history.
The fourth meeting of the Conference on Modern Japan
assembled in Bermuda in January 1965 under the chairman-
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FOREWORD
ship of Professor Robert E. Ward. The subject of discussion
was the political development of Japan. In all twenty-four
American, Japanese, and English scholars participated in the
conference. In addition to the writers of the papers presented
in the body of the following text (who are identified in greater
detail on pp. 605 to 606), the following individuals were
present: Professors Hans Baerwald, University of Califor­
nia (Los Angeles); Ronald P. Dore, London School of Eco­
nomics and Political Science; Yoshinori Ide, Institute for So­
cial Science Research, Tokyo University; Hyman Kublin,
Brooklyn College; William W. Lockwood, Princeton Uni­
versity; John M. Maki, University of Washington; Douglas
H. Mendel, Jr., University of Wisconsin; James W. Morley,
Columbia University; Lucian W. Pye, Massachusetts Insti­
tute of Technology; William E. Steslicke, University of Illi­
nois; and Chitoshi Yanaga, Yale University. All contributed
most usefully to the discussion, and the editor and authors
would like to express their gratitude to them.
The purpose of the conference was to analyze the political
aspects of the developmental process in Japan with a view to
identifying the major agencies of developmental political
change, describing their roles and interactions, and determin­
ing whether the Japanese experience might not suggest certain
generalizations or hypotheses in this area that might then be
subjected to comparative analysis and verification in other
cultural and political settings. These goals involved certain
initial assumptions about the nature and functioning of the
process of political development that will be explained more
fully in the Introduction. These initial assumptions are re­
sponsible for the structure of the book that has emerged from
an extensive revision of the papers originally presented to the
Conference. Given the present rather elementary state of our
knowledge in this field, one cannot, of course, be certain as to
even the identity of all the determinants of political develop­
ment. It seemed reasonable to assume, however, that we can
identify at least some of the major variables concerned with a
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FOREWORD
reasonable degree of certainty. Acting on this assumption,
such a list of variables was constructed, and a total of thir­
teen papers were commissioned on the basis of this list. Re­
vised versions of these constitute the heart of the following
text.
Leadership, both symbolic and actual, was considered to be
such a variable. Accordingly Professor John W. Hall of Yale
University was asked to prepare a paper on the role of the
emperor and its relationship to the process of political develop­
ment in Japan, while Professor Roger F. Hackett of the Uni­
versity of Michigan was invited to write a comparable paper
on the role of the genrd. Nationalism was the second variable
selected, and Professor Albert M. Craig of Harvard University
was asked to write on this subject. He elected to do so in case
study fashion, and the chapter on Fukuzawa Yukichi is the
result. The linked influences of foreign relations and war
upon political development were also seen as significant, and
Professors Marius B. Jansen of Princeton University and
Nobutaka Ike of Stanford University were invited to submit
papers on these topics. Another characteristic of modern po­
litical systems seemed to be a high degree of popular political
participation. Professor Kurt Steiner of Stanford University
was, therefore, asked to treat this at the rural and less formal
level of political organization and practice, while Professor
Robert A. Scalapino of the University of California (Berkeley)
prepared a corresponding paper on electoral participation at
the national level and its relation to political development in
Japan. The modern polity was also perceived as one character­
ized by a high degree of functional and structural differenti­
ation. The paper by Professor Takeshi Ishida of Tokyo Uni­
versity's Institute for Social Science Research on the develop­
ment of Japanese interest groups treats one aspect of func­
tional differentiation in political representation and decision­
making, while that by Professor Bernard S. Silberman of the
University of Arizona seeks to explore the possibility of de­
vising quantitative means of measuring the progress of
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FOREWORD
structural and functional differentiation within a modern­
izing political system. Similarly the rationality, secularity,
and impersonality of legal and decision-making systems were
also viewed as defining characteristics of politically developed
societies. This assumption resulted in Professor Dan F.
Henderson's (University of Washington) study of law and
political modernization in Japan, and Professor Kiyoaki
Tsuji's (Tokyo University) paper on decision-making in the
Japanese government.
The last two papers represent attempts to deal with special
problems in the study of political development. Professor
Robert E. Ward of the University of Michigan treats the
general problem of the amenability of the developmental proc­
ess to external control and manipulation. He does this through
a case study of the Allied Occupation of Japan viewed as an
experiment in planned political change. Professor Ardath W.
Burks of Rutgers, the State University of New Jersey, has pro­
vided a study of perhaps the most fundamental and difficult
problem of all, the degrees of freedom or determinism that
are implicit in the process of political decision-making and
political change. He does this in the context of the political
modernization of Japan.
Professor Ward has added to these papers a brief introduc­
tion setting the scene for the chapters that follow and giving
his own version of what is meant by the key terms "political
development" and "political modernization." He has also
provided an epilogue that represents an attempt to sketch the
sorts of general propositions and findings about the process
of political development that the Conference discussions and
papers have suggested to him. He has asked that it be made
clear that he alone is responsible for the contents of both the
introduction and the epilogue. While gratefully acknowl­
edging his indebtedness to the paper writers and discussants,
the claims advanced in these chapters are not intended to
represent a viewpoint shared by any or most of the other par­
ticipants in the Conference. In fact they are in basic disagree-
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