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BILATERAL LABOUR MIGRATION BETWEEN UZBEKISTAN AND JAPAN:
POLICY FRAMEWORK, PROSPECTS, AND OBSTACLES
Iskandarova Hilola
A third-year undergraduate student
in the field of International relations, TSUOS
+998953373937
hilolaiskandarova330@gmail.com
Abstract:
This article provides a comprehensive analysis of labor migration cooperation
between the Republic of Uzbekistan and Japan. It examines the migration policies pursued by the
Uzbek government in sending workers abroad, as well as the strategies implemented by the
Japanese government regarding the admission and regulation of foreign workers — particularly
through mechanisms such as the “Specified Skilled Worker” (SSW) visa program. Furthermore,
the study explores bilateral agreements, institutional partnerships, and the current challenges
observed within this system. The article draws on official statistics, legal documents, and both
international and national academic literature to reflect the reality of labor migration dynamics. I
adopt an analytical approach to the subject by presenting independent observations and
evaluations, and offer personal insights into the opportunities, risks, and ways to mitigate
potential drawbacks. The economic, social, and cultural aspects of labor migration are also
addressed with particular attention.
Methodology:
This paper employs a qualitative content analysis method to examine the labour
migration policies between Uzbekistan and Japan. It is based on the review of official documents,
bilateral agreements, academic literature, and statistical data. The focus is placed on interpreting
policy frameworks, identifying challenges, and evaluating cooperation mechanisms without
conducting fieldwork. This approach allows for an in-depth understanding of migration-related
developments through the analysis of existing sources.
Key words:
Uzbekistan, Japan, labor migration, migration policy, bilateral cooperation,
Specified Skilled Worker, migration governance, employment abroad, international relations.
Introduction:
In the context of globalization and increasing labor mobility, international labor
migration has become a critical aspect of economic and diplomatic relations between countries.
For Uzbekistan, which has a growing young population and a dynamic labor force, the regulation
and expansion of labor migration opportunities play a significant role in its socio-economic
development strategy. In recent years, Japan has emerged as a key destination for Uzbek labor
migrants due to its aging population and shortage of skilled workers, particularly in sectors such
as construction, caregiving, and manufacturing.
The establishment of the “Specified Skilled Worker” (SSW) visa system in Japan has opened
new avenues for legally employed foreign workers, including those from Uzbekistan. Both
countries have taken steps to formalize labor mobility through bilateral agreements, institutional
cooperation, and training programs. Despite these positive developments, there are also
persistent challenges such as language barriers, recognition of qualifications, labor rights
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protection, and recruitment transparency.
This article aims to analyze the current state of labor migration cooperation between Uzbekistan
and Japan, identifying its opportunities and obstacles based on existing policies, agreements, and
statistical data. By examining the legal and institutional frameworks, the paper seeks to offer a
deeper understanding of how bilateral efforts shape the migration experience and address the
evolving demands of both labor markets.
Results:
Since gaining independence, Uzbekistan has seen a consistent increase in the number of
its citizens seeking employment abroad. The primary reasons for this include the limited
domestic labor market, a shortage of jobs, and the desire to earn foreign currency. In 2018, the
Uzbek government established the Agency for External Labor Migration to regulate this process
and create a secure migration system. The main responsibilities of the agency include creating
conditions for citizens to work legally abroad, providing language and professional training, and
ensuring migration safety (Labor Code of the Republic of Uzbekistan, 2022; Qodirov, 2021, p.
75).
Japan, on the other hand, has historically pursued a very restrictive migration policy. The country
has been ethnically homogeneous, with a relatively low influx of foreign citizens. However,
since the second decade of the 21st century, Japan has faced serious demographic issues:
declining birth rates, an aging population, and a decreasing young workforce (Chiavacci &
Leung, 2018, p. 44). As a result, the Japanese government revised its immigration policy in 2019,
introducing the "Specified Skilled Worker" (SSW) visa, which allows the entry of skilled foreign
workers in 14 sectors (Ministry of Justice Japan, 2021). The first official migration cooperation
between Uzbekistan and Japan was formed based on memorandums of understanding signed in
2018. Following this, Uzbekistan introduced special training courses to prepare citizens for
employment in Japan. These courses focus on learning the Japanese language, enhancing
professional skills, and preparing for cultural integration. In Japan, SSW visa holders are allowed
to work for up to five years, engage in various sectors, and live under specific conditions.
Furthermore, candidates must pass the JLPT (Japanese-Language Proficiency Test) or JFT-Basic
exam to qualify (Takahashi, 2020, p. 120). However, significant differences exist between the
migration policies of the two countries. The Uzbek government views labor migration primarily
as an economic tool, encouraging the remittance of foreign currency from migrants. Japan,
conversely, perceives migrants as a temporary solution and does not aim to integrate them
socially into the resident population (Leung, 2021, p. 88). Additionally, Japan's government
strictly monitors migration flows and attempts to maintain foreign worker numbers within
regulated limits. While Uzbekistan has strengthened state control over the migration process, the
role of private intermediaries remains high in some cases. This situation leads to issues such as
illegal contracts, excessive costs, and low levels of legal protection (Eshmatov, 2022, p. 94).
Japan's official "Hello Work" platforms and company-based recruitment system, by contrast, are
relatively transparent and legally regulated.
In general, the approaches to migration policies in Uzbekistan and Japan are shaped by their
respective historical, demographic, and economic contexts. Both countries acknowledge the
social and economic importance of labor migration, yet their methods of managing this process
differ. Gradually, bilateral cooperation is increasing, and this collaboration serves as a crucial
foundation for regulating labor migration and ensuring social justice.
Opportunities in the Labor Migration Policies of Uzbekistan and Japan.
As labor migration
continues to play a pivotal role in the economic development of both Uzbekistan and Japan, the
opportunities emerging from their migration policies have become increasingly important. These
opportunities are shaped by evolving geopolitical dynamics, demographic trends, and economic
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needs.
In recent years, Uzbekistan has placed significant emphasis on managing and improving labor
migration through various initiatives. Since the establishment of the Agency for External Labor
Migration in 2018, the government has made strides in creating a more structured and supportive
system for citizens looking to work abroad. This initiative became even more pronounced with
the introduction of financial support packages in 2024, aimed at covering exam fees, travel
expenses, and visa costs for labor migrants. The aim is to reduce the financial burden on migrant
workers, ensuring that they have the necessary resources to migrate legally and safely
(tashkenttimes.uz). Uzbekistan’s approach is grounded in the recognition of labor migration as a
key economic tool. The country encourages remittances, which are a significant source of
foreign exchange. The government’s focus on improving infrastructure for labor migration,
including digital platforms to match migrants with foreign job opportunities, aims to streamline
the process and make it more transparent. Furthermore, with the expansion of training programs,
including language and vocational courses, Uzbekistan is ensuring that its workforce is better
prepared to meet the demands of foreign employers.
The development of a digital platform for job opportunities has proven beneficial. This platform
not only serves as a bridge between Uzbek migrants and foreign employers but also acts as a
monitoring tool for the government, allowing them to keep track of migrant flows and ensure the
legality of employment contracts. By offering these services, Uzbekistan aims to mitigate the
risks of illegal migration and exploitative labor practices (uzdaily.uz).
Japan’s approach to labor migration has undergone a profound transformation in the last decade.
Historically, Japan has maintained strict immigration controls, largely due to its homogeneous
society and the limited number of foreign workers. However, Japan’s rapidly aging population
and declining birth rate have necessitated a change in policy to secure labor forces for essential
sectors. In 2019, Japan introduced the Specified Skilled Worker (SSW) visa program, which
opened the door for foreign workers to fill labor shortages in various industries, such as
construction, caregiving, and agriculture (Ministry of Justice Japan, 2021). The SSW visa
program allows skilled foreign workers to stay in Japan for up to five years, and it includes
rigorous language proficiency requirements. The program also offers foreign workers the chance
to work in multiple sectors, which not only helps Japan address its demographic issues but also
creates an opportunity for migrants to integrate into the Japanese workforce, even if temporary.
Additionally, Japan has also recently expanded the program to include more industries, such as
the transportation sector, which reflects the government's ongoing efforts to address labor
shortages in key sectors (japantimes.co.jp). The opportunities created by these migration policies
are significant. For Uzbekistan, Japan represents a major labor market that offers relatively high
wages, advanced working conditions, and valuable international work experience. Many Uzbek
workers, particularly those in sectors like construction and caregiving, find these opportunities
appealing due to the better working conditions and potential for higher income compared to other
labor migration destinations.
Bilateral Cooperation Between Uzbekistan and Japan.
The migration partnership between
Uzbekistan and Japan has increasingly become a model of cooperation. The two countries signed
memorandums of understanding (MOUs) as early as 2018, which laid the groundwork for mutual
collaboration in labor migration. These agreements enabled the introduction of various support
mechanisms, such as pre-departure orientation programs and vocational training. Uzbek workers
are trained not only in language skills but also in cultural adaptability and specific job-related
qualifications that are required by Japanese employers. Additionally, both countries have worked
to address legal and ethical concerns surrounding labor migration. In 2024, Uzbekistan
introduced measures to increase the transparency of the migration process by implementing a
mandatory certification program for recruitment agencies. This move aims to combat illegal
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recruitment practices and protect migrant workers from exploitation (Eshmatov, 2022, p. 94). For
Japan, the partnership with Uzbekistan has proven invaluable in filling labor gaps in several
industries. Uzbekistan has provided Japan with a consistent stream of skilled workers who meet
the language and technical skill requirements of the SSW program. This, in turn, benefits Japan’s
economy by ensuring that its key industries can continue to function despite the shrinking
domestic workforce.
While both Uzbekistan and Japan are reaping significant benefits from this migration partnership,
challenges still remain, particularly regarding the protection of migrant workers' rights. It is
essential for both governments to continue refining their migration policies to ensure that labor
migrants are not exploited. Uzbekistan’s role in providing comprehensive pre-departure training,
including language and vocational courses, is critical in preparing workers for their experiences
abroad. However, continued efforts are needed to enhance post-arrival support and ensure that
Uzbek workers are fully integrated into Japanese society. The future of this bilateral cooperation
hinges on both countries’ ability to adapt to changing global economic conditions and to address
emerging issues such as labor rights, social integration, and economic sustainability. Continued
collaboration and the refinement of existing policies will be key to achieving these goals,
ensuring that labor migration becomes a mutually beneficial process for both nations.
Challenges and Threats in the Uzbekistan–Japan Labor Migration Partnership.
Despite
gradual development in the labor migration partnership between Uzbekistan and Japan, several
serious challenges remain that require attention from both sides. One of the key issues is the
mismatch between the qualifications of Uzbek labor migrants and the specific needs of Japanese
employers. While Japan seeks skilled workers who can immediately integrate into sectors like
caregiving, construction, and agriculture, many Uzbek migrants lack adequate Japanese language
proficiency and sector-specific expertise (Yamada, 2023, p. 41). Although preparatory programs
exist in Uzbekistan, their scope and coverage are still limited compared to the growing demand.
Another challenge lies in the bureaucratic and legal barriers faced by migrants. The Japanese
immigration system, although reformed with the introduction of the Specified Skilled Worker
(SSW) visa in 2019, remains highly selective. Complex documentation procedures, frequent
changes in legal requirements, and rigorous testing systems often discourage applicants (Shibuya,
2022, p. 89). Furthermore, once in Japan, some migrants experience long working hours, limited
social interaction, and insufficient access to support services—conditions that may hinder long-
term adaptation and job satisfaction (Kawaguchi, 2021, p. 75). On the Uzbek side, the presence
of unregulated intermediaries continues to cause problems. Although the government has taken
steps to strengthen state control over the migration process—such as by expanding the authority
of the Agency for External Labor Migration—some migrants still rely on private recruiters who
often charge excessive fees and fail to provide adequate legal protection (Karimova, 2024, p. 63).
This leads to exploitative working conditions and even cases of illegal employment, which
ultimately damage the image of Uzbek labor abroad. In addition, sociocultural integration
remains a subtle yet important challenge. Japan’s relatively homogenous society, where foreign
residents make up less than 3% of the population (OECD, 2024), may contribute to social
isolation among migrants. Limited cultural orientation programs and low public awareness about
foreign labor further complicate integration efforts.
Despite these concerns, it is worth acknowledging that both countries have shown growing
interest in addressing these shortcomings. However, real progress requires a more
institutionalized and transparent framework. For instance, joint monitoring mechanisms, more
comprehensive training modules, and improved legal aid for workers could significantly enhance
the system. From a neutral standpoint, recognizing and constructively addressing these issues is
essential for creating a sustainable and mutually beneficial migration model.
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Recommendations and Prospective Directions.
In light of the current trends and challenges
observed in Uzbekistan–Japan labor migration cooperation, a number of recommendations and
forward-looking strategies may be proposed to enhance the effectiveness, fairness, and
sustainability of the process. Firstly, both countries should prioritize the institutionalization of
cooperation through the establishment of a permanent bilateral migration coordination council.
This div would be responsible for monitoring labor migration flows, resolving emerging issues,
and proposing timely policy updates in accordance with labor market demands and demographic
shifts (OECD, 2023, p. 94). Secondly, expanding the scope of pre-departure training programs in
Uzbekistan remains crucial. Such programs should not only focus on Japanese language and
work-related skills, but also include modules on legal rights, dispute resolution mechanisms, and
cultural orientation. Government-funded preparatory centers in partnership with Japanese
employers could greatly reduce vulnerability among migrants (UN DESA, 2022, p. 41). In terms
of protection mechanisms, it is advisable to establish ombudsman offices or legal advisory
centers for Uzbek migrants in major Japanese cities. These centers should provide assistance in
native languages and ensure that migrants’ rights are defended, particularly in cases of contract
violations or workplace discrimination. As noted by Nakamura (2024, p. 76), similar practices
have improved transparency in Japan’s technical intern training program (TITP). Additionally, a
digital bilateral labor mobility platform could be developed to facilitate transparent recruitment,
minimize third-party involvement, and provide real-time updates on legal changes, job openings,
and migration support services. Looking ahead, both countries should aim to diversify migration
pathways, including not only low-skilled jobs but also professional and academic exchange
programs, especially in healthcare, agriculture technology, and renewable energy sectors. This
would reflect a shift from purely economic-driven migration to skill- and knowledge-based
cooperation. Finally, regular public diplomacy initiatives, including cultural exchange and joint
academic research on migration, would enhance mutual understanding and long-term partnership.
In this regard, building trust at both governmental and societal levels is key to ensuring a humane
and productive migration system.
Conclusion:
The cooperation between Uzbekistan and Japan in the field of labor migration has
not yet fully developed, but its prospects are quite significant. Providing opportunities for Uzbek
youth to work and gain experience in Japan will enhance their future potential, allowing them to
witness modern technologies and disciplined work environments. This will not only expand
Uzbekistan's labor market opportunities but also increase the global competitiveness of its youth.
Utilizing Japan's expertise and advanced technologies could create new opportunities for
Uzbekistan in certain sectors of its economy. Furthermore, the changes in this field demonstrate
how countries can establish cooperation while protecting their interests. Japan’s strict labor
policies and Uzbekistan’s efforts in managing external labor resources complement each other.
This collaboration, taking into account the economic and social mutual benefits of both countries,
can lead to significant success in the field of labor migration.
However, the success of this cooperation depends not only on economic aspects but also on
social integration and the protection of migrants’ rights. It is necessary to support Uzbekistan’s
citizens legally abroad and improve their working conditions in Japan. At the same time, Japan’s
experience with migrants should also focus on easing their social adaptation and creating long-
term living opportunities for them. In the future, to further develop labor migration and
international cooperation, it is essential to strengthen mutual trust between countries, protect the
rights of migrants, and continuously assess the social and economic impacts of this process. This
will not only ensure economic success but also contribute to the establishment of a stable and
long-term partnership between the two nations.
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