2026 Update: How Japan’s Refugee System Is Being Operated — Refugee Recognition, Complementary Protection, Humanitarian Permission, and Designated
Japan’s refugee-related procedures have changed significantly in recent years. In December 2023, Japan introduced the complementary protection system. In May 2025, the Immigration Services Agency announced the “Zero Illegal Stay Plan,” which placed stronger emphasis on preventing misuse of refugee applications and accelerating immigration control measures.
This article explains how Japan’s refugee system is currently operated in 2026, focusing on refugee recognition, complementary protection, humanitarian permission, and Designated Activities. It also discusses the practical risks and burdens for both applicants and the Japanese government.
1. Japan’s Latest Refugee Statistics
According to the Immigration Services Agency of Japan, 11,298 people applied for refugee recognition in 2025. However, only 187 people were recognized as refugees.
In addition, 474 people were recognized as persons eligible for complementary protection, and 525 people were permitted to stay in Japan based on humanitarian considerations. In total, 1,186 people were allowed to remain in Japan through refugee recognition, complementary protection, or humanitarian permission in 2025.
| Category | Number in 2025 | Practical Meaning |
|---|---|---|
| Refugee applicants | 11,298 | The number of applications remains over 10,000 |
| Recognized refugees | 187 | Recognition remains limited |
| Complementary protection | 474 | An increasingly important protection route for people fleeing conflict |
| Humanitarian permission | 525 | A discretionary form of permission based on individual circumstances |
If we look only at the number of recognized refugees, Japan’s refugee system appears extremely narrow. In practice, however, it is necessary to understand the whole system, including complementary protection, humanitarian permission, and Designated Activities.
2. Four Different Legal Positions
To understand Japan’s current refugee-related practice, it is important to distinguish the following four categories.
| Category | Stability for Applicant | Burden for Government | Key Point |
|---|---|---|---|
| Refugee recognition | Highest | Highest | Clear legal protection under the refugee framework |
| Complementary protection | High | Close to refugee recognition | Protection for people who are not Convention refugees but should not be returned |
| Humanitarian permission | Medium | Adjustable case by case | Discretionary relief based on family, illness, long-term residence, or country conditions |
| Designated Activities | Often unstable | Easy to manage short term | Permitted activities depend on the individual designation |
3. Refugee Recognition Means Strong Long-Term Protection
When a person is recognized as a refugee in Japan, they are generally granted the status of residence of “Long-Term Resident.” They may also benefit from partial relaxation of permanent residence requirements, a refugee travel document, and access to settlement support programs.
For the applicant, this is the most stable form of protection. For the government, however, refugee recognition carries significant legal, social, financial, and international responsibilities. Once Japan formally recognizes that the person should not be returned to their country of origin, future removal becomes extremely difficult.
4. Complementary Protection Protects People Who Are Not Convention Refugees
The complementary protection system started on December 1, 2023. It is designed to protect people who do not fall within the five Convention refugee grounds but still should not be returned to their country of origin, such as people fleeing armed conflict.
Persons recognized as eligible for complementary protection are also generally granted “Long-Term Resident” status. They may benefit from partial relaxation of permanent residence requirements and settlement support programs. Therefore, the stability of this status is relatively close to refugee recognition.
However, complementary protection is not the same as refugee recognition. From the government’s perspective, it allows Japan to protect people who should not be returned without formally recognizing them as Convention refugees.
5. Humanitarian Permission Is Flexible but Less Stable
Humanitarian permission is a discretionary measure. Even if a person is not recognized as a refugee or as eligible for complementary protection, Japan may allow the person to remain based on individual humanitarian circumstances.
Relevant factors may include family relationships, children’s education, medical conditions, long-term residence, or conditions in the country of origin.
For the government, humanitarian permission is flexible. It can be adjusted according to the specific facts of each case. For the applicant, however, it is less stable than refugee recognition or complementary protection because the basis for permission may change over time.
6. Designated Activities Often Functions as Temporary Immigration Management
“Designated Activities” is a status of residence for activities specifically designated by the Minister of Justice for each individual foreign national. Therefore, the actual scope of permitted activities depends on the individual designation document.
In cases involving pending refugee applications, rejection of refugee claims, or departure preparation periods, Designated Activities may be unstable. The period of stay can be short, and work may be prohibited or limited.
From the government’s perspective, Designated Activities is useful for short-term control. However, if this status continues for years, the person may form a real life base in Japan while remaining legally unstable.
7. Major Change After 2025: The Zero Illegal Stay Plan
On May 23, 2025, the Immigration Services Agency announced the “Zero Illegal Stay Plan.” The plan emphasizes faster refugee examination, classification of so-called B cases, residence restrictions, and stronger return measures for people who are considered to be misusing or abusing refugee applications.
B cases refer to cases where the applicant’s claimed circumstances clearly do not fall under persecution under the Refugee Convention. The idea that applying for refugee recognition automatically allows a person to remain or work in Japan is no longer safe.
In addition, under the amended Immigration Control Act, certain third or subsequent refugee applications may no longer automatically suspend removal. This means that repeated refugee applications do not necessarily prevent deportation.
8. Practical Risks for Applicants
A refugee application is intended to protect people who have a well-founded fear of persecution. If it is used merely to extend a stay or obtain work permission, it may create serious disadvantages in future immigration procedures.
Special caution is required in the following cases:
- The reason for the refugee claim is closer to economic hardship or job seeking
- The applicant is repeating the same claim without new reasons
- The applicant is in a departure preparation period and considering a weak refugee application
- The applicant later wishes to change to Engineer/Specialist in Humanities/International Services, Business Manager, or Specified Skilled Worker
- There are contradictions between the applicant’s statements and submitted documents
Where refugee grounds are weak, it may be better to examine other lawful possibilities, such as work status, family-based status, Specified Skilled Worker, Business Manager, humanitarian considerations, or other immigration options.
9. Government Burdens and Policy Risks
From the government’s perspective, refugee recognition and complementary protection provide stable legal status but also involve long-term social and financial responsibilities.
Japan appears to be separating cases into different categories: refugee recognition for clear individual persecution, complementary protection for conflict-related protection needs, and humanitarian permission or Designated Activities for other cases where return may be difficult.
However, keeping people who cannot realistically return in an unstable Designated Activities status for a long period may also create social costs, including unstable employment, poverty, irregular work, and repeated administrative procedures.
10. Our Practical Approach
Tommy’s Legal Service does not recommend refugee applications lightly. If a case involves deportation procedures, detention, provisional release, litigation, or repeated refugee applications, cooperation with or referral to an attorney may be necessary.
However, we may assist with an initial immigration status review in cases such as:
- A person is currently applying for refugee recognition and wants to reconsider future immigration options
- A refugee application has been rejected and the person wants to examine another status of residence
- A person is in a departure preparation period and needs to assess lawful options
- A person wants to examine work status, family-based status, Specified Skilled Worker, or Business Manager possibilities
- A person needs to organize employment, family, country conditions, and past application history
Consultation Notice
For consultations involving refugee applications, rejected asylum claims, or departure preparation periods, we must review the actual documents and facts first. This may include the passport, residence card, application copies, notices from Immigration, rejection-related documents, employment documents, and family-related documents.
If the case involves deportation, detention, provisional release, or litigation, we may recommend consultation with an attorney.
