Japan’s education ministry is considering changes to teacher preparation, licensing administration and alternative pathways into schools as the country seeks educators with more diverse professional backgrounds.
Editorial Note
This article is provided for general educational and informational purposes and does not constitute legal or professional licensing advice. It is based on materials published by Japan’s Ministry of Education, Culture, Sports, Science and Technology as of July 24, 2026.
Japan has not adopted a completely new teacher-licensing system. The July 23 meeting involved a draft policy summary, licensing-administration proposals and the review of university programs. Several recommendations remain under discussion and may require additional ministry action, regulatory changes or legislation before taking effect.
The term “diverse workforce” in this article refers primarily to professional experience, academic specialization, career background and the range of expertise available within school teams. It should not be interpreted as meaning that every proposed change concerns demographic diversity.
Japan is considering significant changes to how teachers are prepared, licensed and brought into schools.
On July 23, 2026, the teacher-training division of Japan’s Central Council for Education held its 161st meeting at the education ministry. Members reviewed a draft summary on accelerating the formation of high-quality school workforces with diverse professional expertise, examined how teacher-license administration should operate and considered university programs seeking authorization to prepare candidates for teaching credentials.
The discussion did not immediately change who may legally teach in Japan.
It did, however, bring together several parts of a wider reform effort: making teacher preparation more flexible, recognizing different professional strengths, modernizing licensing administration and opening more practical routes for people who did not begin their careers in education.
Japan’s schools are under pressure to find enough qualified educators while also responding to artificial intelligence, inclusive education, student mental health, changing communities and increasingly specialized learning needs.
The challenge is not simply recruiting more adults into classrooms.
It is expanding the workforce without weakening the professional preparation students depend on.
What Happened on July 23
The July 23 meeting had three major policy items.
The council considered a working draft on how Japan could accelerate the development of a high-quality teaching workforce with varied expertise. It also examined the future administration of teaching licenses and received a formal consultation concerning university courses designed to give students the qualifications required for teaching credentials during the 2026 academic year.
These subjects are closely connected.
Universities prepare most new teachers. Prefectural boards of education issue licenses. School systems recruit and employ credentialed educators. The national government establishes the broader legal and regulatory framework.
A reform affecting only one part of that chain may not resolve the workforce problem.
Creating a new pathway into teaching will have limited value when license processing remains slow. Modernizing licensing administration will not solve shortages if candidates cannot complete suitable preparation. Approving more university programs will not necessarily improve schools unless those programs prepare teachers for current classroom demands.
The July 23 discussion reflects an attempt to address those systems together.
Japan Has Not Abandoned Teacher Licensing
Japan continues to operate under the principle that teachers generally must possess an appropriate license issued under the Education Personnel Certification Act.
The ministry’s July materials describe the licensing system as a way to preserve, improve and certify the qualifications of people entrusted with public education. Ordinary licenses are generally connected to the type of school and, at the secondary level, to the subject being taught.
Japan also follows an open teacher-preparation model.
Teacher education is not restricted to a single category of specialist institution. General universities and teacher-training universities may prepare candidates through approved courses, allowing students in fields such as literature, law, science and education to pursue teaching credentials.
This structure already provides some flexibility.
The current reform discussion is about whether it provides enough flexibility for the future—and whether the required coursework reflects what teachers now need.
Ordinary, Special and Temporary Licenses Serve Different Purposes
Japan’s licensing framework includes ordinary, special and temporary teaching licenses.
An ordinary license is the standard credential generally earned through university study and an approved teacher-preparation course. The education ministry reported that 179,389 ordinary licenses were awarded during fiscal 2024.
Special licenses provide a route for people with substantial knowledge, skills or professional experience who do not hold an ordinary teaching license. These credentials are awarded through an examination conducted by a prefectural board of education and are intended to bring outside expertise into schools.
The ministry reported 591 special licenses in fiscal 2024. That is a small number compared with ordinary licenses, although it represents an existing legal mechanism for hiring professionals from outside conventional teacher preparation.
Temporary licenses are generally used when a suitably licensed teacher cannot be secured. They permit employment as an assistant teacher for a limited period and are intended to function as an exception rather than the foundation of the workforce.
Japan also allows certain qualified individuals without regular teaching licenses to serve as special part-time instructors after notification to the relevant education board. More than 20,000 such notifications were reported for fiscal 2024.
The central question is how these pathways should be used without creating a two-tier system in which some students regularly receive instruction from less-prepared personnel.
Why Japan Wants More Professional Diversity in Schools
Modern schools are expected to address an unusually broad range of needs.
Teachers must understand their subjects, plan instruction, assess learning, manage classrooms, use digital tools, support students with disabilities, respond to bullying and coordinate with families and communities.
No single teacher can be an expert in every area.
Japan’s reform discussions therefore emphasize creating teams in which educators bring different strengths. Those strengths might include special education, technology, counseling, language learning, industry knowledge, data use, artificial intelligence or community engagement.
The goal is not necessarily for every teacher to possess the same advanced expertise.
It is to ensure that the school workforce collectively has the knowledge needed to serve students.
This is one reason policymakers are examining both traditional preparation and alternative entry routes. A software engineer, researcher, artist, healthcare professional or experienced business employee may contribute knowledge that is difficult to develop through a conventional education degree alone.
The legal and policy challenge is determining how much teaching preparation that professional still needs before taking responsibility for students.
Proposed Preparation Changes Would Emphasize Individual Strengths
The ministry’s recent teacher-preparation work proposes distinguishing between knowledge all teachers should share and areas in which candidates may develop stronger specialization.
The June 2026 secondary summary describes a structure that would combine common professional preparation with study connected to a candidate’s particular strengths. For some middle-school preparation programs, the materials illustrate a model involving 36 credits of common teacher education and 20 credits associated with a stronger professional specialization.
The proposal would permit universities to create more clearly differentiated teaching profiles.
One candidate might develop expertise in digital learning. Another might concentrate on inclusive education, language support, school-community partnerships or advanced disciplinary knowledge.
The materials indicate that these specializations should be closely connected to both the student’s degree program and the wider teacher-preparation curriculum. Universities would need to demonstrate that the specialization is coherent rather than merely attaching an unrelated group of elective courses to a teaching credential.
This could make licensing more informative.
Instead of showing only the school level or subject a person is authorized to teach, a credential may eventually communicate something about the teacher’s additional professional strength.
Artificial Intelligence and Data Use Are Entering Teacher Preparation
The proposed curriculum revisions also reflect the growing role of technology in schools.
Materials considered during the reform process include educational data, artificial intelligence, digital learning infrastructure and the use of information technology within teacher preparation.
This does not mean that Japan plans to replace teachers with artificial intelligence.
It means future educators may be expected to understand how digital systems affect teaching, assessment and student learning.
Teachers will increasingly need to evaluate AI-generated information, protect student data and decide when technology improves instruction and when it becomes a distraction.
That work cannot be left entirely to technology specialists.
A licensing system that prepares teachers only for the classroom conditions of the past may produce legally qualified educators who are not prepared for the tools already entering schools.
Inclusive Education Is Another Major Priority
Japan’s proposals also give substantial attention to special education and the inclusion of students with varied needs.
The June summary argues that future special-school teachers need a broad foundation across disability areas while school teams also benefit from educators who possess deeper expertise in particular types of support.
This team-based approach recognizes that disability categories do not always fit neatly into separate classrooms or credentials.
A student may have overlapping learning, communication, physical or behavioral needs. General-education teachers also need enough knowledge to provide appropriate classroom support rather than assuming that every issue belongs to a specialist.
The proposed preparation materials include understanding individual differences, creating appropriate learning environments and providing reasonable accommodations.
That makes teacher licensing part of Japan’s broader inclusion policy.
A license should certify not only that a teacher understands a subject but also that the teacher can serve students whose needs and backgrounds differ.
Special Licenses Could Help Bring Career Changers Into Schools
Special teaching licenses are one of the most direct ways to diversify Japan’s teacher workforce.
They allow prefectural education boards to credential people with recognized expertise who did not complete a standard university teacher-preparation course.
In theory, this pathway can help schools recruit professionals in areas where qualified teachers are difficult to find. It may be particularly useful for technology, foreign languages, vocational subjects, arts and emerging fields.
Yet the fiscal 2024 total of 591 special licenses shows that the pathway remains limited compared with the ordinary licensing system.
Part of the problem may be administrative.
The process requires prefectural review, evidence of professional knowledge and an assessment of whether the applicant has the character, commitment and judgment needed to teach.
Those protections are important.
At the same time, a system that takes too long or varies dramatically among prefectures may discourage schools from using the pathway even when an excellent candidate is available.
Major Cities May Gain More Licensing Authority
One concrete issue under review concerns who may issue special and temporary licenses.
At present, prefectural boards of education generally hold licensing authority. A proposal submitted through Japan’s decentralization process seeks to allow designated major-city boards of education to issue special and temporary licenses when they request that authority.
Supporters argue that large cities could then recruit highly qualified candidates at the time those candidates are needed rather than waiting for prefectural processing.
The ministry’s July materials say the government intends to consider transferring this authority to interested designated cities and reach a conclusion during 2026.
This could make recruitment faster in cities such as Nagoya, Kawasaki, Sagamihara and Kumamoto, which were identified among the proposing municipalities.
It could also create questions about consistency.
If cities and prefectures apply different standards, the same professional might qualify for a special license in one jurisdiction but not another.
Any transfer of authority should therefore preserve clear national expectations regarding competence, screening and student safety.
License Administration May Become More Digital
The July 23 meeting also considered the administration of licenses themselves.
Japan’s current system involves prefectural records, university documentation and different application routes depending on how the candidate qualified.
The ministry plans to expand the use of national qualification-information systems and My Number-linked digital processes. New individual license applications are expected to become eligible for greater digital processing from around March 2027.
Modernization could reduce the need for applicants to submit repeated copies of documents already held by government agencies.
It may also make name changes, record verification and movement between jurisdictions easier.
For education boards, digital records could reduce paperwork and help officials identify which licenses a candidate holds.
Digitalization still requires safeguards.
Teacher-license records contain personal and professional information. Systems must be accurate, secure and capable of distinguishing valid credentials from expired, revoked or improperly entered records.
Administrative efficiency is useful only when it strengthens trust in the licensing system.
The System Still Uses Teachers Outside Their Licensed Subjects
Japan permits limited out-of-field teaching when schools cannot secure a properly licensed teacher for a particular subject.
The education ministry reported 9,552 approvals for out-of-field subject assignments in middle and high schools during fiscal 2024.
This figure illustrates why licensing reform matters.
A school may technically remain staffed while relying on educators assigned outside their credentialed subjects.
That can be necessary in an emergency, particularly in small or rural schools. It should not become a permanent substitute for recruiting appropriately prepared teachers.
Expanding access to additional licenses for current teachers may help reduce these assignments.
Japan has already supported programs allowing working educators to earn new credentials, including qualifications spanning both elementary and middle school or credentials in subjects where out-of-field assignments remain common.
A more flexible system should make it easier for competent educators to add qualifications without lowering the standards attached to those qualifications.
University Approval Remains Central
The July 23 council also considered which university courses should be recognized as providing the academic requirements for teacher licenses.
This may sound like an administrative detail, but it is one of the main quality controls within Japan’s open teacher-preparation system.
Universities cannot simply declare that any collection of courses qualifies students to teach.
Programs must seek approval and show that their curriculum, staffing and structure meet national requirements.
As teacher-preparation rules change, universities will need to redesign programs and explain how candidates develop both common teaching knowledge and specialized strengths.
Some institutions may create innovative pathways for working adults or professionals changing careers.
Others may struggle with the staffing and administrative costs required to maintain approved courses.
Reform should make teacher preparation more accessible without turning university approval into a formality.
A More Flexible System Could Still Become Unequal
Flexibility is often presented as an obvious solution to teacher shortages.
It can also create risk.
Well-resourced schools may continue hiring fully prepared teachers while schools facing severe shortages rely more heavily on temporary licenses, out-of-field assignments or instructors entering through abbreviated pathways.
Students in rural, remote or economically disadvantaged communities could then receive a less stable workforce.
Japan should monitor not only how many new teachers enter through alternative routes but also where they are placed and how long they remain.
Alternative licensing should expand expertise, not concentrate less-prepared staff in schools with the greatest needs.
That distinction will determine whether reform improves educational equity or merely makes shortages less visible.
Professional Experience Does Not Automatically Produce Teaching Skill
A person can be highly accomplished in another profession and still struggle in a classroom.
Subject knowledge does not automatically provide the ability to explain difficult ideas to children, manage a group, assess understanding or support a student experiencing distress.
Career changers entering through special licenses should therefore receive structured induction and mentoring.
Schools should not hire an outside expert and expect that person to learn teaching entirely through trial and error.
Preparation can be adapted to experience.
It should not be eliminated.
A reasonable system could recognize prior professional knowledge while requiring focused preparation in child development, instructional methods, assessment, educational law, inclusion and student protection.
Licensing Reform Will Not Solve Working Conditions
Japan’s teacher-workforce challenges are not caused only by licensing rules.
Schools also face concerns involving workload, administrative duties, club supervision, public expectations and the long-term attractiveness of teaching.
Making entry easier may increase the number of applicants.
It will not guarantee that they remain.
A professional who leaves another industry to teach may quickly reconsider that decision when school responsibilities extend far beyond classroom instruction.
Licensing reform therefore needs to be connected to workload reform, professional support and more sustainable employment conditions.
Otherwise, Japan may create additional pathways into the profession without addressing the conditions driving people out.
What Teachers and Candidates Should Watch
Current and prospective teachers should watch whether Japan changes the required coursework for ordinary licenses, how universities introduce specialized pathways and whether professional strengths will appear on credentials.
Career changers should pay particular attention to special-license procedures in the prefecture or designated city where they hope to work.
Education boards should watch for decisions concerning the transfer of licensing authority, digital applications and national record systems.
Universities will need to follow program-approval requirements and possible changes to the division between common professional study and specialization.
None of these groups should assume that a July council discussion has already altered the law.
Formal implementation may take additional time.
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Key Takeaways
Japan’s Central Council for Education teacher-training division met on July 23, 2026, to consider a draft workforce-reform summary, teacher-license administration and the approval of university preparation programs.
The meeting did not immediately create new licensing rules.
Japan is examining how teacher preparation can combine common professional knowledge with stronger areas of individual specialization.
The ministry is also considering administrative changes involving special licenses, major-city education boards and greater digitalization of licensing records and applications.
Special licenses already allow experienced professionals without ordinary teaching credentials to enter schools, but only 591 were awarded during fiscal 2024.
Japan continues to rely on temporary, part-time and out-of-field arrangements when fully licensed teachers are unavailable, demonstrating the need for a more sustainable workforce strategy.
Greater flexibility could help recruit career changers and specialists, but reforms must preserve preparation, mentoring and consistent quality standards.
Frequently Asked Questions
Did Japan adopt new teacher-licensing rules on July 23?
No. A national education council reviewed draft recommendations, licensing administration and university course approvals. Further action would be needed before major changes become binding.
Who issues teacher licenses in Japan?
Prefectural boards of education generally issue teaching licenses. Japan is considering whether interested designated major cities should receive authority to issue some special and temporary licenses.
What is a special teaching license?
It is a credential that allows a person with substantial professional knowledge or experience to teach without completing the ordinary university-based licensing route. Approval requires review by an education board.
How many special licenses are awarded?
The education ministry reported 591 special licenses during fiscal 2024.
Can someone teach without any license?
Japan permits limited exceptions, including special part-time instructors and temporary or out-of-field arrangements subject to legal requirements and education-board approval.
Will the proposed reforms lower standards?
That is not the stated goal. The ministry is trying to diversify professional expertise while preserving common preparation. The effect will depend on the final requirements and their implementation.
Will teacher licenses become digital?
Japan is moving toward greater digital administration and expects some new individual license applications to use a national qualifications system from around March 2027.
Why does Japan want teachers with different professional backgrounds?
Schools increasingly need expertise in technology, inclusion, student support, career education and specialized subjects that may be difficult to provide through a workforce with identical preparation.
Will licensing reform end Japan’s teacher shortage?
Not by itself. Recruitment also depends on workload, pay, professional support, location and whether educators find teaching sustainable over time.
Final Thoughts
Japan’s teacher-licensing debate is not simply about reducing the number of courses required to enter a classroom.
It is about defining what professional teaching should look like in a changing society.
Schools need educators who understand instruction, students and the responsibilities that come with public education.
They also need people with expertise that traditional systems may not consistently produce.
Those goals do not have to conflict.
Japan can welcome career changers, industry professionals and specialists while still requiring meaningful preparation and protecting the status of teaching as a profession.
The risk lies at either extreme.
A system that is too rigid may exclude talented people who could strengthen schools. A system that is too permissive may place candidates in classrooms before they are prepared to teach children effectively.
The most promising reforms are those that recognize prior knowledge, provide focused preparation and ensure that new educators receive mentoring after they are hired.
Licensing should not function only as a barrier.
It should serve as a credible public assurance that every person entrusted with a classroom has the knowledge, judgment and support needed to do the work well.
Japan’s July 23 discussion moved that debate forward.
The next question is whether the final policy will build a genuinely stronger and more varied profession—or simply make it easier for schools to fill vacancies.
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Sources
Ministry of Education, Culture, Sports, Science and Technology — 161st Meeting of the Teacher Training Division
https://www.mext.go.jp/b_menu/shingi/chukyo/chukyo3/002/mext_00022.html
Ministry of Education, Culture, Sports, Science and Technology — Materials From the 161st Meeting
https://www.mext.go.jp/b_menu/shingi/chukyo/chukyo3/002/siryo/mext_00041.html
Ministry of Education, Culture, Sports, Science and Technology — Future of Teacher-Preparation Courses and the Licensing System: Second Summary
https://www.mext.go.jp/b_menu/shingi/chukyo/chukyo3/121/1360150_00006.htm
Ministry of Education, Culture, Sports, Science and Technology — Future of Teacher-Preparation Courses and the Licensing System: Interim Summary
https://www.mext.go.jp/b_menu/shingi/chukyo/chukyo3/121/1360150_00005.htm
Ministry of Education, Culture, Sports, Science and Technology — Programs Supporting Current Teachers in Obtaining Additional Licenses
https://www.mext.go.jp/b_menu/boshu/detail/mext_00463.html
