Analysing the Death Penalty

The importance of analysing the death penalty is primarily derived from its concerning the “supreme right:” the right to life.Footnote 1 There appears to be no government power greater than that of life and death.Footnote 2 Accordingly, there seems to be “no government power in greater need of public oversight.”Footnote 3 The importance of analysing the death penalty also pertains to the persistence of wide-spread public support throughout retentionist,Footnote 4 abolitionist in practice (de facto),Footnote 5 and abolitionistFootnote 6 states worldwide. For instance, in Russia and BrazilFootnote 7 (abolitionist de facto states), 62% and 57%Footnote 8 of the public favour reinstating capital punishment, respectively.Footnote 9 Such support apparently motivated the Pilipino House of Representatives to approve a bill to re-impose the death penalty on 17th March 2017. This bill is currently pending Senate approval.Footnote 10

The sub-regions of East Asia and Southeast Asia are comprised of 16 of the world’s 196 states.Footnote 11 Nine of the world’s 56 retentionist states are located there.Footnote 12 In 2016, an estimated 5,181 death sentences were handed out globally.Footnote 13 At least 2457 of these (47.42%) were handed out in these two sub-regions.Footnote 14 In 2018, an estimated 4531 death sentences were handed down globally. At least 2427 of these (53.56%) were handed out in these two sub-regions.Footnote 15 Thus, these areas are exceedingly important for any analysis of the death penalty. Currently (22/02/2020), five of the retentionist states in these areas have ratified, or acceded to, the United Nations’ International Covenant on Civil and Political Rights (ICCPR), which makes it legally binding there.Footnote 16 Accordingly, these states are legally obligated to restrict the scope of the death penalty, with the eventual aim of abolishing it.Footnote 17 Out of these states, the Democratic People’s Republic of Korea (DPRK) and Vietnam represent positive change, as they have restricted their lists of capital crimes from 33 to 5 and from 44 to 22, respectively.Footnote 18 Conversely, Thailand and Japan represent negative change as they have expanded their lists of capital crimes to include corruption and organised crime, respectively.Footnote 19 They have done so despite the apparent illegality of such expansion i.e. following the ratification of the ICCPR. Such changes seem to indicate that the death penalty serves a (particularly) symbolic function in these states i.e. it validates public opinion there. This appears evidenced by the argument that political actors in retentionist states typically use to justify their state’s retention: they cannot abolish the death penalty because it retains the support of the majority of the population there (the ‘democratic’ argument). Alternatively, some political actors argue that it should not be abolished in their state because it deters crime there (the ‘deterrence’ argument). Some other political actors combine these two arguments. Those who mainly (or solely) advocate the deterrence argument appear to attribute the following pragmatic function to the death penalty: it primarily deters crime e.g. via fear and/or anxiety. Here, it is worth noting that I take fear to mean an unpleasant emotional/cognitive future-oriented, long-term response broadly focused on a diffuse threat.Footnote 20 I take anxiety to mean an unpleasant emotional/cognitive present-oriented, and short-term response to a clearly identifiable and specific threat.Footnote 21 Those who mainly (or solely) advocate the democratic argument seem to attribute the following symbolic function to the death penalty: it primarily validates public opinion.

Analysing Executions

In 2016, an estimated 3243 executions were carried out globally.Footnote 22 At least 2228 of these (68.70%) occurred in East and South-East Asia.Footnote 23 Thus, it is difficult to overstate the importance of these sub-regions in any analysis of executions. In 2018, an estimated 2690 executions were carried out globally. At least 2,115 of these (78.62%) occurred in East and South-East Asia.Footnote 24

Globally, there appears to have been a general downward trend in executions in recent years.Footnote 25 This trend also seems to pertain to East and Southeast Asia.Footnote 26 However, the lack of reliable information on executions (in several states) in this area makes it exceedingly difficult to confirm this.Footnote 27

According to the available data, there are vast discrepancies between the execution rates (x execution(s) per 1,000,000 of the population) of retentionist states in East and Southeast Asia. For instance, in 2016, Indonesia had an execution rate of 0.02 while the DPRK had an execution rate of 2.53. This discrepancy appears due to executions serving different functions in different states. These functions seem akin to the above-mentioned pragmatic and symbolic functions.Footnote 28 To aid analysis, I have coded states with an execution rate greater than 1 execution per 1,000,0000 of the population as pragmatic and states with an execution rate below 0.5 executions per 1,000,000 of the population as symbolic.Footnote 29 In 2016, China, the DPRK, and Vietnam had execution rates of 1.45, 2.53, and 1.57, respectively.Footnote 30 In 2018, China and Vietnam had execution rates of 1.44 and 0.89. Thus, I have categorised China and the DPRK as pragmatic states. These states also appear characterised by high levels of secrecy.Footnote 31 I take secrecy to mean one or more political actor(s)’ intentionally withholding information from one or more social actor(s).Footnote 32 Such high levels of secrecy are presumably intended to instil higher levels of fear of, and/or anxiety toward, governmental authority.Footnote 33 This may or may not be intended to (indirectly) help deter crimeFootnote 34 and it may or may not do so.Footnote 35 It could also problematise international scrutiny which may, in turn, heighten fear and/or anxiety, as the government then (at least) appears less susceptible to critique. Conversely, in 2016, Indonesia, Japan, Malaysia, Taiwan, and Thailand had execution rates of 0.02, 0.02, 0.29, 0.04, and 0.00, respectively.Footnote 36 These states had execution rates of 0.00, 0.12, 0.00, 0.04, and 0.01 in 2018. Thus, I have categorised them as symbolic states. Bar Japan and Thailand, these states also appear characterised by long-term downward trends in executions.Footnote 37

Japan stands out within the above symbolic states because the secrecy and silence that “shroud” its executions is apparently “taken to extremes not seen in other nations.”Footnote 38 This practice appears at odds with both the practices of other symbolic states and the symbolic function itself.Footnote 39

Japan’s importance in discussions on the death penalty and/or executions appears derived from its being one of only two of the world’s 25 “first world countries”Footnote 40 that retains (and uses) the death penalty for “ordinary” (i.e. not military) crimes.Footnote 41 It is also one of only three of the world’s 35 ‘liberal democracies’ to do so.Footnote 42 These factors make Japan an important place to test the limits of European human rights perspectives on non-neighbouring political environments.Footnote 43 Induction from a detailed case study of Japan could also generate new insights about the circumstances of change in death penalty policy, executions and the practices surrounding both of them.Footnote 44

Japan is the “most developed nation” in East and Southeast Asia and the only “first world country” in Asia that retains (and uses) the death penalty for ordinary crimes.Footnote 45 The Japanese experience is important because it serves as both a potential counterexample to the general expectation that ‘fully developed’ democracies will abolish the death penalty and a potential leading indicator that other nations might also not abolish the death penalty as a rite of passage into ‘full development.’Footnote 46 Thus, analysis of Japan might provide some insight into both the obstacles in the way of the abolition of the death penalty (and thus, executions) and the possible future trajectories of both executions and the death penalty in these sub-regions (and elsewhere).Footnote 47

In recent years, public sentiment in Japan has appeared strongly supportive of the death penalty and yet, executions have remained shrouded in secrecy and silence.Footnote 48 Hence, this paper aims to answer the following research question: why are executions in Japan shrouded in secrecy and silence despite their apparent symbolic importance there?

Answering this question will enhance the academic literature on practices surrounding executions and the death penalty.Footnote 49 To answer this question, this paper first contextualises the issue by outlining the history of executions in Japan. It then analyses the official justification for carrying out executions there: it would be undemocratic to discontinue them. Next, it briefly addresses the argument from deterrence i.e. executions are justified by their deterrent effect. Lastly, it critically analyses alternative explanations. This paper concludes that executions in Japan appear shrouded in secrecy and silence because those in power i.e. officials in the Japanese government assume that (1) this helps them maintain order and stability through fear and/or anxiety,, (2) the alternative (i.e. transparency) could encourage would-be offenders to game the system, and (3) the importance of order, stability and/or this concern (vis-à-vis would-be offenders) outweighs that of the symbolic importance of executions.

Historical Change

Japan was not always a retentionist state and executions there were not always surrounded by secrecy and silence.Footnote 50 In 810AD, Japan became an abolitionist (de facto) state.Footnote 51 The death penalty remained unused there until 1156 when it was brought back into use following the Hōgen rebellion. It was then the “sanction of choice” throughout the Kamakura (1185–1333) and Edo (1603–1868) eras.Footnote 52 Executions during these periods were “highly public affairs” intended to maximise deterrence and demonstrate (and celebrate) the “sovereignty” of the ruling authorities.Footnote 53 For instance, at least 5000 Christians were publicly tortured and executed from 1614–1640.Footnote 54 The executions of Christians alone during this period gives Japan an execution rate of (at least) 13.23,Footnote 55 making it a (firmly) pragmatic state. Executions were carried out in myriad ways during these eras e.g. beheading, boiling, burning, crucifixion, and dismembermentFootnote 56 Although the public was informed of laws and orders, they were apparently told little about punishments due to the Confucian concern that too much knowledge might encourage “the calculators.”Footnote 57

In 1867, the Edo period ended and the nature of executions and the practices surrounding them changed. In 1882, hanging became the only way that the state could execute prisoners.Footnote 58 It remains the sole means of execution in Japan. By 1882, public executions had been abandoned. Executions then had to be carried out on prison grounds, and only prison guards and (a select few) state officials were permitted to attend.Footnote 59 Thus, “the principle of secrecy” was laid down in law.Footnote 60 Executions can still only be carried out on prison grounds and this “officials only” attendance policy remains in place (and unaltered).Footnote 61 In terms of its execution rate, Japan remained pragmatic for several years after these changes. For instance, it executed (at least) 61, 52, 130, and 131 people in 1883, 1884, 1885, and 1886, respectively.Footnote 62 Accordingly, its execution rates for these years were (at least) 1.65, 1.37, 3.43, and 3.43. However, Japan’s execution rate remained consistently below 1 after 1919.Footnote 63 Ergo, executions seemingly came to serve an alternative function then.Footnote 64

That said, the notion of executions coming to be used to primarily validate public opinion appears problematised by increasing levels of secrecy and silence surrounding executions since then (1919). For instance, during the US occupation (1945–1952),Footnote 65 a censorship bureau comprised of (at least) 6,000 officials fostered a “pathology of self-censorship,” which appears to persist to this day.Footnote 66 This pathology seemingly legitimised, and legitimises, prior secrecy and silence surrounding executions. It also facilitated, and facilitates, increasing levels of secrecy and silence.Footnote 67 The use of censorship in this period also helped forge a political consciousness that, to this day, remains inclined to “acquiesce to overweening power,” “conform to a dictated consensus,” and “accept authority “fatalistically.”Footnote 68 This political consciousness appears similarly conducive to secrecy and silence.

The practices surrounding executions in Japan also became increasingly secretive after US authorities left (most of) Japan in 1952. At that time, inmates on death row were notified at least one day in advance of their execution and allowed to meet their family and friends, worship with other inmates, receive spiritual counselling, request last meals, and otherwise put their final affairs in order.Footnote 69 These freedoms no longer exist.Footnote 70 In 1963, the Ministry of Justice (MoJ) issued a “circular” declaring its authority to tighten restrictions on meetings, and correspondence, with death row inmates.Footnote 71 During the rest of the 1960s, the Japanese state continued to strengthen controls on access to the condemned.Footnote 72 Prosecutors in the MoJ also took away the discretion delegated to wardens to concentrate control into their own hands and reduce the number of “leaks” from corrections officials.Footnote 73 Additionally, in 1975, inmates were banned from playing softball together and talking with inmates in adjacent cells.Footnote 74 Viewings of the gallows have also been prohibited, visits to death row have been curtailed, and the Japanese government, prosecutors, and prison officials have apparently become increasingly unwilling to describe, explain, justify, or discuss such practices.Footnote 75

Currently, correspondence with death row inmates is limited to authorized correspondents, and the letters that inmates send are usually censored i.e. a parts/parts of their content are erased or the letters go unsent.Footnote 76 Strict limitations are also placed on the frequency, duration, and content of other forms of contact between the condemned and their lawyer(s) and close relatives. If one does not fall into one of these categories, contact is (apparently) almost impossible.Footnote 77 Additionally, relatives of the condemned are only told of the execution after it has occurred and relatives of the victim are not told anything.Footnote 78 Defence lawyers and the public also receive no prior notification. This practice appears oriented toward minimizing protests and limiting debate.Footnote 79

Likewise, MoJ prosecutors select execution dates strategically e.g. when parliament is in recess and/or on a Thursday or Friday, that is, near the end of the “news week.”Footnote 80 The MoJ also provides no explanation or justification for its selecting certain inmates for execution while allowing others to live.Footnote 81 Furthermore, Ministers of Justice are appointed by the Prime Minister, who typically overlooks locally elected politicians for this role, apparently to prevent abolitionists from demonstrating in the Minister’s home district.Footnote 82 Moreover, the Cabinet appoints Supreme Court justices who, in turn, nominate tribunal and appeals court judges, and define their roles/remuneration.Footnote 83 This allows the government to effectively protect the shroud of secrecy and silence from the judiciary, at least in theory. It is also worth noting that Japanese prosecutors are accountable to the MoJ i.e. the government, not the judiciary. Critically, the government routinely denies (Japanese and foreign) scholars and reporters access to death penalty documents that, by law, should be made public.Footnote 84 Additionally, no “private persons” i.e. journalists, relatives/friends of the condemned/victim, scholars, and members of the general public are allowed to witness executions.Footnote 85 Only a public prosecutor, their assistant, the warden of the jail where the gallows is located, and members of the execution team are permitted to do so.Footnote 86 The media and the public are also not permitted to view the gallows when it is not in use.Footnote 87 These practices seemingly enforce secrecy and silence against both the publicFootnote 88 and the condemned.Footnote 89

However, there seems to have been some ‘progress’ regarding Japan’s shroud of secrecy and silence. For instance, in 2010, Chiba Keiko, then Minister of Justice,Footnote 90 allowed “a handful of carefully chosen journalists from one of Japan’s conservative press club[s] access to the gallows in Tokyo.”Footnote 91 This was the first time in 50 years that reporters were allowed such access.Footnote 92 Yet, the selection of specific journalists (over others) begs questions over how ‘progressive’ this act truly was, as “elite journalists” apparently collaborated with “elite bureaucrats” to “stage-manage” the story.Footnote 93 Such scepticism also appears warranted regarding the death penalty study group, which was established under Chiba’s orders.Footnote 94 This is because this group met only eight times in its first 15 months, its meetings were closed to the public, and its discussions were apparently superficial and/or scripted/controlled by MoJ prosecutors.Footnote 95 Other progressive measures appear similarly limited. For example, pieces of legislation that were passed in 2006 and 2007 assigned inspection boards to detention centres and brought some transparency to previously unwritten rules regarding visitation, respectively.Footnote 96 Yet, these changes lacked publicity regarding their introduction and consequently, few have apparently benefitted from them.Footnote 97 Only one change seems unaffected by such limitations: since 2007, the MoJ has announced the name of the executed person(s) in a press conference after their execution(s).Footnote 98 That said, ‘progress’ in this area appears undermined by an apparent backsliding regarding information openness, as a new law took effect in 2004 which makes it a crime to use “records of criminal cases” for any purpose except the criminal trial.Footnote 99 This restricts the flow of information to the public. Ergo, it is unclear whether the “shroud” surrounding executions in Japan is being (gradually) lifted or not.Footnote 100

Symbolism and Democracy

Executions seem to serve a symbolic function in Japan i.e. they primarily validate public opinion. This appears evidenced by the “arguments from democracy,” which remain the official justification for both retaining the death penalty and carrying out executions.Footnote 101 Within this, many officials assert that the state should express “the will of the people” and as the majority of citizens support executions, it would be “anti-democratic” to discontinue them. Alternatively, some claim that discontinuing executions, despite public support for them, would undermine respect for the law.Footnote 102 The validity of these arguments patently depends upon wide-spread public support for executions. To validate their arguments, defenders of the death penalty and/or executions in Japan i.e. numerous officials in the Japanese government,Footnote 103 typically cite governmental surveys of the public.

These surveys have been conducted approximately every five yearsFootnote 104 since 1956 and have (allegedly) consistently shown that the (vast) majority of the public supports capital punishment.Footnote 105 They have also allegedly demonstrated that, with the exception of 2014, this support has increased over 20 years.Footnote 106 For instance, this support was measured at 74%, 79%, 81%, 86%, and 80.3% in 1994, 1999, 2004, 2009 and 2014, respectively.Footnote 107

That said, these surveys have long been subject to critique over their phrasing questions in a leading and (overly) simplistic manner i.e. in ways that are likely to increase/exaggerate support.Footnote 108 The questions used in recent years remain vulnerable to this critique.Footnote 109 For example, within these surveys, participants have been required to answer “Which of the following opinions concerning the death penalty do you agree with?”Footnote 110 with “it should be abolished,”Footnote 111 “it cannot be stopped”Footnote 112 or “I don’t know/I cannot choose.”Footnote 113 Numerous officials have (seemingly wilfully) (mis)interpreted participants’ agreeing with “it cannot be stopped” as support for the death penalty.Footnote 114 Additionally, the number of questions in the government’s surveys has been reduced over time and the nature of these questions has been altered. This seems to evidence a shift away from an (at least somewhat genuine) exploration of public acceptance of abolition to a justification of retention.Footnote 115

More open-ended surveys have convincingly undermined the extent and depth of support that is (allegedly) implied by the above-mentioned governmental surveys.Footnote 116 For instance, Sato and Bacon asked those who responded to the 2014 governmental survey to answer “Do you think that the death penalty should be kept as a form of criminal penalty or do you think it should be abolished?”Footnote 117 with “it’s definitely good that we have the death penalty,”Footnote 118 “it should probably be kept,”Footnote 119 “I don’t know if it’s good or bad,”Footnote 120 “it should probably be abolished,”Footnote 121 or “it should definitely be abolished.”Footnote 122 These answers received 27%, 46%, 20%, 6%, and 2% of the votes, respectively.Footnote 123

Furthermore, current surveys solely concern themselves with the retention of the death penalty. They do not ask any questions about executions and/or the way executions are currently used. Hence, they cannot be used to (accurately) gauge public opinion on executions, in principle and/or in practice. They also cannot be used as (reliable) evidence of support for executions and/or the status quo.

That said, the majority of the Japanese public seems to support the retention of capital punishment.Footnote 124 This challenges the following hypothesis regarding Japan’s “shroud:” the state has insulated executions with secrecy and silence in reaction to a (democratic) threat to the death penalty.Footnote 125 The notion that secrecy and silence remain in place to insulate executions from the threat of the abolitionist movement appears similarly unconvincing upon consideration of the movement’s lack of both members and public support.Footnote 126

Prima facie, these “arguments from democracy” may seemingly justify practices that enforce secrecy and silence against the condemned, as the Japanese public seems to favour harsh punishment and such practices may also aid executions’ deterrent effect (if they were public knowledge).Footnote 127 But, the use of secrecy and silence against the public appears patently at odds with democratic values and the symbolic function of executions.Footnote 128 Within the “arguments from democracy,” the first assertion i.e. it would be “anti-democratic” to discontinue executions because the majority of citizens support them, seems to provide no analytical leverage over why executions are shrouded in secrecy and silence in Japan.Footnote 129 The validity of the second (less common) claim i.e. discontinuing executions despite public support would undermine respect for the law, appears undermined by consideration of any state that has discontinued executions and not seen this occur.Footnote 130 However, the apparent desire to retain public respect for the law that underlies this claim may provide part of the answer to this essay’s research question i.e. the state may believe that shrouding executions in secrecy and silence helps fulfil this desire.

Deterrence

Some officials in the Japanese government argue that the use of executions is justified by their deterrent effect.Footnote 131 Additionally, much of the public apparently believes that executions deter homicide.Footnote 132 This alleged deterrent effect is eminently debatable.Footnote 133 As is the “brutalization” hypothesis i.e. executions facilitate violent crime by de-sensitizing society to violence.Footnote 134 Here, I shall assume that even if this belief i.e. that executions deter crime, is grounded more in faith than fact, it is subjectively meaningful to its believers and therefore, it retains sociological significance.Footnote 135 If executions were used primarily for deterrence, Japan would seemingly be a pragmatic state and thus, have a drastically different execution rate. The importance of this argument from deterrence appears further undermined by the enforcement of secrecy and silence (against the public) vis-à-vis executions since secrecy and silence undermine effective (and direct) deterrence.Footnote 136 Executions may (or may not) serve a deterrent function, but the notion of their effectively (and directly) doing so in Japan appears implausible, as it lacks at least two of the requirements of an effective (direct) deterrent i.e. publicity and celerity.Footnote 137 Ergo, the argument from deterrence appears dubious (at least regarding Japan) and cannot seemingly provide much (if any) analytical leverage over why executions in Japan remain shrouded in secrecy and silence.

Alternative Explanations

Some other officials in the Japanese government rationalise the shroud of secrecy and silence that surrounds executions in Japan by asserting that “secrecy is a Japanese tradition.”Footnote 138 In doing so, they seemingly argue that executions should remain shrouded in secrecy and silence because it has been that way for a long time. However, the claim that it has been that way for a long time appears at odds with Japan’s post-war history, as evidenced by the expansion of secrecy and silence vis-à-vis executions since then.Footnote 139 Moreover, even if this claim were (shown to be) true, this argument would be logically fallacious, as it derives an ‘ought’ from an ‘is.’Footnote 140

Alternatively, one may argue that this shroud stems from the above-mentioned “pathology of self-censorship” in Japan i.e. it represents conscious attempts to cultivate a favourable image of Japan, an (unconscious) habit, or both.Footnote 141 Yet, these arguments appear critically undermined by consideration of the amount of international pressure that supra-national bodies and NGOs have put on the Japanese government over this issue and the amount of (negative) international press coverage that it has attracted over the years.Footnote 142

That said, consideration of Japan’s history might help explain why executions in Japan are shrouded in secrecy and silence. This shroud might remain in place due, in part, to the persistence of goals that stem from the Edo era. Within this era, harsh punishments were sought to attain order and stability through fear and/or anxiety.Footnote 143 The secrecy and silence that currently surrounds executions in Japan appears somewhat oriented towards this goal, as it seems to augment fear and/or anxiety by increasing state power, directly and indirectly.Footnote 144 It directly increases state power by increasing the informational asymmetry between the public and the state and the public’s fear of, and/or anxiety towards, governmental authority.Footnote 145 It indirectly increases state power by (1) conveying the message that “state killing is state business”Footnote 146 and (2) making the state less susceptible to critique, internationally and domestically.Footnote 147 Domestically, this shroud may prevent the public from acting as an effective check on governmental power. This appears particularly problematic because Japan is one of only two liberal democracies that regularly carry out executions.Footnote 148

The above-mentioned (Confucian) concern that too much knowledge can encourage “the calculators” may also help explain the use of secrecy (against the public) regarding executions.Footnote 149 Further analysis of the justificatory role that this belief can play vis-à-vis Japan’s “shroud” may provide insight into the practices of Japan and other secretive retentionist states that share elements of Confucian philosophy i.e. China and Vietnam.Footnote 150 In sum, executions in Japan appear shrouded in secrecy and silence despite their symbolic importance because those in power i.e. officials in the Japanese government assume that 1) this helps them maintain order and stability through fear and/or anxiety and 2) the alternative (i.e. transparency) could encourage would-be offenders to game the system.

Conclusion

Japan is an important case study for research on practices that surround executions. Analysis of this case study aids insight into retentionist states, generally, and retentionist states that share elements of Confucian philosophy, specifically. Executions in Japan appear to serve a symbolic function i.e. they primarily validate public opinion. This appears evidenced by its low execution rate and the official justification for retaining the death penalty (and carrying out executions) i.e. abolishing the death penalty (and thus, executions) would be undemocratic. Yet, this justification appears undermined by the secrecy and silence that shroud executions in Japan, and it can offer little insight into why this shroud exists. As shown, “arguments from deterrence” fare (at least) as badly. Although arguments premised on Japanese tradition and/or a pathology of self-censorship offer some analytical leverage over this issue, they appear fundamentally flawed. Rather, executions in Japan appear shrouded in secrecy and silence despite their symbolic importance because those in power i.e. officials in the Japanese government assume that (1) this helps them maintain order and stability through fear and/or anxiety (2) the alternative (i.e. transparency) could encourage would-be offenders to game the system and (3) the importance of order, stability and/or this concern regarding the gaming of the system outweighs that of the symbolic importance of executions.