School textbooks in Japan are not written by the Ministry of Education. Instead, the textbooks for all subjects in elementary, and both lower and upper secondary schools are written and published by several major private companies. This system was introduced to Japan after World War II to avoid government having direct authority over the written contents. Japan's School Education Law (教育基本法) requires schools to use textbooks that are authorized by the Ministry of Education (MEXT). However, each local education board has the final authority to select which textbooks can be used in their jurisdiction from the approved list.
In Japan, potential school textbooks must pass a sequence of evaluations before receiving approval to be used in Japanese schools. First, textbook companies submit a draft of their proposed textbooks to the Japanese Ministry of Education. The Textbook Authorization and Research Council (教科用図書検定調査審議会), an official council of the Ministry of Education, composed of university professors, junior high teachers, checks the draft in accordance with the Ministry's educational curriculum guidelines (学習指導要領) to ensure that the contents of the proposed textbook is "objective, impartial, and free from errors." The Ministry of Education will give the company that authored the textbook the opportunity to revise the draft when it is found to contain information that is inconsistent with national guidelines. Once the textbook revisions are complete and the textbook has received the approval of the Ministry of Education, Local Boards of Education select books from a list of authorized textbooks for schools under their jurisdiction. The process of textbook authorization is ongoing and conducted every four years, the results of which are presented to the public the following year.
Critics claim that the government textbook authorization system has been used to reject textbooks that depict Imperial Japan in a negative light. This includes a case in the 1960s where a description of the Nanking Massacre and other war crimes committed by the Japanese military before and during World War II was rejected by the Ministry of Education. The author sued the Ministry, finally winning the case decades later. Recent controversy focuses on the approval of a history textbook published by the Japanese Society for History Textbook Reform, which placed emphasis on the achievements of pre–World War II Imperial Japan, as well as a reference to the Greater East Asia Co-Prosperity Sphere with fewer critical comments compared to the other Japanese history textbooks. Historian Stephen E. Ambrose noted that "The Japanese presentation of the war to its children runs something like this: 'One day, for no reason we ever understood, the Americans started dropping atomic bombs on us.'"
Defenders of the system counter that a book which fails to mention specific negative facts regarding the aggression and atrocities committed by Japan during World War II would also fail the Ministry of Education's approval process. During the approval process for the aforementioned history textbook by the Japanese Society for History Textbook Reform, the author was ordered to revise the book's content several times before receiving final approval. Moreover, during the Cold War, the Ministry rejected textbooks by left-leaning publishers which attempted to portray the Soviet Union, Mainland China, North Korea and other Communist countries in a positive light. Defenders also point out that during the 1960s and 1970s, the extent of the atrocities, as well as the existence of many of the incidents, were still being debated by Japanese historians; therefore, the Ministry of Education was correct in rejecting references to specific atrocities such as the Nanking Massacre during that era, but the Ministry finally insisted on the inclusion of those same incidents after Japanese historians had finally reached consensus during the 1990s. They also point out that, North and South Korea, as well as China, which happen to be the most outspoken critics of the Japanese textbook approval process, do not allow private publishing companies to write history textbooks for their schools. Instead, the governments of those countries write a single history textbook for all of their schools. In the case of South Korea, the government strictly examines textbooks from different companies before being publicized. Critics of Chinese and Korean textbooks also argue that the textbooks of those countries are far more politically censored and self-favoring than Japanese textbooks.
Today there are 30 unique textbooks for Social Studies (社会 Shakai), from 5 different publishers, in Japanese primary schools. Additionally, there are 8 unique textbooks for the study of history as part of the Japanese Social Studies curriculum (社会-歴史的分野 Shakai-Rekishi teki bunya), from 8 different publishers, for junior high schools. In Japanese high schools, the number of available options is much greater, with 50 unique textbook editions available for teaching Japanese, and world history.