Strict rules at shelters deter victims of domestic violence in Japan

Local governments in Japan have expanded consultation services for women facing domestic violence, poverty and other hardships since a support law took effect about two and a half years ago.

But efforts to provide temporary shelter for domestic violence victims have made little headway.

One major obstacle is a rule barring women from bringing smartphones into shelters, a measure meant to keep abusers from tracking them down.

The Health, Labor and Welfare Ministry plans to revise its basic policy, which guides prefectural governments’ support plans, after a study panel draws up a report by the end of March 2027.

Temporary protection offers a safe haven for women fleeing domestic violence, sexual violence and other forms of abuse. It is provided at a range of facilities, including shelters attached to the comprehensive women’s consultation and support centers set up in each prefecture. By shielding women from further harm and connecting them with the support they need to become independent, the system has helped women rebuild their lives.

In recent years, however, the number of women receiving protection has plunged. In fiscal 2024, when the support law replaced the prostitution prevention law as the legal basis for such assistance, the figure stood at 3,178. That was little changed from the previous year and only about half the level of a decade earlier.

The number of women seeking consultations has stayed relatively steady, so the data suggest that a much smaller share of them are going on to receive protection.

Strict admission rules are one reason. To keep abusers from finding out where victims are, shelters generally prohibit residents from bringing in smartphones or other communication devices. Many also restrict residents from commuting to work or school.

These conditions deter many women from entering shelters. “Smartphones are becoming increasingly important, especially for young people. That may be making it harder for them to enter shelters,” a senior welfare ministry official said.

Against this backdrop, some local governments have created new facilities for women. In January 2025, the Kanagawa Prefectural Government and a private social welfare corporation opened Watashi no Ouchi (My Home), a facility that helps women live independently.

The facility only admits women judged not to be at risk of being tracked down. This allows residents to use communication devices and to commute to work or school. Its six rooms have stayed almost fully occupied, according to officials.

To help expand such initiatives, the ministry introduced a subsidy program for prefectures in fiscal 2025. The program supports “satellite” shelters with much looser admission rules, covering women considered unlikely to be located by their abusers. The ministry is seeking regions to serve as pilot sites.

The ministry’s revised basic policy is expected to call for flexibility in admitting women to shelters. “It’s important to establish support systems suited both to people who need a high degree of confidentiality and to those who do not,” the senior ministry official said.