Bulletin of the Technical Committee on Learning Technology (ISSN: 2306-0212) |
Authors:Qihui Hu1
, and Xinhao Li1,
1: Zhejiang Normal University, Jinhua, Zhejiang, China
Abstract:
Against the backdrop of the global digital transformation of education, digital textbooks have become an important focus of educational reform in many countries. This paper examines digital textbooks in Japan’s basic education system by clarifying their conceptual scope, product types, and reported benefits and challenges. Conceptually, digital textbooks refer to learning and teaching materials produced in electronic-recording form. They can be divided into statutorily designated alternative textbooks and supplementary teaching and learning materials: the former includes digital textbooks for learners, while the latter include digital learning materials for learners and digital textbooks (teaching materials) for teachers. In terms of product types, four forms can be identified: basic digital textbooks, extended digital textbooks, teaching-support digital textbooks, and integrated digital textbooks. These forms are designed to accommodate different usage scenarios and needs. In terms of reported benefits and challenges, digital textbooks play a positive role in facilitating visual comprehension, supporting personalized and collaborative learning, and advancing inclusive learning. However, several challenges remain, including inadequate technological infrastructure, excessive operational and administrative burdens, and insufficient pedagogical support. Overall, the development of Japan’s digital textbooks is characterized by legally defined status and boundaries, differentiated product provision to meet diverse needs, and a long-term evaluation mechanism for continuous improvement.
Keywords: Japan, digital textbooks, conceptual scope, types, reported benefits and challenges
I. INTRODUCTION
With the accelerated digital transformation of education, digital textbooks, as an important medium for integrating digital technologies with curriculum content, have become a focus of educational reform worldwide. Several countries launched digital textbook initiatives relatively early and have accumulated considerable experience. For example, California’s free digital textbook initiative in the United State [1], Singapore’s EduPad programme, and South Korea’s digital textbook initiative [2][3]. A systematic examination of the experiences and lessons from these pioneering countries can provide valuable insights for other countries and regions seeking to advance digital textbook development.
Japan is also one of the pioneering countries in the development of digital textbooks. In 2011, Japan’s Ministry of Education, Culture, Sports, Science and Technology (MEXT) launched the Learning Innovation Project to develop and pilot digital textbooks, information-and-communication technology (ICT) devices, and digital teaching and learning environments in elementary and middle schools [4]. In 2018, Japan amended the School Education Act, granting digital textbooks for learners a legally recognized status as substitutes for print textbooks [5]. Subsequently, building on the GIGA School Program, which promoted high-speed network infrastructure and one-student-one-device in elementary and middle schools, Japan continued to conduct research on digital textbooks[6]. Beginning in 2024, Japan began the phased nationwide introduction of digital textbooks for learners in elementary and middle schools [7]. In 2026, Japan again amended parts of the School Education Act, with the revisions passed by the Diet in June. The new amended legislation is scheduled to take effect on April 1, 2027. Under the revised act, digital textbooks will be elevated to the same statutory status as print textbooks, placed under government authorization, and made subject to the free distribution policy applicable to compulsory education [8][9].
Japan’s experience in promoting digital textbooks can offer insights for other countries seeking to develop digital textbooks and build sustainable digital education ecosystems. Accordingly, this paper examines Japan’s development of digital textbooks as a case and seeks to clarify three questions: (1) What are digital textbooks? (2) What are their main types? and (3) What reported benefits and challenges have emerged in practical implementation?
II. DATA AND DOCUMENT SELECTION
All policy documents, questionnaire survey reports, and digital textbook product materials cited in this paper are official open resources released by Japan’s MEXT and authorized digital textbook publishers. The time scope of collected documents covers 2011–2026, corresponding to the full cycle of Japan’s digital textbook policy launch, legal revision, pilot promotion and nationwide rollout. The material selection criteria are set as three dimensions: first, policy normative documents including amendments to the School Education Act, official implementation guidelines and special work group summary reports, which are used to sort out the legal positioning and institutional evolution of digital textbooks; second, serial empirical research outcome reports issued between 2023 and 2025, containing questionnaire survey data from large-scale surveys of primary and secondary school teachers and students, adopted to analyze the practical benefits and existing challenges of digital textbooks; third, official display materials of mainstream digital textbook products released by authorized publishers, serving as the basis for classifying four types of digital textbook products. Non-official commentary articles and third-party media reports are only used as auxiliary background references and not incorporated into core data analysis to guarantee the authority and objectivity of research evidence.
III. CONCEPTUAL SCOPE OF DIGITAL TEXTBOOKS
In Japan, digital textbooks (デジタル教材) are broadly defined as learning and teaching materials prepared in an electromagnetic record format [10]. Since the 2018 amendment to the School Education Act, they have been classified into two categories: statutorily designated alternative textbooks and supplementary teaching and learning materials. These categories differ in legal status and scope of use, but together they support teaching and learning in elementary and middle schools.
A. The Positioning of Digital Textbooks
The 2018 amendment to the School Education Act reshaped Japan’s textbook framework. Before the amendment, the framework consisted of two categories: statutory main textbooks and supplementary teaching and learning materials. Statutory main textbooks refer to print textbooks that have either been authorized by the government or produced by the government. These textbooks are mandatory for use in schools and serve as the fundamental basis for classroom instruction. By contrast, supplementary teaching and learning materials comprised materials other than textbooks. They could be used when their content was educationally beneficial and pedagogically appropriate, but only as supplement resources; they could not replace statutory main textbooks in formal instruction[11]. Therefore, before the amendment, all digital textbooks were treated as supplementary teaching and learning materials and were subject to limited use.
In 2018, Japan amended the School Education Act, granting them legal status as substitutes for print textbooks [12]. This reform altered the traditional textbook framework. Japan’s textbook framework can therefore be understood as having expanded into three categories: statutory main textbooks, statutorily designated alternative textbooks, and supplementary teaching and learning materials. These categories are clearly distinguished in terms of legal status, usage obligation, and mode of supply, as shown in Table I.
TABLE I DIFFERENCES AMONG THE THREE TYPES
| Category | Statutory Main Textbooks | Statutorily Designated Alternative Textbooks | Supplementary Teaching and Learning Materials |
|---|---|---|---|
| Form | print textbooks | digital textbooks for learners | exercise books, teaching courseware, digital learning and teaching materials, etc |
| Legal Status | the main material that teachers rely on in classroom instruction, and all formal teaching is based on their content | can replace print textbooks and be used independently in classroom teaching | restricted to supplementary teaching and learning materials in the classroom; does not hold statutory status as a textbook |
| Usage Obligation | must be provided and used | serves as a statutory alternative to print textbooks for schools to choose | used voluntarily based on learning and teaching needs. |
| Authorization System | subject to strict government authorization | same content as the print textbooks; not subject to separate authorization | not subject to the textbook authorization system |
| Free Supply | provided free in compulsory education | not provided free | not provided free |
As a result, digital textbooks are no longer treated solely as supplementary teaching and learning materials. Instead, they now encompass both statutorily designated alternative textbooks and supplementary teaching and learning materials.
B. Classification of Digital Textbooks
Based on the amendment to the School Education Act, digital textbooks in Japan are legally classified into two categories: statutorily designated alternative textbooks and supplementary teaching and learning materials. Within this framework, three specific forms can be distinguished by user group: digital textbooks for learners (hereinafter referred to as Type A); digital learning materials for learners (hereinafter referred to as Type B); and digital textbooks (teaching materials) for teachers (hereinafter referred to as Type C), as shown in Figure 1.
(source: https://warp.ndl.go.jp/web/20260310030156/https://www.mext.go.jp/content/20210325-mxt_kyokasyo01-000013738_01.pdf.)
Among these three forms, Type A, digital textbooks for learners, is a special category of digital textbooks. They are digital versions of the corresponding print textbooks, contain the same content, and are produced by the same publishers, designed for learners to use on digital devices [13] are classified as statutorily designated alternative textbooks, as shown in Figure 2. By contrast, Types B and C are classified as supplementary teaching and learning materials. They incorporate multimedia content, such as video, audio, and animation, and provide additional teaching and learning functions.
(source: https://warp.ndl.go.jp/web/20260310030156/https://www.mext.go.jp/content/20210325-mxt_kyokasyo01-000013738_01.pdf.)
The three types differ in content, function, and institutional status, with clearly delineated roles and boundaries. Type A is a formal learning and teaching medium that can legally replace paper textbooks and carry the content and curricular role of the corresponding statutory main textbooks. Type B supports learning extension and functional enhancement, enabling students to engage in autonomous exploration and interactive learning. Type C focuses on supporting presentation, explanation, and instructional organization.
IV. PRODUCT TYPES OF DIGITAL TEXTBOOKS
Based on distribution outcomes from major publishers, four main types of digital textbook products are currently available, as illustrated in Figure 3.
(source: https://digi-keirin.com/r6-dtext/rika.html.)
Basic digital textbooks correspond to Type A: digital textbooks for learners. They are digital versions of the corresponding print textbooks and provide a relatively limited set of functions, including basic functions (stylus, zoom, drawing tools, text boxes, highlighters, etc.), special support functions (reflow, text-to-speech, ruby-text annotations), and QR code-linked content. This type of product is designed to enable students to read, annotate, and review textbook content on their devices, so both its price and features are relatively basic and affordable.
Extended digital textbooks correspond to Type B, that is, digital learning materials for learners. They are designed to support extended learning and do not reproduce the content of print textbooks. Instead, they provide a range of functions and enriched supplementary content, such as animations, videos, simulation tools, and flashcards. For example, in mathematics, learners can explore geometric relationships through visual operations such as moving, copying, and rotating shapes. In English, they can practice listening and speaking skills by repeatedly listening to audio materials and imitating pronunciation, thereby taking advantage of digital technology [14]. As a result, their price is significantly higher than that of Type A.
Teaching-support digital textbooks correspond to Type C, namely, digital textbooks (teaching materials) for teachers. They incorporate the content of print textbooks, content from digital learning materials for learners, and exclusive resources designed for teachers, including explanations, answer displays, assessment criteria, teaching guidance, and resource libraries. They assist teachers in lesson planning and classroom instruction and are priced higher than learner-oriented products.
Integrated digital textbooks refer to a combination of digital textbooks for learners and digital learning materials for learners (A + B). They include not only the content and functions of Type A but also the enriched supplementary learning content of Type B. By integrating the foundational content of Type A with the supplementary content of Type B, these textbooks provide convenient access to print textbook content both inside and outside the classroom, while also deepening learners’ understanding and facilitating practice through multimedia and interactive functions. As a result, their price is higher than that of either Type A or Type B.
As mentioned earlier, digital textbooks can be classified according to their legal attributes, target users, and product types, with the detailed classifications shown in Table Ⅱ. In terms of legal attributes, they fall into statutorily designated alternative textbooks and supplementary teaching and learning materials. When categorized by target users, they are divided into three types (Type A, Type B, and Type C). Type A corresponds to statutorily designated alternative textbooks, while Types B and C belong to supplementary teaching and learning materials. In terms of product type, there are four categories: basic type, extended type, integrated type, and teaching-support type. Among these products, three versions are intended for students, and one is tailored for teachers. Nevertheless, only the student-oriented products under Type A qualify as statutorily designated alternative textbooks; all the rest are categorized as supplementary teaching and learning materials.
TABLE Ⅱ
CORRESPONDENCE AMONG THREE CLASSIFICATION DIMENSIONS OF JAPANESE DIGITAL TEXTBOOKS
| Legal Attributes | Target Users | Product Types |
|---|---|---|
| Statutorily designated alternative textbooks | Digital textbooks for learners (Type A) | Basic digital textbooks (Type A) |
| Supplementary teaching and learning materials | Digital learning materials for learners (Type B) | Extended digital textbooks (Type B) |
| Integrated digital textbooks (Type A + B) | ||
| Digital textbooks (teaching materials) for teachers (Type C) | Teaching-support digital textbooks (Type C) |
V. REPORTED BENEFITS AND CHALLENGES OF DIGITAL TEXTBOOKS
Since the official introduction of digital textbooks for learners in 2019, Japan’s MEXT has conducted a long-term follow-up study titled the “Empirical Research Project on the Effects and Impacts of Digital Textbooks for Learners” [15]. This project includes large-scale nationwide questionnaire surveys of teachers and students, as well as empirical studies of instructional improvements in pilot schools. It aims to sort out and evaluate the reported benefits and practical challenges of digital textbooks based on user feedback while exploring appropriate models for their use. Drawing on years of research findings and survey data, the project has provided evidence to inform policy adjustments and the phased nationwide promotion of digital textbooks. By 2025, the coverage rate of English digital textbooks for learners in elementary and middle schools reached approximately 100%, while that of mathematics had reached approximately 55% [16]. According to the research reports released by MEXT, the advantages of digital textbooks are reflected in three areas.
Supporting visualized understanding and content manipulation: In a 2024 large-scale questionnaire survey by MEXT, 70.3% of teachers reported that digital textbooks are more suitable than print textbooks for “closely examining photographs, illustrations, and charts,” 66.2% for “visual browsing of learning content,” and 60.5% for “presenting only necessary information” [17]. This suggests that digital textbooks are advantageous in image examination, magnification, and visual presentation.
Supporting personalized and collaborative learning: According to the report, digital textbooks have gradually been integrated into students’ daily learning and various learning scenarios. In 2024, 80.9% of lower-grade elementary students and 61.5% of upper-grade elementary and middle school students had used digital textbooks[17]. At the same time, digital textbooks are not only used for “whole-class learning” but are also widely applied in “individualized learning” and “collaborative learning.” For example, among students in the upper elementary grades, the usage rates for these three contexts were 66%, 63%, and 60%, respectively. Among middle school students, the corresponding rates were 54%, 51%, and 48% [17].
Supporting accessible learning and educational equity: Features of digital textbooks—such as text-to-speech, captions, playback speed adjustment, animations, zoom, color inversion, and background-color adjustment—can reduce learning barriers for students with developmental disabilities, difficulties understanding Japanese, or low vision [17]. The 2024 report further confirmed the value of digital textbooks for students with special needs. Specifically, the report shows that digital textbooks were relatively effective in supporting instruction for students with emotional disorders, intellectual disabilities, and developmental disabilities, with positive feedback proportions of 53.4%, 51.7%, and 46.6% [17]. This suggests that digital textbooks are not merely general classroom tools; they also play an important role in promoting educational equity and supporting accessible learning.
However, many challenges remain. A 2024 survey showed that the main difficulties teachers encountered when using digital textbooks were concentrated in three areas: the technical environment, operational management, and instructional guidance. Specifically, 47.1% of teachers reported problems such as system freezing, errors, and slow page-turning, or complicated login procedures during use. In addition, 50.0% of teachers felt that the introduction of digital textbooks required setup work, such as assigning user IDs and passwords, which increased their management burden. Moreover, 38.7% of teachers reported a lack of information on effective methods for using digital textbooks [17]. Frequent system freezes, page loading delays and login complications directly interrupt the continuity of classroom teaching. Teachers need to suspend instructional arrangements to troubleshoot technical faults, which compresses the time reserved for student discussion, interactive practice and knowledge explanation. Cumbersome user ID and password allocation also creates repetitive administrative workload for instructors outside class, leaving less spare time for lesson planning and personalized tutoring. Furthermore, the lack of systematic pedagogical guidance restricts teachers from making full use of multimedia and interactive functions embedded in digital textbooks. Many teachers can only adopt basic reading and annotation tools, failing to design differentiated, inquiry-based learning activities, which greatly weakens the unique instructional value of digital textbooks. This indicates that the development of digital textbooks cannot focus solely on content and features. Equal attention must also be paid to the development of school-level operation and maintenance, platform standardization, teacher training, and technical support.
VI. CHARACTERISTICS OF THE DEVELOPMENT OF DIGITAL TEXTBOOKS IN JAPAN
First, clearly defined boundaries among different types of digital textbooks. At the legal level, Japan distinguishes between statutorily designated alternative textbooks and supplementary teaching and learning materials, thereby clarifying the status, content, and functions of different types of digital textbooks. This approach avoids challenges in quality assurance and content review, while also supporting the development of an orderly market environment.
Second, categorized product offerings. Based on different users, usage scenarios, and varying functional needs, four types of digital textbooks have been developed: the basic version is suitable for daily foundational learning; the extended version is designed for independent inquiry-based learning; the teaching-support version is for classroom-based group instruction; and the integrated version supports comprehensive and in-depth learning. The range includes both standard products that meet basic learning needs and high-end products with more advanced features.
Third, long-term evaluation and continuous optimization. A new technology must go through several stages before it can generate educational value, including the emergence of pressure for change, the search for new methods, and the creation of new structures [19]. Moreover, its effectiveness also needs to be verified through sustained observation and research over time. Since 2019, Japan’s MEXT has conducted annual surveys and evaluations of digital textbooks, continuously tracking the effects and issues that arise during their use. Based on these findings, the MEXT adjusted the pace of implementation and relevant policies. This creates a virtuous cycle: implementing new policies, monitoring their effectiveness, and making adjustments as needed.
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Authors
Qihui Hu
was born in 1991 in China. She pursued her master’s and doctoral degrees in Japan. Hu is currently working at the College of Education, Zhejiang Normal University, and the Institute for High-Quality Education Development of Zhejiang Normal University. Her research interests include international digital development in education, teachers’ digital literacy, AI education applications in K-12 schools..
Xinhao Li
was born in 2001 in China. Li is currently pursuing graduate studies in Educational Technology at Zhejiang Normal University (Educational Technology). Li’s research interests include the educational application of information technology and digital learning.