Since the mid-2010s, conflicts at UNESCO over the interpretation of Japanese colonial rule and wartime actions in the first half of the twentieth century in Japan, South Korea, and China have been fierce. Contested nominations include the Meiji Industrial Revolution Sites for the World Heritage List (Japan), the Documents of Nanjing Massacre for the Memory of the World (MoW) Register (China), and two still pending applications on the Documents on the Comfort Women (South Korean and Japanese NGOs). This paper examines the recent “heritage war” negotiations at UNESCO as they unfolded in a changing political, economic, and security environment. Linking World Heritage and MoW nominations together for a holistic analysis, this paper clarifies the interests of State actors and of various non-State actors, such as NGOs, experts, and the UNESCO secretariat. We discuss the prospects for these contested nominations and recommend further involvement of non-State actors to ensure more constructive and inclusive heritage interpretation to enable a more comprehensive understanding of history.

This paper aims to analyze the impact of the Incidental Process activated during the UNESCO Memory of the World (MOW) 2022/23 nomination cycle and the Memory of the World Regional Committee for Asia and the Pacific (MOWCAP) 2021/22 nomination cycle. The Incidental Process is a mechanism that allows a Member State to contest nominations submitted by other Member States in the inscription process of the MOW Register. Japan became the first Member State to initiate the Incidental Process in 2022, contesting five nominations submitted by Korea and China. Japan’s initiative, seemingly part of its decade-long campaign, concentrated on identifying the elements in the nominated documents that would evoke the image of perpetrators and removing them from inscription. However, the MOW and MOWCAP responded in different ways to the contestation, which highlighted several contentious issues that were not effectively addressed by the General Guidelines. Furthermore, the disputes surrounding Japan’s contestation revealed the institutional weakness of the International Advisory Committee (IAC), the main operational body of the program. This paper, after examining the extraordinary situations that arose during the MOW and MOWCAP inscription process, attempts to identify the origin of the contentious issues and suggests the need to implement the provisions of the Incidental Process for the future operation of the MOW.

This paper seeks to explain the process of collaboration among civil society organizations towards preserving the voices of the “comfort women” and registering related documents with UNESCO. The 14 civil society organizations from 8 countries, mostly those that suffered Japanese invasion and occupation, but also including one from Japan itself, have worked together to compile a dossier of “comfort women” documents for the submission of a joint nomination proposal to UNESCO. However, this project was threatened first by the political deal between South Korea and Japan in December 2015, and later by attempts to use money and state power to subvert UNESCO’s Memory of the World program (MoW). The resulting temporary freeze on the MoW program, talk of changes to its statutes and regulations, and UNESCO’s continued delay in implementing its own decisions raise serious doubts concerning the legitimacy and meaning of the program. A more fundamental question concerns whether and how the voices of victims of violation or discrimination, in this case of the “comfort women”, will be heard, preserved and transmitted to future generations to prevent the recurrence of such atrocities. If the efforts of the recent civil society movement end in failure, what alternative strategies are open to us?

In October 2017, the application to list the Voices of the Comfort Women archive on UNESCO's “Memory of the World Register” was rejected (or “postponed”). In this paper, I set that decision in the context of other recent instances of “heritage diplomacy” in East Asia, highlighting the tensions between nationalistic agendas and UNESCO's universalist pretensions. I then discuss the nature and extent of similar tensions in the framing of the “comfort women” issue, as manifested in “comfort women museums” (institutions closely associated with the preparation of the 2016-17 Memory of the World application). I focus especially on the case of China, where the Xi Jinping regime first sought to weaponize this issue against Japan, only to pull back in 2018 as Sino-Japanese ties warmed. I conclude by considering how the story of the comfort women might be reframed to underline its global significance (or “outstanding universal value”), in a manner that makes it more difficult for Japanese nationalists to portray the campaign for recognition and commemoration as an anti-Japan conspiracy.