Observation (CEACR) - adopted 2001, published 90th ILC session (2002)

Employment Policy Convention, 1964 (No. 122) - Japan (Ratification: 1986)

The Committee notes the detailed information contained in the Government’s report for 31 May 1998 to 31 May 2000 in reply to the previous direct request and the attached copy of the Ninth Basic Employment Measures Plan.

1. Articles 1 and 2 of the Convention. The Committee notes the Government’s statement that the unemployment rate continued to climb from 4.1 per cent in 1998 to 4.7 per cent in June 2000. More recent information indicates that the unemployment rate reached an unprecedented 5.3 per cent in September 2001 and the Minister of Labour declared a state of emergency. Furthermore, the Bank of Japan expects the current deep recession to continue until at least March 2003.

2. The Committee notes the information provided on particular groups of jobseekers, including the following:

-  Unemployment has increased most for young people (15-24), from 7.7 per cent in 1998 to 9.2 per cent in June 2000. The Government states that this is due in part to the greater interest of young people in job mobility. Measures to boost employment of youth include increased education and training, increased job search assistance, and instilling a job consciousness to diminish the frequency of resignations.

-  By 2010 it is estimated that one-third of workers will be over 55. Employment of older workers is becoming a pressing issue for the Government. About 80 per cent of all enterprises still make retirement compulsory at 60. The Government wants to do more to encourage firms to allow people to continue to work until 65.

-  For people with disabilities, the main employment promotion measures are training and quotas for hiring. Approximately 45 per cent of firms have filled their quota.

-  Amongst the employed, standard employment is declining, and temporary and daily employment is growing. The Government states that this change in the quality of work is causing increased tensions between management and unions, and the Government has had to establish a system for dispute resolution. However, self-employment is decreasing and the number of employees is increasing.

The Government also states that it aims to increase the size of the labour force by encouraging the use of flexible forms of work, such as part-time work and telecommuting. Please continue to supply information on the impact of these and other measures set out in the Ninth Basic Employment Measures Plan 1999 on employment promotion. Please also continue to provide information on trends in quality of employment.

3. Further to previous comments, and to comments made under the Equal Remuneration Convention, 1951 (No. 100), the Government states that the participation rate of women of all ages is increasing. An increasing number of mothers are choosing not to stop working for a period, although many opt for part-time work. Increasing employment of women is a priority, not just out of concern for gender equality, but also because the labour force is shrinking at a rapid rate. The Government has abolished restrictions on overtime, night work, etc., for women, and has improved job security for women on maternity leave. The Government has also taken proactive measures to accommodate workers with family responsibilities such as increasing allowances for time off and improving job security for workers who take time off for family reasons. Other measures include education and training, education on positive action employers can take to promote employment of women, and a system for quick resolution of disputes. The Government has set up a special bureau to promote employment of women. Please continue to supply information on progress made in ensuring equality of treatment for all categories of workers mentioned in Article 1, paragraph 2(c), of the Convention.

4. The Committee notes with interest that the Government is extending its training programme to include a broader range of participants. The Government considers that foreign workers will become increasingly important to the economy as the labour force ages. It intends to regulate better the influx of foreigners, and to provide them training to ensure that their skills are appropriate for the demands of the labour market. It is also providing training and support services to day workers and the homeless to help integrate them into the formal economy. The Committee would appreciate continuing to receive information on the impact of these training programmes on employment promotion.

5. The Committee also notes with interest that a key component of the employment strategy set out in the Ninth Basic Employment Measures Plan 1999 is improving placement services. Japan has ratified the Private Employment Agencies Convention, 1997 (No. 181), and the Government has sent a detailed first report, which the Committee will evaluate in the near future. The Government is expanding the range of jobs available through the placement services, setting up a website for jobseekers, and addressing issues such as management of personal data and reducing the average time period for referrals. It is also boosting training because it anticipates that mismatch will increase, due to changes in technology, globalization and competition, and a decreasing supply of new graduates.

6. The Committee notes the interesting discussion in the Government’s report on evaluating enterprises. The Government suggests that actions of firms, such as sizeable lay-offs, should be evaluated not just by investors but also by society as a whole. The Committee would appreciate receiving further information on any specific measures implemented in line with this general proposal, as it affects the objectives of full employment set out in the Convention.

7. Article 3. Please continue to supply information on the manner in which representatives of workers, employers and other groups affected by employment policies, such as rural and informal sector workers, are consulted on the formulation, implementation and evaluation of employment policies and programmes.