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The Committee notes the information provided by the Government in the report received in November 2009 and the attached comments from the Japanese Trade Union Confederation (JTUC–RENGO).
Article 3 of the Convention. Participation of the social partners in the formulation of policies. In reply to the 2008 observation, the Government indicated that consultations covered by the Convention are implemented in the Labour Policy Council. The Committee notes that the Council on Economic and Fiscal Policy formulates the basic policies for economic and fiscal management and structural reform, which determines the fundamental orientation of policy measures, including employment measures. In this regard, JTUC–RENGO expressed its concern about the Government giving serious attention to recommendations made within the Council on Economic and Fiscal Policy, the Council for Regulatory Reform and other forums that do not include worker representation. JTUC–RENGO considers that discussions at the Labour Policy Council tend to be conducted within the framework set by these councils. The Committee notes JTUC–RENGO’s call to respect the Labour Policy Council as one of the pillars of the decision-making process for employment and labour policies. The Committee invites the Government to provide information in its next report on how discussions resulting from the Labour Policy Council, as well as other councils, have been used in the formulation and implementation of the employment policy. In this regard, the Committee asks the Government to focus on the consultative procedures which enable to take fully into account the views and experiences of persons affected by employment policy measures.
Articles 1 and 2. Measures taken in response to the global crisis. The Committee notes that the total unemployment rate increased from 3.8 per cent in October 2008 to 5.7 per cent in July 2009 due to the economic deterioration, equivalent to about 1.3 million more individuals unemployed. Among the measures implemented to improve the employment situation, the Government has created funds in prefectures to create short- and medium-term employment and to provide workers not eligible to receive unemployment insurance with income to secure living costs. The Government has also extended grants to firms to compensate decreased business and to support employment without dismissing workers. In April 2008 the “Job-Card System” was set up in order to provide training opportunities for workers with limited opportunities to find employment. The Committee also notes the increase of staff levels at the public employment services as a consequence to the rise in jobseekers that required services. According to JTUC–RENGO, with the rising unemployment among non-regular workers following the economic turndown, the Government has been working with the social partners to adopt the Tripartite Agreement toward Employment Stabilization and Job Creation. JTUC–RENGO also considers that job creation and employment mismatches continue to pose a challenge. The Committee invites the Government to provide information in its next report on how the policies designed and the programmes implemented will translate into productive and lasting employment opportunities for the unemployed and other categories of vulnerable workers affected by the crisis such as non-regular workers.
Implementation of an active employment policy. In reply to previous comments, the Government indicates in its report that Japan is progressing with structural adjustments to resolve the surpluses in employment, facilities and debts in order to rebuild a healthy economic environment. The Committee notes that revitalization grants have been established to facilitate small and medium-sized enterprises contributing to regional employment creation and expand employment in regions where unemployment is higher. The Committee also notes from the documentation available in the ILO that a New Growth Strategy (Basic Policies) was approved by the Cabinet in December 2009, focusing on generating demand and jobs by implementing measures to improve people’s livelihoods. The Government aims to create new demand and jobs in fields such as the environment, health and tourism, with the target of generating millions of jobs and ¥100 trillion in demand in these three sectors by 2020. Under the new strategy, the Government set a target for GDP growth of more than 2 per cent a year for the coming decade. Following a contraction of 1.2 per cent in 2008 and 5 per cent in 2009, real GDP growth is projected by the Bank of Japan to be about 2.1 per cent in the fiscal year 2010. The Government also seeks to reduce the unemployment rate from 5 per cent to about 3 per cent in the medium term. The Committee invites the Government to state in its next report whether special difficulties have been encountered in attaining the objectives of the Convention and how far these difficulties have been overcome.
Employment of women. In reply to the previous observation, the Government indicates that female participation in the labour market has increased for six consecutive years, with 23,120,000 female workers as of 2008. The Government informs that approximately 70 per cent of female workers leave their jobs when their first child is born, and a large number of women leave their jobs due to childcare and that the percentage of women in managerial posts continues to be low. The Committee notes the efforts to encourage employment of women workers with the Positive Action Support Site by disseminating information to companies of examples of good practices implemented by different firms and therefore raising public awareness. The Equal Employment Opportunity Law was revised in 2007 to further develop and strengthen the provisions including invalidating dismissals due to pregnancy and childbirth. The Committee notes that the Draft Act for Partial Amendment to the Child Care and Family Care Leave Act, which includes provisions for obliging business operators to establish a reduced work hour system for workers raising children under three years old and promotional measures for male workers to take childcare leave, was approved in June 2009. The Government also reports to be increasing efforts to improve day‑care services. The Committee invites the Government to report on the impact of the new legislation and on how these measures have created further productive employment opportunities for women.
Regarding the career-tracking system, the Government recalls that the Equal Employment Opportunity Law prohibits employers to classify workers into certain careers according to sex. In order to ensure opportunities for women to have access to the “main career track” more effectively, the revised Equal Employment Opportunity Law prohibits employers from applying, without legitimate reason, a criterion concerning the worker’s availability for reassignment that results in the relocation of the worker’s residence on the grounds that applying such a criterion is considered as indirect discrimination. The Committee invites the Government to provide further information on the measures taken to ensure that in practice companies are not using the two-track system for recruiting graduates, where men are assigned to managerial tracks and women to clerical tracks where upward mobility is very limited, and thus to ensure that each worker shall have the fullest possible opportunity to qualify for and use his or her skills, in accordance with Article 1(2)(c) of the Convention.
Youth employment. The Government states in its report that the employment situation of the second semester of 2008 resulted in problems such as enterprises cancelling informal job offers made in March 2009 to new graduates. Measures have been adopted to prevent such cancellations through the amendment of the Ordinance for Enforcement of the Employment Security Act. The Government introduced measures to assist young people in temporary or part‑time jobs, known as freeters. In April 2008, the Freeters Regular Employment Promotion Plan was promoted to support stable employment and has resulted in the regular employment of 268,000 freeters. Programmes have also been implemented relating to the one-stop service centre for young workers and the promotion of vocational training and career development in collaboration with universities and technical colleges. The Government states that the situation has been improving as the number of freeters has decreased over five consecutive years, with the number of freeters 1,700,000 in 2008. According to the OECD, the unemployment rate for 15–24 year olds rose by 2.4 percentage points, reaching 9.9 per cent in July 2009. In its 2010 General Survey concerning employment instruments, the Committee noted that in Japan one third of young workers are in non-regular employment. The Committee observed that there was a growing problem of unemployment among educated workers, particularly young university graduates, who are unable to find secure employment commensurate with their skill level. This is an issue for the advanced market economies as well as developing countries. Not only are their skills underutilized, but this pattern of casual jobs can prove detrimental to their lifetime career progression (see paragraphs 576 and 800 of the 2010 General Survey). The Committee encourages the Government to report on how it is enhancing vocational training and career development for young workers, as well as on the impact of the measures taken to support re-employment of young workers.
Older workers. The Government reports that as of June 2008, 96.2 per cent of enterprises with 51 or more workers have implemented employment security measures for older people. Thirty-nine per cent of them have allowed workers to remain working until age 65 or more if they wish, while 12.4 per cent have implemented employment security measures for people up to age 70. The Government also states that strong guidance will continue to be provided to enterprises that have not implemented employment security measures for older people. The Committee invites again the Government to provide detailed information on the measures implemented as part of an active policy intended to address the employment situation caused by an ageing workforce and a slowing rate of population growth.
The Japan Postal Industry Workers’ Union (YUSANRO) supplied observations on the Convention in October 2010. The Committee invites the Government to provide its own remarks on the matters raised therein for its forthcoming session.
1. Article 3 of the Convention. Participation of social partners in the formulation of policies. The Committee takes note of the information provided in the Government’s report received in November 2007, including its replies to matters raised in the Committee’s 2005 direct request. The Committee also takes note of the comments provided by the Japanese Trade Union Confederation (JTUC-RENGO), attached to the Government’s report. The Committee notes the comments provided by JTUC-RENGO in which it states that councils which do not incorporate labour representatives, such as the Council on Economic and Fiscal Policy and the Council for the Promotion of Regulatory Reform, recommend concrete policies on employment and labour and enjoy decision‑making power in respect of the fundamental direction of such policies. JTUC-RENGO expresses its concern that policy-making based on consultations with representatives of workers and employers are becoming insubstantial. The government reports that consultations on employment measures were carried out with social partners. Specific issues relating to the formulation, amendment and execution of laws relating to employment measures were deliberated on by the Subcommittee on Human Resources Development and Employment Security of the Council on Labour Policy, which is composed of representatives of Government, employers and workers, while consultations with representatives of labour–management parties that are impacted by the implementation of employment measures were under way. The Government also reports that discussions and opinions expressed in the deliberation councils are taken into account when designing and planning employment measures. The Committee hopes that the Government’s next report will contain detailed information, including examples, on the manner in which social partners are consulted concerning employment policies, and the means by which their experience and views are fully taken into account in formulating such policies.
2. Articles 1 and 2. Implementation of an active employment policy. The Committee notes from the Government’s report a decline in the unemployment rate, which fell from 4.4 per cent in 2005 to 4.1 per cent in 2006, and stood at 3.8 per cent in April 2007. The Government reports that the appropriate handling of the “Year 2007 Problem”, namely the onset of the transition of the baby boomer generation from working life to retirement, and the need to improve the practical vocational capabilities of youth to support the future economic society, were urgent issues which needed to be addressed in order to maintain and improve the Japanese socio-economic outlook in light of its slowing rate of population growth. In addition, the Government reports that the unemployment rate of workers above 55 years of age fell from 3.5 per cent in 2005 to 3.4 per cent in 2006, and stood at 3.2 per cent in April 2007. The Committee notes that, further to the Law concerning Stabilization of Employment of Older Persons, job security measures for older persons were being put in place since 2006 to secure steady employment of persons up to 65 years of age in various companies. The Government also reports that steps were being taken to raise awareness and exchange information on the experiences of businesses whose employees may work until the age of 70. The Committee would welcome receiving more detailed information on the measures implemented as part of an active policy intended to promote full, productive and freely chosen employment, and the means by which these have addressed the employment situation caused by an ageing workforce and a slowing rate of population growth. The Government is also requested to indicate the manner in which employment objectives are taken into account in the adoption of measures in monetary, budgetary and taxation policy, and price, income and wage policy.
3. Employment of women. The Government reports that the rate of unemployment for women has also been in decline, falling from 4.2 per cent in 2005 to 3.9 per cent in 2006, standing at 3.6 per cent in 2007. The Committee notes from the OECD Employment Outlook 2008 that there has been a slight increase in the employment rates for women to 58.8 per cent in 2006 which, however, is significantly lower than the male rate of 81 per cent. The Committee further notes that measures have been taken to reintegrate women into the labour force after a significant period outside employment. In this respect, the Government, amongst other measures to improve the participation of women in the labour market, revised the Equal Employment Opportunity Law in June 2006 to entail: (i) a prohibition of discrimination against both men and women, and an expansion of the scope for prohibiting sexual discrimination, including indirect forms of discrimination; (ii) a prohibition of disadvantageous treatment based on reasons such as pregnancy and childbirth; and (iii) a reinforcement of obligations made by employers in relation to sexual harassment. The Committee notes that the Government has sought to implement measures to increase employment of women and child-rearing women. To this end, the Government reports that, since 2006, 12 Mothers Hellowork offices were established throughout the country and, as at April 2007, steps were being taken to establish “Mother Salons” in major public employment security offices, to provide comprehensive employment support for women who are raising children, but who wish to return to the labour market. The Government also reports that a Positive Action Promotion Council was set up at the central government level and, from 2002 to 2006, at each Prefectural Labour Office level, it has sought to support companies experiencing a significant disparity between female and male workers, and to encourage the adoption of a positive approach through, for example, the expansion of job categories for women, and the promotion of women to managerial posts. The Committee invites the Government to continue to provide such information on initiatives taken to promote increased participation of women in the labour market. Please also provide further information, including statistics, on the effect such initiatives have had on dismantling the gender-based career tracking system to endure that there is freedom of choice of employment and that each worker shall have the fullest possible opportunity to qualify for and use his or her skills, in the conditions set out in Article 1, paragraph 2(c), of the Convention.
4. Youth employment. The Government recalls that the unemployment rate of persons between 15 and 24 years of age was 8.7 per cent in 2005 and 8.0 per cent in 2006, and stood at 7.5 per cent in April 2007. In order to address the employment situation of young persons, such as the large number of job-hopping part-timers, problems relating to delays in the improvement of local employment situations, and declining population levels, amendment bills to the Employment Measures Law and the Law concerning the Promotion of Local Employment Development to: (i) clarify the employment realization of all people who have the desire to work; (ii) expand opportunities for youth; (iii) create an obligation to prohibit age restrictions for recruitment; and (iv) place a focus on support towards regions with particularly severe employment situations, were presented to the 166th ordinary Diet session in 2007. The Government also reports that, in June 2006, amendments were made to the Law concerning the Promotion of Improvement of Employment Management in Small and Medium-sized Enterprises for Securing Manpower and Creating Quality Jobs and, as at October 2006, a support system for small and medium-sized enterprises was established which seeks to improve employment management systems which contribute to the creation of favourable employment opportunities for youth through promoting the development and improvement of their practical vocational capabilities. The Government is requested to indicate in its next report information on the results of such initiatives designed to promote the employment opportunities for young persons and to address their practical vocational capabilities, and the impact they have had on the employment situation of young persons. In this connection, the Committee recalls the Job Creation in Small and Medium-Sized Enterprises Recommendation, 1998 (No. 189), which provides that Members should consider specific measures and incentives for persons aspiring to become entrepreneurs (Paragraph 16(4) of Recommendation No. 189).
1. The Committee notes the Government’s report for the period ending in June 2005, as well as the replies in response to its 2003 direct request.
2. Implementation of an employment policy in the framework of a coordinated economic and social policy. Supplemented by the data provided by the Organisation for Economic Co-operation and Development (OECD), the Government’s report demonstrates that the employment situation has been improving since 2003. While the number of employed people, both male and female, has been on an upward trend in the past two years, the unemployment rate, at 4.4 per cent in May 2005, has been decreasing steadily since its historic high of 5.4 per cent in 2002. Although the unemployment rate remains relatively low by OECD standards, the incidence of long-term unemployment, at 33.7 per cent, stands slightly above the OECD average. The Government indicates that, in terms of job vacancies, the number of new job offers has been increasing and the effective ratio of job offers to applicants has been in an upward trend. The report also contains information about the legislative amendments introduced by the Government to diversify working patterns. As regards training programmes on employment promotion, the Government indicates that, in order to actively cope with the needs of workers in wide-ranging fields, the outsourcing of training to private bodies has been increasingly utilized. The Committee asks the Government to indicate how the new legislative revisions mentioned by the Government in its report contribute to the promotion of the objectives of the Convention. It also reiterates its interest in obtaining information on how the measures taken to promote full and productive employment operate within a "framework of a coordinated economic and social policy", in particular those measures taken to increase flexibility of fixed-term contracts and the proliferation of other forms of temporary work. As requested in previous comments, please include information on the manner in which the measures taken in areas such as budgetary and monetary policy, investment policy and fiscal policy are helping to further employment aims (Articles 1 and 2 of the Convention).
3. Participation of the social partners. The Government indicates that the Employment Security Section Meeting and the Occupational Skills Development Section Meeting of the Council for Labour Policy, which is made up of governments’, employers’ and workers’ representatives, deliberate on important matters relating to the establishment, amendment and implementation of legislation concerning employment policies. These deliberations always involve discussions between workers’ and employers’ representatives on issues of their concern. The Committee would appreciate if the Government could continue to provide information on consultations with the social partners which have taken place on the subject of employment policies, as requested by Article 3 of the Convention, by giving examples of the opinions expressed and the manner in which they were taken into account.
1. The Committee notes the Government's report received in October 2002 stating that in recent years the employment situation has steadily deteriorated. In 2002, the number of employed people in Japan dropped by 820,000 (1.3 per cent), from 64.12 million to 63.30 million. The number of unemployed workers increased by 190,000 persons, reaching 3.59 million; in the last five years this figure has increased by 2.27 million. The unemployment rate has reached a historic high at 5.4 per cent, averaging 5.5 per cent for men and 5.1 per cent for women. Unemployment was highest among young people aged 15 through 24 (men, 11.1 per cent; women, 8.7 per cent). The labour force participation rate averaged 61.2 per cent in 2002, a decline of 0.8 per cent compared with the previous year, the fifth straight year of decline. By sex, the labour force participation rate was 74.7 per cent among men and 48.5 per cent among women, representing declines of 1.0 and 0.7 percentage points. Long-term unemployment has increasingly become a problem; in 2002 approximately 1.05 million people, or about 29 per cent of the unemployed, were out of work for a year or more.
2. The Government considers that to overcome the challenges that the labour market faces in coming years it is necessary to introduce reforms that promote an increase in the supply of labour by women and improve the allocation of labour. In this connection, and with the aim of reconciling work and family life, it has introduced a revised Childcare and Family Care Leave Law. The main contents of the revised legislation are, inter alia, the prohibition of discriminatory treatment for reasons such as childcare leave, a restriction of overtime work for workers taking care of pre-school children or another family member and the introduction of a leave system for taking care of children. Additionally, with the objectives of easing the integration of new workers into the labour force, promoting human capital development and increasing productivity, the Government has introduced a revision to the Job Capacities Development Promotion Law. The Committee takes note of the measures taken by the Government to overcome the difficult economic conditions and reiterates the request formulated in its 2001 observation to be kept informed as to the impact of training programmes on employment promotion and on any progress made in ensuring equality of treatment for all categories of workers. Please also continue to provide information on trends in the quality of employment.
3. With reference to its 2001 observation, in which it noted with interest the information provided by the Government on the Ninth Basic Employment Measures Plan, the Committee hopes that the Government will provide, in its next report, the information necessary to assess the manner in which the measures taken with a view to promoting full employment are decided and kept under review within the framework of a coordinated economic and social policy and in consultation with the representatives of the persons affected, in accordance with Articles 2 and 3 of the Convention. In particular, the Committee requests that the Government provide the information, as noted in the report form, regarding the manner in which the measures taken in areas such as budgetary and monetary policy, investment policy and fiscal policy help to further employment aims. It also reiterates its interest in obtaining any information on how various measures, such as the increase in flexibility of fixed-term contracts and the proliferation of other forms of temporary work, help promote the objectives of full, productive and freely chosen employment as stipulated by Article 1 of the Convention.
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.
1. The Committee notes the information contained in the Government's report for the period ending May 1998. According to the Government the unemployment rate was 3.4 per cent in 1996, 3.7 per cent in 1997, and 4.1 per cent in 1998. The groups most affected by the increase in unemployment have been the young and the elderly. The OECD reports that GDP growth was 1.4 per cent in 1997 and -2.8 per cent in 1998, and forecasts growth of -0.9 per cent in 1999 and 0.0 per cent in 2000. The Government states in its report that it has enacted emergency measures for developing employment in particularly hard-hit regions, including subsidies for hiring older workers (over 45 years of age), subsidies to troubled industries, funding temporary employee leave programmes to allow more young people to access the labour market, making working time more flexible and decreasing the annual number of hours worked per employee.
2. In reply to the Committee's previous comments, the Government explains that it has introduced various programmes to promote the employment of women, including childcare leave, subsidies for childcare on worksites, and support for re-employment of workers who left the labour market to care for children or older adult relations. Please indicate the impact of these programmes on the employment of women, and any further measures taken or envisaged to ensure the free choice of employment of these workers in accordance with Article 1 of the Convention.
3. The Committee notes that the Government's report does not contain the information previously requested on the impact on employment of macroeconomic policies and structural reforms. It would be grateful if the Government would supply information on the measures and policies in fields such as investment, trade, prices, incomes, wages, and fiscal and monetary policies, as requested in the report form under Article 1. Please provide copies or extracts of reports or studies on the impact on employment of economic and social policies measures, as requested under Part VI of the report form.
4. Please describe the consultations on these matters taking place in accordance with Article 3.
1. The Committee notes the Government's report for the period ending July 1996 and the information it contains in response to its previous request. Referring also to the data published by the OECD, the Committee notes that despite an upturn in growth at the end of the period, total employment continued to grow at a very low rate, while the unemployment rate reached 3.4 per cent in 1996 which, according to the Government, is a historically high rate. The continued increase in the rate of unemployment among young people under the age of 25, which rose from 5.5 per cent in 1994 to 6.6 per cent in 1996 is also a reason for concern, as is unemployment among elderly workers.
2. The Committee notes that, according to the Government, the deterioration in the employment situation is due to the problems arising from the business cycle added to structural problems such as changes in the structure of industry brought about by advancing internationalization. In this context, the Committee notes the adoption in December 1995 of the Eighth Basic Employment Measures Plan which is aimed at reducing the unemployment rate to 2.75 per cent by the year 2000 through comprehensive measures to support job creation and occupational mobility, and to train workers so that they can adapt to changes in the structure of industry, as well as specific measures to promote the employment of young people, women and elderly workers. The Committee notes these measures with interest, and recalls that the employment policy within the meaning of the Convention also extends to other aspects of economic policy. It notes in this connection that the Government refers to the appreciation of the yen and excessive regulation as contributory factors to the slow-down in growth and the deterioration in the employment situation. The Committee refers to its previous request in which it asked the Government to provide information on the impact on employment of macroeconomic policies and structural reforms, and hopes that such information will be included in the next report, particularly as regards the contribution to employment promotion of monetary, budgetary and exchange rate policies, trade policy and the implementation of the deregulation programme.
3. The Committee notes the statistical data concerning the New Comprehensive Employment Measures, which reveal a significant increase in the number of beneficiaries. The Committee also notes the introduction of new measures for the promotion of small enterprises, and to protect employment in industries in difficulty. It asks the Government to continue to provide information on the nature and scope of the different labour market policy measures implemented, including any available evaluation of the results obtained. With regard to the employment of women, the Committee notes the aims of the Eighth Basic Employment Measures Plan and asks the Government to state the measures taken as a result of them. With reference to its previous direct request and its comments on the application of the Equal Remuneration Convention, 1951 (No. 100), the Committee asks the Government in particular to provide information on the progress made in promoting the employment of women with medium and high skill levels.
1. The Committee notes with interest the Government's report for the period ending June 1994 and the information it contains in answer to the Committee's previous direct request. With reference also to the data published by the OECD, the lack of dynamism in economic activity during the period has resulted in stagnation of total employment and an increase in the rate of unemployment which rose from 2.2 per cent in 1992 to 3.1 per cent in 1994. The Government emphasizes that the slackening in employment opportunities and the restructuring of enterprises have particularly affected the situation of the labour market for wage earners and young qualified people seeking their first job. Another significant fact is the increase in the number of part-time workers which, in 1993, accounted for over 18 per cent of total employment and of which two-thirds were women.
2. The Committee notes the Seventh Basic Employment Measures Plan adopted in June 1992 of which the text was supplied by the Government. It notes in particular with interest that in it the Government commits itself to supporting the efforts of workers and employers to adapt the long-term employment system to which they adhere to the ageing population and to foreseeable changes in the industrial structure. In order to avoid instability of employment, measures will have to be taken to ensure that the labour market allows greater worker mobility without leading to unemployment. With regard to workers who are outside this system, the plan aims at improving their employment and work conditions, particularly in regard to length of work and holidays. The Committee also notes the stress placed by the plan on the promotion of training by enterprises, particularly through the granting of training leave to workers. The Government could, in this respect, refer usefully to the 1974 instruments on paid education leave and to the General Survey the Committee devoted to that subject in 1991. The Committee would be grateful if the Government would specify the measures actually carried out in application of the guidelines set out in the Plan.
3. The Government indicates, moreover, that in order to promote employment in the shorter term at a time of weak growth in the economy, in December 1993 it adopted a programme to assist employment designed to maintain existing employment by strengthening the subsidy system for firms which endeavour to maintain employment and by improving the grants system for job applicants having particular difficulty in integrating. Specific incentive measures for creation of employment are also implemented in favour of small and medium-sized enterprises. The Committee notes that, according to the Government, it is difficult to evaluate the effect of these various measures. Nevertheless, it requests the Government to supply all available data enabling their scope to be assessed.
4. The Committee notes the adoption of new measures to promote employment for particular categories of workers. According to the Government, "remarkable improvements" have been noted in application of the law of 1985 on equality of opportunity and salaries between men and women. It would be grateful if the Government would supply in its next report statistical information justifying this satisfaction - especially at the middle or higher professional level. The Committee notes the entry into force of the law on the improvement of employment for part-time workers and requests the Government to supply information on its application. Noting that the unemployment rate of older workers has continued to increase despite application of the Employment Stabilization of Older Persons Law, it invites the Government to indicate whether it envisages new measures to promote the employment of this category of workers which it emphasizes is called on to play an increasingly important part in the economy. Please also continue to supply information on measures designed to encourage the integration of young people in their first job.
5. Finally, the Committee would be grateful if the Government would supply information on the macroeconomic policies and structural reforms in regard to their expected or actual effects on employment. It notes that the Government does not intend to redefine its employment policy. It has no doubt that in the event that the employment situation moves too far away from the objectives laid down in Article 1 of the Convention, the Government would not fail to apply the provisions of Article 2 which require that it should decide on and keep under review, within the framework of a coordinated economic and social policy, the measures to be adopted for attaining the objectives of the Convention.
1. The Committee notes with interest the Government's report for the period ending June 1992 and the detailed information provided in answer to the Committee's previous direct request. The information in the report and OECD data show that, linked to continued rapid growth in economic activity, employment continued to increase in 1990 and 1991 at the rate of 1.9 per cent per year, and the unemployment rate stabilized at 2.1 per cent - the unemployment rate was approximately twice as high for young people (of from 15 to 24 years) and older workers (of from 60 to 64 years). The slow-down in activity none the less caused employment growth to drop to 1.1 per cent in 1992 and sent the unemployment rate up to 2.2 per cent. Furthermore, the Committee notes that the economic recession which began after the end of the reporting period has further slowed down employment growth, an estimated 0.7 per cent in 1993, the unemployment rate reaching 2.5 per cent (which is none the less 6 percentage points lower than that of the OECD countries as a whole). The Government indicates that tensions in the labour market eased although small and medium-sized enterprises are still short of labour. The Government states that there was a drop in the job supply and demand ratio, which varies from region to region, and that it was less than one unit only for older workers. The Committee also notes that the share of part-time employment rose from 14.9 per cent in 1990 to 17.1 per cent in 1992.
2. The Government states that the seventh Basic Employment Measures Plan was adopted in June 1992 to cope with the ageing population and stagnation of the active population in the medium and long term. The Committee would be grateful if the Government would provide the text of the above Plan. The Committee notes that the purpose of the Plan is to match labour supply and demand at a time of a labour shortage, and asks the Government to indicate whether, in view of the present economic recession and lower growth in labour demand, it plans to redirect the general lines of its employment policy, in accordance with Article 2 of the Convention.
3. The Committee notes that in answer to its comments concerning measures taken within the framework of employment development projects for depressed industries and regions, and older persons, the Government indicates that they have contributed to improving the employment situation. It would be grateful if the Government would provide any available evaluations of their direct impact on the employment of the categories of workers concerned. The Committee also reminds the Government that it is interested in information on the coordination of education and training policies with employment prospects.
4. The Committee notes the information on the implementation of the Equal Employment Opportunity Law, 1985. It notes in particular that in 1991 employment services specializing in advice and guidance for women and their recruitment were established and that, according to the Government, they contribute to enforcing the Law, although there are no penal provisions. Furthermore, the voluntary supervision system in enterprises was stepped up during the period. The Government again states that the 1991 law establishing child care leave should encourage the employment of women. The Committee asks the Government to continue to provide information on the measures taken or envisaged to promote the employment of women, and on their effect. With regard to women in part-time work, the Government provides the results of a 1990 survey which suggests that such employment was freely chosen by those concerned in the great majority of cases. Please continue to provide information on the impact of part-time work.
5. The Committee notes that the Employment Council and the Central Employment Security Council were consulted on a number of Bills concerning employment policy. It would be grateful if in its next report the Government would inform it of the opinions expressed during these consultations by the representatives of employers' and workers' organizations, and provide any relevant documents.
1. The Committee notes the Government's report for the period ending June 1990, which contains information in reply to its previous direct request. It also notes the comments of the Japanese Trade Union Confederation (JTUC-RENGO) and the Government's reply. The information provided by the Government and contained in OECD reports and surveys show that, together with a sustained growth of economic activity, employment growth continued at a rate of 1.9 per cent in 1989 and 2 per cent in 1990, while the unemployment rate, which was already relatively low (2.5 per cent in 1988), continued to decrease to the level of 2.1 per cent in 1990, which was slightly below the objective of 2.5 per cent set for 1992 by the basic plan for employment measures. The unemployment rate is nevertheless substantially higher than average for young persons (4.4 per cent for the 15-24 age group in 1989) and older workers (4.2 per cent for the 60-64 age group in 1989). The Government states that there are also imbalances on the labour market in certain regions and certain sectors of economic activity and that shortages of labour are to be feared.
2. The Committee notes the information concerning the measures that have been taken within the framework of employment development projects for depressed industries and regions and older persons. It would be grateful if the Government would continue to supply information on the implementation of these measures and if it would transmit any assessments that are available on their impact on employment. The Committee also notes the adoption in June 1990 of an amendment to the Law concerning the stabilisation of employment of older persons and requests the Government to give details in its next report of the measures adopted following the coming into force of the above amendment. With regard to the employment of young persons, the Committee notes the information concerning the strengthened vocational training and guidance measures. Please continue supplying information on the measures taken to coordinate education and training policies with prospective employment opportunities.
3. The Committee notes the information concerning the implementation of the provisions of the Equal Employment Opportunity and Treatment between Men and Women Law (No. 113 of 1972). The Government refers in particular in this context to the establishment of a voluntary system to check the position of women workers, as well as advisory and information activities for employers. The Committee however notes that, according to the Japanese Trade Union Confederation (JTUC-RENGO), the absence of any sanction for the non-observance of the objectives set by the Law limits their effective implementation in practice. The Japanese Trade Union Confederation also expresses concern with regard to part-time jobs, a great majority of which are occupied by women who have not voluntarily chosen that form of employment. The Committee would be grateful if the Government would indicate the measures that have been taken or are envisaged, in accordance with Article 1, paragraph 2(c), of the Convention, to ensure that there is freedom of choice of employment for each worker, irrespective of their sex and whether the job is full or part-time, and to ensure that equal treatment is enforced.
4. The Committee notes that representatives of employers' and workers' organisations participate in the work of advisory councils set up by the Government to examine employment policy measures and that they are consulted concerning draft legislation respecting employment. Please continue to supply information on the activities of these councils and transmit a copy of their reports.
The Committee has noted with interest the Government's first report for the period ending 30 June 1988. It also notes the Sixth Basic Employment Measures Plan (BEM Plan) formulated in June 1988, as well as a variety of legislation providing for measures related to employment policy, such as the law respecting special measures for employment security of workers in specified depressed industries (No. 39 of 1983), the Area Employment Development Promotion Law (No. 23 of 1987), and the law respecting temporary measures for smoother structural adjustment of industries (No. 24 of 1987). The Committee notes in particular that employment policy as a whole is promoted with the target, enshrined in the legislation, of "achieving full employment" and that efforts are made to ensure close co-ordination between employment policy objectives and other economic and social objectives, based on the judgement that these objectives are closely and inseparably related to each other. The data supplied by the Government or contained in the OECD reports show that a high rate of increase of the GDP in 1987-88 was accompanied by an increase in employment (by 1.0 per cent and 1.7 per cent in 1987 and 1988) mainly due to part-time employment, while the unemployment rate remained during the period at a relatively low level by international standards (2.8 per cent in 1986-87) and even slightly declined in 1988 to 2.5 per cent, whch happens to be the same as the target for 1992 set by the current BEM Plan.
The Government describes in its report the "Employment Development Projects for Depressed Industries and Regions and Older People" (implemented in fiscal 1988) as employment measures to cope with the transformation of the economic structure into a domestic demand-led one. The Committee would be grateful if the Government, which expresses its fears that structural employment problems will be aggravated, would continue providing information on such selective measures, especially on the practical application of the above-mentioned laws, including statistical data. It hopes that such information would cover not only the measures taken by the Ministry of Labour but also by other ministries and agencies concerned, and both the measures to assist employers and other forms of measures.
Noting that the Sixth Basic Employment Measures Plan places the issues of "Internationalisation" of the economy and foreign workers among the basic items of employment measures, the Committee asks the Government to include in its future reports information in this respect.
The Committee notes from the statistics included in the Government's report that unemployment rates are particularly higher than the rate for all ages (2.5 per cent in July 1988) in two age groups, namely the youngest one (4.5 per cent in 15-24 age group) and the oldest one (2.7 per cent in over 55, especially 4.7 per cent in 60-64).
As to the aged people, the report also includes the ratio of job offers to jobseekers at employment offices which is extremely low, and which demonstrates the labour market conditions difficult for them. The Committee takes note of the Government's indication of measures taken under the Law concerning the employment security of aged persons (No. 68 of 1971), and hopes that the Government will continue providing information on measures taken or envisaged for aged people. On the other hand, the ratio of job offers to jobseekers in the young age groups are not lower than the ratio for all ages. The Government remarks that the labour market for young persons, in particular for fresh school graduates, is characterised by a large excess of demand over supply. The Committee hopes that the Government's next report will include further information on young persons in the labour market with special reference to the backgrounds of the high unemployment rate in spite of the labour demand, and on the measures taken or envisaged regarding young persons.
The Committee also notes that the Sixth Basic Employment Measures Plan includes the measures for part-time workers in Part III, Chapter 4 on "Measures in response to the increase of women workers, etc". The Committee asks the Government to supply in its next report information on measures taken with a view to ensuring freedom of choice of employment and equal opportunity, irrespective of sex, both in part-time and in full-time employment (Article 1(2)(c) of the Convention).
Regarding women workers, the Government describes measures taken under sections 22, 23 and 24 of the "Equal Employment Opportunity Law" (No. 113 of 1972) such as provision of vocational guidance and promotion of vocational training. Noting that other general employment measures described in the Government's report often take the form of assistance to the positive efforts made by employers, the Committee requests the Government to include in its future reports information on the practical application of Chapter II, Part I of the Equal Employment Opportunity Law, in particular of sections 7 and 8 which call for efforts of employers to give women equal opportunity or treatment with men in recruitment or assignment, etc.
Finally, the Committee would be grateful if the Government would supply further details on the scope and results of the consultations, whether formal or informal, held with the representatives of the various persons affected by the measures to be taken, as defined by Article 3, i.e. representatives of employers' and workers' organisations and of other sectors of the economically active population.