Observation (CEACR) - adopted 2010, published 100th ILC session (2011)

Employment Service Convention, 1948 (No. 88) - Japan (Ratification: 1953)

Organization and functions of the employment service. The Committee notes the Government’s reports supplied in November 2009 and September 2010, which included observations by the Japanese Trade Union Confederation
(JTUC–RENGO). The National Confederation of Trade Unions (ZENROREN) also supplied observations in September 2010. In reply to the 2008 observation, the Government’s report included an evaluation of the 2006 model project for market testing aimed at securing recruitment in three regions with difficult employment conditions. It further provided an evaluation of the performance of other projects for career interchange for middle- or advanced-aged white-collar jobseekers and other long-time unemployed persons. The Committee also notes that the retained employment rate in those regions, where the career interchange project was implemented by the Government stood at 44.6 per cent and exceeds that of those regions in which the project was implemented through private intermediaries and only resulted in 39.6 per cent. JTUC–RENGO reiterates that the Public Employment Security Offices are the core local institutions concerning employment measures and the front-line agencies for directly contacting jobseekers and employers. In 2010, the Government indicated that the Public Employment Security Offices are a basis of various employment measures of the Government and that they should not be transferred to local municipalities. Also, the service system of the national network should be maintained firmly and continuously. As in its previous observation, the Committee invites the Government to include in its next report updated information on the ability of the public employment service to ensure the best possible organization of the employment market as an integral part of the national programme for the achievement and maintenance of full employment and the development and use of productive resources.

Development of employment offices throughout the country. In its previous observation, the Committee noted that, in April 2007, 466 Public Employment Security Offices, 100 branch offices and 18 local offices existed throughout the country. In 2009, the Government reported that, in April 2009, 437 Public Employment Security Offices existed, including 95 branch offices and 13 local offices. The Committee notes that in 2009 JTUC–RENGO indicated that any specific plan for the reorganization and winding up of public offices should be not only explained to local trade unions, employers’ associations and local governments, but also be subject to approval by the Labour Policy Council. In 2010, the Government added that in reviewing the geographical distribution and the local needs, including the workload and changes in local demand, new Public Employment Security Offices have been established in areas with relatively high workloads and others have been consolidated in areas with relatively low workloads. This has resulted in a review of 58 offices between 1 June 2005 and 31 May 2010. As a result, one new office has been newly established and 57 offices have been consolidated. The Committee requests the Government to continue to report on the process based on which the organization of the network of employment offices is reviewed, and the extent to which the social partners participate in such process. The Committee would also welcome receiving information on the steps taken to ensure that such offices are sufficient in number to serve each geographical area of the country and that they are conveniently located for employers and for workers (Article 3).

Participation of the social partners. The Committee notes JTUC–RENGO’s request asking that, if the Government was to revise the structure of the Employment Bureau, such should be subject to the approval of the Labour Policy Council, the tripartite advisory body comprising representatives of the public, unions and employers’ organizations. In this regard, the Committee notes the Government’s intention to respect ILO Conventions and the discussion that already had taken place twice in the Council’s framework. The Government reiterates that, taking into account Article 4(1) of the Convention, the Government will continue to make use of the framework of the Labour Policy Council. The Committee welcomes this approach and invites the Government to include in its next report information on the contribution made by the Labour Policy Council or any other tripartite framework in the formulation of recommendations in the matters related to the public employment service (Articles 4 and 5 of the Convention).