Direct Request (CEACR) - adopted 1995, published 83rd ILC session (1996)

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

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.