Human Resources Development Convention, 1975 (No. 142) - Japan (Ratification: 1986)

Direct Request (CEACR) - adopted 2023, published 112nd ILC session (2024)

Previous comment

The Committee notes the observations of the Japanese Trade Union Confederation (JTUC-RENGO), communicated with the Government’s report received on 29 August 2023. The Committee requests the Government to provide its comments in this respect.

Article 1 of the Convention. Formulation and implementation of policies and programmes of vocational guidance and vocational training. The Committee notes the Government’s indication that Public Employment Services Offices provide vocational guidance and employment placement services in Japan. The Government states that it does not have statistical information disaggregated by gender or age on the impact of vocational guidance. The Government also indicates that public vocational training for the unemployed mainly targets those receiving employment insurance benefits, aiming to help them acquire the necessary skills and knowledge for re-employment. The Government reports that out of 91,085 participants who began vocational training for unemployed in 2021, 34,351 were men (37.7 per cent) and 56,734 women (62.3 per cent), under 20 years old accounted for 1,241 (1.4 per cent), 20–24 years – 7,727 (8.5 per cent), 25–29 years – 11,945 (13.1 per cent), 30–34 years – 10,729 (11.8 per cent), 35–39 years – 10,949 (12.0 per cent), 40–44 years – 11,240 (12.3 per cent), 45–49 years – 12,167 (13.4 per cent), 50–54 years – 10,519 (11.5 per cent), 55–59 years – 6,968 (7.6 per cent), 60–64 years – 6,039 (6.6 per cent), and those 65 years old and over – 1,561 (1.7 per cent). The Government states that, in the same year, 86.1 per cent of participants completed in-facility training and 73 per cent of those completed outsourced training secured employment within three months after completing training. The Government also states that the Support System for Job Seekers Programme provides vocational training to job seekers who are not eligible for employment insurance benefits. In 2021, among 28,000 participants in job seeker support training, 13,000 received a vocational training subsidy. After completing the activity, 53.9 per cent of participants of the basic course (on basic skills and skills obtainable in short time) and 60 per cent of the participants of the practical course (such as on information technologies (IT), sales, office work, nursing, care, welfare, design) found employment. The Committee requests the Government to continue to provide updated detailed information on the nature, scope and impact of the vocational guidance and training measures on the integration in the labour market of participants in these programmes, and to take the necessary steps to collect, analyse and share statistical information disaggregated by sex and age. It further requests the Government to continue providing updated information on the policies, laws and administrative regulations that include specific provisions on vocational guidance and training, and on their contribution to attaining the objectives of the Convention, including measures taken to coordinate vocational education and training policies with education, training and employment policies.

Article 3. Vocational guidance policy. The Committee notes the Government’s indication that the Job Card scheme, which aims at facilitating employment and promoting individual career progression, provides career consultations and is a tool for “career planning throughout life” and “human resource development certification”. The Committee notes that, according to the Vocational Abilities Development Promotion Act (No. 64) of 1969, the Government determines the form of Job Cards, disseminates these and promotes their use. The Government reports about the launch of “My Job Card” website in October 2022 enabling users to create, save, and update their Job Cards online, which resulted in increased use of Job Cards. The Committee also notes the Employment Service Statistics on employment, according to which the ratio of persons who found employment to new applications decreased from 32 per cent in 2019 to 26.5 per cent in 2022. The Committee requests the Government to continue to provide updated detailed information, including statistical data disaggregated by sex and age, on the nature, scope and impact of the Job Card scheme, as well as on other vocational guidance measures aimed at promoting access to education, training and lifelong learning. The Committee once again requests the Government to provide information concerning the nature and content of materials made available for vocational guidance and training purposes.

Article 4. Vocational training systems and lifelong learning. The Committee notes the Government’s indication that “Hello Mothers Work” project enables job seeking mothers to visit employment consultations with their children and receive information on child rearing. The Government reiterates that “Hello Mothers Work” does not offer vocational training but provides information about vocational training in employment consultations, with 56,000 mothers finding jobs in 2021. The Government reiterates information on its efforts to promote participation of women in lifelong learning by expanding learning opportunities, such as encouraging return to universities and vocational schools, providing a learning environment at the Open University of Japan and promoting women’s education through instruction courses and research at the National Women’s Education Centre. It also refers to training with childcare services and short-term training as part of skill development support for re-employment of mothers. The “Hello Work for New Graduates” programme, through which 163,165 graduates obtained regular employment in 2021, and “Hello Work for Youth” support centres, enabled 108,235 young casual employees to secure regular employment in 2021 through consultations, seminars and vocational training. Similar support is provided by the “Employment Ice Age Generation” programme, which helped 112,543 persons between 35–45 years to receive regular employment. The Government indicates the absence of statistical data on the impact of these measures for women, young people and the long-term unemployed on lasting employment, including disaggregated data by age, gender, or other categories. Noting the importance of disaggregated data for assessment of the real labour market situation and the manner in which the adjustments are made for various categories of population,theCommittee reiterates its request to the Government to provide disaggregated statistical data by age and sex on the impact of the measures implemented to promote access to vocational education, guidance and lifelong learning on lasting employment for specific groups, particularly women, young persons, and the long-term unemployed. In particular, the Committee requests the Government to supply detailed information, including disaggregated data by age and sex, on the number of beneficiaries of these measures, the average period within which these persons obtain employment after completing the training, and the nature of the employment (full-time, part-time or others).

Article 5. Cooperation with the social partners. The Committee notes the Government’s indication that the Basic Plan for Human Resources Development as stipulated in the Vocational Abilities Development Promotion Act (No. 64) of 1969 is aimed to ensure consistent and efficient implementation of vocational training, vocational abilities tests and other measures to promote development and improvement of human resources. The Committee notes that the Act requires the Minister of Health, Labour and Welfare to consult the tripartite Labour Policy Council before deciding on objectives of human resources development and measures to be taken. Based on the plan, the Government may make recommendations to local governments and employers’ organizations. Local governments endeavour to formulate a basic plan for human resources reflecting the opinions of employers, workers, and other persons concerned. The Government indicates that the 10th Basic Plan for Human Resources Development ended in March 2020, and the 11th Basic Plan was formulated in April 2021 after deliberations in the tripartite Human Resources Development Subcommittee of the Labour Policy Council. The plan supports human resource development in enterprises and serves as a strategy for workers’ career development. The Government reports that important labour policy matters, also on policies and plans for vocational guidance and training, involve deliberations within the tripartite Labour Policy Council, consisting of subcommittees, such as on Employment Security and Human Resources Development. The Committee requests the Government to continue to provide updated detailed information on the cooperation with employers’ and workers’ organizations and other interested bodies in the formulation and implementation of vocational guidance and vocational training policies and programmes, including with local governments, and indicate the impact and outcome of this cooperation. The Committee further requests the Government to describe any existing or new formal procedures or consultative machinery instituted for this purpose. The Committee also requests the Government to supply the texts of the Basic Plan for Human Resources Development relevant for the reporting period.

Direct Request (CEACR) - adopted 2019, published 109th ILC session (2021)

Article 1 of the Convention. Formation and implementation of policies and programmes of vocational guidance and vocational training. In response to the Committee’s previous comments requesting information concerning the machinery in place for the implementation of vocational guidance and training policy and programmes and their results, the Government refers to section 4, paragraph 1, of the Employment Measures Act, which calls for the Government to take comprehensive measures to enhance vocational guidance and employment placement. It also refers to the establishment in 2014 of the Basic Guidelines on Employment Policy, on the basis of which the Government is comprehensively promoting vocational guidance and training with the objective of enhancing the infrastructure of the labour market, providing opportunities for individual growth through work and creating quality employment. The Government further reports that, in July 2017, the Human Resource Development Bureau of the Ministry of Health, Labour and Welfare, which was previously responsible for vocational training in the Government, was restructured into the Directorate-General for Human Development of the Ministry. The Government also provides information on the vocational guidance and training services provided by the Japan Organization for Employment of the Elderly, Persons with Disabilities and Job Seekers (JEED). In 2016, the JEED provided: vocational training for about 28,000 displaced workers, primarily in the manufacturing sector, of which 88.4 per cent secured employment; vocational training for about 6,000 highly skilled workers, of which 99.5 per cent were subsequently employed; and vocational training for about 61,000 employed persons based on the needs of employers. The JEED also provides support for re-employment through vocational guidance services such as career counselling, face-to-face guidance, job preparation briefings and information on job offers. Accordingly, the Government reiterates the view that vocational training continues to be provided in the country and that the abolition of the Employment and Human Resources Development Organization has had no impact on vocational training measures. The Committee notes the Government’s indication that in September 2011, the Emergency Human Resources Development Project, a temporary emergency measure to establish a fund to provide jobseekers not eligible for unemployment insurance benefits with vocational training and livelihood benefits during the training, came to an end. It was replaced in October 2011 by the Support System for Job Seekers Programme, which aims to provide a new and permanent safety net for this group of jobseekers. The Government indicates that the Programme’s objective is to facilitate early employment through skills development by providing: free vocational training; payment of benefits for receiving job training; and tailored employment support. The Committee requests the Government to provide updated detailed information, including statistical information disaggregated by sex and age, on the nature and impact of the vocational guidance and vocational training measures. In particular, the Committee requests the Government to provide detailed information on the types of vocational training available, the number of trainees, the average duration of time within which trainees secure employment after completing training, and the nature of the employment (full-time, part-time or other). The Committee also invites the Government to provide updated information on the activities and outcomes of the Support System for Job Seekers Programme, including on the types of training offered.

Article 3. Vocational guidance policy. The Government indicates that the Job Card scheme, which enables users to receive career consultations with career consultants and provides them with opportunities to receive on-the-job training and classroom lectures through educational training institutions, is a tool for “career planning throughout life” and “human resource development certification”. The Human Resources Development Promotion Act stipulates that the Government should determine the form of the job card and strive to disseminate and promote their use. In April 2018, the job-card form was revised to allow forms to be edited according to users’ needs. The Committee once again requests the Government to provide information on the implementation and impact of the Job Card scheme as well as on the nature and results of other vocational guidance measures aimed at promoting access to education, training and lifelong learning. The Committee further requests the Government to provide information concerning the nature and content of materials made available for vocational guidance and training purposes.

Article 4. Vocational training systems and lifelong learning. The Government reports that, to promote the participation of women in lifelong learning, it has expanded learning opportunities in response to diversification of learning needs by, for example, encouraging women to return to universities and vocational schools, providing a learning environment at the Open University of Japan and promoting women’s education through courses and research at the National Women’s Education Centre. The Government adds that, while the Hello Mothers Work project does not itself provide vocational training, it facilitates access to such training, providing information in the context of employment consultations. It indicates that 74,000 mothers found jobs in 2016 through the programme in collaboration with local governments. The Government adds that there are no statistics on the impact of the measures promoting women’s access to training through the employment support provided by the Hello Mothers Work project. The Government also reports on measures taken to promote access to education, training and lifelong learning for new graduates, young persons and the long-term unemployed. In 2017, 197,227 new graduates secured regular employment as a result of the Hello Work for New Graduates programme, which provides tailored employment support, including career design consultation and guidance on jobseeking activities. Also in 2017, 289,403 young persons obtained regular employment as a result of the Hello Work for Young People programme, which provides support for young casual employees, including vocational training. The Committee once again requests the Government to provide disaggregated statistical data by age and sex on the impact of the measures implemented to promote access to vocational education, guidance and lifelong learning on lasting employment for specific groups, particularly women, young persons and the long-term unemployed. In particular, the Committee requests the Government to supply detailed information, including disaggregated data on the number of beneficiaries of these measures, the average duration of time within which these persons obtain employment after completing the training, and the nature of the employment (full-time, part-time or others).

Article 5. Cooperation with the social partners. In response to the Committee’s previous comments, the Government indicates that the enactment and revision of laws and regulations concerning employment policy and matters concerning implementation are discussed in the tripartite Labour Policy Council. It further indicates that the tripartite partners discussed the “10th Basic Plan for Human Resources Development”, formulated in April 2016, in the Human Resources Development Subcommittee of the Labour Policy Council. The Committee invites the Government to provide information on the nature and content of the 10th Basic Plan for Human Resources Development, as well as further information on the manner in which the involvement of the social partners is ensured in the formulation and implementation of vocational guidance and vocational training policies and programmes. The Committee further requests the Government to describe any formal procedures or consultative machinery which have been instituted for this purpose.

Observation (CEACR) - adopted 2013, published 103rd ILC session (2014)

Article 1 of the Convention. Formulation and implementation of policies and programmes of vocational guidance and vocational training. The Committee notes the Government’s report, received in September 2013, which includes information in reply to the 2009 observation. In its previous comments, the Committee noted that the Japanese Trade Union Confederation (JTUC–RENGO) expressed its concern over discussions on the continued existence of the Employment and Human Resources Development Organization, a core agency which implements measures for the development of occupational skills. In its report, the Government indicates that it dissolved the Organization in October 2011 due to serious criticism from the public concerning the operations of its facilities. The Committee notes from the Government’s report on the application of the Employment Policy Convention, 1964 (No. 122), also received in September 2013, that tripartite discussions were held at the Labour Policy Council with respect to the dissolution of the Employment and Human Resources Development Organization. Views expressed from employers and workers stated that every effort should be made so that employment problems would not arise and the motivation of employees should be maintained and strengthened. The Government believes that there is no impact on the vocational training measures due to the fact that vocational training continues to be provided as a responsibility of the Government even after operations concerning vocational skills development were transferred to the Japan Organization for Employment of the Elderly, Persons with Disabilities and Jobseekers. Moreover, the Committee notes the “Emergency Human Resources Development Project” which is aimed at temporary workers. The Committee invites the Government to provide in its next report information on the operation of the machinery in place for the implementation of vocational guidance and vocational training policies and programmes and on their results. It also invites the Government to provide further details on the “Emergency Human Resources Development Project”.

Article 3. Vocational guidance policy. In its previous comments, the Committee noted the introduction of a “job card scheme” in April 2008. The Government indicates that the job card system makes career plans for jobseekers through career consultations by career consultants. The system also enhances the vocational ability of jobseekers by providing opportunities to receive pragmatic vocational training which combines on-the-job training at companies and classroom lectures at educational training institutions. As of March 2013, the number of people having received career consultations using job cards was 858,000 and, among those, 655,000 people received vocational training. Furthermore, 49,000 participants received on-the-job training and 87.7 per cent of them were employed. The Committee notes that career consultations using job cards and encouraging participation in pragmatic vocational training, such as on-the-job training, will be promoted for more jobseekers. The Committee would welcome continuing to receive information on the implementation of the “job card scheme” and other vocational guidance measures.

Article 4. Vocational training systems for women. In reply to the previous comments, the Government indicates that the “Mothers’ Hello Work” project provides access to vocational training for those seeking jobs while raising children, and 69,000 mothers found jobs in 2012 as a result of employment consultations provided by consultants and information provided by the “Mothers’ Hello Work” project. The Committee notes that this project is intended to provide information on a variety of vocational training in the course of employment consultations. The Committee invites the Government to provide in its next report information, including statistical data, on the impact of the measures promoting access of women to education, training and lifelong learning. Please also include information on the measures adopted targeting other specific groups, such as young persons and the long-term unemployed.

Article 5. Cooperation with social partners. The Government indicates that the “Basic Plan for Human Resources Development”, which is the main policy on human resources development, has been formulated based on the views of the human resources development subcommittee of the Labour Policy Council, a tripartite committee. The Committee invites the Government to continue to provide information on the cooperation of employers’ and workers’ organizations, including through the human resources development subcommittee of the Labour Policy Council, in the formulation and implementation of vocational guidance and vocational training policies and programmes.

Observation (CEACR) - adopted 2009, published 99th ILC session (2010)

Article 1 of the Convention. Formulation and implementation of education and training policies. The Committee notes the information contained in the Government’s report, including the comments provided by the Japanese Trade Union Confederation (JTUC–RENGO), received in October 2008. The Government indicates that it is promoting vocational guidance policies in line with the employment policies set out in the “Basic Principles of Employment Policies” established in February 2008. The Basic Principles of Employment Policies set out the Government’s economic objectives and determine the mid-term policies for the realization of these objectives. The Government indicates that vocational guidance policies are formulated and implemented with due consideration of the employment needs, opportunities and problems. The Committee also notes the Government’s indication that its vocational guidance policies are promoted in line with domestic conditions and in a coordinated manner which allows for mutual adjustability with other policies, such as social security policies, industrial policies, educational policies and measures to address declining birth rates. In its comments, JTUC–RENGO expresses its concern over ongoing discussions in the country over the continued existence of the Employment and Human Resources Development Organization, a core agency which implements measures for the development of occupational skills. JTUC–RENGO considers that the abolition of the Organization might have a serious impact on the application and enforcement of the Convention. The Committee asks the Government to provide information on the outcome of deliberations regarding the Employment and Human Resources Development Organization, and on the operation of the machinery in place for the development and implementation of comprehensive and coordinated policies and programmes of vocational guidance and vocational training. The Government might also take into account the relevant comments provided on the application of the Employment Policy Convention, 1964 (No. 122).

Article 3. Vocational guidance policy. The Government indicates that the Public Employment Security Offices (PESO) provide vocational guidance with a view to supporting the identification of problems that prevent employment, through conducting individual consultations, seminars, career consultations and counselling, in order to solve such problems. Similarly, the PESO provides support to jobseekers, who do not face particular problems in finding employment or in selecting an appropriate job. The Government also indicates that it implements specialized vocational guidance and vocational orientation services in accordance with the conditions of jobseekers, and provides employment information and vocational guidance for new graduates, in cooperation with schools. In particular, the Government and JTUC–RENGO also make reference to the introduction of a “Job Card Scheme” in April 2008 which is aimed at improving the opportunities for disadvantaged persons to take advantage of human resources development measures; and to promote the transition of such persons to sustainable employment. The Committee wishes to receive further details on the operation of the “Job Card Scheme”. The Government is invited to include any statistics or data available on the effectiveness of vocational guidance provided through the PESO.

Article 4. Vocational training systems for women. The Government indicates that it established, in 2006, “Mothers’ Hello work” in the PESOs which provides employment support to women who seek employment while raising children. Efforts have been made to improve vocational guidance by providing vocational consultations which are tailored to the needs of jobseekers, and to provide child-rearing information in coordination with local governments. The Committee asks the Government to continue to provide information, including statistical data, on the impact such measures have had on promoting access of women to education, training and lifelong learning.

Article 5. Cooperation with social partners. The Government indicates that the Basic Principles of Employment Policies, which includes policies for vocational guidance and training, was established in accordance with the conclusions of the subcommittee on Employment Security of the Council on Labour Policy. The Committee would appreciate receiving information on the means by which the cooperation of employers’ and workers’ organizations is ensured, including the subcommittee on Employment Security, in the formulation and implementation of vocational guidance and vocational training policies and programmes.

Direct Request (CEACR) - adopted 2003, published 92nd ILC session (2004)

The Committee notes the information provided by the Government in its reply to its 1999 direct request. It also refers to its request made this session under Convention No. 122 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. It trusts that the Government will continue to supply detailed information in future reports as requested by the report form, and in particular, on the application of Articles 1 and 4 of the Convention.

Direct Request (CEACR) - adopted 1999, published 88th ILC session (2000)

1. Further to its previous comments, the Committee notes that the Government passed a law concerning the improvement of employment, management, etc. of part-time workers in 1993, and has issued guidelines on training for part-time workers. These stipulate that employers shall endeavour to promote effective utilization of part-time workers' abilities by implementing education and training in due consideration of the actual work conditions of part-time workers concerned and to maintain a balance with regular workers. The State and prefectures shall endeavour to pay due attention to vocational training of part-time workers. To this end, short-term ordinary vocational training has been provided at various training centres. The Committee would appreciate being kept informed of the impact of the law and guidelines on promotion of training for part-time workers, particularly women, to encourage and enable all persons, on an equal basis and without any discrimination, to develop and use their capabilities for work in their own best interests and in accordance with their own aspirations, account being taken of the needs of society, in accordance with Article 1, paragraph 5, of the Convention.

2. The Committee notes the measures taken under the Law concerning Improvement of System for Propulsion of Measures For Promotion of Lifelong Learning (No. 71 of 1990) include preparation of a basic plan for promoting lifelong learning and providing opportunities for learning through the capacity of private businesses. The Committee would appreciate being kept informed of the Government's progress in carrying out the basic plan, and receiving any available assessment which would indicate whether the basic plan meets the changing requirements of individuals throughout their life, as well as those of the economy and of the different branches of economic activity, as requested in the report form under Article 4.

Direct Request (CEACR) - adopted 1992, published 79th ILC session (1992)

1. The Committee notes the second and third reports of the Government, which contain 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.

2. The Committee notes that, according to the Japanese Trade Union Confederation (JTUC-RENGO), vocational training opportunities for women, and particularly for women working part-time, are very insufficient. The Committee also notes that equality of treatment between men and women workers in respect of vocational training within the enterprise is one of the points covered by the voluntary system for checking the position of women workers. Please supply information on the progress achieved in this respect.

3. The Committee also notes the provisions of Law No. 71 of 1990 respecting further training of workers, and would be grateful if the Government would supply information in its next report on the measures that have been taken under this new Law.

4. More generally, the Committee would be grateful if the Government would supply in future reports detailed information on developments in the field of the policies and programmes covered by the Convention. Please refer in particular to the application of Article 1, paragraph 5, and Articles 3 and 4 of the Convention and, more specifically, to the measures taken to remedy shortages of labour and imbalances between economic sectors, which were reported by the Government in its report of 1990 on the application of Convention No. 122.

Direct Request (CEACR) - adopted 1990, published 77th ILC session (1990)

The Committee has noted with interest the Government's first report for the period ending 30 June 1988. It has noted the Government's reference to general provisions of relevant laws stipulating basic principles in respect of vocational guidance and vocational training in line with the provisions of the Convention. The Committee would be grateful if the Government would include in its future reports further information on measures taken for practical implementation of such principles, with particular reference to measures taken under the Basic Plans on employment measures and on vocational ability development. Please also refer to the following points:

Regarding the equality in vocational training provided by the employer, the Committee notes the Government's reference to section 9 of the so-called "Equal Employment Opportunity Law" (No. 113 of 1972). It further notes that the prohibition of discrimination based on sex in vocational training under this provision, read together with section 1 of the Enforcement Ordinance (No. 2 of 1986, of the Ministry of Labour) of the said Law, is limited in scope to the vocational training for the acquisition of basic skills necessary for workers to perform their duties and which is provided outside of the worker's performance of duties. Please supply in the next report further information on policies and programmes aiming to encourage and enable all persons, without discrimination based on sex, to develop and use their capabilities for work, with particular reference to the measures in respect of the vocational training which is not covered by the above-mentioned provisions (Article 1, paragraph 5, of the Convention).

The Committee notes that the Vocational Ability Development Promotion Law (No. 64 of 1969) calls for efforts by employers as regards vocational training of their employees (section 4, paragraph 1) and stipulates complementary measures to be taken by the State and Prefectures (section 4, paragraph 2, and sections 14 to 14-3). Please include in future reports information on measures of assistance to employers in this regard, such as various forms of grants, subsidies and loans (Article 2).

The Committee notes the Government's description of the role of the Public Employment Security Offices in the system of vocational guidance and employment information, and of their co-operation with schools in guidance and information for students and fresh school-leavers. Please include in future reports information on the Government's policies regarding provisions of employment information by private enterprises, for example, in the form of job-information magazines (Article 3, paragraph 1). Please also supply specimens of the documentation made available, such as the "Occupational Outlook Handbook" referred to in the Government's report, especially when it is updated (Article 3, paragraph 2). In the next report, please indicate measures taken to give effect to Article 3, paragraph 3, of the Convention (information on general aspects of collective agreements, and on rights established by labour laws).

The Committee also notes from the Government's report on the application of Convention No. 122 received in December 1988 that various employment measures, taken in response to the structural changes of the economy and for specified industries or areas, include measures in the field of vocational guidance and vocational training. It hopes that the Government's future reports will cover the measures of this kind, whether they are in the form of direct provisions of training or guidance by public institutions or of assistance to the employer (Articles 3 and 4). The Committee further notes that the report of the Central Education Council with regard to measures paving the way for life-long learning activities was submitted in January 1990 to the Ministry of Education. Please include in future reports information on the measures taken in response to this report concerning the workers' life-long learning activities (Article 4).