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Rethinking Employment and Welfare Protection in Japan 派遣・追放—日本の雇用と生活保護 を再考する

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Rethinking Employment and Welfare Protection in Japan 派遣・追放—日本の雇用と生活保護 を再考する Volume 8 | Issue 15 | Number 3 | Article ID 3342 | Apr 05, 2010 The Asia-Pacific Journal | Japan Focus Dispatched and Displaced: Rethinking Employment and Welfare Protection in Japan 派遣・追放—日本の雇用と生活保護 を再考する Stephanie Assmann, Sebastian Maslow is gradually moving towards implementing a more balanced welfare system which seeks to stabilize employment conditions and enable greater numbers of temporary workers to Dispatched and Displaced:access welfare protection. Rethinking Employment and Welfare The Hibiya Tent Village and the Unfolding Protection in Japan of Japan’s Employment Crisis Stephanie Assmann and Sebastian Maslow When Hatoyama Yukio was inaugurated as Japan’s Prime Minister in September 2009, his Abstract success was fueled by a growing public concern The Hibiya Tent Village set up during New Year regarding the Liberal Democratic Party’s (LDP) 2008/09 where 500 temporary workersfailure to grasp the implications of the global economic crisis of September 2008 and to gathered to seek food and shelter after their reform Japan’s socio-economic institutions. Lost sudden job losses revealed the gradual process pension records, growing involuntary of deregulation of Japan’s labor market that has unemployment, a perceived increase in poverty taken place since the Koizumi administration and social disparity, political scandals and an and culminated in the revision of the Labor ailing economy gave rise to public uncertainty Dispatch Law in 2004. The work of the political about the ability of Japan’s institutions to scientist Margarita Estévez-Abe which provide social protection to those at the describes the evolution of an employment- margins of Japan’s labor force. A survey based welfare arrangement favoring particular conducted in June 2009 by the Cabinet Office corporate interest groups of the former ruling prior to the elections revealed that more than party LDP while excluding growing numbers of 78 percent of respondents wished that the temporary workers from efficient welfare government should implement structural protection serves as an initial theoretical reforms of the medical and pension systems framework of our analysis. We augment our while 51.1 percent of respondents expressed a analysis with recent data on the re-regulation hope that the government would address of the Japanese labor market such as the employment-related problems, which is an introduction of emergency employmentincrease of approximately 6 percent compared measures after the outbreak of the economic with the results of the same survey conducted crisis in 2008, a re-regulation of the Labor in June 2008.1 Dispatch Law, an improved integration of particular employment groups and reforms of With a highly deregulated labor market the employment insurance and the part-time unfolding since the 1990s and further law in order to show that Japan under the DPJ acceleration of the process of deregulation 1 8 | 15 | 3 APJ | JF under the Koizumi administration’sat the New Years Break 2008/2009 in the “year (2001-2006) structural reform agenda, the crossing temp worker village”toshikoshi ( scope of non-regular employment has increased hakenmura) in Hibiya Park in central Tokyo dramatically in Japan. There were 3.2 million (Yuasa 2009). dispatch workers in 20062 and this increased to a total of 3.99 million dispatch workers according to data compiled by the Ministry of Health, Labor and Welfare (henceforth: MHLW) in December 2009.3 Approximately one third of all employees find themselves in non-regular employment settings whereas the number of regular employees has decreased from 84.7 percent in 1984 to 66.6 percent as of 2008/09.4 Dependent on low incomes,5 many temporary workers proved unable to afford employment insurance while the global economic meltdown of 2008 triggered a massive cut of non-regular employees in Japan’s manufacturing and service industries due to a downsizing or collapse of companies. Homeless workers in Hibiya Park line up With non-regular employment affecting even for a meal the traditional male breadwinners of Japan’s economy as well as an increased number of It is against this background of increasing female workers, the current job crisis has poverty and insecure employment conditions revealed the malfunctions of the country’s that Hatoyama urged in his election campaign livelihood security system which has been in 2009 to “put people’s lives first” – a promise unable to prevent the erosion of minimum which has only recently started to materialize living standards based on stable employment with new legislation passed in March 2010 and social security. The erosion of legal and attempting to re-regulate Japan’s labor market social standards in Japan as a consequence of through abolishing non-regular employment falling incomes and unstable employment and improving labor protection across the became yet more evident in December 2008, manufacturing industry. The following example when a wave of lay-offs of dispatched workers underscores the necessity of reconsidering the (haken-giri) brought this increasinglyderegulation of the labor market and the marginalized yet growing group of working strengthening of public welfare mechanisms in people unable to make ends meet to the center support of the growing number of jobless of public attention. Thus, when a network of through providing social security and new civil society actors consisting of NPO and trade employment opportunities. union activists set up consultation hotlines for temp workers they received more than twenty One year ago a report in the Asahi Shimbun thousand phone calls from across Japan on a (Asahi Shimbun, 13 February 2009: 27), one of single day in December 2008; however, they Japan’s most widely read newspapers, featured were only able to deal with 1700 cases three jobless men who had formed an alliance individually. Worse was expected for the weeks for sharing meals and supporting each other in ahead. Indeed, the scale of Japan’s job malaise their search for a new job in an apartment became visible when more than five hundred complex in Tokyo. Dai, the youngest of the laid-off workers and homeless people gathered three men at 32 years of age, had been 2 8 | 15 | 3 APJ | JF employed at a frozen foods processing company organizations, were dispatch workers whose until he was discharged in December 2008. contracts had been terminated prior to the After three years of living in Internet cafes, Dai expiry dates of their work contracts chūto( had been working in temporary and unstable kaiko). After the Ministry of Labor offered to work situations and was notified by hisrelocate the 500 job seekers to four alternative employer on a daily basis as to whether work sites in Tokyo, the tent village was finally was going to be available the following day. His closed down on 5 January 2009.6 income before his most recent job loss in December 2008 had amounted to 10,000 Yen These events at the hakenmura acutely point to (120 Dollars) per day, provided work was the division of employees into two strata, available for the following day. Hiro (35), the namely ’regular employees’ (seishain) who are second member of the group, had been employed on a full-time and long-term basis employed as a painter and received a monthly and ’non-regular employees’ (hi-seishain) who salary of 200,000 Yen before being laid off in find themselves in unstable and fluctuating September 2008. The oldest member of the work situations and receive little or no welfare group, Nishimura (41), had worked at a car protection. This distinction between ‘regular’ factory based in Shizuoka Prefecture for a and ‘non-regular’ workers in Japan is well salary of 150,000 Yen per month before he lost known. However, the importance of events his job in December 2008. Nishimura had been such as the hakenmura lies in the fact that employed as a construction worker for ten neoliberal policies that were implemented in years before he started working at the car the 1990s and further advocated under the factory. Frequently assured that he would Koizumi administration, such as the “eventually be hired as a regular employee”, deregulation of the Labor Dispatch Law, have this never happened. After three years of significantly contributed to the diversification temporary work at the car factory, Nishimura and fragmentation of ‘non-regular’ employment was notified on 15 December 2008 that that patterns in Japan. Part-time employment is one day would be his last work day. All three men of these patterns as opposed to temporary are currently living on public assistance employment that can either take the form of (seikatsu hogo) and receive a monthly “contract employment”, seasonal labor, or supplementary benefit of 130,000 yen, which is “dispatch employment”. The major difference sufficient to pay rent for a one-room apartment between contract workers (keiyaku shain) and and daily expenses, but leaves little financial dispatch workers haken( shain or haken flexibility to pay for transport to attend job rōdōsha) is that contract workers are hired interviews. The three men met at thedirectly by a company in order to work on “toshikoshi hakenmura” (henceforth certain projects and/or for a limited amount of hakenmura) in Hibiya Park, The current time. Dispatch workers, however, are hired by economic crisis turned Hibiya Park into a hot an agency before being dispatched to spot for activism, after approximately 500 companies on fixed contracts. displaced workers had gathered in the ‘workers’ village’ (hakenmura). Tents and free The ‘workers’ village’ was a watershed event meals were provided by volunteerwith respect to public interest in the issue of organizations. Finally, the MHLW agreed to ‘haken-giri’ (dispatch cuts) and the associated open its auditorium in the vicinity to job issue of poverty hinkon( ) which currently seekers in need of food and accommodation. receives growing attention from scholars, Many of the 500 people, who received shelter, volunteers and journalists and is also being food, and consultation on finding newdebated by people who are actively involved in employment provided by volunteersupporting low income groups and displaced 3 8 | 15 | 3 APJ | JF workers.
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