ARTICLE
6: THE CURRENT STATE OF HUMAN RESOURCE DEVELOPMENT ADMINISTRATION IN JAPAN AND
THE DEBATE ON ITS FUTURE
Introduction
In Japan, the economy and society are
undergoing drastic changes as the result of technological progress, an altering
industrial structure and a rapidly ageing population. Given these
circumstances, it has become increasingly important for workers to develop and
improve their vocational abilities systematically by stages and for these
abilities to be properly evaluated at each stage throughout their working
lives.
For these purposes, the Ministry of Labour
conducts vocational training for the public, supports vocational ability
development in the private sector, establishes systems to evaluate vocational
ability, and promotes international cooperation in the field of human resource
development. This paper describes the areas of human resource development that
currently come under the administration of the Human Resources Development
Bureau of the Ministry, and then looks at possible areas of future development.
Framework
of the human resource development administration
Organization
of the human resource development administration
Figure 1 gives the structure of the total
human resources development administration. Human resource development is
administered at the national and prefectural level, each served by a council
and nongovernmental providers. The Central Human Resources Development Council
at the national level is part of the administrative organization of the
Ministry of Labour, established to reflect the opinions of academic, business
and labour communities in the administration of human resource development. The
twenty members of the Council are appointed by the Ministry from these three
backgrounds. Its main brief is to research and deliberate upon, in response to
the Minister’s request, the basic plan for human resource development and to
examine other key items relating to human resource development. The Council has
the authority to advise related administrative organizations on matters in the
areas which it deems important.
Each prefectural government has a Council
on Human Resources Development and the role of these outer organizations is
analogous to that of the Central Council.
Legislative
foundation
The basic framework for the system of human
resource development for workers is prescribed in the legislation of 1969,
namely, the Vocational Training Law (later renamed Human Resources Development
Promotion Law in 1985 with the essentials of the legislative aims unchanged).
The law determines that the basic role of the human resources development
administration is to lay the foundation for the realization of the systematic
vocational ability development by stages, and to encourage the involvement of
employers and workers in the process. The development and enhancement of the
ability of workers required for their job is indispensable for the security of
employment and the improvement of the workers’ position. It also constitutes
the foundation of economic and social development.
Expenditure
by the national government
The national government budget in fiscal
year 1995 for the human resources development administration is Y157 billion
(£1 billion approximately at £1=Y150). Part of this amount is granted to the
prefectural governments to assist their administration financially. The
allocation of this budget by major policies is as follows:
1. for the promotion of human resource development
within enterprises ‐ Y28.2 billion (18.0 per cent);
2. for self‐education by workers ‐ Y2.0
billion (1.3 per cent);
3. for providing public vocational training
‐ Y116.7 billion (74.3 per cent).
Of the total budget of Y157 billion, 90 per
cent comes from the Employment Insurance System in accordance with the
Employment Insurance Law. The role of the Employment Insurance System is to
finance the payment of unemployment allowances and the three undertakings of
employment security, human resource development and labour welfare conducted by
the national government.
Outline
of human resources development administration and its function
The human resources development
administration is conducted within the framework outlined in Figure 2.
Human
resources development in the public sector
The Human Resources Development Promotion
Law of 1985 stipulates that the national and prefectural governments should
provide, as their statutory duty, vocational training for workers wishing to
change their jobs, and other persons needing special assistance for the
development and enhancement of their vocational abilities.
For this purpose, the national and
prefectural governments have established 354 public human resource development
facilities throughout the country to conduct vocational training, according to
Vocational Training Standards determined by the Labour Minister. These
facilities are mainly for recent graduates from schools, workers in small and
medium enterprises, unemployed people and those wishing to change their
employment.
The functions of the training centres are
as follows:
1. Human resources development centres are
established by prefectural or municipal governments. These centres provide
long‐term vocational training courses for new graduates, giving them basic
skills and the knowledge necessary to become skilled workers, and short‐term
vocational training courses for the employed or workers changing jobs.
2. Polytechnic colleges are established by
either the Employment Promotion Corporation or prefectural governments. These
colleges provide long‐term vocational training courses for new senior high
school graduates, giving them basic skills and the knowledge necessary to
become workers with advanced skills, and short‐term advanced vocational
training courses for the employed.
3. Polytechnic centres are established by
the Employment Promotion Corporation, and provide short‐term vocational
training courses (including advanced vocational training courses) for the
employed and workers changing jobs.
4. The Polytechnic University founded by
the Employment Promotion Corporation managed by the national government
develops vocational training instructors and carries out research into
vocational training.
5. Human resources development centres for
the disabled offer vocational training with special consideration given to the
training courses and methods for persons with severe physical handicaps or
mental retardation, who find it difficult to attend courses with the
non‐disabled at standard human resources development centres. These centres
have dormitories for trainees who are unable to commute.
Of the public human resource development
facilities there are 105 national establishments and 249 prefectural
establishments (Figure 3).
To make public vocational training suitable
for changes in technical innovation and for the fact that many workers are of
an older age group, the curriculum for training is revised (Table I). Training
equipement is upgraded or replaced. The instructors at the public human
resource development facilities are required, in general, to obtain a licence
of Instructor of Vocational Training issued by the Labour Minister.
Human
resource development in the private sector
Systematic and continuous education and
training in private enterprises is important in developing and improving
working lives. The national and prefectural governments support human resources
development in the private sector by promoting the authorized vocational
training system, awarding grants for lifelong human resource development,
offering advice and information and providing various aids for human resource
development. Besides these measures, the Business Career Development System was
established in 1993.
Authorized vocational training. The
Government authorizes training managed by enterprises and enterprise groups,
which meet a certain standard, in order to promote systematic and planned
vocational training and to encourage human resource development in the private
sector. The government provides various measures of support to these authorized
training schemes. In 1994, there were 1,390 authorized vocational training
centres and 24 authorised vocational training colleges.
Grants for lifelong human resource
development. The purpose of these grants is to promote systematic and planned
education and training in the private sector. They are given to enterprises
administering education and training in company, and to employers who assist
the effort of their employees at self‐development.
Additionally, the government promotes
lifelong human resource development by giving grants to enterprises initiating
education and training in conjunction with business diversification or
conversions. Grants are also given to middle‐aged and older workers who engage
in self‐education and training as a means of providing themselves with job
stability in the later stage of their working years.
Human resources development service
centres. Human Resources Development Service Centres have been established in
every prefecture (see Figure 1). These centres support human resource
development in enterprises. Specialists at these centres have access to the
Ability Development Database System (ADDS), a database of information on human
resource development. They use the database to consult, give advice and provide
information to individual enterprises on education and training plans and
effective methods of human resource development.
The business career development system. In
the rapid development of technological innovation and the increasing importance
of information, the key role played by the development and enhancement of the
vocational ability of white‐collar workers has recently been emphasised. A
system of acquiring vocational ability, named the Business Career Development
System, was established in 1993. This system is for white‐collar workers to
develop vocational abilities systematically by stages, so that they can meet
the required level of specialization and enhancement of skills demanded by
their duties.
The main components of the system are:
1. systematizing, in the form of a matrix,
the occupational knowledge required of the white‐collar worker to carry out the
tasks for each field of duty, and stipulating the standards of education and
training for acquiring the knowledge;
2. authorizing and announcing officially
the level of education and training to meet the standards for the acquisition
of the knowledge required for each field of duty, mentioned above, and the
appropriate course of education and training provided by private and public
education and training organizations; and
3. conducting the end of course examination
of each course of study through the Japan Vocational Ability Development
Association which is affiliated to the Ministry of Labour, to test the
competency of the workers on the subject of their study authorized by the
Minister, and certifying the results of occupational ability development
undertakings.
The authorized education and training courses
have been running since April 1994 in the fields of:
1. personnel, labour and capability
development;
2. accounting and financing;
3. sales and marketing;
4. production and management.
It is envisaged that the following six
additional fields will be offered in the near future:
1 judicial and general affairs;
2 public relations and advertising;
3 management of information and business;
4 logistics;
5 business planning;
6 international business.
Each field of study is organized into the
three progressive grades of elementary, intermediate and advanced, and related
to the level of the post held by the participant (see Table II). For example,
the elementary grade of the personnel management section in the personnel,
labour and ability development matrix is made up of four area‐based modules,
requiring 54 hours of study in total, while the intermediate grade is made up
of four separate subject units each requiring between 24 and 36 hours of study
(Figure 4). Each module is a self‐contained unit of ability competency, and
functions as the basis for qualification.
In 1994 there were about 3,700 authorized
education and training lectures being run at 149 organizations nationwide, and
approximately 5,000 participants completed the elementary and intermediate courses
and took the examination. Completing all four units at the intermediate grade
would take more than one year. The advanced grade is at the stage of being
fully developed.
Evaluation
of vocational abilities
To advance the vocational ability of
workers it is essential, besides providing vocational training, to evaluate the
skills that workers obtain, at respective stages of development, to encourage
them to recognize the results of their efforts. Furthermore, it increases a
worker’s volition to make progress towards new targets for the acquisition of
further skills.
For these reasons, the national government
has been strengthening the system of evaluating skills it conducts. To this end
it has been utilizing the skills’ test system and in‐house test system adopted
by private organizations and enterprises.
In addition, for a society which sets a
high value on trade skills, the Labour Minister awards outstanding skilled
workers and holds a National Skill Exhibition, a National Vocational Skills
Competition, a Trade Skill Grand Prix and Skill Competitions for the Disabled.
Trade skill tests system. The trade skill
tests system, established in 1959, is administered by the government to certify
workers’ vocational abilities. The trade skill tests are currently being
conducted in 133 vocational categories. These tests are graded, according to
proficiency, into: Special grade; 1st grade; 2nd grade; 3rd grade; basic grade,
1; and basic grade 2, in that descending order.
Trade skill tests for some vocational
categories are not classified into grades. These tests consist of a paper test
and a practical test. In principle, it is necessary for a person to have
practical experience in a designated vocational category for him to apply for a
trade skill test, although this condition can be changed depending on the
individual’s education and training history.
Authorized system of trade skill tests by
the private sector. The Labour Minister authorizes non‐profit service
corporations in the private sector to administer trade skill tests provided
they meet certain standards and are considered worthy of encouragement in
relation to the promotion of trade skills. These trade skill tests evaluate and
certify vocational knowledge and skills.
In‐company trade skill tests. The Labour
Minister similarly authorizes in‐company trade skill tests administered by
enterprises which meet specified standards and are considered worthy of
encouragement in relation to the promotion of trade skills. These in‐company
trade skill tests evaluate and certify the abilities necessary for vocations
related to individual enterprises.
Various official events are organized:
1. annual awards for outstanding skilled
workers are given by the Labour Minister to workers who have attained top level
skills;
2. a national skills exhibition is held
annually to encourage trainees at human resource development facilities to
upgrade their skills level, and to gain public understanding of the promotion
of trade skills and human resource development;
3. a vocational skills competition is held
every year for workers under the age of 22. Winners of this domestic
competition can participate in the International Vocational Skills Competition;
4. at the annual Trade Skill Grand Prix
outstanding certified skilled workers selected from each prefecture compete
against each other;
5. both National and International Skill
Competitions for the Disabled are held to promote their employment and to
upgrade the social status of the disabled as skilled workers.
International
cooperation
Being called upon to play a larger role in
international affairs, Japan is giving positive aid to developing countries.
Human resource development as a foundation for social and economic progress is
one of the most important areas of co‐operation. The following measures are
carried out to promote international co‐operation in developing countries:
1. co‐operating in the establishment and
operation of overseas human resource development facilities;
2. accepting foreign trainees;
3. co‐operating with international
organizations such as the Asian and Pacific Skill Development Programme;
4. accepting foreign students at the
Polytechnic University and polytechnic colleges at national expense;
5. assisting overseas vocational training
managed by private enterprises.
Debate
for the future
Human resource development in Japan faces
several issues requiring discussion.
Support for human resource development in
response to the change in industrial structure
To relocate smoothly the labour force among
industries, while trying to keep employment stable under the changing
industrial structure, it is desirable that the enterprises in declining sectors
shift their business activities to fields where higher returns are expected or
diversify into several different areas where an increase in demand is expected
to develop, and at the same time relocate their workers to such areas. It is
necessary that the administration support such positive restructuring of
business.
What is important in this regard is the
support for the efforts put in by enterprises to develop people who can cope
with the realization of high returns and the development of new business
fields. Especially as many medium‐ and small‐sized enterprises have not
established an in‐company system to develop human resources, the role played by
the public sector will be highly significant in this respect.
On the other hand, it has become necessary
to strengthen the training courses at public human resources facilities in
terms of both quality and quantity so that those workers who are forced to
leave or change their jobs due to changes in the industrial structure can find
enhanced employment opportunities by the further development of their skills.
Consequently the strengthening of the system for human resource development within
and outside the enterprises is a very important issue.
Assistance
for self‐education by workers
In the situation where reward by merit,
rather than by seniority, operates in an enterprise, the need for development
of ability by the workers’ own initiative and effort will increase, in addition
to the effort by the enterprise. Therefore, to support self‐education by
workers, an examination should be made for adopting and promoting a system of
long‐term leave of absence to enable workers to attend universities or other
higher educational institutions. At such institutions they could engage in
courses of advanced specialist ability development.
Vocational
ability development for white‐collar workers
To meet the increasing needs by enterprises
and workers for vocational ability development, it is desirable to establish
and strengthen the system in which any person can receive ability development
at anytime and anywhere by means of the construction of an education and
training network using satellite communications.
Furthermore, to develop the vocational
ability of white‐collar workers, for which the demand is becoming increasingly
significant, it is necessary to expand the business career development system
to assist those workers to acquire, systematically by stages, relevant
occupational knowledge. It is also important to establish and strengthen the
facilities which have overall functions such as:
1. the collection of information and the
implementation of research regarding the development of the ability of
white‐collar workers;
2. pioneering advanced education and
training at the levels of universities and graduate schools;
3. positive provision of knowledge and
information, based on achievements, to enterprises and workers.
Conclusion
In the current situation where both the
international and the domestic economic environment surrounding Japan are
changing rapidly, the development of people with an ability to cope swiftly and
effectively with its multifarious effects is becoming increasingly vital for the
future development of the Japanese economy and society. In particular, as the
key issue for Japanese industry is to raise the substance of its business
activity as well as to open up new fields of business, the development of
vocational abilities such as creativity, planning, and problem solving is
becoming critical. This largely depends on the skills and the quality of
individuals. Towards this end, it is an important issue for the government,
besides providing support and assistance for the human resource development
within the enterprise, to create an environment that promotes the enhancement
of vocational abilities initiated by the workers themselves.
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