Childcare Availability, Household Structure, andMaternal Employment

ISS Discussion Paper Series F-171
University of Tokyo
Yukiko Asai, Ryo Kambayashi and Shintaro Yamaguchi

Childcare Availability, Household Structure, andMaternal Employment∗
Yukiko Asai†

Ryo Kambayashi‡

Shintaro Yamaguchi§

September 11, 2014

Abstract
We estimate the causal effects of childcare availability on the maternal employment rateusing prefecture panel data constructed from the Japanese quinquennial census 1990-2010. We
depart from previous papers on Japan by controlling for prefecture fixed effects, without which
the estimates can be severely biased upward. Contrary to popular belief, childcare availability
is uncorrelated with maternal employment when prefecture fixed effects are controlled. Evidence suggests that this is because households shift from using informal childcare provided
by grandparents to the accredited childcare service, as more and more households do not livewith grandparents. If this change of the household structure did not occur, the growth of childcare availability would have increased the maternal employment rate by two percentage points,
which accounts for about 30% of the growth in the maternal employment rate from 1990 to2010.

Keywords: childcare; female labor supply; maternal employment; nuclear family;
three-generation family
JEL Codes: J13, J21, J22∗ The authors thank the support from Joint Usage and Research Center, Institute of Economic Research, Hitotsub-ashi University. Asai acknowledges the use of the data from Japanese Panel Survey of Consumers conducted by theInstitute for Research on Household Economics.
† Institute of Social Science, University of Tokyo‡ Institute of Economic Research, Hitotsubashi University§ Corresponding author. Department of Economics, McMaster University, 1280 Main St. W., Hamilton, ON.
Canada L8S 4M4. Email: yamtaro@mcmaster.ca.

11Introduction

Maternal employment hinges on quality, affordability, and availability of childcare. In countries
where the childcare market is regulated and heavily subsidized, high quality and affordable childcare service is provided, but the supply often falls short of the demand. Expecting that supporting
working mothers raise the low fertility rate, the Japanese government has implemented a seriesof pro-family policies, including an expansion of capacity of accredited childcare centers since
early 1990s. In this paper, we estimate the causal effects of childcare availability on the maternal
employment using the prefecture panel data from the Japanese quinquennial census 1990-2010.
Even though mother’s employment is a prerequisite for enrollment in an accredited childcare
center in Japan, whether childcare availability significantly increases maternal employment is not
immediately obvious. If working mothers substitute the accredited childcare service for an informal childcare arrangement such as the one provided by grandparents, the maternal employment
rate will remain unchanged. Indeed, Fitzpatrick (2010) and Havnes and Mogstad (2011) find thatan expansion of childcare services did not raise the maternal employment rate in the U.S. and Norway, respectively, because the new childcare mostly crowded out informal childcare arrangements.
Most previous studies on Japan that estimate the effect of childcare availability on female labormarket outcomes rely on the cross-sectional variation between prefectures.12 Examples include,
but are not limited to, Shigeno and Ookusa (1999), Higuchi, Matsuura, and Sato (2007), Unayama(2011), and Abe (2013). While the reported positive correlation is suggestive, it may not necessarily imply the causal effect of childcare availability on the female labor market outcomes. Maternal
labor supply is affected not only by childcare availability, but also by the local industry structure, economic conditions, commuting time, traditional family value, and preference for women
working. Because the traditional family value and preference for women working are unobserved
and hard to control, the observed positive correlation between childcare availability and maternal employment may be driven by the unobserved characteristics, rather than indicating a causal
relationship.
This paper departs from the previous studies on Japan by controlling for unobserved prefecture
fixed effects. Using the ratio of childcare capacity to population of children under 6 as a proxyfor childcare availability, we plot the growth of childcare availability and that of the maternal
1 A similar approach is also taken by Brilli, Del Boca, and Pronzato (2013) for the study on Italy.
2 An exception is Lee and Lee (2014). Using aggregate data at the country level on childcare availability, the female

labor force participation rate, and the fertility rate from 1971 to 2009, they try to establish Granger-causality using atime-series econometrics technique. Our identification strategy is very different from Lee and Lee (2014) in that weuse variations in the growth of childcare availability across prefectures. Moreover, Lee and Lee (2014) do not include
the household structure or the nuclear household share in their VAR model. Our analysis shows that the household
structure strongly affects the maternal employment rate and has changed over time significantly. Omitting this variablein the VAR model might affect their estimation results.

2

employment rate at the prefecture level, in a five-year period. By focusing on the growth, instead ofthe level, we can observe the relationship between childcare availability and maternal employment
in the absence of prefecture fixed effects. Hence, this approach provides more credible evidence
for the causal effects than the previous approach that relies on the cross-sectional variations alone.
Our approach is essentially the difference-in-differences estimator, which is adopted by Berlinski
and Galiani (2007), Baker, Gruber, and Milligan (2008), Lefebvre and Merrigan (2008), Havnes
and Mogstad (2011), and Nollenberger and Rodriguez-Planas (2013).3
Contrary to popular belief, the growth of childcare availability is uncorrelated with the growthof the maternal employment rate. In contrast, the levels of these variables are positively correlated,which implies that the estimates identified by cross-sectional variations alone are upward-biased.
A possible explanation for the uncorrelatedness is substitution of the accredited childcare service
for the informal childcare arrangements. Because the childcare provided by grandparents is themost common form of informal childcare arrangement in Japan, we analyze nuclear households
and three-generation households separately. This analysis enables us to shed light on the role ofinformal childcare provided by the grandparents in determining the maternal employment rate.
We find that the growth of childcare availability is strongly and positively correlated with thatof the maternal employment rate for nuclear households, whereas they are uncorrelated for threegeneration households. The results suggest that the household structure is the key to understanding
the relationship between childcare availability and maternal employment.
These findings are essentially unchanged when we run either the first-order difference regressions with observed characteristics or the OLS with prefecture fixed effects. Although we do not
observe the household’s choice of childcare mode in the census, households seem to have substituted the accredited childcare service for informal care by grandparents. The key factor behind thissubstitution is a change of the household structure. Namely, an increasing number of households
do not include grandparents any more. The logical question then is whether the childcare expansion induced this shift from three-generation households to nuclear households or not. We try toanswer this question by examining the relationship between childcare availability and the nuclear
household share, but do not find compelling evidence to provide a satisfactory answer.
To evaluate the relative roles of childcare availability, household structure, and other factors,
we apply our estimates to decomposition of the maternal employment growth from 1990 to 2010,
which increased from 34% to 41% despite the long-term recession. We find that the growth ofchildcare availability would have raised the maternal employment rate up to about two percentage
points if the household structure and other factors were kept constant. This positive effect was en3 An alternative approach to avoid an endogeneity bias is based on the Regression Discontinuity Designs.

Gelbach (2002), Fitzpatrick (2010), and Goux and Maurin (2010) exploit an age-dependent eligibility rule for childcare
enrollment and identify the causal effect.

3

tirely offset by the declining share of three-generation households. This offsetting effect was morestrongly pronounced in small or less densely populated prefectures, because the three-generation
household share decreased there more rapidly.
Fitzpatrick (2010) and Havnes and Mogstad (2011) find a null effect of childcare expansion onmaternal employment in the U.S. and Norway because it crowded out informal childcare arrangements. In contrast, Nollenberger and Rodriguez-Planas (2013) find a positive effect of childcare
expansion in Spain. They argue that crowding out did not occur in Spain, because the female labor
force participation rate was low, the traditional family values were rooted, and the childcare supply
was insufficient. The labor market institutions and circumstances surrounding childcare in Japanare more similar to Spain, but our results are more in line with those for the U.S. and Norway,
which may seem counterintuitive. The key to understanding the different results between Japanand Spain is the household structure. In Spain, the share of three-generation households was much
lower than that in Japan, and hence, the informal childcare by grandparents was uncommon andnot crowded out.
Our results for Japan suggest that neither the low female labor force participation rate nor the
traditional family value themselves are the determinants of a positive causal effect of childcare
availability on maternal employment. In Japan, the traditional family values require the eldest son
to live with his parents. Even though the traditional family values do not encourage mothers towork outside the home, this requirement eventually makes wives’ labor force participation rate
high due to the availability of childcare by grandparents. Then, as the traditional family value
became less influential, more and more households did not live with grandparents, which in turnlowered the maternal employment rate. This negative effect offset the effect of improved childcare
availability during the same period. Note that this offsetting effect was more strongly pronounced
in small prefectures where the traditional family value is more rooted. Our analysis indicates thatprevalence of informal childcare is the key determinant of whether maternal employment increases
with childcare availability or not.
We assess robustness and credibility of our finding that childcare availability increases the maternal employment rate for nuclear households. We find that this result is robust to an inclusion ofprefecture-specific trends in the maternal employment rate. We also address two potential threats
to identification. The first threat is households moving between prefectures for better childcare
availability. Our evidence from Japanese Panel Survey of Consumers indicates that moving forchildcare is very rare: at most 1% of households with children under 6 moved from other prefecture for the reason of better childcare availability at the most recent move. The second threat isprefecture-level shocks such as changes in local labor market conditions and pro-family policies
that coincide with the changes of childcare availability. We address this issue by examining theemployment rate of mothers whose youngest child is between 6 and 14 because they should not4

be directly affected by childcare expansion. The result indicates that their employment rate is uncorrelated with childcare availability. We conclude that these two potential threats to identification
are negligible.
The rest of the paper is structured as follows. In Section 2 we describe the institutional background and data. In Section 3, we show graphical evidence for the effects of childcare availability
on maternal employment. Section 4 lays out the econometric model and presents our estimation
results. In Section 5 we discuss potential sources of a simultaneity bias for our results. In Section
6 we apply our estimates to study the roles of childcare availability and the household structure in
determining the employment growth of mothers. We conclude in Section 7.

2

Background and Data

2.1

Childcare Policies in Japan

Childcare service is strictly regulated in Japan. For a childcare center to be accredited and subsidized by the national and municipal governments, it must satisfy the criteria for capacity, area
and the number of teachers per pupil, etc. Because accredited childcare centers are subsidized, theaverage monthly fee for a child is low, at 25,556 JPY (about 250 USD),4 although different fees
are charged depending on regions and the household income. Non-accredited childcare centers satisfy lower quality standards than those for accredited childcare centers. While some municipality
governments subsidize non-accredited centers, the national government does not subsidize them,which makes their fee higher. Their average monthly fee for a child age 0 is 46,330 JPY (about
460 USD) and that for child age 5 is 34,161 JPY (about 340 USD).5
According to the Comprehensive Survey of Living Conditions 20106 , 92% of childcare centers
are accredited and the remaining 8% are non-accredited. Because non-accredited childcare centers
are not subsidized and of lower quality, they are uncommon except for the large prefectures suchas Tokyo and Kanagawa where the supply of accredited childcare is far exceeded by the demand.
For example, the share of non-accredited childcare centers is 10% in Tokyo and 16% in Kanagawa,while it is nearly zero in small prefectures including Gunma, Toyama, Fukui, Yamanashi, Nagano,
Wakayama, and Tottori.
Thanks to regulations, the quality is high and the price is affordable, but the accredited childcare
service is not available for all households in need. Insufficient supply of the accredited childcare
has been considered an obstacle for mothers’ entering the labor market and a cause of the low fertility rate in Japan. The Japanese government implemented a series of policies for raising the fertility
4 See Table 7 on page 8 of Ministry of Health and Wealth (2009)
5 See Table 12 on page 14 of Ministry of Health and Wealth (2009)
6 See Table 18 in Volume 3.

5

rate since the mid 90’s. The Angel Plan (1994-1998) and the New Angel Plan (1999-2003) areagreements between ministers and intended to support working mothers. They include an expansion of childcare capacity, extension of childcare service hours including weekends and holidays,
and subsidies to promote the take-up of parental leave and shorter working hours. However, theseplans do not have legally binding power, and consequently, they failed to increase the capacity ofaccredited childcare. Indeed, it decreased by 10% from 1990 to 2000, even though the childcare
capacity per child population slightly increased due to the low fertility rate. In 2003, the Japanese
government enacted the Basic Act for Measures to Cope with Society with Declining Birthrate,
which is legally binding. Since then, the capacity of the accredited childcare centers increased bya significant 12.2% from 2000 to 2010.

2.2

Measuring Childcare Availability

Our key explanatory variable is an index of childcare availability at the prefecture level, which
is defined as the ratio of the capacity of the accredited childcare to the population of children
under 6. As we explained above, the share of accredited childcare centers is 92% in 2010, andhence, the proposed index roughly measures overall availability of center-based childcare. In thispaper, childcare capacity and enrollment statistics cover accredited childcare centers only. We
draw childcare capacity data from annual Report on Social Welfare Administration and Services7
and child population data from the Japanese quinquennial census 1990-2010. We emphasize that
our measure of childcare availability is based on capacity, not on enrollment. Because capacity isa supply side factor and does not pick up households’ willingness to use, we interpret our index asa measure of childcare supply relative to child population.
Alternative measure of the childcare availability is the number (or proportion) of children on
the waiting list for accredited childcare8 . However, there are two reasons against using the waiting
list as a good measure. First, in 2003, the government changed the definition of waitlisted children,which makes the statistics before and after 2003 not comparable. Second, although the size of theexcess demand can be useful for measuring availability, the waiting list does not measure the excess
demand. If parents expect a very low chance of getting accepted by an accredited childcare center,they are unlikely to submit an application to avoid a time cost of application. For example, cityof Yokohama declared that no child was waitlisted in April 2013, but the application increased by
7 Childcare capacity data are also available from Survey on Social Welfare, but data are not comparable before andafter 2007.
8 Yet another possible measure of childcare availability is proposed by Unayama (2011) who studies the relationshipbetween childcare availability and job continuity at marriage. His index is the ratio of childcare capacity to the numberof women age 20-39. His rationale is that the number of women age 20-39 measures the potential number of children.
Our index based on the actual number of children directly measures the current availability, which we think is more
relevant for decisions by mothers who currently have children under 6.

6

4,114 or 8% in the following year.9 This anecdote suggests that the actual excess demand for theaccredited childcare is greater than the number of waitlisted children.
As mentioned in the introduction, the causal effect of childcare availability on maternal employment is identified by the variation in the growth (instead of the level) of the childcare availability index across prefectures. It is worth describing how the variation was generated during thesample period. Since early 1990’s, a series of policies including The Angel Plan, the New Angel
Plan, and the Basic Act for Measures to Cope with Society with Declining Birthrate promoted raising the childcare capacity across the country. In large prefectures such as Tokyo, the capacity wasincreased as intended by the policies, but in small prefectures it remained almost constant, because
the child population has been rapidly decreasing. Note that childcare availability improved evenin small prefectures, since the child population decreased, but the capacity remained unchanged.10
The childcare capacity does not decrease proportionately to the child population for two institutional reasons. First, there is a regulation that the minimum capacity of an accredited childcare be
60 children.11 This minimum capacity requirement directly prevents the operators of the childcare
centers from downsizing. Second, the Japanese dismissal law strongly protects workers, which
prevents childcare centers from firing them to reduce their capacity.12

2.3

Household and Prefecture Characteristics

We draw our data on household and prefecture characteristics from the Japanese quinquennial
census from 1990 to 2010.13 Our analysis focuses on households with two parents and children
under age 6. These households are categorized by the census into three groups. The first household
type is a nuclear household in which only two parents and children reside. The second household
type is a three-generation household that consists of two parents, children, and grandparents. The
third household type is other household that consists of two parents, children, and other adults suchas relatives. This last type is only about 0.02% of all two-parent household with children under 6.
In the census, employment is identified by whether an individual performed paid work or notfrom September 24th to 30th of the year. If an individual did not work but was on leave, she/heis considered employed by the census. The employment status of the husband and wife of thehousehold is reported. We also calculate the average ages of the father and mother, although wecannot observe the joint distribution of their employment status and age at the prefecture level.
As a measure of local economic condition, we construct an unemployment rate for individuals
9 See Yokohama (2014) for their press release.
10 See Section 6 for details.
11 Nihon-Jidou-Mondai-Chousakai (1978) documents how the minimum capacity is determined.
12 See p. 512 in Yamakawa (2007)
13 All of our data from the census 1990-2010 are publicly available and downloadable from www.e-stat.go.jp.

7age 15 and over at the prefecture level.

2.4

Summary Statistics

Table 1 reports the mean of each variable by year and household type using the number of households as weight. Note that the means are different between the household types, because the numbers of nuclear households and three-generation households in a given prefecture are different.
Our childcare availability index, which is defined as the ratio of childcare capacity to populationof children under 6, steadily increased over time from 0.248 in 1990 to 0.338 in 2010 on averageover all types of households. The average of the capacity-population ratio for nuclear households
is lower than that for three-generation households, which reflects the fact that the share of nuclear
households is higher in the metropolitan area where childcare service is less available.
Table 1: Characteristics of Prefecture and Household with Children Under 6

1990
All HH
Cap./U6-Pop.
% EmployedAge
Age of Husband% Husband Empl.
Unemp. Rate
% Nuclear HH
Nuclear HH
Cap./U6-Pop.
% EmployedAge
Age of Husband% Husband Empl.
Unemp. Rate
3-Generation HH
Cap./U6-Pop.
% EmployedAge
Age of Husband% Husband Empl.
Unemp. Rate

1995

2000

2005

2010

0.248 0.265
0.341 0.329
31.580 31.757
34.454 34.517
0.988 0.985
0.030 0.043
0.712 0.752

0.269
0.334
32.14234.564
0.976
0.048
0.804

0.302
0.372
32.88334.953
0.965
0.060
0.837

0.338
0.412
33.72035.632
0.941
0.064
0.865

0.241
0.274
31.56034.373
0.988
0.031

0.258
0.280
31.63234.313
0.984
0.044

0.263
0.300
32.04934.382
0.976
0.048

0.296
0.347
32.88634.879
0.965
0.060

0.332
0.396
33.76335.614
0.941
0.064

0.266
0.511
31.62834.652
0.990
0.028

0.285
0.478
32.14735.146
0.986
0.039

0.293
0.476
32.53735.327
0.975
0.044

0.331
0.499
32.88435.346
0.968
0.057

0.376
0.517
33.45835.7500.945
0.064

Source: Census 1990-2010.
Note: Unit of observation is the prefecture. The number of households is used as weight.
8

The employment rate of mothers with children under 6 rose from 34.1% in 1990 to 41.2% in
2010; a remarkable employment growth given the long-term recession. This increase is largely
driven by the growing employment rate of mothers in nuclear households: it increased from 27.4%
in 1990 to 39.6% in 2010. Although the employment rate of mothers in three-generation households is as high as 51.1% in 1990, it decreased to 47.8% in 1995 and gradually returned to the1990 level by 2010.
Husbands’ employment rate decreased from 98.8% in 1990 to 94.1% in 2010. In contrast to
women, we find little difference in male employment rate across household type.
Mothers’ average age increased from 31.580 in 1990 to 33.720 in 2010 while that of husbands
increased from 34.454 in 1990 to 35.632 in 2010. The rise in parents’ age reflects the fact that men
and women delayed childbirth in the past few decades. We find little difference in parents’ age
across household types.
The average local unemployment rate rose from 3% in 1990 to 6.4% in 2010.14 Despite nuclear
and three-generation households tending to reside in different regions, we find little difference inlocal unemployment rates faced by the nuclear and three-generation households.

3

Graphical Examination of Data

We show sets of scatter plots of the maternal employment rate and the childcare availability index.
The objective of the scatter plots is to clarify what variation of the data enables us to identify thecausal effect of childcare availability on maternal employment. They also help us determine if theregression results in the following section are driven by outliers and/or by data from specific years.
The panels on the left column in Figure 1 show the scatter plots of the childcare availability index and the maternal employment rate for all household types including nuclear, three-generation,and other households. The radii of the circles reflect the population weights. The fitted lines are
based on the bivariate weighted regressions. The positive correlation is clearly visible and statistically significant in all years, which is consistent with the findings of previous studies on Japan
mentioned above. Note that the positive correlation may not be interpreted as a causal effect ofchildcare availability on the maternal employment rate, because it may be driven by unobserved
prefecture characteristics such as the traditional family value, preference for maternal work, industry structure, commuting time, etc.
To remove these prefecture fixed effects, we plot changes in childcare availability and changes
in the maternal employment rate over a five-year period, on the panels on the right column in
Figure 1. By looking at the changes, instead of the levels, we can assess the relationship between
14 Note that the highest national unemployment rate during this period is 5.5%. The average of local unemployment

rate in 2005 and 2010 exceed this number, because we weight by the number of household with children under 6.

9

0.02

1990 : All Households

1990−1995: All Households∆% Empl.
−0.02 0.00

% Empl.
0.4
0.6

●

●●
●

●

●

●

●

●

●

●
●

●

●

●

●

●

●
●

● ●●
● ●
●
●● ●

●

●

●

●
●●

% Empl.
0.2 0.3 0.4 0.5 0.6

●

●

●

●

0.3
0.4
Cap./U6−Pop.

●

●●

●

● ●
●

●

0.5

0.6

0.00 0.01 0.02 0.03 0.04 0.05
∆Cap./U6−Pop.

1995−2000: All Households

● ●
●
●

●

●

●

●

●

●

●

●

●

●

●
●● ●●

●

●

●●

●

● ●

●

●

●● ●●

● ●

●
●
●

●

●

∆% Empl.
−0.01
0.01

●●

●

●

0.6

0.06

0.6

2000 : All Households

−0.03

0.3
0.4
0.5
Cap./U6−Pop.

●

●

●

● ●●
●
● ●●
●

●

●

●

●

●

●

●

●

●

●

●

●

●

●

●

●

●

●

●

−0.01

●

0.01
0.03
∆Cap./U6−Pop.

2000−2005: All Households●●% Empl.
0.4 0.5

●

●●
●

●

●

●

●

●

● ●

●

●

●

●

0.2

●
●
●
0.1

●● ●
●
●
●

●

●

●

●

●
●

●

0.2

0.3
0.4
0.5
Cap./U6−Pop.

0.6

●

●

●
●

●

●●

●

●

●

● ●
●

●

●● ●●

●● ● ●●●

0.2

●
●

●
● ●

●

●

0.02

●

●

0.04
0.06
∆Cap./U6−Pop.

0.08

●
●

●

●

●

●
●

●

●

●

●

●

●

●

●
●
●

●
●●
● ●●
●●

●

●

●
●

●
●

●

●

●
●

●

●

●
●
●

●

●

0.01

●●

●
●

●

●●

●

2005−2010: All Households

● ●

●

●

● ●

●

●
●●
●

∆% Empl.
0.03
0.05

●

●
●

●

●●

●

●

●

●

●●

●

●

●

●
●

● ●●

●

0.6

2005 : All Households

●

●
●
●●
●●

●
●

0.00

0.3

●●

∆% Empl.
0.02
0.04

●●

●

●

●

●

●

●

●

0.2

●
●

●

●

● ●

●

●

●

●

●

●

0.1

% Empl.
0.4 0.5

●

●

●

●

1995 : All Households

0.3

●

● ●

●

●

●

●

0.2

●
●

●

●

● ● ●

● ●

●

●

●●●
0.1

●

●
●

●
●●● ●
●

−0.06

0.2

●

●

●

●

●

●

0.3
0.4
0.5
Cap./U6−Pop.

0.6

0.00

●

0.04
0.08
∆Cap./U6−Pop.

0.12

Source: Census 1990-2010
Note: Unit of observation is the prefecture. For the panels on the left column, the horizontal axis shows the childcare
availability index or the capacity-population ratio, while the vertical axis shows the maternal employment rate. The
panels on the right column show the 5-year changes in these variables. The radii of the circles reflect the population
weights. The fitted lines are based on the bivariate weighted regressions.

Figure 1: Childcare Availability and Maternal Employment (All Households)
10childcare availability and maternal employment in the absence of prefecture characteristics thatare constant over the five-year period. Surprisingly, we find no statistically significant relationshipin all of the four periods. The comparison of the two sets of graphs indicates that the positive
correlation between childcare availability and maternal employment is not a causal relationship,
but driven by the prefecture characteristics.
Why doesn’t the maternal employment rate respond to childcare availability? Our finding issimilar to those of Fitzpatrick (2010) and Havnes and Mogstad (2011). They find that an expansionof childcare did not increase maternal employment in the U.S. and Norway, because it crowded
out informal childcare arrangements by unlicensed caregivers such as babysitters. In Japan, childcare by grandparents is the most prevalent form of informal childcare arrangement. Longitudinal
Survey of Newborns in the 21st Century asks who is the main caregiver for children under 3.15
According to the survey, among children who are looked after by someone else but their parents,
73.3% of the children are enrolled in childcare centers, 25.9% of the children are looked afterby grandparents, and only 0.9% of the children are under other informal childcare arrangements
including babysitters and nannies.
Hence, we suspect that households substitute the accredited childcare for the care by grandparents. Unfortunately, we do not observe household’s choice of childcare mode in the census, but
we can still shed light on the relationship among the accredited childcare, the care by grandparents, and maternal employment. Evidence from Comprehensive Survey of Living Conditions 2010
indicates that the share of children who are looked after by grandparents16 tends to be higher in
prefectures where the share of three-generation households is high. The correlation coefficient for
the two is as high as 0.80, which suggests that children in three-generation households are likely
to be looked after by their grandparents.
We analyze nuclear and three-generation households separately. The panels on the left column
in Figure 2 show scatter plots of the childcare availability index and the maternal employment rate
for nuclear households. The panels on the right column shows 5-year changes in these variables.
The positive correlation is clearly visible in all panels and it is statistically significant, which implies that nuclear households increased their maternal employment rates as childcare became moreavailable. The scatter plots also show that the correlation is not driven by outliers and that there issignificant variation in changes in the childcare availability index.
Figure 3 shows scatter plots for three-generation households that consist of grandparents, parents, and children.17 The panels on the left column show a strong positive correlation between thechildcare availability index and the maternal employment rate in all years. However, this positive
15 The survey collects the information on the main caregiver for children age 3 and above, but it is not comparable

to the information for children under 3.
16 See Table 18 in Volume 3.
17 Other individuals such as relatives may or may not live together.

11

0.03

1990−1995: Nuclear Households

●

●

●

●

●

●

●
●

●
●
●

●●

●●

●

●

●
●●●
●

●

●

●●●

0.20

●
●
●

●
●

●

●

0.1

●

● ●

●

●

●

●

●

●

●

●

●

●

●

∆% Empl.
−0.03 −0.01 0.01

% Empl.
0.30
0.40

●

●

0.2

0.3
0.4
Cap./U6−Pop.

0.5

0.6

0.50

1995 : Nuclear Households

●

●

●

● ●●
●

● ●
●
●

●

●

●

●

●

●

● ●

● ●

●

●

●

●

●

●

●

●

●

●

●●

●

●

●

●

0.00 0.01 0.02 0.03 0.04 0.05
∆Cap./U6−Pop.
0.06

0.50

1990 : Nuclear Households

1995−2000: Nuclear Households

●

●

●

●

●

●

●

●
●

●

●

●

●

● ● ●●●

●

● ●

●

●
●
●
●●
●

●

●

●
●

●

●●

●

●

∆% Empl.
0.02
0.04

●

●

●

●

●

0.2

0.6

●

●

●
●

●

●

●●●
●
0.1

●

●

●

●●

0.3
0.4
0.5
Cap./U6−Pop.

●
●

●
●

●

●●

●●●

●

● ●
●
●
●
● ●
●

●

●

● ●●
●

●

●

●

●

●
●

●

0.3
0.4
0.5
Cap./U6−Pop.

●
●

●

●

●●

●

●

●

●

●

●●
●

●

●

●

0.02

0.04
0.06
∆Cap./U6−Pop.

0.08

2005−2010: Nuclear Households
●

●

●

0.02

●

●

● ●●

● ●

0.2

●
●

●

●
●

●

●

●

●

●●

●

●

●

●

●

●

●

●

●

●●

●

∆% Empl.
0.04
0.06

0.55

●

●

●

●

0.01
0.03
∆Cap./U6−Pop.

●

0.6

2005 : Nuclear Households

●

●

●

●

0.2

●

●

●

●

●

●

●

●

●

●

●●

●

●

●

●●●

●

●

●

●

●
●

●

●

●

●

●

∆% Empl.
0.05

●

●
●

●

2000−2005: Nuclear Households

0.03% Empl.
0.30 0.40
0.20

●

●

●

●

0.07

●

●

●●
●

●

−0.01

0.08

0.50

●

●

●

% Empl.
0.35
0.45

●
●
● ●

●
●

●●

●

0.3
0.4
0.5
Cap./U6−Pop.

●

●

●

●●

●

●

●

2000 : Nuclear Households

0.25

● ●
●●

●

0.1

●

●

●

●

●

0.00

0.20

% Empl.
0.30
0.40

●

●

0.6

0.00

●
●
●●

●
●

●●
●

●

●

●
●

●

●

●

●●

●

●

●

●
●
● ●

●

● ●

●

●

●

● ●

●
●

●

●

●
●

●

0.04
0.08
∆Cap./U6−Pop.

0.12

Source: Census 1990-2010
Note: Unit of observation is the prefecture. For the panels on the left column, the horizontal axis shows the childcare
availability index or the capacity-population ratio, while the vertical axis shows the maternal employment rate. The
panels on the right column show the 5-year changes in these variables. The radii of the circles reflect the population
weights. The fitted lines are based on the bivariate weighted regressions.

Figure 2: Childcare Availability and Maternal Employment (Nuclear Households)
12correlation is not a causal relationship, because we find no clear relationship between the 5-yearchanges in these two variables, as shown in the panels on the right column of Figure 3. The correlation for 1995-2000 is significantly negative, while that for 2005-2010 is significantly positive.
For other periods, no statistically significant correlation is found.
We find that the effects of childcare availability are heterogeneous between nuclear and threegeneration households. Many previous papers point out that mothers in three-generation households are more likely to participate in the labor market than those in nuclear households. In thosepapers, the effect of childcare availability is assumed homogeneous. Allowing for heterogeneous
treatment effects between nuclear and three-generation households is important for prediction, because the share of nuclear households varies across years and prefectures significantly.
Our analysis here takes the household structure as given, but women whose labor force attachment is strong might choose to form a three-generation household, rather than a nuclear household, because informal childcare may be available in three-generation households. Sasaki (2002)
addresses this issue and estimates the effect of co-residence with the parents or in-laws on thewife’s labor force participation. He instruments co-residence by whether the husband is the eldest
son or not, because the traditional Japanese family value obligates the eldest son to reside with hisparents. Sasaki (2002) finds that his OLS estimate for the effect of co-residence is essentially thesame as the IV estimate. This implies that co-residence can be taken exogenous to the wife’s labor
force participation, which justifies our approach.

13

1990 : 3−Generation Households∆% Empl.
−0.04
0.00

●

●
●
●
●
●
●
● ●
●
●
●
●
● ●●●
●
●
●
●
●
●
●
●●
●●
●

●

●

●●

●●

●

●

●

●

●

●

0.1

0.2

0.3
0.4
Cap./U6−Pop.

−0.08

●

0.5

0.6

1995 : 3−Generation Households
0.7

●

●

●●

% Empl.
0.5

●

●● ●

●

●●
●
●

●●●●

●

●
● ● ●
●
● ●●
●
●
●
● ●

●●●●●
● ●

●

●

0.2

●

●
●

●● ●

●

●

●
●
●
●●
●●
●
●
●
●

●

●

●
●
● ● ●
●●●
● ●●

● ●
●
●●
●

●

●

●●
0.1

●

0.3

●

●

●

●

●
●

●●
●

●

●

●

●

●
●● ●
●
●●
●
●●●
●

●
●

●

●

●

0.2

0.01
0.03
∆Cap./U6−Pop.

●
●
● ●
●
●
●
●

● ●●●● ●● ●
●
●

●

●

●
●

●

●

●

●

●

●

●

●

●●

● ●●●

● ●●

●

0.02

0.08

●

●●●

●

●●

●

●

●

●
●
●● ●
● ●● ●
●
●

●

●

●
●
●●

●

●

●●●●●●

●

●

●●

●

●

0.3
0.4
0.5
Cap./U6−Pop.

0.04
0.06
∆Cap./U6−Pop.

2005−2010: 3−Generation Households

●

● ●

● ●

●

2000−2005: 3−Generation Households

0.00

0.4

% Empl.
0.5 0.6

0.7●● ●● ●●

●
●
●

●

●

0.6

2005 : 3−Generation Households
●

●

●●●

●

−0.01

●

●

●

0.3
0.4
0.5
Cap./U6−Pop.

●●

●
●●

●

●

0.2

●
●●
● ●

●

●

●

●

●

● ●

●

●

●●

●

●

∆% Empl.
0.02● ●● ● ●●1995−2000: 3−Generation Households

0.06

●

●

● ●

−0.02

% Empl.
0.3 0.4 0.5 0.6 0.7

●

●

●

0.00 0.01 0.02 0.03 0.04 0.05
∆Cap./U6−Pop.

0.6

2000 : 3−Generation Households

●

●●●

●
●●●● ●●●
●●

−0.04

0.3
0.4
0.5
Cap./U6−Pop.

●

●

●

●

∆% Empl.
0.02
0.04

0.3

0.1

●

●

● ●

●

●●

●

●●

● ●
●● ●
●
●●● ●
●

∆% Empl.
0.00 0.02

0.3% Empl.
0.5
0.7●

1990−1995: 3−Generation Households

0.6

● ●

0.00

●

0.04
0.08
∆Cap./U6−Pop.

0.12

Source: Census 1990-2010
Note: Unit of observation is the prefecture. For the panels on the left column, the horizontal axis shows the childcare
availability index or the capacity-population ratio, while the vertical axis shows the maternal employment rate. The
panels on the right column show the 5-year changes in these variables. The radii of the circles reflect the population
weights. The fitted lines are based on the bivariate weighted regressions.

Figure 3: Childcare Availability and Maternal Employment (Three-Generation Households)
14

4

Regression Analysis

4.1

Econometric Model

We further analyze the causal effects of childcare availability using regression models. Consider
the following econometric model
Ykt = β0 + β1CCAkt + β2 Xkt + θk + ξt + εkt ,(1)where Ykt is the maternal employment rate in prefecture k in year t, CCAkt is our measure of childcare availability given by the ratio of capacity to child population, Xkt is a vector of observed
characteristics of household and prefecture, θk is prefecture fixed effects, ξt is year fixed effects,
and εkt is an error term that is uncorrelated with other variables. The fixed effects θk and ξt areallowed to be correlated with other variables including CCAkt . The prefecture fixed effects capture
unobserved household and prefecture characteristics including the traditional family value andpreference for maternal employment. The year fixed effects capture factors that affect maternal
employment equally across prefecture. For example, the effects of a nation-wide secular rise in female wages and changes in parental leave and other labor legislation18 by the national government
are included in the year fixed effects.
Our preferred estimator for the parameter of interest β1 is the first-difference estimator. Taking
5-year differences, Equation (1) can be converted into
∆Ykt = β1 ∆CCAkt + β2 ∆Xkt + ∆ξt + ∆εkt ,(2)where ∆Ykt = Ykt − Ykt−5 and other variables are similarly defined. We estimate Equation (2) by
the OLS. As a robustness check, we also add prefecture fixed effects to Equation (2), in order toaccount for a possible prefecture-level trend in the maternal employment rate. In all our regression
models we use the number of households as weights and report standard errors clustered at theprefecture level.
Although we could measure childcare availability at the municipality level, we choose to measure it at the prefecture level because it reduces the endogeneity bias. Our identification assumption for Equation (2) is that the error term is uncorrelated with the growth of childcare availability∆CCAkt at the prefecture level. A possible threat to this assumption is migration for the reason of
better childcare availability. In Section 5.1, we show evidence that inter-prefectural migration for
better childcare availability is extremely rate. This exogeneity assumption may be questionable ifchildcare availability is measured at the municipality level, because intra-prefecture migration is
18 See Asai (2012) and Yamaguchi (2014) for the employment effects of parental leave legislation.

15

more common.
A potential downside of using observations at the prefecture level, rather than the municipality
or individual level, is a lack of variation in the explanatory variables. This lack in variation may
result in unstable estimates or large standard errors, but as we show in Figures 1-3 in Section 3,
there is a large variation in the level of and the growth in the childcare availability index. Indeed,as shown below, the standard errors are small.

4.2

Maternal Employment

Table 2 reports the results for the first-difference estimator. We pool observations across years,
but no specific period drives the results, as evidenced by the scatter plots in Figures 1-3. All
standard errors are clustered at the prefecture level. The population for columns (1) through (4)is mothers of children under 6 in nuclear households. When the 5-year changes are stacked andregressed without any additional controls, the coefficient is 0.775 (column 1). Once year dummies
are included as a control, the coefficient drops to 0.352 (column 2). This is because both maternal
employment and childcare availability increase over time. As additional control variables, we
include in the regression the average age of mothers, that of fathers, and the local unemployment
rate at the prefecture level. Adding these controls modestly lowers the coefficient of interest to
0.316 (column 3), which is statistically significant.
The estimate in column (3) might be biased because we have a small number of control variables and omitted variables might generate a prefecture-specific trend in the maternal employment
rate. We address this concern by allowing for prefecture fixed effects for 5-year changes in the maternal employment rate. The result in column (4) indicates that allowing for a prefecture-specifictrend does not change the coefficient for the childcare availability measure from our baseline specification in column (3).
We also estimate the employment effects of childcare availability for mothers in three-generation
households. As already suggested by the scatter plots in Figure 3, the employment of mothers fromthree-generation households does not respond to changes in childcare availability: the estimatedtreatment effect is -0.077 and statistically insignificant (column 5). One possible explanation forthis result is that three-generation households do not enroll their children in the accredited childcare because the informal care by grandparents is already available. Another possible explanationis that three-generation households substitute the accredited childcare for the grandparents’ care.
Either way, their maternal employment rate does not increase with childcare availability.
In columns (6) and (7), the results for all types of households are presented. The effect ofchildcare availability is essentially zero (the estimated coefficient is 0.011 in column 6). When we
add the change in the nuclear household share as a control variable, the coefficient is 0.184 and16

statistically significant (column 7). The comparison of the two regression models implies that thechanges of the childcare availability index and the nuclear household share are positively correlated. If the rise in the nuclear household share is a result of better childcare availability, further
expansions of childcare will lead only to more nuclear households, without necessarily raising maternal employment. If the increase in the share of nuclear households occurs independently froma change in childcare availability, childcare expansion can raise maternal employment as long as
the pace of expansion is fast enough to exceed the negative effect from the increase of the nuclear
household share. We address this issue in Section 4.3.
Our results are in line with those by Fitzpatrick (2010) and Havnes and Mogstad (2011) who
find that an expansion of childcare crowded out informal childcare arrangements in the U.S. and
Norway, respectively. In contrast, Nollenberger and Rodriguez-Planas (2013) report that crowding
out did not occur in Spain where some of the labor market institutions are comparable to those ofJapan. For example, the gender gap is large, the female labor force participation rate is low, andthe traditional family values are rooted in these two countries. Given this similarity, our results
may seem somewhat counterintuitive.
The key difference between Japan and Spain, however, is prevalence of three-generation household. Iacovou and Skew (2010) report that, in Spain, only about 6% of children under 18 live with
grandparents in 2007. This number is about the average of the OECD countries, which is 6.6%.
Although we cannot construct exactly the same statistic for Japan, we find that 22.6% of children
under 20 (instead of 18) live with their grandparents, according to the 2005 census. This number
is one of the highest among the OECD countries. The high share of three generation households inJapan explains why the maternal employment rate does not increase with childcare availability, despite the fact that female labor force participation rate is low. The comparison of the results acrosscountries suggests that prevalence of informal childcare arrangement is the major determinant of
the effect of childcare availability on maternal employment.
4.2.1

Assessing Endogeneity Bias Due to Omitting Prefecture Fixed Effects

To assess the extent of the endogeneity bias due to omitting prefecture fixed effects, we estimate
Equation (1) by OLS with and without prefecture fixed effects. Table 3 reports the estimation
results.
For nuclear households, the estimated coefficient for childcare availability is 0.516 (column 1)
when prefecture fixed effects are omitted, while it is 0.322 (column 2) when they are included in
the regression. This difference means that the estimate is upward-biased by 60% if prefecture fixed
effects are omitted. For the three-generation households, the coefficient changes more dramatically.
When prefecture fixed effects are omitted, the coefficient for childcare availability is positive andsignificant at 0.439 (column 3). However, it is negative at -0.243 (column 4) when prefecture17180.013∗∗∗(0.001)
0.465
0.462
188
0.001
(0.002)
0.864
0.861
188
X

(2)
Nuclear0.352∗∗∗(0.039)0.008∗∗(0.003)
0.873
0.867
188
X

(3)
Nuclear0.316∗∗∗(0.042)−0.021(0.015)0.017(0.017)0.132∗(0.073)−0.268∗∗(0.126)0.005(0.004)
0.903
0.864
188
X
X

(4)
Nuclear0.320∗∗∗(0.066)−0.015(0.016)0.015(0.017)0.060(0.103)−0.248(0.173)−0.028∗∗∗(0.008)
0.658
0.643
188
X

(5)
3-Gen
−0.077(0.115)0.003(0.027)0.002(0.024)0.057(0.105)−0.517(0.416)−0.009∗(0.005)
0.795
0.785
188
X

(6)
All
0.011
(0.078)−0.011(0.023)0.016(0.020)0.042(0.059)−0.088(0.265)(7)All
0.184∗∗∗(0.055)0.012(0.019)−0.012(0.019)0.164∗∗(0.072)−0.233(0.203)−0.441∗∗∗(0.065)0.005(0.004)
0.849
0.842
188
X

Source: Census 1990-2005
Note: The dependent variable in all models is 5-year changes in the employment rate at the prefecture level. The number of households
is used as weight. Standard errors are clustered at the prefecture level.

∗∗∗ p < 0.01, ∗∗ p < 0.05, ∗ p < 0.1

R2
Adj. R2
Num. obs.
Year FE
Prefecture FE(Intercept)∆ % Nuclear HH∆Unemp Rate

∆Husband’s % Empl.

∆Husband’s Age∆Age

Household Type∆Cap./U6-Pop.

(1)
Nuclear0.775∗∗∗(0.053)

Table 2: Effects of Childcare Availability on Employment Rate (First-Difference)fixed effects are included. When all types of households are pooled, the coefficient for childcare
availability is positive and significant at 0.567 (column 5), but it is negative at -0.147 (column 6)
and insignificant.
The comparison of regression results with and without prefecture fixed effects warns us that theomitted variable bias can be severe. Indeed, the extent of the bias can be large enough to change
the sign of the estimates.
Table 3: Effects of Childcare Availability on Employment Rate (OLS)(1)
Household Type
NuclearCap./U6-Pop.
0.516∗∗∗(0.064)Age
0.148∗∗∗(0.054)
Husband’s Age−0.150∗∗∗(0.051)
Husband’s % Empl.
−0.210(0.262)
Unemp Rate
−0.435(1.064)(Intercept)
0.839(0.635)
Year FE
X
Prefecture FE
R2
0.771
2
Adj. R
0.761
Num. obs.
235(2)
Nuclear0.322∗∗∗(0.058)−0.018(0.020)0.013(0.021)0.250∗∗∗(0.087)−0.283∗∗(0.141)0.018(0.260)
X
X
0.994
0.993
235

(3)
3-Gen
0.439∗∗∗(0.093)0.317∗∗∗(0.071)−0.366∗∗∗(0.065)−1.313∗∗∗(0.287)−3.135∗∗∗(0.951)4.448∗∗∗(0.803)
X
0.651
0.637
235

(4)
3-Gen
−0.243(0.158)0.037(0.039)−0.032(0.039)−0.324(0.341)−1.297(1.050)0.799∗∗(0.396)
X
X
0.977
0.970
235

(5)
All
0.567∗∗∗(0.083)0.221∗∗∗(0.078)−0.250∗∗∗(0.077)−0.685∗(0.355)−2.469∗(1.367)2.576∗∗∗(0.950)
X
0.620
0.605
235

(6)
All
−0.147(0.110)−0.001(0.032)0.015(0.028)0.164(0.144)−0.235(0.544)−0.284(0.371)
X
X
0.984
0.979
235

∗∗∗ p < 0.01, ∗∗ p < 0.05, ∗ p < 0.1

Source: Census 1990-2005
Note: The dependent variable in all models is the maternal employment rate at the prefecture level.
The number of households is used as weight. Standard errors are clustered at the prefecture level.

4.3

Household Structure

There is an economic benefit of forming a three-generation household for the parents, because
grandparents may provide informal childcare. However, if quality childcare is provided by the
local government at an affordable price, this economic benefit of three-generation household decreases. As a result of the improved childcare availability, some parents may want to form a nuclear
household for more privacy and independence. Whether childcare expansion affects the household
structure or not is an important question for the welfare of families beyond maternal employment.
19

To explore this issue, we regress 5-year changes in the nuclear household share on 5-yearchanges in the childcare availability index. Table 4 reports the estimation results. Without any
control, the coefficient is negative (column 1), but with year dummies, the coefficient turns positiveand significant (column 2). Adding changes in age, husband’s age and his employment rate, andthe local unemployment rate has little effect on the coefficient (column 3). However, once weallow for a prefecture-specific trend by including prefecture dummies, the coefficient is very small
at 0.015 (column 4) and insignificant.
Despite the theoretical prediction, our data and econometric model do not reject the hypothesisthat childcare availability has no effect on the household structure. However, we admit that ouranalysis is not compelling enough to deny the theoretical prediction, either. We consider that morecredible exogenous variation in childcare availability and better data that contain more details on
household characteristics are necessary to establish conclusive evidence on this issue.
Table 4: Childcare Availability and Nuclear Household Share∆Cap./U6-Pop.

(1)−0.143∗(0.086)(2)
0.439∗∗∗(0.095)0.040∗∗∗(0.004)0.032∗∗∗(0.004)X(3)
0.392∗∗∗(0.082)0.052∗(0.030)−0.064∗∗(0.026)
0.277∗∗(0.114)−0.327(0.299)0.033∗∗∗(0.007)
X

0.021
0.016
188

0.360
0.346
188

0.429
0.403
188

∆Age
∆Husband’s Age∆Husband’s % Empl.
∆Unemp Rate
(Intercept)
Year FE
Prefecture FE
R2
Adj. R2
Num. obs.

(4)
0.015
(0.056)−0.005(0.017)0.001(0.013)−0.192∗∗∗(0.054)−0.227∗(0.121)0.047∗∗∗(0.004)
X
X
0.912
0.876
188

∗∗∗ p < 0.01, ∗∗ p < 0.05, ∗ p < 0.1

Source: Census 1990-2005
Note: The dependent variable is 5-year changes in the nuclear household share among all households with children under 6. The number of household is used as weight. Standard errors are
clustered at the prefecture level.

20

5Simultaneity Bias

Although the first-difference regression and OLS with prefecture dummies remove prefecture fixed
effects, there might be a simultaneity bias. Namely, there may be a correlation between childcare
availability and mothers’ unobserved willingness to work even when the time-invariant household
and prefecture characteristics are controlled. One possible source of the simultaneity bias is households moving to a prefecture where childcare service is more available. Another possible source
is prefecture-level changes in labor market conditions and policies that affect not only mothers ofchildren under 6, but also other demographic groups. For example, pro-family policies unrelated
to childcare at the prefecture level might increase the employment of mothers of older children. In
this section, we show that these two possibilities are negligible.

5.1

Inter-Prefecture Migration

Popular narrative says that obtaining a spot in an accredited childcare center is extremely hard inTokyo and that some people even move to other municipality for childcare. For example, in thearticle from The New York Times, Tabuchi (2013) reports, “Some families are so anxious to get
into public day care that they upend their lives, moving to districts known to have the shortest
waiting lists.” However, very little statistical evidence on this issue has been reported.
We provide evidence that households do not move for childcare, using information on movingfrom Japanese Panel Survey of Consumers (JPSC). JPSC has started in 1993 with 1,500 womenage 24-34, and added a new cohort of 500 women age 24-27 in 1997. JPSC asks these two cohorts
about their last five moves, but we focus on the most recent one to avoid a potential recall bias.
We analyze the 1993 and 1997 cohorts separately, because JPSC asks slightly different questions.
Note that only inter-prefecture moves matter to our analysis because all of our variables are at theprefecture level.
We first examine a sample of 721 women from the 1993 cohort who had children under 6 at
the time of the survey in October 1993. Out of 721, 118 women moved from other prefecture thanthe current one at the most recent move. Out of 118, only 15 women answered that they knew or
researched about childcare availability at the current location before moving in. Note that knowing
about childcare availability does not necessarily mean that they move for childcare availability. The
survey further asks the respondents to choose the closest of the twelve alternatives that describe
the reason for the move. Although “child rearing and education” is not in the 1993 survey, we canstill exclude answers that are clearly unrelated to child rearing and education. After we exclude 6
individuals who moved for attending school or husband’s job transfer, we have 9 individuals who
may have moved for childcare availability. This implies that at most only 1% of mothers (9 out of721) moved to other prefecture for better childcare availability.
21

We then analyze the 1997 cohort. JPSC asks this cohort if they moved for child rearing or
education. There are 133 women who had children under 6 in the 1997 cohort. Out of 133, only 6
women answered that they moved for the reasons of child rearing or education. Our of 6 women,
only one moved to a different prefecture. This woman knew or has researched about childcare
availability at the current location before moving in. This implies less than 1% of mothers (1 outof 133) moved to a different prefecture for better childcare availability.
Our analysis of two cohorts in the JPSC suggests that inter-prefecture migration for childcare
is quite uncommon. Despite that, the media often reports interviews of parents who are desperate
for the accredited childcare service. This might look somewhat surprising for some readers, but weconsider this to be reasonable given that the cost of an inter-prefecture move can be high. The costof inter-prefecture moving includes not only moving expenses but also the loss of social networks,
familiarity with the local public services, proximity to the current workplace, etc. Perhaps, moving
for childcare is beneficial for the highly skilled women despite the significant cost, but only 21%
of married women age 30-34 have bachelor’s degree or higher, according to the Japanese 2010
census. We conclude that inter-prefecture migration for childcare is rare and it would not bias theestimate of the causal effect of childcare availability.

5.2

Policies and Labor Market Conditions at the Prefecture Level

Childcare expansion is only a part of pro-family policies, and pro-family policies other than childcare expansion are likely to raise not only the employment of mothers of children under 6, but alsothat of mothers of older children. Because childcare expansion and other pro-family policies aredeveloped by the similar value and philosophy, changes of these policies may be correlated. We
are not aware of any major prefecture-level policies that are likely to affect the maternal employment in general, but several small policies may collectively affect it.19 There may also be changes
in other prefecture-level labor market conditions that affect maternal employment. Given that wehave only a few time-varying control variables in the regression, our regression results for nuclear
households might be driven by those prefecture-level policies and local labor market shocks otherthan childcare availability.
To address this issue, we conduct a falsification test. Namely, we estimate the effects of childcare availability on maternal employment for households with children age 6-14.20 Because theseolder children are not eligible for the accredited childcare service, their mothers’ employment is
not directly affected by childcare availability. If strong positive effects are found for these mothers,
our main results above are likely to be driven not by childcare availability, but by an omitted factor
19 Nakajima and Tanaka (forthcoming) report that pronatal policies are considerably different across municipalities.
20 The employment of parents is reported by a different age-window across census years. The employment variable
can be constructed from 1990 to 2010 for 3 age-windows including 0-5, 6-14, and 15-17.

22

that affects all mothers regardless of the age of the youngest child.
Table 5 shows the results from the first-difference estimator. The estimated coefficient forchildcare availability is tiny and insignificant for nuclear households (column 1), and it is negative
for three-generation households (column 2). When all household types are pooled, the coefficientis insignificant (column 3). This does not change when the nuclear household share is included as acontrol (column 4). These results indicate that maternal employment for households with children
age 6-14 does not respond to childcare availability, which in turn supports the claim that our main
result in Section 4.2 is indeed driven by childcare availability.
Table 6 also presents the results from the OLS estimation. When prefecture fixed effects areincluded along with other control variables, the results are very similar to those from the firstdifference estimator (see columns 2, 4, and 6). That is, maternal employment for households withchildren age 6-14 does not respond to childcare availability. Interestingly, when prefecture fixedeffects are omitted, the estimated coefficients for childcare availability are positive and significant(see columns 1, 3, and 5). Again, estimates can be severely biased if prefecture fixed effects areomitted. The result indicates existence of prefecture fixed effects that affect the maternal employment rate regardless of ages of their children.

23

Table 5: Responses by Households With Children Age 6-14 (First-Difference)(1)
Nuclear
0.061(0.074)∆Age
0.026∗∗∗(0.009)∆Husband’s Age−0.033∗∗(0.013)∆Husband’s % Empl. 0.634∗∗∗(0.118)∆Unemp Rate
−0.685∗∗∗(0.170)∆ % Nuclear HH

(2)
3-Gen
−0.164∗∗(0.065)0.001(0.013)−0.019(0.019)0.127(0.101)−1.221∗∗∗(0.301)(3)All−0.054(0.079)0.024∗∗(0.012)−0.050∗∗∗(0.018)0.361∗∗∗(0.114)−0.998∗∗∗(0.183)0.014∗∗∗(0.005)
0.786
0.777
188
X

0.024∗∗(0.010)
0.442
0.418
188
X

0.030∗∗∗(0.005)
0.668
0.653
188
X

Household Type∆Cap./U6-Pop.

(Intercept)
R2
Adj. R2
Num. obs.
Year FE
Prefecture FE(4)
All−0.023(0.081)0.028∗∗(0.011)−0.053∗∗∗(0.017)0.414∗∗∗(0.106)−0.906∗∗∗(0.194)−0.145∗(0.080)0.028∗∗∗(0.005)
0.677
0.660
188
X

∗∗∗ p < 0.01, ∗∗ p < 0.05, ∗ p < 0.1

Source: Census 1990-2005
Note: The dependent variable in all models is 5-year changes in the employment rate at the prefecture level. The number of households is used as weight. Standard errors are clustered at theprefecture level.

24

Table 6: Responses by Households With Children Age 6-14 (OLS)(1)
Nuclear0.455∗∗∗(0.062)Age
0.075∗(0.041)
Husband’s Age−0.098∗∗(0.047)
Husband’s % Empl. 0.939∗∗∗(0.285)
Unemp Rate
−1.823∗∗(0.892)(Intercept)
0.778(1.046)R2
0.724
2Adj. R
0.713
Num. obs.
235
Year FE
X
Prefecture FE
Household TypeCap./U6-Pop.

(2)
Nuclear−0.001(0.121)0.016(0.022)−0.016(0.025)0.580∗∗(0.232)−0.303(0.326)0.048(0.620)
0.985
0.980
235
X
X

(3)
3-Gen
0.428∗∗∗(0.065)0.154∗∗∗(0.039)−0.229∗∗∗(0.037)−0.782(0.492)−3.371∗∗∗(0.884)5.077∗∗∗(0.673)
0.732
0.721
235
X

(4)
3-Gen
−0.206∗∗(0.103)−0.017(0.019)−0.003(0.026)−0.268(0.374)−1.762∗∗∗(0.632)
1.847∗∗(0.808)
0.983
0.978
235
X
X

(5)
All
0.502∗∗∗(0.070)0.115∗∗(0.052)−0.175∗∗∗(0.059)0.681∗∗(0.326)−3.084∗∗∗(1.057)2.783∗∗∗(1.050)
0.701
0.689
235
X

(6)
All
−0.090(0.140)0.000(0.024)−0.030(0.032)0.274(0.270)−0.949∗∗(0.420)1.651∗∗(0.717)
0.986
0.982
235
X
X

∗∗∗ p < 0.01, ∗∗ p < 0.05, ∗ p < 0.1

Source: Census 1990-2005
Note: The dependent variable in all models is the maternal employment rate at the prefecture level.
The number of households is used as weight. Standard errors are clustered at the prefecture level.

6

Growth of Maternal Employment Rate Across Regions

Our analysis so far shows that childcare availability increases the employment rate of mothers ofchildren under age 6 in nuclear households and that the household structure strongly influences thematernal employment rate. In this section, we assess the extent to which childcare availability, thehousehold structure, and other factors separately affected the maternal employment growth from1990 to 2010.
Table 7 reports the maternal employment rate, the childcare availability index, and the nuclear household share across time and prefecture groups. The statistics are based on all two-parent
households with children under 6, regardless of whether they live with their parents or other relatives or not. Our unit of observation is the prefecture and the number of households are used
as weight. We separate prefectures in terms of population density as of 2010. The large prefectures include Tokyo, Osaka, Kanagawa, Saitama, Chiba, Aichi, Hyogo, and Fukuoka. The small
prefectures include all others.
25

Table 7: Regional Differences% Employed
1990 2010 Diff.
All Prefs.
0.341 0.412 0.070
Large Prefs. 0.261 0.355 0.094
Small Prefs. 0.409 0.470 0.061

Cap./U6-Pop.
1990 2010 Diff.
0.248 0.338 0.089
0.212 0.280 0.067
0.279 0.397 0.118% Nuclear HH
1990 2010 Diff.
0.712 0.865 0.153
0.811 0.919 0.108
0.628 0.810 0.181

Source: Census 1990-2010
Note: Unit of observation is the prefecture. The mean is calculated using the number of householdswith children under 6 in each year as weight. Large prefectures in terms of population density asof 2010 include Tokyo, Kanagawa, Saitama, Chiba, Aichi, Osaka, Hyogo, and Fukuoka.
We compare the large and small prefectures in 1990. The maternal employment rate was only
26.1% in the large prefectures, while it was 40.9% in the small prefectures. This difference canbe partly explained by childcare availability and the household structure. The ratio of childcare
capacity to population of children under 6 was 0.212 in the large prefectures, while it was 0.279 in
the small prefectures. Given our regression results above, the low childcare availability in the large
prefectures can account for some of the difference in the maternal employment rate between thelarge and the small prefectures. The nuclear household share was 81.1% in the large prefectures,
while it was much lower at 62.8% in the small prefectures. The average maternal employment rate
for nuclear households was 27.3%, while it was as high as 51.1% for three-generation household(not reported in the table). Given this large difference in the employment rate between nuclear andthree-generation households, the difference in the nuclear household share accounts for some ofthe difference in the maternal employment rate between the large and small prefectures.
The changes from 1990 to 2010 were also substantially different across regions. The maternal
employment rate grew at a faster pace in the large prefectures than in the small prefectures (9.4 pt
vs 6.1 pt). Accredited childcare became more available in both regions, but the capacity-population
ratio grew at a slower pace in the large prefectures (0.067 vs 0.118). This may be intuitive giventhat the supply shortage of childcare has been a major problem mostly in the metropolitan areas
such as Tokyo. The nuclear household share increased in both regions, but the change was morestrongly pronounced in the small prefectures than the large ones. Note that this change directly
implies a significant drop in the share of three-generation households because 99.8% of households
are either nuclear or three-generation households.
We decompose the change in the maternal employment rate from 1990 to 2010 for each prefecture group using the method similar to the Oaxaca-Blinder decomposition. We estimate model
parameters by applying the OLS with year and prefecture fixed effects (see Table 3) separately
26

for each household type. The parameter estimates are used to decompose the overall change into
three factor effects: the change in childcare availability, the change in the household structure, thechange in other factors.
Table 8 presents the decomposition results. Because decomposition is not uniquely determined,
we show decompositions based on four models. Models 1-4 in Table 8 are defined by Equations(3)-(6) in Appendix A.1. The first set of rows shows the decomposition for all prefectures. The
growth of childcare availability modestly increased the maternal employment by 1.3-2.1 percentage points out of 7.0, which implies that childcare availability accounts for about 30% of thechange in the maternal employment rate. However, this positive effect of childcare availability wascompletely offset by the change in the household structure. The increase in the nuclear householdshare decreased the maternal employment rate by 1.1-2.8 percentage points.
The driving factors of the maternal employment growth were considerably different between
the prefecture groups. The second set of rows shows the decomposition for the large prefectures.
The growth of childcare availability in the large prefectures increased the maternal employment
rate by 1.5-1.9 percentage points out of the overall change of 8.8 percentage points. The increasein nuclear households modestly decreased the maternal employment rate by 0.7-1.7 percentage
points. Because the nuclear household share was already high in 1990, the increase of nuclear
households did not have a strong negative effect on the maternal employment rate.
The third set of rows shows the decomposition for the small prefectures. The growth of childcare availability in the small prefectures increased the maternal employment rate by 1.2-2.4 percentage points out of the overall change of 6.6 percentage points. The increase in nuclear households significantly decreased the maternal employment rate by 1.5-4.0 percentage points in thesmall prefectures. Because the share of three-generation households decreased at a faster pace inthe small prefectures, this effect was more strongly pronounced.
Our decompositions shed light on the difference in the maternal employment growth acrossregions. The improved childcare availability increased the maternal employment rate from 1990 to2010 in both prefecture groups. However, this positive effect was completely offset by the decreaseof the share of three-generation households. This negative effect of the change in the household
structure was particularly strong in the small prefectures, where the three-generation householdshare was higher, and hence, decreased more rapidly than in the large prefectures.

27

Table 8: Decomposition of Maternal Employment Growth from 1990 to 2010

Model 1Model 2Model 3Model 4

All Prefs.
ChildcareHousehold Type
Other
Total

0.021
−0.028
0.077
0.070

0.021
−0.029
0.078
0.070

0.013
−0.011
0.068
0.070

0.013
−0.0110.068
0.070

Large Prefs.
ChildcareHousehold Type
Other
Total

0.019
−0.017
0.086
0.088

0.019
−0.017
0.086
0.088

0.015
−0.007
0.080
0.088

0.015
−0.0070.080
0.088

Small Prefs.
ChildcareHousehold Type
Other
Total

0.024
−0.039
0.081
0.066

0.024
−0.040
0.082
0.066

0.012
−0.015
0.068
0.066

0.012
−0.0150.069
0.066

Source: Census 1990-2010 and authors’ calculation. Models 1-4 are defined by Equations (3)-(6)in Appendix A.1.
Finally, we decompose the growth of childcare availability. Our childcare availability index
is given by the ratio of capacity to child population, and hence, a change in either capacity or
child population affects the availability index. Our exercise here uncovers different reasons for thegrowth of childcare availability between the two prefecture groups. In Appendix A.2, we describe
two different ways to decompose the growth depending on the base year.
Table 9 shows the decomposition results. Models 1 and 2 are defined by Equations (7) and(8) in Appendix A.2, respectively. On average over all prefectures, the capacity-population ratio
increased by 9.5 points. The increase in capacity accounts for 2.3-2.7 points, while the decrease inpopulation of children under 6 accounts for 6.8-7.1 points. While childcare became more available
in both the small and the large prefectures, the reasons are very different between the two. In thelarge prefectures, about a half of the overall growth of childcare availability is explained by theincreased capacity. In contrast, in the small prefectures, only about 15% of the growth of childcare
availability is explained by the increased capacity. In both regions, the decrease in child population
is an important factor for the better childcare availability, but it is even more important in the small
prefectures.
28

If the child population continues to decrease, childcare availability will increase without opening new childcare centers or any additional expenses. Indeed, this is exactly what happened in thesmall prefectures. However, if pro-family policies eventually raise the fertility rate, government
expenditures will have to increase just to maintain the current level of childcare availability.
Table 9: Decomposition of Growth of Capacity-to-Child-Population Ratio from 1990 to 2010

Model 1Model 2All Prefs.
Capacity
U6-Population
Total

0.027
0.068
0.095

0.023
0.071
0.095

Large Prefs.
Capacity
U6-Population
Total

0.039
0.029
0.068

0.034
0.034
0.068

Small Prefs.
Capacity
U6-Population
Total

0.017
0.101
0.118

0.014
0.105
0.118

Source: Census 1990-2010 and authors’ calculation. Models 1 and 2 are defined by Equations (7)and (8) in Appendix A.2, respectively.

7

Conclusion

Using prefecture panel data from the Japanese quinquennial census from 1990 to 2010, we estimate the effects of childcare availability on maternal employment. We depart from previous
papers on Japan by controlling for prefecture fixed effects and find that the estimates identified
by cross-sectional variations alone can be severely biased. Indeed, contrary to popular belief,childcare availability is uncorrelated with maternal employment when prefecture fixed effects arecontrolled. Evidence suggests that this is because households substitute the accredited childcare
service for informal childcare by grandparents, as more and more households choose not to livewith grandparents. We do not find compelling evidence to determine whether the improved childcare availability leads to more nuclear households or not.
We also analyze nuclear and three-generation households separately. The estimation result

29

from the first-difference estimator reveals that the employment rate of mothers from nuclear households increases with childcare availability, whereas that of mothers from three-generation household does not. This result is robust to inclusion of a prefecture-specific trend in the maternal
employment rate. Moreover, we address two potential sources of a simultaneity bias and find themnegligible. First, we show evidence that inter-prefecture migration for childcare is rare. Second, weshow that the employment rate of mothers of children 6-14 does not change with childcare availability. This result implies that prefecture-level policy changes and other shocks are not correlatedwith the changes of childcare availability.
We decompose the growth of the maternal employment rate from 1990 to 2010 into the contributions from childcare availability, the household structure, and other factors. We find that the
improved childcare availability raised the maternal employment rate up to two percentage points
or 30% of the overall growth of the maternal employment rate during this period. However, thispositive effect from childcare availability is completely offset by the decrease in the share of threegeneration households in which informal childcare by grandparents is available. This negative
effect of the change in the household structure was more strongly pronounced in smaller prefecture, because the three-generation household share was high there and decreased rapidly.
Can further expansions of childcare raise the maternal employment rate? One potential concern
surrounding this issue is the possibility of a further change in the household structure. If thenuclear household share keeps increasing, more and more households will shift from informal careby grandparents to the accredited childcare, which will offset the effect of childcare expansions.
Perhaps, this may not be a major concern, because the decrease of three-generation households
is likely to slow down given that the share of three-generation households is already at a low
13.5% in 2010. Another potential concern is that the pace of childcare expansion has to exceed thechild population growth in order to keep childcare availability improving. More than 70% of thegrowth of childcare availability in 1990-2010 is explained by the decreasing child population. If
the fertility rate starts to increase due to pro-family policies and other factors, childcare availability
will not improve unless the pace of expansion is fast enough. Even larger government expenditurethan the current one may be necessary to expand the supply of accredited childcare service in orderto overcome these challenges and raise the maternal employment.
The main limitation of the current paper is that we cannot examine detailed labor market outcomes such as wage, earnings, hours of work, and job type, due to lack of data. Understanding
the effects of childcare availability on these outcomes will shed light on welfare consequences andopens the door to a cost-benefit analysis. We leave these interesting issues for future research.

30

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A

Decompositions

A.1

Decomposition of the Growth of Maternal Employment Rate

We estimate a linear regression model with year and prefecture fixed effects by OLS separately foreach household type. We assume that the parameters are time-invariant. The predicted maternal
32

employment rate of prefecture k for household type j in year t is given byŶ jkt = X jkt β̂ j ,where β̂ j is the estimated parameter value for household type j. Let K be the set of prefectures ofinterest. Let J be the set of all household types. The average employment rate in year t is given byȲt =∑ ∑ ω jktŶ jkt ,k∈K j=J

where ω jkt is the weight for household type j in prefecture k in year t.
Let N jkt be the number of type j households in prefecture k in year t. Define Nt to be theaggregate number of households in year t, Nt ≡ ∑k∈K ∑ j∈J N jkt . The weight ω jkt for household
type j in prefecture k in year t is defined byω jkt ≡

N jkt
.
Nt

Let Nkt be the number of all households in prefecture k in year t. The weight ω jkt can be decomposed as the product of two weights,
Nkt N jkt·
Nt Nkt≡ ωkt · ω jkt ,ω jkt =

where ωkt is the weight for prefecture k in year t and ω jkt is the weight for household type j within
prefecture k in year t.
The average growth of the maternal employment rate is given by∆Ȳt =∑ ∑ ω jktŶ jkt − ω jkt−1Ŷ jkt−1

i∈I j=J=∑ ∑ ω jktŶ jkt − ω jktŶ jkt−1 + ω jktŶ jkt−1 − ω jkt−1Ŷ jkt−1

i∈I j=J=∑ ∑ ∆Ŷ jkt ω jkt + ∆ω jktŶ jkt−1 ,i∈I j=J

where the first term in the parenthesis is the effect of the growth of the maternal employment rate∆Ŷ jkt for a fixed weight ω jkt and the second term is the effect of changes in weights ∆ω jkt . We canequivalently decompose it as∆Ȳt =∑ ∑ ∆Ŷ jkt ω jkt−1 + ∆ω jktŶ jkt .
i∈I j=J

33

The change in the weight ∆ω jkt can be decomposed as∆ω jkt = ωkt ω jkt − ωkt−1 ω jkt−1= ωkt ω jkt − ωkt−1 ω jkt + ωkt−1 ω jkt − ωkt−1 ω jkt−1= ∆ωkt ω jkt + ∆ω jkt ωkt−1 ,where the first term on the right hand side is the effect of changes in the prefecture size and thesecond term is the effect of changes in the household structure. We can equivalently decompose itas∆ω jkt = ∆ωkt ω jkt−1 + ωkt ∆ω jkt .
The change in the maternal employment rate for household type j in prefecture k in year t isgiven by∆Ŷ jkt = ∆X jkt β j
O O≡ ∆CCAkt β CCA+ ∆X jkt
βjj
O iswhere ∆CCAkt is a change in the childcare availability index in prefecture k in year t and ∆X jktchanges in other covariates for household type j in prefecture k in year t.
We have the following four equivalent ways to decompose the average growth in the maternal
employment rate,∆Ȳt =



CCA
O O
∆CCA
β
ω
+
∆X
β
ω
+
∆ω
ω
Ŷ
+
∆ω
ω
Ŷ
(3)
kt j
jkt
jkt
kt jkt jkt−1
jkt kt−1 jkt−1∑∑
jkt ji∈I j=J



CCA
O O
= ∑ ∑ ∆CCAkt β j ω jkt + ∆X jkt β j ω jkt + ∆ωkt ω jkt−1Ŷ jkt−1 + ∆ω jkt ωkt Ŷ jkt−1 (4)i∈I j=J

=



CCA
O O
∆CCA
β
ω
+
∆X
β
ω
+
∆ω
ω
Ŷ
+
∆ω
ω
Ŷ
(5)
jkt−1
jkt−1
kt
jkt
jkt
jkt
kt−1
jkt
kt
∑∑
j
jkt j
i∈I j=J

=



CCA
O O
ω
+
∆X
β
ω
+
∆ω
ω
Ŷ
+
∆ω
ω
Ŷ
∆CCA
β
kt j
jkt−1
jkt−1
kt jkt−1 jkt
jkt kt jkt . (6)∑∑jkt ji∈I j=J

For all of the four models, the first term in the parenthesis is the effect of changes in childcare
availability ∆CCAkt , the second term is the effect of other covariates ∆X jkt , the third term is theeffect of changes in prefecture size ∆ωkt , and the fourth term is the effect of the household structure∆ω jkt .
Note that only two possible values exist for the effects of changes in childcare availability andthe household structure. Because we are primarily interested in these two, we refer to the sum of34

the second and third terms as “others”. Equations (3)-(6) correspond to Models 1-4 in Table 8.

A.2

Decomposition of the Growth of Capacity-Population Ratio

Let Ckt be the childcare capacity in prefecture k in year t. Let NktC be the population size of children
under 6 in prefecture k in year t. Our childcare availability index CCAkt is given by
CCAkt = Ckt /NktC .
The growth of childcare availability index is∆CCAkt = CCAkt −CCAkt−1 .
We can decompose the growth as follows,
Ckt Ckt−1− C
NktC Nkt−1
Ckt Ckt−1 Ckt−1 Ckt−1=− C + C − C
NktC
Nkt
Nkt
Nkt−1
∆Ckt Ckt−1
=
+
,
NktC
∆NktC

∆CCAkt =(7)

where the first term on the right hand side is the effect of capacity growth and the second term isthe effect of the growth of child population. An alternative way to decompose the growth of thechildcare availability index is∆CCAkt =

∆Ckt
Ckt
+
.
C
Nkt−1 ∆NktC

35(8)