April 2022 No.

9Published by the Japan Association for Social Policy Studies (JASPS)
All Inquiries to info-english＠jasps.org

The Mind and Body of“Good Worker”: The Politics ofIndustrial Accident Insurance
ISHII Kae
Doshisha University
Introduction

where the profile of problematic workers in

In this study, I will examine what was

the workplace comes into focus and theunderstood as the characteristics of “goodworker” in late modern German society andconditions of social insurance benefits clearly

the context in which these norms surrounding

beneficiaries.

the good worker were formed.

The German social insurance system has
attracted attention as a pioneering case ofreflect the image of undesirable workers as

Here, I would like to define the norms
that constitute a “good worker” as the mental

realization compared with other countries

and physical state of the worker that wereanddesirable in late modern society beyond any[Saguchi, 1967; Fujita, 1971-1972; Tsuchida,specific workplace. However, in reality, it was

1997;

seldom explicitly stated how a good worker
should be, and in many cases, we can see

Takahashi, 2000; Fukuzawa, 2012]. Although

how

a

good

antithesis

workerofshouldworkersbewhoseveralstudies

Kinoshita,

have
1997;

addressed
Tanaka,

this
1988;

the

the historical positioning of the system is not
uniform, all the studies have in common that

suffered

they position the social insurance system asasdisadvantages or were subject to punishment.

an

issue

of

workers’organizational

In addition to cases of workplace
accidents, this study will focus on discussions

development in the late modern period, whenamong doctors, workers, and employers on

the traditional framework of status andcommunity had collapsed. For example,

workplace accident neurosis, as well as theattention has been paid to the fact thatexpert opinions of doctors, which took place

workers became members of late modern

in the process of the establishment andcivil society and adopted performance-based

development

valuesoftheGermanindustrial[Tennstedt,

provisions

accident insurance. This is because this is1ofsocial1983].

Throughinsurance,theworkers

Introducing JASPS Bulletin

April 2022 No.

9learned about who was considered a good2004]. The Industrial Accident Insurance Act,

worker that deserved medical benefits. Some

passed in 1884, provided pension rights tostudies focus on this aspect of workers’
ethical education and critically assess theworkers who were victims of workplace
accidents. Premiums for accident insurance

strengthening

betweenwere borne entirely by employers, with noworkers and the state [Tanaka, 1988, 173]. A
critical view of the twentieth-century welfare

direct contribution from the state, and themain body of industrial accident insurance

state, which standardized and disciplined

became occupational cooperatives establishedindividual lives, also emerges [Foucault, 1975

by each industrial sector [Japan Institute for(trans. 1977); Donzelot, 1977 (trans. 1991)]. The

Labour Policy and Training, 2020, 6-7]. This

medicalization theory, which sees healthcare

Act led to many lawsuits over the recognition

as a form of social control, is also positionedof workplace accidents and was even calledin this trend. The medicalization theory
argues that in late modern society, the“the struggle over pensions” in analogy to theconflict between labor and management. In

domainparticular, it was difficult to determine theofproblemsofthedoctors
wereconnection

expandeddownsized

asandsocialindividual

causalrelationshipbetweentraumatic

problems [Conrad, 1992 (trans. 2003); Nukaga,

neurosis, now known as PTSD, and workplace

2006; Mima, 2012]. In particular, because theindustrial accident insurance system, which

accidents. Discussions ensued among medical
experts including commissioned doctors andthis study addresses, is not only a crossroads

insurance doctors who assessed workplaceof discussions among medical, legal, andaccidents, legal scholars who were experts infinancial experts but is also the subject of

the legal system, financial scholars who were

many

workplace

involved in insurance finances, and victims

accidents, the actions taken by non-experts
involved cannot be ignored [Eghigian, 2000;

and the organizations that supported them.
The origin of the diagnosis of traumatic

Killen, 2006]. In addition, because there areneurosis dates back to the mid-19th century

significant differences in the perspectives andininfluence of doctors depending on the period

sequelaein which the analysis was conducted, weneed to examine each case more individually.

discovered in victims of railroad accidents,and surgeon J. Eriksen named the condition

lawsuitsbyvictimsofEngland.

“railroad

and

At

that

physicalspondylosis.”time,

psychologicalpeculiarities

In

the

1870s

were

and

1. Industrial Accident Insurance Act and the
Debate Over Workplace Accident Neurosis

1880s, when the existence of this disease

In Germany at the end of the 19ththat external shocks could cause serious

century,

industrialaneurological damage later, although they did

problem as industrialization progressed. The
social insurance system was realized on the

not leave visible scars [Fischer-Homberger,
1975;
Schivelbusch,
1977(trans.
2011);

basis of the idea that accidents in the

Eghigian, 2000; Killen, 2006]. The driving

workplace should not be regarded as thefault of the people involved but rather as aforce behind this movement was H.
Oppenheim, a leader in German neurology.

risk inherent to the occupation, and that

He had seen many cases of laborers andemployers

railroadandaccidents

otherbecamebecame known in Germany, the idea emerged

concerned

parties

workers

who

were

injuredbyshould share the burden of the risk [Fujise,machines, and in 1889 he published a book

1982; Tohara, 1985; Kawagoe, 2004; Himeoka,

titled2“Traumatic

Neurosis”[Oppenheim,

Introducing JASPS Bulletin

April 2022 No.

1889],

which

causedSocialmedical certificates from postal insurance

Insurance Bureau to recognize the existence

inspectors and other doctors, which couldof traumatic neurosis and grant insurance
benefits for it.

contribute to this study.
The benefits of the DRP were extensive,

Traumatic neurosis was called “workplace

including old-age insurance, sickness andaccident neurosis” if it was caused by aworkplace accident, but it had more than 30

workplace accident welfare, corporate hygiene
measures, maternity protection provisions,names,

neurosis,”and various savings associations. In addition,“demandleisureincluding“compensation

theImperial

9“pension

neurosis,”

and

and

recreational

facilities

andneurosis,” which put its authenticity into

dormitories for married and single employees

doubt. Although some studies suggested thatwere built and a fund for the support of

the number of confirmed frauds during this

employees’ orphans was created. During theperiod was small [Merzbacher, 1906; His,
1926], the issue has been of great interest

interwar period, a hospital room and a roof
garden were built at the telephone office andsince the end of the 19th century. In thisphysicalcontext, patients were criticized as “workbreaks there. Therefore, many regarded the

avoiders” or those who “hate working” in

DRP’s benefits as exemplary, and in fact,order not only to restrain the compensation
expenditure for workplace accident pensions

international comparisons show that the DRP
was outstanding in providing sickness

but also to teach people how a good worker
should be [Müller, 1907].

support,measuresaccidents,

andexercisewasconducted

againstpensions,induringworkplacecontrastto

Before looking at specific cases, I will

employers in the United States, where salaries

summarize the characteristics of the welfare

were high and people were considered entirelyof the German Imperial Post, which wascalled Reich Post in the interwar period, andresponsible for their illness [Wagner, 1913].
However, the DRP was not without its

is hereinafter referred to as the DRP.

problems. First, there was the “duty to be
single” clause. This was a clause imposed on

2. Industrial Accident Insurance and theEmergence of Rights Holders: A Case Study of
the DRP

female officials that stated that if they got(1) The DRP and “exemplary” benefits?

nearly 90 percent of women left the workforce

married, they had to retire and would receive
no lump-sum retirement payment. In 1903,

Until the end of World War II, the DRP
wasbeforebecomingapubliccorporation

thatprovideddisqualified

postal,savings,

telegraphandtelephone

professional

fromofficials

andreceiving

benefits.

A

calledtheorganization

were

services and had a large workforce, including

Association of German Female Postal andwomen. It is also known for its pioneering
efforts to provide employment opportunities

Telegraph Officers, which also worked withthe women’s movement, promoted friendshipfor women in the middle-class population,

among female postal and telegraph officials

including telegraph operators, telephone
operators, and post office counter clerks. In

and took actions to improve their treatment,
and published a journal. It viewed the “dutyaddition,

to be single” clause as gender discrimination

there

are

numerous

personnel

and aimed to eliminate it [Nienhaus, 1995].

records of employees, including resumes andother documents submitted at the time ofThehiring, work performance audit results, andjournalalso

introduced

criticalopinions against the ongoing rationalization
3

Introducing JASPS Bulletin

April 2022 No.

9of workplaces in the interwar period and theclass female citizens faced several barriers tocontroversy over workplace accident neurosis.

employment [Nienhaus, 1995]. Working inIn the workplace of telegraph and telephone
offices,
where
newinformation
andfactories as a female worker or a vendor who
has contact with users of the opposite gendercommunicationused,

was considered to violate the sexual morality

unpredictable accidents occurred because ofrough handling of telephones by users andspecific
tothemiddle-classcitizens.
“Respectable” occupations suitable for thelightning

middle-classtechnologies

strikes.

Althoughwere

improvements

femaleandcitizens

publicexistedenterprises

inwere made by cautioning users and installingschools(postal,lightning rods, workplace accidents continued

telegraph, and railroad sectors) [hereafter

to accompany problems with work.

Ishii, 2018].

Next, I will look at a specific case of a

At the end of the 19th century, about 70%

workplace accident that occurred at atelephone office in the German Empire in theof the women working in the imperial postal
and telegraph offices were in charge ofearly 20th century, focusing on the range oftelephone exchange services. The demand fordiscretion given to telephone operators andtelephone operators was high because of the

discussing the differences from the interwar

constant increase in the number of local andperiod.

long-distance telephone calls as well as thenumber of telephone offices built in theGerman Empire, the Kingdom of Württemberg,

(2)

The

case

of

Marta

Leber,

telephone

operatorand the Kingdom of Bavaria between 1885
and 1943 [Maetz, 1957, 112]. The personnel

Since 1861, daughters, wives, and widowsof postal and telegraph administrators hadrecords

been working as auxiliary clerks in thesmaller post offices of the Kingdom of

assistant telegraph operator who lived during
these times, overwhelm other examples with

Saxony, the Grand Duchy of Baden, and thetheir sheer volume. Incidentally, telegraph

Kingdom of Bavaria. This was due in part toassistants

wereinvolved

inthe advancement of industrialization in theoperationsasassistants

beforelatter half of the 19th century, which led tothe establishment of numerous companies.

introduction of telephones; after theirintroduction, they also became responsible

Telegraphs

becamefor telephone switching operations. She wasindispensable means of communication forborn in 1873 in Kuchlberg, the daughter Otto,

companies to expand their sphere of activity.

a post office administrator, and his wife

Furthermore, during this period, unmarried

Alvine, and was baptized by a Protestantdaughters of handicraft workers, small andpastor. In June 1894, Leber joined the imperial

medium merchants, mercantile employees,
and agricultural managers, who had been

postal and telegraph office in Breslau (now asmall city called Wroclaw in Poland), where

badly

and

she suffered two accidents in the line of duty

urbanization, as well as those of poorly paid
lower- and middle-class civil servants, wereseven years later.
Records show that in April 1901, lightning

expected to work before marriage to help

struck during a telephone exchange. This

make ends meet. However, in contrast to thecaused an abnormal voltage on the line thatpeasant and laborer women for whom work

Leber was using, which resulted in a very

was essential to their livelihood, the middle-

loud noise. The sound startled Leber and she

andaffectedby

telephones

industrialization

4

of

Marta

Leber

(1873-1941),

antelegraphtheIntroducing JASPS Bulletin

April 2022 No.

had a “hysterical crying attack.” The accident

9(3) The struggle of Marta Leberwas witnessed by a male intern and two

In this section, I will discuss the range oftelegraph assistants in the same room, who
testified that the left half of Leber’s face wasdiscretion given to Leber and how Leberclaimed a workplace accident within that

twitching. In October of the same year, therange.

Breslau Telephone Office reported that she
was still suffering from the symptoms

employees were required to be examined bya doctor commissioned by the Postal Ministrycharacteristic of neurosis, including “strong

before they could receive insurance benefits.

neurotic excitement,” “sudden vomiting,” andNotably, the establishment of the industrial“crying for no reason.” As a result, between

accident

May and September of the following year,

scope of activities of doctors commissioned

she had taken a total of 77 days of sick leaveby the Postal Ministry, as well as otherfor“nervousbreakdown,”“neurotic
headache,” and “neurotic condition.”

medical specialists, who also served as
insurance assessors to determine whether a

Two years later, on September 7, 1903,

patient had suffered a workplace accident.

frequent contact between the line of which

Initially, because neurological disorders were

Leber was in charge and the high voltage line

also regarded as workplace accidents, theof an adjacent streetcar caused an abnormal
voltage. At that time, she suffered the sameneurologists and psychiatrists who could
assess them were considered indispensable

symptoms as in the first incident and wasand became increasingly influential. Whenforced to stay at her mother’s house andreceiving a diagnosis from a doctor othercontinue to receive medical attention. Until

than the commissioned doctor, permission

November of that year, Dr. Elias, a doctor

fromcommissioned by the Postal Ministry,
frequently gave her medical certificates. She

Ministry Health Insurance Cooperatives was
required. Because Leber did not at firstreceived

notfollow this procedure, she was condemned by

granted industrial accident insurance because

the commissioned doctor, who wrote that she

Elias rejected her claim that her morbidity

had no right to receive the benefits of thestemmed from the workplace accident.
Therefore, she also began to be examined by

Postal Ministry health insurance cooperatives(June 27, 1904), but she was tacitly approved.

sicknessbenefitsbut

wasa local neurologist, Dr. Kurella, who began to

Telegraphtheinsurance

executive

Moreover,

the

and

telephonesystemofficeofficeexpandedof

conflicting

the

the

Postaldiagnoses

dispute with the commissioned doctor overamong the doctors worked in Leber’s favor.

the cause of her illness. The ten years ofElias tried to treat her with faradotherapy

correspondence between her and the two

anddoctors, and the discussions between the two

frustrated by Leber’s strong resistance. In

doctors, were documented and submitted tothe postal authorities and senior post offices

response, Elias wrote that she “reacts
excessively and sensitively even to weakfor careful consideration１.

currents” (June 27, 1904) and repeated themassage,but

hisattempts

wereunsubstantiated claim that Leber had been
“implicated” by someone, perceiving her

Personalakten OPD München (Abgabe 1976): 721 Leber, Martha, Telegraphengehilfin in Breslau (OPD Breslau)(29.7.1873 in Kuchlberg (Lkr. Liegnitz)-27.8.1941) The description hereunder is based on the records contained
herein.
１

5Introducing JASPS Bulletin

April 2022 No.

physical problems as a disease (November 15,

charge,1904). He wrote that Leber was only aconducted by Elias and his predecessor
Strümpel and Elias, suggested that Leber was“work avoider” and that she did not need toconsume port wine or white meat, nor did

referring

to

the

9

examinations

neurotic by nature and that further treatment

she need specialist treatment or recuperation

would not be effective and gave the samein an expensive sanatorium (December 10,1904). After this period, the disagreement

diagnosis as the two previous assessors.
However, Kramer focused on the synergistic

between Kurella, the neurologist, and Elias,

effect of the accident and the individual’s

theconstitution

doctorcommissioned

by

the

Postal

and

came

to

recognize

theMinistry, became definitive. Because the two

importance of the accident as an external

doctors’cause, writing: “It is difficult to determine

assessment

significantly,

seniorwhether the present morbid condition is due

difficulty in making a final decision andasked the chief doctor of the university

to the nervous constitution or to the accident”(May 10, 1910). However, it was during this

hospital

period that Elias and the telephone office

give

an

post

differed
had

to

the

resultsexpertofficeopinionon

December 11 of the same year.

became more critical of Leber than before.

In February 1905, Dr. Ernst Adolf
Strümpell, Professor of Psychiatry and

For example, a married couple who were

Neurology at the Royal University Hospital of

Leber’s neighbors complained to the officethat Leber sometimes practiced the piano for

Breslau, wrote: “There are no symptoms that

more than four hours after 4:00 p.m., even

would

her

though she was supposed to be ill. Leber was

nervous system from the accident. Rather, I

given a warning by the senior post office toam strongly convinced that Miss Laber’s

practice only to the extent that it would notneurotic distress and grief are amplified by
the astonishment caused by the accident.

interfere with her work so that she would notreceive complaints from her neighbors, but

There is no doubt in my mind that Miss

this led Elias to speak with confidence ofLeber has always been a very nervous andLeber’s “fraud.” “The problem is a trifle, nothysterical girl, unsuited to the occupation ofa workplace accident . . . She just wants totelegraph operator or telephone operator.”
Moreover, he wrote that Leber “hopes toreceive her pension and retire . . . Leber has achronic nervous breakdown and a degree ofreceive a pension and retire, and this half-

severe hysteria.” Three months later, he

conscious

anywrote in his medical certificate that “thetherapeutic efforts” and recommended that

accident gave her a good excuse to quit her

she should be reassigned to an office job

jobrather than continue treatment. We can also

continued, the Breslau senior post officesee that he considered working as part of histreatment, as he noted: “It is better to work

promised Leber a pension of 840 marks andencouraged her to retire, for her inability toregularly for health reasons rather than towork.

visit doctors frequently
sanatorium or hospital.”adecision with the support of two neurologists,
Kurella and Freund.

However, five years later, the doctor in

In response, Leber filed a complaint on

charge at the university hospital changed,

July 28, 1911 to the effect that “Dr. Elias, theand the tone of the discussion changed

privy councilor for sanitation to the doctor

drastically. Dr. Kramer, the new doctor incommissioned

indicatematerial

desiredamageworks

toagainst

or

stay

in

6

in

her

favor.”

However,

by

As

Leber

the

these

exchanges

challenged

Postalthis

Ministry,

Introducing JASPS Bulletin

April 2022 No.

9calculated that I would be entitled to a

per minute, and the line was monitored by apension of 1292 marks according to thesupervisor. In this process, the influence ofWorkplace Accident Compensation Law but
concluded that the Act did not apply to me. . .

industrial psychology became hard to ignore.
Ways to reduce the number of errors madeSince the diagnosis of Dr. Elias, the privy

bycouncilor for sanitation, differed from thoseof Dr. Kurella and Dr. Freund, the neurologists

pronunciationofnumbers
andvisualimprovements to switchboards) and to allow

I have been seeing for a long period of time,them to work without feeling fatigued even

I asked them for a written expert opinion.

with high volumes of calls were developed.

According to this expert opinion, my inability

Furthermore, to ensure the right person was

to work is due to a workplace accident. . . I

hired for the right job, aptitude tests were

demand the following from the Reich Post: 1.

developed and improved to determine whether

Ask the doctors involved in my examination
at the Department of Psychiatry anda person was suitable for a particular task
[Gundlach, 1993; Ishii, 2018].

telephone

operators

(such

as

the

Neurology, Royal University Hospital Breslau,
to double-check whether my inability to work

(2) Encouragement of recreational exercisethat occurred earlier than expected was due

From

1924,

physical

exercisewasto the workplace accident. 2. Postpone myretirement until this issue is resolved.” In

introduced to improve the health and work
efficiency of telephone operators in the main

1916,

telephone offices in the jurisdiction of theshereceivedaworkplace

accident

pension.

Postal Ministry in Berlin. This was because

In the interwar period, cases like Leber’s

many telephone operators were found to bebecame extremely rare. The reasons behindabsent from work for long periods because ofthis were that the DRP improved aptitude
tests for applicants, encouraged recreational

respiratory diseases and suffering fromfatigue and decreased work efficiency because

exercise for employees, and enforced stricterof long working hours. Participation in thisdiagnoses by commissioned doctors to deter

exercise was voluntary, but almost everyone

workplace accidents in the interwar period.

participated because it provided refreshment.
This led to the introduction of exercise to thetelephone office in other areas. Notes on

3. Standardization of Mind and Body in theInterwar Period

Exercises, prepared by the Postal Ministry in(1) Improvement of aptitude tests

Berlin in cooperation with the Association of

The Rationalization Movement was anorganized

efforttorebuildtheGermanGermanFemalePostalandTelegraph

Officers, was distributed to telephone offices

economy, which had been weakened by thearound the country.

war, that took the form of a national
movement on a nationwide scale across all

As is clear from the phrases “payattention even at home,” “regularly, like daily

industries. During the interwar period, themeals,” and “self-reflection” in these notes,

DRP also made progress in the rationalizationof the workplace, including the restructuring

the content called for female workers
themselves to take care of their health on aofscientificdaily basis and did not raise any questions

management methods, strengthening of laboron the content of the work itself. Nevertheless,management, and high labor intensity. In

exercise during the breaks was said to be

1919, it became mandatory to connect 17 calls

popularworkorganization

using

7

among

the

femaleworkers.

Introducing JASPS Bulletin

April 2022 No.

9Management also reported that following theexample, he recommended doctors to detect

introduction of exercise: “It was statisticallypatients’ “fraud” at an early stage, referringconfirmed that fatigue has been reduced andfewer work-related errors have been made.”to a study published in France, where theproblem of “pension neurosis” was more

However, the fact that exercise was notserious. He also called for changes to theadded to the working hours should be noted.
This meant that even though exercise

laws, such as the introduction of one-timecompensation for damages, to deter pension

affected the quality of workers’ work andfraud [BArch, R4701/8359/1, fol. 5-15, fol.75-

their mental state, health care was perceived116]. Notably, Stier, who was approaching 50

as a matter for which the workers themselves

years of age, was also involved in theshould take responsibility [Ishii, 2018].

workplace accident assessment of a large
number of telephone operators [Stier, 1923,(3) Stricter
doctors

diagnosis

bycommissioned

582-583].
Stier gave a lecture in 1922 in which he

Because, in addition to the improvement

stated that there were telephone operatorsof aptitude tests, recreational exercise had

whobeen introduced into the workplace, whichreassignments to good positions, spa breaks,

was said to give the opportunity to reduce
fatigue and decrease work errors, it came tosanatoriums, good nutrition, and highpensions and benefits, by having anbea‘accident’” and that their colleagues who

worker’s physical illness and fatigue was not

closely watched this successful attempt would

related to the content of their work. Rather,learn how to commit fraud. To prevent thisit was considered to be the result of thefromindividual’s natural character and constitution,
and, what is more, a lack of self-management.

examination of the applicant’s physical,
nervous, and even mental state duringconsidered

in

the

workplacethat

It was also during this period that the

had

“the

occurring,

recruitment.

desire

he

After

to

win

proposedthis,vacations,adetailed

Stier

was

diagnosis by commissioned doctors became

commissioned by the regional post officestricter.

expenditures

administration in Berlin to survey 50 female

increased after the war and the movement to
restrain them grew, doctors with military

postal assistants who claimed to have fallen
ill in telephone accidents between 1922 andexperience,

such

as

made

1924. In 1926, he published a book titledstatements

andpractices

their

About

As

socialinsurance

Dr.

E.

Stier,

basedon

So-Called

Accident

Neurosisandwartime experiences and gained the support

submitted to the Reich Insurance Office aofreport titled Medical Principles for the Problem

the

Reich

neurologist

Insurance

who

was

Office.

Stier,ainfluential

in

the

of

Pension

Neurosis.

In

this

book,

Stier

discussion of workplace accident neurosis
during the interwar period, was a militarydefined pension neurosis as a mental reaction
caused by the patient’s “desire” and as an

doctorand“aversion to work.” In addition to this, he

Neurology at the University of Berlin. He
worked in the Department of Psychiatry at
Charité after Dr. Oppenheim’s death, andstressed that “experienced, psychiatricallytrained people with a good eye forfrom the early 1920s he actively introduced

assessment and recommended that private

the international debate on “pension neurosis”

insurance should be used instead of publicin Journal of Neurology and Psychiatry. For

insurance. Thus, in the same year, traumaticandProfessorof

Psychiatry

observation” were the best candidates for8Introducing JASPS Bulletin

April 2022 No.

9neurosis was excluded from the coverage ofdetail the individual’s gender, occupation,industrial accident insurance.

family structure, and background; details of

In About So-Called Accident Neurosis,
which encouraged this change, he argued thatthe accident; and the individual’s symptoms.
In addition to these findings, he integrated

he could find no cases of female officials who

personnel records and the expert opinions ofclaimed industrial accidents before 1901,
when the Industrial Accident Insurance

other doctors in his assessment. The
perspective from which Stier draws the line

Compensation Act came into effect, and thatbetween trustworthy and untrustworthy is

in some cases the illnesses were suddenlyinteresting. Two of the subjects, numbers 4

cured after the workers received a workplaceand 8, had earned Stier’s trust because they

accident pension. He also argued that the

had objective evidence (such as injuries fromprobability of getting married was 15 times

the accident or witnesses to the accident) thathigher than in cases in which no pension was
granted. He speculated that this was because

outweighed their subjective complaints, andthey had credible occupations, good work

female officials could not receive a lump-sum

ethic, clean records, stable financial situations,retirement payment if they got married, andand understandable symptoms.

therefore they desired to obtain a workplace

Finally, it is noticeable that the three

accident pension, which was paid even after
marriage. In addition to the contents of thisfemale telephone operators were old, and theage at which they had started working therebook,

assessments,

was relatively high. Stier believed that theincluding three female telephone operatorselderly and single middle-aged women wereand five men of various occupations, weremore likely to commit fraud, but even if they

included in the appendix; analysis of these

had passed aptitude tests and maintained

results reveals Stier’s worldview ([Table]).
Stier wrote: “What we can say for certain

their health through exercise, it remains
questionable whether the elderly would have

today, after the grand experiment of war, isbeen sufficiently agile to work during thethat neurosis stems exclusively from a desireinterwar period when work intensity wasfor some benefit, a desire to escape militaryhigh.

service in wartime, and in peacetime,
especially for pensions and other financial

The Association of German Female
Postal and Telegraph Officers criticized Stiercompensation.” The view of neurosis as ain the union’s journal. There was a response

fraud to achieve certain goals was influenced

in the journal from neurologist Dr. Rudolf

by his experience as a military doctor during

Foerster as follows. “The reason for the highWorld War I, where he encountered soldiers

numbersuffering from war neurosis. He positioned

accidents in the telephone exchange service,

military service and work as a “struggle forlife” that should not normally be avoided, as

relative to comparable jobs, must be within
the management, considering the fact that

he wrote that neurotics were “people with

employees are selected after receiving medical

constitutionally weak nerves and the elderly
who lack the strength to win the struggle for

examinations.” However, this theory did not
become mainstream during the interwar

life

period. This was because of the powerful

the

and

results

have

of

a

eight

particularly

strongofStierproblems

andhiscausedbypsychological desire to stabilize their lives

influencewith pensions” [Ebenda, 82].

supporters, and the affinity of Stier’s views

As mentioned earlier, Stier described inofhealthneurologist

with those of the Reich Insurance Office9Introducing JASPS Bulletin

April 2022 No.

which

was

shifting

its

policies

to

9

deter

such as doctors, using historical data about

workplace accident compensation expenditure

the DRP, as the place where the norms of theby encouraging individual workers to help
themselves to prevent workplace accidents.

good worker were formed. It emerged thatthe components that constituted a goodworker were being understandable to theConclusion
This

study

characteristics

attempted
that

to

the

doctors and not “hating work.”
Before World War I, there were cases,“goodsuch as Leber’s, in which disagreements

clarify

constitutedaworker” in late modern German society by

among

focusing on not only a specific workplace but

resulted in successful appeals. In the interwar

also

and

period, however, doctors such as Stier, who

accident

had encountered war neuroses in soldiers

on

the

management

movement
over

of

labor

industrial

insurance and the involvement of specialists

duringdoctors

World

of

War

variousI,backgrounds

soughtstricterTable Eight examples of E. Stier’s assessment
Assessment
No.

1

2

Name

S, Fritz

V, PaulGenderM

M

Age

Mid-50s

Family structure

He has a wife.

Unknown He has a wife.

3

T, Elisabeth

F

37

Married in May 1921.
She has a sister who is atelephone operator who
suffered from a workplace
accident.

4

B, Helene

F

54

Her mother died ofdiabetes. Widowed.
She has a 23-year-old
daughter.

5

R, Paul

M

6

7

8

C

G, Pauline

B, P

M

F

M

Unknown Unknown

Unknown

55

41

Not mentioned except forhis parents.

Occupation

Bureaucrat

History

Details of the accident

He joined the government
office at the age of 18. Ten
He encountered ayears later, in the year
after he became a regular questionable accident in
official, he was disciplined 1904 in which hefor five years for conduct fell from a ladder.
unbecoming of his
position.

Symptoms

Back pain, headache andnauseaAssessment results

Significant criticisms

The cause of his spinal corddisease is syphilis, which he"Syphilis he had
had acquired previously, notacquired previously"
by a fall from a ladder 21
years ago.

Craftsman

Unknown

On November 20, 1900,
while working for
He makes shaky,Company B, he fell into adementia-like movements
hole in a room that was
during doctor's visits andnot adequately covered
stuttered.
and dislocated his rightshoulder joint.

Telephone operator

She joined the telephone
office in 1909.

On October 20, 1910, sheStartled by the ringing
had her first accident atphone, crying, trembling of It is not the result of thethe telephone office, andthe body, restless handshock of the accident thaton July 13, 1911, her
movements, stuttering,occurred in 1911.
second accident at theand burping.
same office.

"Psychological influence
from her sister" "at theexpense of the state"

Telephone operator

She joined the telephone
office in 1915.

After she escaped from the She is trustworthy, but
On August 30, 1925, on
train, blood was running
there is no objective
her way back from F, shefrom her head. She suffers evidence that she is
was involved in a train
dizziness and paralysis
malfunctioning because of
accident at N station.
after that.
the accident.

"She hopes in the processof seeking compensationthat her life will bepermanently stabilized"

Boilerman

From 1919 to 1922, heserved in the national
defense forces as a border
guard and security forces,
then became a coachman,and finally a boilerman.

On November 15, 1924,
there was an explosion
at the factory and hesuffered burns on his
face.

Manic state. Bronchitis
and gas in the lungs.
Stuttering and tremblingof hands and head.

As the burns have healed,
he no longer has any
restrictions on his work.

"Irritable, over-reactive
person, which is ahereditary trait"

Learned to be a furnituremaker. Volunteered tojoin the army in 1912.

He feels pressure in the
On November 13, 1925, front of his head even
Mr. C drove his car into while sleeping. The rightarm is weak, and even if
an open crossing gate
and collided with a train. he grabs an object, hedrops it after some time.

No physical, psychological,
or neurological problems
currently exist. Therefore
there is absolutely no needfor a retreat or a hot springcure.

"After the trial and theunreasonable treatment
by doctors, he wasallowed to leave workand take a hot spring
cure, and his belief thatthe accident has madehim ill strengthened."

She has tic-like spasms in She could not show factors
On July 2, 1923, she
the muscles of the face and that would impair her
fainted at work, whichcaused her to fall and hit neck, difficulty in walking, ability to work four weeks
the back of her head on and exaggeratedly pained after the accident, and she
behavior.
the cement ground.
still cannot as of today.

Hysterical, that is,desire-induced,
symptoms are an
expression of a weak andneurotic constitution on
the one hand, and areaction to age,arteriosclerosis, andcompensation procedureson the other.

Site supervisor andoffice worker.

Her husband died early,
and she has worked hard
to raise many children.

Widowed.

Telephone operator

He has a wife.

During the war, he waspromoted several times
but never applied for
On June 15, 1925, at
After working in the military benefits. Until
around 11:00, he wasnews media, he lost January 13, 1925, hethrown from a train.
worked in the news
his job.
media. He was thenunemployed until the endof June.

Graze on the rightforehead and the back of
the head. His confusion or
dizziness has disappeared
but he is unable to go out
without his wife's
assistance because ofanxiety when climbing
stairs.

The (hysterical) reaction iscaused by desire in legal
proceedings regarding
compensation.

"He is like an actor""Wish-induced(hysterical) reaction"

He will be unable to work
for a while after leaving the
hospital, considering theintellectual nature of his
occupation. He will receive
compensation for his
Noneabsence from work until theend of July and will beallowed to work with 25%
restrictions for six to eightweeks after that.

Source: Created by the author on the basis of Stier, Ewald, 1926, Über die sogenannten Unfallneurosen,
Leipzig, 59-84
10Introducing JASPS Bulletin

April 2022 No.

assessment.
GermanAlthough

Femalethe

PostalAssociation
and

9

Kassel: Verein für hessische GeschichteofTelegraphund Landeskunde.

Officers criticized this through the Union’s
newspaper, Stier’s influence, which was

Bundesarchiv in Berlin-Lichterfelde, BestandR4701: BArch, R4701.

supported by the Reich Insurance Office,Bauerhorst, Ernst, 1931, Die Gesundheits- undlimited victims’ efforts. In addition, therationalization of workplaces that occurred

WohlfahrtspflegebeiderDeutschen
Reichspost, Berlin: v. Decker, Abt. Verl. f.

during this period and the measures taken by

Verkehrswiss.

the

DRP

in

responsetothis(improved

Eghigian, Greg, 2000, Making Security Social:

aptitude tests for applicants, encouragement

Disability, Insurance, and the Birth of theof recreational exercise for employees, andSocial Entitlement State in Germany, Ann

stricter medical diagnosis by commissioned

Arbor, MI: University of Michigan Press.

doctors) seem to have contributed to thistrend.

Fischer-Homberger,
Esther,traumatische Neurose: vom

In Germany, after the Harz reforms, thezum sozialen Leiden, Bern, Stuttgart, Wien:

concept of “hating work” has been used todescribeandcriticize

the

1975,
Die
somatischen

Huber.

long-term

Gundlach,

unemployed who receive social assistance.
This concept was also used during the Nazi

Horst,

1993,

Psychotechnische

era and was behind the fierce persecution of

Untersuchungenbei
derDeutschen
Reichspost, in: Gold, Helmut (Hrsg.),
Fräulein vom Amt, München: Prestel, 109-

those to whom the concept was applied.

119.

However, as mentioned earlier in this study,
this concept also appeared in the debate over

Hauptmann, Alfred, 1925, Krieg der UnfallsHysterie!, in: Deutsche Zeitschrift fürpension neurosis at the turn of the lastcentury, and the origin of the idea of

Nervenheilkunde 88.
His, Wilhelm, 1926, Beurteilung, Begutachtung

attaching a stigma to people not working (≒und Rechtsprechung bei den sogenannten

not able to work) can actually be traced

Unfallneurosen, in: Deutsche Medizinischefurther back in general state laws for the

Wochenschrift, 182-186.

Prussian states of the late 18th century andPrussian law enacted in the mid-19th century

Killen, Andreas, 2006, Berlin Electropolis:
Shock, Nerves, and German Modernity,[Ayass, 1992: 31]. However, I consider that,Berkeley; Los Angeles; London: University

because this concept was deeply ingrained inof California Press.

late modern society, the onset of traumatic

Maetz,

Richard,1957,

Zahlenspiegel

derneurosis among workers and their claims ofDeutschen Reichspost, Bundesminist. f. d.

industrial accident insurance greatly upset

Post- u. Fernmeldewesen.

society and ledcountermeasures.

to

the

creationofMerzbacher, Ludwig, 1906, Einige statistische
Bemerkungen über Unfallneurosen, in:Centralblatt für Nervenheilkunde undReferences
Ayass,

Wolfgang,

Breitenau.

1992,

Das

Psychiatrie, 905-912.
Müller, Franz Carl, 1907, Über die traumatische

Arbeitshaus

Bettler,

Landstreicher,äZuh lterundNeurose, Berlin: Mittler.

Prostituierte,
Fürsorgeempfänger in der Korrektions- undLandarmenanstalt

Breitenau

Nienhaus, Ursula, 1995, Vater Staat und seine
Gehilfinnen: die Politik mit der Frauenarbeit(1874-1949),

bei
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der

deutschen

Post(1864-1945),

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Frankfurt/Main; New York: Campus-Verl..

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Nineteenth Century: Hosei University Press.

Oppenheim, Hermann, 1889, Die traumatischen

Saguchi,Takashi,1967

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seiritsuzenshiron--wagakuni ni okeru hitotsu
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Hirschwald.
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Insurance System: A Consequence forJapan], Kagoyama, Takashi, ed. Shakaihosho

derBeobachtungen,Telephonistinnen.

Gutachten,

in:

no

Medizinische Klinik, Nr. 17, 582-583.
Stier, Ewald, 1926, Über die sogenannten[Modernization

kindaikaofSocialSecurity]: Keiso Shobo, 287-310.
Takahashi,

Unfallneurosen, Leipzig: G. Thieme.

Gen,seiritsushiron

2000

Doitsu[The

History

shakaihosho
oftheStier, Ewald, 1927, Soziologie der Nervosität,

Establishment of German Social Security]:

in: A. Gottstein (Hrsg.), Handbuch dersozialen Hygiene und Gesundheitsfürsorge:Azusa Shuppansha.
Tanaka, Masaru, 1988 Shippeihoken to doitsu
dainiteikoku no kindaika [Sickness Insurance

Bd.5., Berlin: Julius Springer, 615-633.
Tennstedt, Florian, 1983, Vom Proleten zum
Industriearbeiter.

Arbeiterbewegung

and

und

Tradition
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Wagner, Oskar, 1913, Die Frau im Dienste derTelegraphenverwaltung.
Unter besonderer Berücksichtigung Bayerns,

Operators

Were

Overwhelmingly

Comparative

HistoryofGenderthetheModernAge,
Modem Westernno seiritsu [Establishment of the German
Medical Insurance System]: Keiso Shobo.
Donzelot, Jacques, 1977; trans. 1991 Unami,
Akira, trans. The Policing of Families:

Telephone

Women?:

Germany’s

Tsuchida, Takeshi, 1997 Doitsu iryohokenseido

Württembergs und des Auslandes, Leipzig;
WhyofHistory: Sairyusha Co., Ltd. p. 171-201.

und

Berlin: Teubner.
Ishii, Kae, 2018,

Modernization

Second Empire]: Kawaguchi, Hiroshi, ed.

Sozialpolitik in Deutschland 1800 bis 1914,
Köln: Bund-Verlag.
Reichs-Post

theA

Kindai kazoku to kokka no kanrisouchi [TheandControl Device of the Modern Family andTechnology in Germany and Japan: Minerva

the State]: Shinyosha.

Publishing Co., Ltd.
Kawagoe, Osamu, 2004, The Formation ofTohara, Shiro, 1985 Seidoku ni okeru
shakaihosho no tenkai [The Development ofSocial States: 20th Century Society andSocial Security in West Germany]: InstituteNazism: Iwanami Shoten, Publishers.

of Social Science, University of Tokyo, ed.

Bisumaruku

Fukushikokka no tenkai [The Development

rodoshahokenhou seiritushi [History of theof Welfare State]: University of Tokyo

Formation of Bismarck’s Health Insurance

Press, p. 58-112.

Kinoshita,

Hideo,

1997

Act]: Yuhikaku Publishing Co., Ltd.
Conrad, Peter; Schneider, Joseph W, 1992;

The Japan Institute for Labour Policy andTraining (JILP), ed. 2020 Comparative Legaltrans. 2003 Shindo, Yuzo; Kondo, Masahide;

Study of Workers’ Compensation Insurance

Sugita, Satoshi, trans. Deviance andMedicalization, From Badness to Sickness:

Systems: Status and Issues of Japanese
Law in View of Current German, French,

Minerva Publishing Co., Ltd.

US, and UK Law: JILP.

Schivelbusch,

Wolfgang,

1977;

trans.

2011

Mima, Tatsuya, 2012 Risuku ka sareru shintai-

Kato, Jiro, trans. The Railway Journey: The-gendai igaku to tochi no tekunoroji [Risking

Industrialization of Time and Space in the

the
12

Body:

ModernMedicine

andtheIntroducing JASPS Bulletin

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Technology of Governance]: Seidosha.

9History of Social Security Policy], Okada,

Nukaga, Yoshiro, 2006 Medicalization Models

Tomoyoshi, ed. Gendai kokka no rekishiteki

and Biomedicalization Models: JapaneseSociological Review. 56(4), p. 815-829.

genryu [The Historical Origins of theModern States]: University of Tokyo Press,

Foucault, Michel, 1975; trans. 1977 Tamura,p. 317-340.

Hajime, trans. Discipline and Punish: The
Birth of the Prison: Shinchosha.

Fujita, Goichi, 1971-1972 Bisumaruku shakai
hokenshi kenkyu no ichishikaku (1), (2)Himeoka, Toshiko, 2004 Jenda ka suru shakai-[Bismarck’s Perspective on Social Insurance-rodo to aidentiti no nichidoku hikakushi

Research (1), (2)]: The Hitotsubashi Review.

[Gendered Society: A Comparative History

Vol.65, No.5, Vol.66, No.1, p. 124-130, p. 119-

of

125.

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and

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Japan

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Germany]: Iwanami Shoten, Publishers.

Fukuzawa, Naoki, 2012 Doitsu shakai hokenshi-

Fujise, Koji, 1982 Doitsu ni okeru shakaikokka
no seiritsu--shakai hoken seisakushi no-shakaikokka no keisei to tenkai [History ofGerman Social Insurance: The Formation

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Establishment

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the

and Development of the Social State]: The

Social State in Germany: A Study of the

University of Nagoya Press.

13

Japan Association for Social Policy Studies (JASPS) 143rd Conference

April 2022 No.

9Japan Association for Social Policy Studies(JASPS) 143rd Conference
16-17 October, 2021, at Fukushima University (online), Fukushima, Japan
Conference Theme: The norm of work and life from the view of the historical study: The process of forming concepts of “how we should work”, “how we should live”.
DAY 1 (16 October 2021)
9:30-11:30 Special Theme and General Sessions
9:30-11:30
Special Theme Session 1: Revisiting Welfare Supply after the “Structural Reform of Social
Welfare”
Chair and Coordinator: YONEZAWA Akira (Meijigakuin University)
Discussant: TAKEGAWA Shogo (Meijigakuin University)＜Theme of the Session＞
About 20 years have passed since the so-called “structural reform of social welfare”. There
have been both affirmations and criticisms of the direction of change emphasized in the reform,
such as “review of administrative systems,” “emphasis on community welfare,” “expansion of
the range of service options,” and “diversification of supply organizations.” However, it cannot
be said that there are many studies that have examined the changes in the supply system overthe past 20 years from a comprehensive perspective. Therefore, this session will depict thechanges in the social welfare supply system based on data through three reports.
This session will consist of reports that focus on three changes. The first paper examines
the changes of privatization at the local government level, which has been promoted as part ofefforts to improve the efficiency of welfare administration. The second paper clarifies theprocess of institutionalization of the after-school day care service, which has undergone notablechanges in line with the expansion of the range of service options. The third paper examines
the central government’s perceptions of the various actors involved in “community welfare
planning,” which was positioned at the center of the “community welfare,” one of the points ofemphasis of the structural reform.

YAMABE Masashi (Shiraume Gakuen University)
The Transformation of Municipal Welfare Administration through the “Privatization” of Welfare
Provision: A Case Study of X City
It has been indicated that the role of local governments has shifted to “enabling” welfare
provision as a result of the progress in private sector outsourcing of welfare services, along

14

Japan Association for Social Policy Studies (JASPS) 143rd Conference

April 2022 No.

9with the “structural reform of social welfare” and the administrative reforms within the local
governments. It has also been mentioned that some local governments may not be able toadequately fulfill their role as an “enabler”, due to the reduced opportunities of civil-service
workers to gain field experience in welfare provision. While there have been discussions,
there have not been many empirical studies on how the “privatization” of welfare provision
has developed and how the roles of local governments have been transformed in this context.
The purpose of this study is to ascertain the development of the “privatization” of
welfare provision and the changes in the roles of local governments, based on a case studyof a specific local government. First, I examine the progress in private sector outsourcing ofsocial welfare institutions since the year 2000. Second, I study the changes in the humanresources development, policies, and daily work of municipal welfare administration.

KATO Akihito (Hitotsubashi University)
How have Social Welfare Services Met the Needs of Children with Disabilities since the 2000s?:
A Research on After-School Day Services in Tokyo
This presentation aims to investigate how social welfare services have met the needs ofchildren with disabilities since the 2000s based on a research of after-school day service inTokyo. With a revision of the Child Welfare Act, after-school day services have beenlaunched. They have addressed the various needs of children with disabilities and theirfamilies with the aim of supporting daytime (after-school) activities for children withdisabilities at school age.
After-school day service is characterized by small-scale operation, and reflects some
aspects of disability services after the social welfare reform, such as the entry of various
service providers including commercial corporations. Focusing on after-school day services inTokyo, this presentation examines the social process through which after-school day services
were organized as the welfare program and explores recent trends of their welfare supply.

NAKANO Koki (University of Tokyo, graduate student)
How have the actors in the process of developing “community welfare plan” been perceived?
Since the 2000s, the “community-based welfare mainstreaming” has been pointed out, andthe formulation of “community welfare plan” has been undertaken nationwide. The“community welfare plan” is characterized by the fact that various actors discover local
issues through participation and make them into policies. It is a system that allows service
providers to be involved in the determination of service supply systems.
In the process of formulating a community welfare plan, each actor points out theexistence of problems in what they consider to be community issues and asks for the policy
formulation of solutions. This process has something in common with the “social construction”
of social problem.
However, research on community welfare and welfare administration has left out of thescope of research the behaviors of actors that research on the “social construction” of “social
problem” focuses on, such as persuading others about one’s own claim or confronting otheractors over claiming a claim.
This study clarifies, through the analysis of historical data, what the government assumed
about the behavior of actors involved in the formulation of “community welfare plans”. In
15

Japan Association for Social Policy Studies (JASPS) 143rd Conference

April 2022 No.

9this way, the concept of community welfare embedded in social policy is becomes clearer.

9:30-11:30
Special Theme Session 2: The services including counseling for needy persons toward self-relianceby Toyonaka City from the viewpoint of its clients: a tentative analysis based on questionnaire
survey and life history interview
Chair and Coordinator: SAKURAI Junri (Ritsumeikan University)＜Theme of the Session＞
This session asks (1) what kind of people accessed to Toyonaka City (Osaka Prefecture) for
counseling under the COVID-19 situation and (2) what kind of experience the services including
counseling provided for them, and then discusses (3) its macro-level implication. It will beclarified by a questionnaire survey and a life history interview. Here, “services including
counseling” refers to various support services such as place-of-one’s-own experience, work
experience, and accompanying the public employment office, as well as counseling at the counter.
The feature of our research is that it directly interviews clients of Toyonaka City, asks not
only about the experience of services such as counseling, but also about life history, and tries
to interpret by connecting the two. What is the city’s service, which has been highly evaluatedby previous research, from the perspective of the client him/herself?
However, this presentation is a tentative one. In February-March 2021, 100 questionnaires
were placed at the counseling desk directly managed by the city, and 60 copies were collected
including online responses, of which 27 agreed to taking an interview. There are only a severalof them who have finished it, and it is currently underway.

TSUTSUI Miki (Hosei University)
The purpose and framework of “the Research on Clients of Toyonaka City”
This presentation refers to the overall elucidation issues, pre-existing research, analyticalframework, outline of data / methods, and the main points of the 2nd and 3rd presentations
as the introduction of the entire session. The tentative answers to the two major questionsof this session are as follows.
(1) Clients of Toyonaka City are having difficulty achieving well-being due to some reason
and need to reorganize their awareness of the self and society, the values they should have,and the way they live their lives - that is, they need to reorganize their own life.
(2) Firstly, if the services provided is perceived as “appropriate, equitable and respectful
encounters” [Lipsky, 2010, 193], even if the problem is not necessarily resolved, the client
may find a “modest well-being”. Secondly, the services by Toyonaka City are an experiencefor clients to obtain “institutional weak ties,” which is considered as one of “basic assets”[Miyamoto, 2021].

16

Japan Association for Social Policy Studies (JASPS) 143rd Conference

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9

NAGAMATSU Namie (Kwansei Gakuin University)
Characteristics of clients and their evaluation of the services including counseling for needy persons
toward self-reliance by Toyonaka City
In this paper, I clarify the characteristics of the clients and their evaluation of theservices including counseling for needy persons toward self-reliance by Toyonaka City
through analyzing the questionnaire and interview surveys.
The results of the questionnaire survey are as follows; many of the respondents were
employed under non-standard contract or unemployed. On the other hand, their educational
background was diverse, with many of them having college degrees. Many of the respondents
felt anxious about “having nobody to rely on,” as well as “low income”. As many as 20% ofthem had been diagnosed as having depression.
Next, I examined the reasons the clients “highly evaluate the city’s services” based on
the interview survey data. It is not easy for the city’s support staff to help the clients solve
their problems, such as lack of money for daily life and difficulty in finding jobs, since they
are caused by the labor market situation and the social security system. Nevertheless, theinterviewees highly valued the experience of becoming acquainted with someone they can rely
on other than family and friends by visiting the counseling desk.

ABE Masahiro (Konan University)
What gives people the sense of trust in the city’s services?
The purpose of this report is to clarify how the sense of trust in the city’s services isfostered by analyzing interviews with clients of Toyonaka City. Robert K. Merton refers to“goal displacement” and “depersonalization of relationships” as characteristics of bureaucraticorganizations, but such voices were not heard in the interviews, indicating a high level oftrust in the city’s services. In the interviews, we are able to catch a glimpse of closelyaccompanied support whose relationships are personalized through focusing on the goals of
the organization. At the same time, however, some interviewees questioned the institutional
system itself. What is the meaning of this seemingly conflicting notions between “trust in
staff they meet and distrust in the system”? I would like to analyze the achievement ofcloselyaccompanied support to the clients at the micro level, and also discuss its limitations
at the macro level ― the ambivalence of “street-level bureaucracy” (Michael Lipsky) .

9:30-11:30
General Session A: Welfare Administration
Chair: SHIGA Nobuo (Prefectural University of Hiroshima)

KINOSHITA Jun (none)
Local Bureau and Welfare Policy, 1897-1912
I will report on the organization and function of the Prefectural Section (府県課, PS＊) as
the agency for welfare policy in the late-Meiji era (1897-1912).
＊ The PS is a section of the Local Bureau (地方局), Ministry of Interior (内務省).
As the regulatory agency, the PS had several jurisdictions: election, war mobilizaion, local

17

Japan Association for Social Policy Studies (JASPS) 143rd Conference

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9policy, and welfare policy.
In 1900, the PS employed TOMEOKA Kosuke (留岡幸助, 1864-1934), a learned expert ofprison reform and child wefare, as a part-time employee (嘱託). With INOUE Tomoichi (井上友一, 1871-1919), the chief of the PS (府県課長), TOMEOKA promoted the Japanese way of
mixed economy of welfare (福祉の複合体).

SUN Lin (Doshisha University, graduate student)
Study on the Public Interest of Welfare Service Providers
The structural reform of social welfare has brought about relaxation of regulation for all
kinds of sectors to enter the social welfare industry, making the service market morediversified than ever before. Against this background, a proposition called “Equal Footing
Theory”, which aims to criticize the disparity between social welfare corporations andcommercial companies and non-profit organizations and seek to correct it, was raised in
response by several scholars and practitioners.
However, it has been pointed out that the difference is just a necessary “distinguishment”
given the higher public interest of social welfare corporations. The public interest is an
important criterion when considering the disparity of welfare service providers with different
legal personalities, and it is necessary to clarify the public interest of welfare service
providers.
Therefore, in this study, we will reconceptualize the “public interest” and discuss its
indispensable components from both theoretical and empirical perspective.

ANDO Kanako (Kyoto University)
The Significance of Municipal Benefits for School and College Enrollment as a Social Policy: A Case
Study in the San- in Region
Monetary transfers are expected to be an effective social safety net for economicallychallenged households to some extent if social security with employment and wage supports
are insufficient to help them. Not unexpectedly monetary transfers can benefit households
raising children.
However, monetary transfers by local governments to support children’s development do
not seem to be recognized as a socio-politically significance comparing with other social
safety net services such as childcare, public education, and support for children withdisabilities. Some local governments provide monetary transfers to support children’s
schooling and higher education, such as commuting allowances and scholarships that exempt
children from repayment if they return to their hometowns. The question here is whether
these municipal benefits are a social policy or a regional policy to compensate for poor
infrastructure and scarce private sector services that are the result of population decline andmunicipal mergers.
This report using case studies examine whether monetary transfers’ benefits, whichappear to be regional policies, have significance as social policies that support children indifficult situations and mitigate or eliminate disparities.

18

Japan Association for Social Policy Studies (JASPS) 143rd Conference

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9

9:30-11:30
General Session B: Non-Regular Worker
Chair: HISAMOTO Takashi (University of Teacher Education Fukuoka)

TAKAHASHI Yusuke (Ehime University)
Discussion on the Promotion and Education and Training Benefits in Non-Regular Employment within
Companies
This report mainly focuses on the use of education and training benefits to analyze thefactors influencing the transition to regular employment within companies. In particular, it
was found that promotion to regular employment within the company was easy with nonregular employment that utilizes education and training benefits.
Looking at the changes in the system, it was the first system to subsidize the cost of
vocational training for individual workers, and while it should have had a significant role as
the importance of investing in individual workers and supporting job hunting activities
increased from employment maintenance through in-company training, it was rarely a subjectof discussion until the revision of the Employment Insurance Law in 2014. It should be notedthat due to the revision of the Employment Insurance Law, there are efforts to increase the
incentives for recipients towards their participation in courses and improvement of their skills
through the implementation of career consulting and practical programs in collaboration withcompanies. From the perspective of establishing “proactive labor market policy,” the focus
should be on the role of the education and training system for non-regular employment,
where there are few opportunities for human capital investment within companies.

HONDA Kohei (Hitotsubashi University, graduate student)
A Study of Subcontract Employment Labor Policies in Japan During the Late 1990s
This paper examines the impact of pressure groups on subcontract employment labor
policies in Japan during the late 1990s when its external labor market experienced a radical
deregulation. To examine the extent to which they influenced the labor market policies, I
studied the major pressure groups, who were affiliated to the Japan Federation Employers’
Associations (Nikkeiren), and the proposals and requests issued by the government committees
and the councils to the government and the ministries. I also investigated the impact ofNikkeiren’s report “Japanese-style Management in the New Era (1995)”, which is generally
considered to have influenced many policy makers and led to the paradigm shift in theirlabor management schemes.
The main conclusions of this paper are as follows. Despite a number of previous studies
concluding the aforementioned report as the major force “triggering” the deregulation of theJapanese external labor market, the closer look on the historical records revealed that thereport only had a limited impact. When it was published, the deregulatory policies werealready embedded in the agenda of many relevant political groups. The report was merely asummary of the human resource policies that had already existed by 1995.

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HAGITA Shotaro (NPO POSSE)
Two images of the young workers in the 60s and the present: A study of the Karoshi discourse
in JapanDue to the structural transformation in the 2000s Japan’s traditional employment system
has collapsed and the reformulation of labour movement by casual part-time workers is now
considered important to regulate the changing labour market. In order to conceptualise newagents of movement, this paper compares and contrasts the part-timers in the 2000s and theso-called ‘young workers’ in the 1960s. As Japan’s corporate culture was still underdevelopment, the labour market in the 60s has some similarities with that of the 2000s andafterwards. It was the time when young workers experienced long working hours and deathfrom overwork, and the radical reform of labour movement was hotly discussed. Plans were
never executed, however, because activists kept hopes for economic progress which was
expected to absorb all the ills of capitalism. Today, young workers and students worldwide
have become major agents of social movements while in Japan such direction is still obscure.
A comparison of the two images of young workers would be a useful step to devise a newmodel of labour movement.
11:30-12:45 Lunch Time

12:45-14:45 Special Theme and General Sessions
12:45- 14:45
Special Theme Session 3: Aspects of the Changing Evaluation Regime of the Social Welfare
Policy in Japan
Chair: NAGASAWA Kimiko (University of Kochi)
Coordinator: HIRAOKA Koichi (Tokyo Online University)＜Theme of the Session＞
In this session, we adopt the concept of the evaluation regime, which is defined as theinterconnected structure of various evaluation-related policies and institutions. We examine how
evaluation-related policies and institutions in social welfare have developed with the reorganizationof the institutional structure of social welfare, changes in intergovernmental relations, andimplementation of the NPM-type administrative reforms. We also identify the types of challenges
that these policies and institutions have been faced with. The first presentation examines thechanges in the evaluation regime of social welfare based on the analysis of institutional reforms
and changes in intergovernmental relations in the planning system of social welfare. The second
presentation analyzes specific aspects of these evaluation-related changes, focusing on long-termcare services, and discusses the implications of the improvement in the evaluation system. The
third presentation, based on case studies of municipal planning in eldercare services, examines
the current state of evaluation of municipal eldercare plans, and discusses the possibility ofpolicy evaluation in “care prevention” programs in the municipal eldercare policy.

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9HIRAOKA Koichi (Tokyo Online University)
Reorganization of the Institutional Framework and Changes in the Evaluation Regime of Social
Welfare in Japan: Focusing on the Changing Functions of Social Welfare Plans
The evaluation regime of social welfare services in Japan was formed in the early 2000s,
centered on the Third-party Evaluation System of Social Welfare Services, with theimplementation of the Structural Reform in Social Welfare. In this regime, the Policy
Evaluation system of the central government and the various administrative evaluation
systems in the local governments occupied only the peripheral positions. This regime,
however, has undergone alterations in recent years. The central government’s Policy Evaluation
system places much emphasis on the goal administration type of evaluation; in addition, aperformance management system of major programs, including those in social welfare, hasbeen established. The national and local planning systems in the various fields of social
welfare, while maintaining the nature of needs-based planning, have adopted the characteristicsof the instruments for controlling the local government social welfare administration throughgoal setting and evaluation. It must also be noted that embryonic forms of participatory
governance have appeared in the local social welfare administration.
Considering these points and the conceptual discussions regarding evaluation in social
welfare, this study aims to describe and analyze the process of changes in the evaluation
regime accompanied by institutional changes in social welfare services in Japan; special
attention is paid to the changing functions of social welfare plans.

HATAMOTO Yusuke (Doshisha University)
Current Situation and Issues of “Evaluation” of Municipal Eldercare Policy
The Elderly Health and Welfare Promotion 10 Year Strategy (1989) is Japan’s first policy
to set goals for the development of eldercare services, and it made all municipalities to havetheir own Municipal Eldercare Plan. The eldercare system has changed from administrative
measure to contract system with the introduction of the Long-term Care Insurance system(2000). At the same time, the taxation scheme of eldercare has changed to a social insurance
system, and marketization of eldercare has progressed. It means that municipal eldercare
policy has changed to different character from other municipal welfare policies. As Hiraoka’s
paper and Hatamoto’s paper shows, “evaluation” has become required for Municipal Longterm Care Plan. Municipalities introduced service quality evaluation system in 2000’s, however,
Municipal Long-term Care Plan showed still only how much they completed their amountgoal of long-term care services without policy evaluation. A kind of policy evaluation of careprevention in some 8th Municipal Long-term Care Plan (from April 1, 2021) has appeared.
This paper tries to clarify and analyze the current state of “evaluation” of municipal
eldercare using 8th Municipal Long-term Care Plan and Elderly Welfare Plan in Kansai as
examples. In addition, I would like to discuss possibility of policy evaluation in care 9
prevention as municipal eldercare policy.

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12:45-14:45
General Session C: Welfare and Work
Chair: ODAMAKI Tomoko (Ritsumeikan University)

KASHIWAGI Aya (Doshisha University, graduate student)
A Study on the Current Situation and Future Practices of “Local Public Interest Initiatives” by Social
Welfare Corporations: With the Examples of Employment
As a result of the 2016 amendments to the Social Welfare Law, social welfare corporations
were made responsible for “Local Public Interest Initiatives” under Article 24, Paragraph 2of the Law. During the past five years after the amendments, a variety of practices have been
implemented, among which are activities that address new community issues by building
networks among multiple corporations, and activities that further deepen existing relationships
with communities. With the expansion of practice, case studies and reports have been
compiled from each practice implemented in Japan. These studies and reports have provided
information on the actual contents of the activities and the standard methods of implementing
the efforts, however the details of each activity, its impact on the communities, and existing
issues have not been fully clarified.
Therefore, this report focuses on cases related to employment support from among thecases in the country to understand the current situation of the efforts. Through examining
the impact of the activities and the issues to be addressed, I will present more effective
measures for social welfare corporations to implement employment support as “Local Public
Interest Initiatives” in the future.

FUKUSHIMA Yoshihiko (Waseda University)
Employment of Persons with Disabilities and Social Welfare The need to build an inclusive society in which persons with disabilities can actively
participate in and contribute to society is being called for in many countries. The mosteffective way for adults with disabilities to participate in society is to get a job and standon their own feet. In addition to the aspect of individual social participation of persons withdisabilities, participation of persons with disabilities in the labor market will become
increasingly important for society. This is because the declining birthrate and aging population
are progressing in developed countries such as OECD countries. As a result, the labor force
population will tend to decrease while the non-labor force population will increase in the
future. However, at present, there is no country where the level of labor participation andemployment rate of persons with disabilities is comparable to that of non-disabled persons.
The background to this is that there is a widely believed recognition that the laborproductivity of a disabled person is lower than that of a non-disabled person. The paper
shows that hiring persons with disabilities doesn’t always reduce total production and social
welfare levels in a general equilibrium framework.

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9KIM Seokho (Yamanashi Prefectural University)
A structural analysis of comprehensive social work through interprofessional team collaboration on
the Self-Sufficiency Programs in South Korea: Based on the case reports for the past 5 years
Based on the National Basic Livelihood Security Law, South Korea is implementing the
Self-Sufficiency Programs (SSP) aimed at economic independence for the poor and low-income
people who have ability to work. In addition, based on the individual self-sufficiency support
plan for the participants, the Self-Sufficiency Case Management (SSCM) as part of SSP is
being enforced, which is positioned as comprehensive social work through interprofessionalteam collaboration.
In this study, basing on grasping the implementation status of SSCM on SSP in South
Korea, how SSCM empowers participants and what process leads to success of self-sufficiency
are analyzed through the case reports for the past 5 years. It is also the research content togive some suggestions to the comprehensive social work on The SelfSupport of Needy Person
Laws in Japan, based on success factors from this analysis results.

12:45-14:45
General Session D: Industrial Relations
Chair: ASANO Kazuya (Tsu City College)

IKEDA Tomohiko (University of Tsukuba, graduate student)
Relationship between workplace bullying and mental health among workers in Japan -considerationfrom “the anatomy of dependence”In Japan, a unique concept of “power harassment” has been created to deal withinterpersonal problems in the workplace. Then, subjective questions such as “Have you everbeen subjected to power harassment in the past three years?” have been used to investigate
the actual condition of workplace bullying. For this reason, it has been pointed out that there
is a lack of internationally comparable research of workplace bullying. In this study, we
conducted a cross-sectional survey of 1,200 full-time workers using the S-NAQ, which has
been validated for its reliability and validity as a rating scale for workplace bullying. The
results showed that 46.7% of the respondents had been subjected to some patterns ofworkplace bullying more than once in the past six months, and workplace bullying was
significantly associated with psychological distress. Psychological distress was significantly
positively associated with such workplace bullying as being treated as an outsider or ignored,even after adjustment. In this report, we discuss the relationship between the details of
workplace bullying and mental health from the perspective of the “the anatomy ofdependence,” which is a characteristic of Japanese society. (This research was supported by
JSPS JP20K19633)

NISHIMURA Takeshi (Matsuyama University)
Union Voice on the Nursing Profession
This study analyzes the effect of union voice on the nursing profession by investigating
the labor problems experienced by nurses in the 1960s and 1970s in Japan. The existing

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9literature on labor movements in the hospital sector has not sufficiently investigated theindustrial relations of task-shifting, especially for registered nurses. To understand thehistory of medical labor markets in Japan, especially in the context of nursing, the industrial
relations of hospital work rules must be studied. In this study, we reveal contrasting
perspectives of task-shifting. Hospital managements wanted to shift certain tasks performedby registered nurses to nursing aids. However, unions strongly opposed to the move because
a rise in the number of low-wage nursing aids could result in a decline in the overall wagesof medical workers.

SUZUKI Kyoko (University of Tokyo, graduate student)
Gendering the Workforce through Legislation of the Factory Law
In the Japanese employment system, an expected work patterns in the future havesignificant importance and largely determines each person’s compensation scheme. This
paper investigates when and how this frame of concept emerge and assumes its origin in thelegislation process of the Factory Law. Previous research suggests that the Factory Law
introduced a division by gender into the labor market and marginalized women, enforcing
different working conditions for men and women. Based on this view, the paper argues that1) expected “future roles as mothers” justified disadvantaged treatments for women, 2) while
factory laws were being enacted in other countries at the time, the similar concept andjustification were not evident, at least in Britain, and 3) “future roles” for women were defined
based on biological differences. These characteristics have been passed down to the present
day and have become gender biases embedded in the labor market system.

15:00-17:00 Special Theme and General Sessions
15:00- 17:00
Special Theme Session 4: Transformation of employment in existing industries caused by platformbusiness model
Chair and Coordinator: SAGUCHI Kazuro (Professor Emeritus, University of Tokyo)＜Theme of the Session＞
With the exponential progress of ICT, how ICT affects the way we work draw more
attention than ever. In Japan, “new ways of working” such as platform businesses and gig workthrough crowdsourcing, which are not embedded by the conventional Japanese employment
system, are steadily prevailing. For example, while the ride-hailing service such as Uber has notbeen fully introduced due to strong resistance from labor unions and the cautious stance of the
Ministry of Land, Infrastructure, Transport and Tourism (Altura et al. 2020), it now takes chargeof “public” transportation in depopulated areas, which has not seen in other countries.
This session will examine how the taxi industry has responded to the pressure of Uber’s
entry by focusing on the dual nature of employed and independent contract taxi drivers in Japanand the differences between urban and rural areas, with international comparative perspectives.
It must be important to consider the problems that may arise when introducing a “new way of24

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9working” by comparison with the way of working in the existing sector.

SAGUCHI Kazuro (Professor Emeritus, University of Tokyo)
Theoretical Study of Ride-hailing Services Impact on the Taxi Industry
This report examines the changes in the Japanese taxi industry brought about by ridehailing services from the international comparative perspective. While ride-hailing services
have been prevailing explosively around the world, ride-hailing services in Japan are notallowed due to strong opposition from taxi industry associations and labor unions. The
market entry and growth process of ride-hailing in each country are different depending not
only on the employment environment and taxi regulations, but also on the various problemsof the traditional taxi industry. In order to understand the impact of the advent of ridehailing on the taxi industry, it is important to focus on the social status of the taxi industry
in the labor market and the characteristics and changes of employment patterns andcompensation structures through international comparisons. We also examine how the
COVID-19 pandemic has affected Uber and the Japanese taxi industry. The COVID-19
pandemic has not only prompted Uber to change its strategy, but also clearly revealed thevulnerabilities of the Japanese taxi industry.

KOMAE Kazutomo (University of Tokyo, graduate student), HASHIMOTO Yuki (RIETI)
Relationship between the Way Taxi Drivers Work and the Acceptance of Ride-hailing: Regional
Contrasts found in the Ride-Hailing QuestionnaireThis study examines the questionnaire survey conducted in 2018 on the working
conditions and job satisfaction of taxi drivers, and tries to find the relationship with theacceptance of ride-hailing. The survey asks not only the actual working conditions, such as
wage levels, working hours, shifts, and operating methods, but also the drivers’ intention tocontinue working and perspective on the future of the taxi industry, ride-hailing, and labor
shortage issues. The results of the survey showed that there were differences between urban
and rural areas not only in the working conditions, but also in the motivation for becoming
a taxi driver and the attitude toward the deregulation including ride-hailing. This may be
because the supply-demand relationship for taxis differs greatly between urban and rural
areas.
Ride-hailing is generally touted as flexible employment opportunities for ride-hailingdrivers as well as new means of convenient transportation for passengers. However, in the
traditional sector supplying the same type of service, i.e. taxi industry, most of the drivers
are reluctant to welcome the deregulation and the new ride-hailing service, though there weredifferences in the extent of acceptance due to the heterogeneity of supply and demand
relationships among regions.

KANAI Kaoru (Saitama University)
How are Workers ‘Employed’ in Taxi Industry by Regional Type?
This presentation considers how taxi companies have reacted to the possibility of Uber’s
entry. We focus on strengthening and weakening the employment of taxi workers.
Traditionally, the type of ‘employment’ of taxi workers has varied significantly among
the regions. In response to the possibility of Uber entry, large companies mainly in the Tokyo
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metropolitan area have strengthened the recruitment of new graduates while introducing appsthat enhance customer convenience in a way that competes with Uber. Some companies havechanged in the direction of strengthening employment, such as increasing the fixed salaryratio. On the other hand, in depopulated areas, NPOs have appeared to operate “public”
transportation in collaboration with Uber, while the labor union operates a bankrupt taxi
company to enhance services as “public” transportation. We will analyze the difference of thetype of employment by region in response to the possibility of Uber entry.

15:00-17:00
Special Theme Session 5: Social welfare and “social ties” under the COVID-19 outbreak: Fromthe survey “Structural analysis of the present circumstances of non-institutional living support
under the spread of COVID-19” and statistical analysis
Chair: YAMADA Atsuhiro (Keio University)
Coordinator: SAKAKIBARA Kenjiro (National Institute of Population and Social Security Research)
Discussant 1: HARADA Genki (University of Tokyo)
Discussant 2: KANNO Michio (Iwate Prefectural University)
Discussant 3: YAMADA Atsuhiro (Keio University)＜Theme of the Session＞
The presenter conducted interviews with several service providers of “support for continuous
employment” (mainly type B) for persons with disabilities about the impact of the COVID-19
outbreak on their services. While support for continuous employment forms a part of disability
welfare services, it is also characterized by production activities. The latter was considerably
affected by the COVID-19 outbreak; here, the path through which the impacts arise and thegravity of the consequences in various categories of business are questioned. To answer thesequestions, the current presentation introduces the actual situations while examining how the
wage distribution and reservation system functioned under the sudden change caused by theprevalence of COVID-19. In addition, an insight was gained about the meaning of users’commuting. Although alternative support was provided when users stayed at home, there were
only few businesses that constantly enabled teleworking in support for continuous employment.
However, support for continuous employment also provided users with the opportunity to goout. This presentation reports the results of the interviews, taking into account users’ connection
to society.

NISHIMURA Yukimitsu (National Institute of Population and Social Security Research)
The role of face-to-face outreach on the provision system of local life support: A case study ofwelfare commissioners during the COVID-19 outbreak
In Japan, measures are underway to realise “Community Symbiotic Society” or “Dynamic
Engagement of All Citizens Society”. Since 2000, local governments have taken the initiativein promoting life support measures. As a result, the personal support service called
Accompanied Support and the comprehensive consultation service for local life support are
being established.

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9This presentation focuses on the role of these services in connecting counsellors to
consultation desks and support providers. In addition to the problems of social isolation andhikikomori, there is a problem of the increasing number of people who may have lost strong
ties with their families due to being a single and to living in a single-person household.
Welfare commissioners, whose activities are centred on face-to-face outreach, have been
forced to suspend their activities due to the COVID-19 outbreak and required to urgently
review their activities. Based on the results of interviews with welfare commissioners, who
can overview the local community, it suggests that regional differences in the attempts toutilize local resources and the regional characteristics including resources originally available
are related to the success of social inclusion.

SAKAKIBARA Kenjiro (National Institute of Population and Social Security Research)
Support for continuous employment for persons with disabilities under the COVID-19 outbreak:Impact on production activities and users’ connection to society indicated by interviews with service
providers
The presenter conducted interviews with several service providers of “support forcontinuous employment” (mainly type B) for persons with disabilities about the impact of the
COVID-19 outbreak on their services. While support for continuous employment forms a partof disability welfare services, it is also characterized by production activities. The latter wasconsiderably affected by the COVID-19 outbreak; here, the path through which the impacts
arise and the gravity of the consequences in various categories of business are questioned.
To answer these questions, the current presentation introduces the actual situations while
examining how the wage distribution and reservation system functioned under the suddenchange caused by the prevalence of COVID-19. In addition, an insight was gained about themeaning of users’ commuting. Although alternative support was provided when users stayedat home, there were only few businesses that constantly enabled teleworking in support forcontinuous employment. However, support for continuous employment also provided users
with the opportunity to go out. This presentation reports the results of the interviews, taking
into account users’ connection to society.

IZUMIDA Nobuyuki (National Institute of Population and Social Security Research)
Two-layer structure of social isolation among elderly under COVID-19 outbreak in Japan“Keeping physical distance” policy to prevent the spread of COVID-19 has led to “social
isolation.” Policy proposals by support groups for single mothers and low-income families
reported that people under disadvantages could also suffer from harm from social isolation.
People with relatively little disadvantage also maintain physical distance, so they might
endure social isolation. However, their suffering from social isolation may have received
relatively little attention because they are not in income poverty or physical deprivation. The
COVID-19 pandemic has affected people’s lives universally, so policy evaluation/
recommendation should be based on information from a wider range of people.
In this study, we assessed the degree of social isolation among the elderly in Japan andanalyzed the factors that were related to it by using survey data of the general population
via the Internet, conducted by the Cabinet Office in May 2020. The results imply thepossibility of existence of a two-layer structure of social isolation among the elderly. In other27

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9words, elderly people with “thin social relationship” live (at least superficially) without caring
their deeper social isolation, and those with “relatively rich social relationship” struggle withthinner social relationships. Policies against social isolation of the elderly should be consideredbased on the diversity among the elderly.

15:00-17:00
General Session E: Social Insurance
Chair: SASAKI Takao (Tokyo University of Welfare)

MISAWA Haruto (Hosei University, graduate student)
Development of considerations by administrative organizations during the period when the National
Pension System was established: an analysis centered on the process of letting regional municipalities
handle the administration
This document seeks to examine using primary sources the process of regional
municipalities (cities, towns, villages, prefectures) taking control of the administration of the
National Pension System. When managing pensions, there is necessarily a long period
between payments, during which time inhabitants may move, thus the reason why it isconsidered optimal to manage the system at the aggregate national level. Currently, national
pensions are controlled by the national government, and the actual operations are assigned
to the Japan Pension Service, but the system has since the beginning been implemented byregional municipalities. Even during the beginning of the system, the national government
wanted to manage national pensions in aggregate at the national level, but due to objections
from regional municipalities, the national government held a council to deliberate on thematter, during which it was decided that regional municipalities would be responsible. The
results of the discussions from that time are recorded in materials published by the Ministryof Health, Labour and Welfare, but resources related to the deliberative council andmunicipalities could not be found, meaning the contents and process of the deliberations were
unclear. Given the background above, this work will use resources on the deliberative council
and on the municipalities to elucidate the background of the assignment of managing national
pensions to regional municipalities and the thinking of the municipalities.

LI Heran (Rikkyo University, graduate student)
Transition of Principle of the Health Insurance in China: A Quest for the Effective Combination of
Self-help, Mutual Assistance, and Public Assistance
After the founding of the People’s Republic of China, an exclusive health welfare systemthat included mere state-owned enterprise employees was implemented, using the Soviet-style
public welfare as a template. In China, which is said to be a dual-society, health insurance
systems in urban and rural areas are deviating from uniformity, while urban “public
assistance” health welfare in is carried out, farmer organization which rely on the People’s
Commune Regime voluntarily initiated rural health mutual-aid. Moreover, that rural healthmutual aid is the prototype of China’s “social insurance = mutual assistance”.
After that, the China’s social insurance system was revised, and the health welfare, which

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was limited to the public economy (state-owned enterprise), was transformed into universal
social insurance for all employees. Besides, rural health mutual aid has begun to burgeon,and “self-help” in medical insurance has been emphasized by government.
In this report, we divide the progression of China’s health insurance into Planned
Economy period (1949-1970s), System Transition period (1980s-1990s), System Promotion period(2000s-early 2010s), and System Integration period (mid 2010s-). We will consider the dynamics
of the Chinese health insurance system and clarify how the elements which are called “selfhelp, mutual assistance, and public assistance” have changed.

SENO Mutsumi (Kyoto University)
Reduction and Exemption System of National Health Insurance and Theory of Insurance Premiums
and Taxes
Since the establishment of the universal health insurance system, the National Health
Insurance has been structured to hold a large number of low-income people, and the questionof how to collect premiums from low-income people has been an issue from the beginning.
From the standpoint of the logic of the insurance system, it is meaningful to have people
pay as much as possible in premiums, so how to design a system of reduction and exemption
for National Health Insurance is important for inclusion in the universal health insurance
system. This presentation will analyze how this reduction/exemption system has beenhandled, using the Diet proceedings and other documents. The key word is “insurance tax”.
In the National Health Insurance, it is possible to collect insurance premiums as an insurance
tax. This is mainly for the convenience of collection, but it is also a logical way to allow thegovernment to provide some kind of subsidy to local governments. This presentation will
analyze how the reduction/exemption system has been handled in light of the “duality” ofinsurance premiums and insurance taxes.

15:00-17:00
General Session F: Provision of Care
Chair: TANAKA Satoko (Prefectural University of Hiroshima)

KADO Yoku (University of Shimane), TAKAHASHI Yukihiro (Shobi University), ITO Naoko (Daito
Bunka University), HAYASHI Kazuhide (Rikkyo University, graduate student)
Analysis on interprofessional relations between nurses, care and welfare professions. -Focusing on
inconsistency as recognition of current situations between three professionsThis presentation analyzes interprofessional relation on terminal care on online
questionnaire survey for nurses, care and welfare professions who have experiences of hometerminal care. How each profession evaluate tasks three professions are likely to share forthe profession and other professions are analyzed. Concretely, the relations between self
evaluations and those by other professions as how to guess wishes of care receivers, to bringout those of family care givers, necessity of each medical knowledge for each profession,interprofessional communications (environment easy to talk, share of information and respectfor expertise ) as terminal care are compared. From the above, on contemporary trend, the29

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9viewpoints of livelihood for medical professions and medical knowledges for care and welfare
professions are required, the research to contribute to construct interprofessional cooperation
system is explored. In addition, the research to redistribute of burden on terminal care
between three professions are investigated.

SAITO Yoshihiko (Hitotsubashi University, graduate student)
Why elderly care is so divergent? - a new idea of care regime by intersection between precarious
care work and defamilialization
This paper tried to answer the research question why elderly care is so divergent amongdeveloped welfare states. This paper reviewed literatures and found out that well accepted
prior research, “4 categories of Welfare Regime” defined by Shinkawa (2015), could not
explain divergence of elderly care. It is because in his “liberal welfare regime” represented
by United States care for elderly is, in reality, performed mainly by families like his “familial
welfare regime”. In addition his quadrant analysis using 2 axes, namely “defamilialization”
and “decommodification”, proved to be logically inconsistent.
Therefore this paper proposed a new care regime. This new care regime using 2 axes,
namely “precarious care work” represented by care migration and “defamilialization”. This
paper plotted main developed welfare states including Asian countries. As a result you canfound out 4 care regimes, namely “public care regime” represented by Scandinavian countries,“quasi-defamilialization regime” (in other words “fortified family care regime”) represented by
Taiwan, “family care regime” represented by Mediterranean states and “isolated family careregime” represented by Japan as well as South Korea. This paper verified the new careregime investigating the care situation in plotted countries/regions.

BANSHOYA Mitsuharu (Shitennoji University)
Issues in the petition for the start of guardianship in the adult guardianship system. Focusing on
the newly established petition circumstances manual and personal information sheet.
Regarding the petition for the start of adult guardianship, a statement of circumstances
and a personal information sheet have been newly established from April 1, 2019. The
personal information sheet will submit information created by a welfare person who knows
the person in order to supplement the medical certificate issued by the doctor. In addition,
the family court clarified the type by attaching a new statement of petition circumstances.
However, in the adult guardianship system, there is no continuity in the past growth
history for the social worker who is in charge of personal custody, and due to the lack ofability of the petitioner’s social work for the person, the document is in a form that is merelyinterviewed. It has become.
There are various approaches to social work, but the approaches are now reduced by acommon foundation. In the future, for personal custody, a petition document for generalsocial work will be required as an attachment to the petition document.
17:10-17:40 General Meeting30

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18:00-20:00 Special Theme Session
18:00- 20:00
Special Theme Session 6: Evaluating EU Law and Policy on Promoting Diversity
Chair and Coordinator: HIKUMA Tomoko (Den-en Chofu University)＜Theme of the Session＞
The motto of the European Union is ‘united in diversity’. Indeed, the furtherance of diversity
is central to its mission. Article 2 of the Treaty on European Union sets out a vision of aEuropean society where ‘pluralism, non-discrimination, tolerance, justice, solidarity and equality
between women and men prevail.’ While measures to combat discrimination have been a featureof European integration since its inception, a multi-dimensional policy on diversity was primarily
constructed over the past 25 years. This presentation will provide an overview of the main
instruments that the EU has deployed and a critical evaluation of their effectiveness.

BELL Mark (University of Dublin, non-member)
The Promotion of Diversity and EU social policy instruments
The first part of the presentation will examine how the promotion of diversity isembedded in a wider set of EU social policy instruments. The social dimension of European
integration was relaunched in 2017 through the proclamation of the European Pillar of Social
Rights, which is intended to be a ‘compass’ for EU social policy. In addition, there is anestablished framework for EU coordination of national economic and social policies called the‘European Semester’. This has been deployed to oversee the Member States implementationof the ‘Recovery and Resilience Facility’ adopted in response to the impact of the pandemic.

FERRI Delia (National University of Ireland, non-member)
The Promotion of Diversity and EU Action Plans and Strategies
The second part of the presentation will explore policy measures dedicated to promoting
diversity. The European Commission has adopted multi-annual strategies on specificdimensions of diversity: gender equality; disability; anti-racism; Roma integration; lesbian,gay, bisexual, transgender, intersex and queer (LGBTIQ) persons. The Commission has also
promoted the idea of ‘diversity management’ through its ‘Diversity Charter’ campaign.

WADDINGTON Lisa (Maastricht University, non-member)
The Promotion of Diversity and EU Equality Law
The third part of the presentation will explore the role of law in promoting diversity. EU
legislation prohibits discrimination on grounds of sex/gender, racial or ethnic origin, religion
or belief, age, disability and sexual orientation. This is underpinned by a general right tonon-discrimination in the EU Charter of Fundamental Rights. This body of law has impacted
significantly on all EU Member States and it generates a considerable volume of litigation.
Nevertheless, a persistent critique is that it is over-dependent for its enforcement on litigation
by individuals and that it is not sufficiently effective in reducing inequalities between
different groups in society.

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DAY 2 (17 October 2021)
9:30-11:30 Book Review Sessions
9:30-11:30
Book Review Session: Labor 1
Chair: KANAI Kaoru (Saitama University)
ISOHATA Kohei (Meijo University), “Stage” French internship: spread and impact on thesociety
Reviewer: URASAKA Junko (Doshisha University)
MATSUNAGA Shintaro (Nagano University), Workplace Studies on Freelance Animators in
an Animation Studio
Reviewer: Hashiguchi Shoji (Ritsumeikan University)
MAKI Yoko (Sophia University), Childcare Services and Women’s Work in France: From a
Perspective of Family Policy and Interaction between Parents and Care Workers
Reviewer: ARAI Misako (Nagoya University)

9:30- 11:30
Book Review Session: Labor 2
Chair: YOSHIMURA Rimpei (Fukui Prefectural University)
IWATSUKI Shinya (Japan Institute for Labour Policy and Training), Teachers Compensation
Systems and Industrial Relations: A Comparative Study on Transaction of Labor Forcebetween Japan and the United States
Reviewer: WEATHERS Charles (Professor Emeritus, Osaka City University)
MIZUNO Kosuke (Kyoto University), Industrial relations in democratizing Indonesia: Disputesettlement system based on the Musyawarah principle and historical origins of labor activism
Reviewer: YAMAGAKI Masahiro (Osaka University of Economics and Law)
MATSUO Koichi (Aoyama Gakuin University), A Comparison of White-Collar Trade Unionism
between Japan and the UK: Focusing on the Public Sector
Reviewer: MAEURA Hodaka (Japan Institute for Labour Policy and Training)

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9:30- 11:30
Book Review Session: Welfare 1
Chair: MIYAMOTO Akifumi (Hokkai Gakuen University)
MATSUMURA Satoshi (Tokyo Metropolitan University), Care and Resilience of Learning
Support through Child Poverty Measures ― from Theory, Policy and Empirical Analysis
Reviewer: TANAKA Soichiro (Komazawa University)
LIM Saeah (Toyo University), Performance Improvement through Professional Establishment
for Care Workers ―The Research of Human Resource Recruitment System in the PracticeReviewer: MORIKAWA Mie (Tsuda University)

9:30- 11:30
Book Review Session: Welfare 2
Chair: MORI Chikako (Seijo University)
SAKAI Megumi (Ryukoku University), Formation and Development of Child Rearing Allowance
System: Transition of the System and Process of Determining the Amount of Payment
Reviewer: KITA Akemi (Professor Emeritus, Fukui Prefectural University)
PARK Kwang Joon (Bukkyo University), Poverty Policy in the Chosen Dynasty: from the
Perspective of Comparative Studies of Japan, China, and Korea
Reviewer: JEON Hong-Gyu (Osaka City University)
TAKASAKA Yasuo (Nayoro City University), Basic Disability pension and the Disability
Rights Movement: The Establishment of a New Guaranteed Income for People with Disabilities
and its Political Dynamics
Reviewer: MOMOSE Yu (Ryutsu Keizai University)
11:30-12:45 Lunch Time

CONFERENCE PLENARY SESSION
12:45-17:00
The norm of work and life from the view of the historical study: The process of forming concepts of “how we should work”, “how we should live”.
We all are economic entity with multidimension, as citizens of certain region
or country, labors as provider of work force, and consumers as contributor inmany ways to economic activities. Social policies should address our living withthose multidimension, and it’s been questions to answer that who and whatshould be targeted and how much helps and supports should provide. Though

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9some kinds of answer were made finally, also it’s so complex and difficult andsometimes unsure those were right or not. As a result of those process, social
policies sometimes have failed to include whole aspects as citizens, labors, andconsumers equally, and even made discrimination or divided society.
As underlying reason for those problems caused by social policy
implementation, there is inconsistency of norm as “ideal people”, which is createdby assuming different concept in each context of each policy, as “good citizen”,“good labor”, and “good consumer”. Onozuka says that, in his book, a figure of“ideal entity” is sometimes created intentionally as target of social policies bystimulate people’s “desire”. In other words, the “ideal entity” will be set up in anarbitrary way as target of different policies and it will be the “norm of entity”. It
means that it could not avoid to making inconsistency in several norms which
are still belong to one entity as person.
We are studying social policies, discussing about problems of them andmaking suggestions about them in the future. Understanding the process in whichthose inconsistency have been created in historically is essential matter to successit.
We decided to discuss in a plenary session of conference about process ofcreating norms of work and living in social policy implementation, which are as
results, but also premises of it. It will be from the view of historical study, andanswer a common question, “what kind of people the social policies havetargeted to, and what kind of community had been constructed, maintained andreconstructed by through it”. It is also a set of questions including how thecertain citizenship have been created and what has been effect to it, what has
defined the figure of “good citizen”, “good consumer” and of a healthy person
as “ideal labor”. We will ty to reveal the process of and fact that norm of“citizen”, “labor” and “consumer” have been formed with mutual inconsistency bythrough focusing on several factors and relationship between them, including
passive and active functions of nations and social policies.
Chair and Commentator: ONOZUKA Tomoji (University of Tokyo)

Speakers:
KAMEYAMA Toshiro (Chukyo University)
Autonomy and Agency: The Transformation of Citizenship in Social Policy
Social policy in the 20th century has made citizen’s autonomy its normative goal. The
autonomy is considered to be accompanied by active citizenship. However, the content differs
depending on the type of policy. In the welfare state policy, social citizenship, which is not
influenced by either feudal status or market competition, was seen as the basis of autonomy.
In the neoliberal policy, income from the market was considered the foundation. As fordesirable citizenship, welfare state policies required a political participation related toredistribution. In contrast, neoliberal policies demanded entrepreneurship and a spirit of selfhelp and mutual assistance. In the activation policies that have become mainstream since theThird Way, education and training to participate in the labor market are seen as the basis
for autonomy. In that case the core of citizenship required is a lifelong willingness to develop

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9competency. Reform of education and training has become an important policy issue, withemphasis on fostering not only knowledge and skills, but also motivation to learn. The
OECD, which has been proposing key competencies since the late 1990s, has put moreemphasis on citizen’s autonomy and agency in its recent education project. The influence ofA. Sen’s capability approach can be seen in these policies. The capability approach andcitizenship theory are complementary, and dialogue between the two is necessary in policy
making, policy evaluation, and social movements.

ISHII Kae (Doshisha University)
The Mind and Body of “Good Worker”: The Politics of Industrial Accident Insurance
Understanding of the significance of Germany’s social insurance system, which wasintroduced in the world in the late 19th century, varies among researchers. On the one hand,a positive view posits that it was an opportunity for workers to integrate into modern civilsociety by accepting values of diligence and efficiency and rational management ability. On
the other hand, a negative view states that the system would control the workers, who wereseparated from the community-oriented aid system and involuntarily individualized both
economically and legally, by binding them firmly to the nation through social insurance. This
study analyzes the occupational accident cases (especially workers’ accident neurosis) andwelfare cases within the German Imperial Post Office from the imperial period to the interwar
period. We show that workers were building a new identity to exercise their social rights as
actors negotiating with specialists in occupational accidents. Moreover, the Industrial Accident
Insurance Act held employers accountable for the employees’ safety and health. It also shows
how theories existing for some time but were ignored by parties and specialists―who linked
occupational accidents to workers’ tactics to “swindle” or be “work-shy”―gained more
support during the interwar period. Social-state material foundations and insurance agencies
also suffered financial difficulties, whereas workers’ health, fitness, and living conditions werestandardized through industrial psychology and other means.

TOMIE Naoko (Ibaraki University)
Forming the Norm of “Good Citizens”: On the Boundaries of CitizenshipThis report aims to approach the common questions of the plenary session by focusing
on the independent involvement of people who were (or were not) targeted by social policy.
In particular, I would like to pay attention to the people who were in poverty in the form of“unfixed residence” in 1920-1930’s Japan. These people did not have a stable position as
citizens and workers, and their relationship with society was incomplete and unstable. In thatsense, it is considered that they were people who lived on the boundary between the inside
and the outside of citizenship.
The first task of this report is to consider how investigators and supporters perceived
people living on the boundaries of citizenship and how they coordinated their relationships
with society.
And the second task of this report is to listen to the narrative of those people who were
the subjects of the survey and support. What did they think about society? How did theyexpress and present themselves before the general public? And I would like to think about
how they were trying to build a relationship between themselves and society.
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MITSUZONO Isamu (Hokkaido University, non-member)
What is the norm of “wise consumer”?: Historical analysis of modern and contemporary JapanThe task of this paper is to sketch the issue of norms surrounding the “good consumer”
in the context of modern and contemporary Japanese history, based on the purpose of thecommon theme.
Specifically, I will focus on the term “wise consumer,” which has been widely used sincethe 1960s, and attempt to decipher the dynamics of norm formation in a historical manner.
The norm of the “wise consumer” had spread to force people to internalize the idea ofconsumer sovereignty in an age when economic growth was providing the basis for material
wealth. It was a norm that tried to arouse people’s autonomy and independence, but at thesame time, it was also a norm that kept that energy within a certain framework. Today, we
are well aware that our daily activities as consumers affect the sustainability of the global
environment, and we are also well aware that the pursuit of “consumer interests” can leadto hardship for workers. In this sense, the question of what constitutes a “wise consumer”
will be sharply examined. I would like to highlight the contours of the norms surrounding
the “good consumer,” including issues of family and gender.

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