Labour Mobilization Programme for 1940
Board of Planning
IN RESPECT of the mobilization of labour for the year beginning April 1, 1940, matters requiring immediate attention are being dealt with as they arise, while the Government has formulated a general programme extending over the whole year, which programme was approved by the Cabinet Council at a session held on July 17. Mobilization of labour resources is the concentration of manpower, which, taken with the mobilization of materials, constitutes an important measure for the accomplishment of the colossal task which Japan is undertaking on the Asiatic Continent.
The Manchurian Affair affected to no small degree the equilibrium between supply and demand of labour in Japan. Particularly since the outbreak of the current hostilities, the demand for labour has shown a rapid increase, and a certain shortage is being experienced in various quarters. In order to cope with the situation the Government formulated a scheme to effectively control and dispose of labour to the best advantage during the period under review. The results obtained in various branches of industry, however, show that the ever-growing demand continues to exceed the supply and it has become of urgent importance to devise special steps to remedy the deficiency of hands.
Consequently, in drawing-up a similar plan for the 1940-41 fiscal year, the authorities have made it their principal aim to bring into full play the entire productive capacity of the nation, laying special emphasis on the readjustment of labour conditions in connection with (a) the repletion of war materials ; (b) the expansion of productive power ; (c) the development of export trade ; and (d) the assuring of the strict necessities of life. Moreover, with a view to improving the quality of labour more effective measures have been adopted in the matter of controlling employment, so as to ensure a better distribution of labour while increasing efficiency.
Readjustment in Supply and Demand of General Labour
During the 1939-40 period, the scheme relating to the adjustment of supply to demand had applied only to Japan proper. In view of the growing shortage of labour in Korea, Formosa, Sakhalien,
and the South Sea Islands, the current year will see a systematic readjustment in these territories.
The additional number of labourers of both sexes required for 1940-41 in Japan alone is estimated at 1,150,000 which comprises replacements in the munitions industry and the greater demand set by the expansion of productive power in the principal industries by the increase in the manufacture of articles of export and in the production of the necessaries of life, in the transportation and communication services, and in public works. The figure which includes Japanese settlers in Manchoukuo, is a slight increase over that for 1939-40. Agricultural, forestry, and fishery needs have likewise been provided for.
This additional labour is to be recruited from among those who have completed the primary and secondary school courses, those without any occupation or who have lost their employment through the stricter enforcement of the materials mobilization programme or the ban on the manufacture of luxury goods. Further demand will be met from the reductions arising out of the restrictions on the employment of young and juvenile workers, and from among the Korean immigrants.
Of these resources the most important element will be constituted by those who have completed the primary school course. Every care will have to be exercised in their guidance so that the nature of their employment be in keeping with their abilities especially in that which relates to the recruitment of juvenile workers. An increasing number of secondary school graduates have joined the ranks of labour in the war-industries, and their choice of work will have to be directed into the right channels.
The same general rules will of course apply in the case of all other labour, whether skilled or otherwise, both male and female.
The execution of the materials mobilization programme and the ban on the manufacture of luxury goods will result in the loss of their occupation by a still greater number than was the case last year. As direct victims of the emergency situation they should receive preferential treatment and every effort will be made to absorb them into the war industries.
The restrictions placed on the employment of young and juvenile workers in March this year will no doubt throw many of this class into the ranks of the workless. Employment will be found for them wherever possible in the more important enterprises.
Another source of labour may be sought in the rural communities. With men called to the colours or engaged in war industries, the agrarian population has suffered not a little from the deprivation
of its manpower. A careful planning throughout the country, however, will render it possible for these communities to contribute their manpower further to work of first urgency ; as a matter of fact, many of these communities can be tapped for the supply of labour without causing any serious inconveniences to farm work, while those adjacent to cities are real sufferers from shortage in farm labour.
In respect of the Korean immigrants, greater efforts are to be made to fit them to the task of cooperating in the execution of the national programme of expansion of labour power.
Measures have been taken to prevent as far as possible changes of employment on the part of workers, as such a course, if widely pursued, would unfavourably affect not only the readjustment of supply and demand but the maintenance and improvement of productive efficiency.
A feature of the labour mobilization programme for the current year is the special attention given to labour in agriculture, forestry, and fishery, in consideration of their importance in the national economic structure. Deficiency in farm labour supply from among those who have left the primary schools will be provided. Rationalization will be made to play its part in the use of agricultural labour and every encouragement to the workers through such benefits as day nurseries, joint preparation of meals, utilization of mechanical power. Schemes are being put forward too for the organization of collective labour among farm villages, and for seasonal help by pupils and students, and those temporarily released by commerce and industry or that can be spared from the urban districts.
In Korea, Formosa, Sakhalien, and the South Sea Islands a similar programme will be put into operation. Excepting for Sakhalien and the South Sea Islands, which rely on Japan proper for part of their labour requirements, they are in a position to be self-sufficient in this respect.
Technicians and Skilled Workers
So far as the technicians and skilled workers are concerned, there is a greater unbalance here than is the case with other classes of labour throughout Japan, China, and Manchoukuo. The Government has endeavoured to remedy the deficiency by the establishment of additional technical schools, increasing enrolments in existing training centres, and by other measures. To ensure proper distribution of expert technical labour, it promulgated the Ordinance Restricting
Employment of School Graduates by invoking the National General Mobilization Law, enforcing the quota system of distribution in respect of that group. The utmost care will be taken to adjust distribution to the requirements of each district and according to the urgency of each line of activity. Unemployed technicians will be induced to obtain positions and those skilled workers showing special aptitude raised to the status of technicians. Exchanges of technical labour may also be effected between enterprises of a similar nature or between manufacturers and their subsidiaries.
In order to promote the practical training of skilled hands, the Ordinance Pertaining to Training of Technical Workers in Factory Workshops was put into force last year.
Meanwhile it is of urgent importance to elevate the general standard of technical ability by the institution of short courses and by systematic instruction graded according to each class of worker. The holding of public demonstrations or individual contests of technical skill is advisable and should be encouraged.
Increase of Labour Power and Productivity
It is essential to the successful execution of the labour mobilization programme not only to make quantitative readjustment in labour but to elevate its quality. Because of the rapid increase in the number of inexperienced hands recruited and due to other circumstances some apprehension has been felt of a decline in the productive efficiency and physical condition of workers generally. Special stress is therefore being laid on the moral training of and discipline among the workers in keeping with the spirit of the times. Provisions have been made in respect of the betterment of dormitory accommodation and healthier recreational facilities and measures taken to bring about a closer relation of factory to home life. Improvement of health and sanitary conditions, prevention of accidents, avoidance of overwork, through recesses and holidays, and physical training, are receiving the most careful attention of those in authority and the needs of juvenile and female operatives given every consideration.
Improved methods of work and management have been adopted, rewards for efficiency established, and inspection and guidance by visiting experts in organization provided for.
Wages and allowances are to be regulated so as to afford security to the workers and with a view to adjusting supply of labour to demand. This will be conducive to the elimination of discontent in the labour ranks and foster the spirit of service to the State
through industry and help forward the activities of the associations for service to the State through industry while developing and completing the system of labour control. The expansion of social insurance is likewise being planned, and definite measures are being taken to relieve the housing shortage.
To assure the complete success of the programme outlined, there will have to be cooperation on the part of all concerned and an effective combination of the various measures indicated toward the goal set. As the Movement for Service to the State through Industry may be regarded as pivotal in the proper reorganization and distribution of labour, more powerful central and local machinery must be devised to foster the movement. Such measures are accordingly included in the mobilization programme.