AMSEP WAPES AMSPE
MOSCOW, RUSSIA
17-18 SEPTEMBER 2014
MODELS OF PES: CENTRALIZED AND DECENTRALIZED
NEW CHALLENGE FOR OPENING DATA
AS “ONLINE SERVICE”
～SUCCESSFUL DELIVERY IN JAPAN～
Erika Horiba
Vocational Guidance Officer
Ministry of Health, Labour and Welfare, JAPAN
Agenda
1. Outline of the labour market and PES in Japan
2. Current employment trend in “Data era”
3. The making process of “Online Service”
-1-
The Labour Market in Japan
* in 2013FY
 Labour force participation rate
70.6% (15-64 years old)
 Labour population
total
workers
・employees
・self employees
the unemployed
66 million
63 million
56 million
6 million
2.7 million
 Unemployment rate
4.0%
…①
(88% of workers)
( 9% of workers)
…②
（②÷①）
 Number of enterprises (business offices & factories)
・ Covered by employment insurance 2 million
*Source : Employment Placement Statistics (Ministry of Health, Labour and Welfare)
StatExtracts (OECD)
Labour Force Survey (Ministry of Internal Affairs and Communications)
-2-
Activities of PES
 PES of Japan provide three main services based
on ILO Convention (No.88).
C088 - Employment Service Convention, 1948 (No. 88)
Convention concerning the Organisation of the Employment Service (Entry
into force: 10 Aug 1950)
Job Placement
Employment
Employment
Insurance Benefits etc.
Measures
Three main services should be integrated
PES office staff
Employers
efficient activities
Jobseekers
-3-
PES Organisation
MHLW
Labour Bureaus
(47 locations)
Labour Standard
Division
Labour Standard
Offices
Employment
Service Division
Intranet
System
+
HR rotation
practices
PES Offices
(544 locations)
*number of PES office staff : 27,877 persons(in 2014)
 Flexible structure makes practical activities
1) uniformity : speedly, nationwide
2) localisation : modified according to the local
market needs
-4-
Main Results 2013FY
 Number of job seekers
: 6.2 million persons
(both full and part time)
 Number of job openings
for permanent employees
(both full and part time)
 Number of job finders
: 8.5 million openings
* 95% of them submitted by small
and medium-size enterprises
: 1.9 million persons
(both full and part time)
 Number of recipients of
E.I.B.
*Source : Employment Placement
Statistics (Ministry of Health, Labour
and Welfare)
: 1.67 million persons
Scene of
job seeking
-5-
Comparing Results Internationally
 PES in Japan deal with a much larger number of
job openings and jobseekers.
Total number of job openings (vacancies)
employers offered to PES offices in 2012
17 Japan
7,952,732
30 Norway
664,000
14 Germany
477,528
04 Austria
449,267
08 Bulgaria
205,525
32 Portugal
94,059
25 Moldova
35,037
02 Armenia
9,541
0
200,000
(persons)
400,000
600,000
8,000,000
800,000 1,000,000
Source ：The Relationship between PES and Employers as Social Dialogue, Erika Horiba(2013)
-6-
Close to The People
 Giving nickname or making characters.
Feeling like PES offices their own organisations.
“Hello Work” is a
nickname of PES
offices given in 1990.
-7-
Agenda
1. Outline of the labour market and PES in Japan
2. Current employment trend in “Data era”
3. The making process of “Online Service”
-8-
Past IT Services
 IT at PES had been utilised mainly for PES offices users.
(PES offices, Employers, Jobseekers)
PES offices
Submitting
job offers
Introducing job offers by
confirming records on
intranet systems
by visiting
(on website)
Employers
Seeking job on
1) website
2) intranet
system
matching
Jobseekers
(PES users)
-9-
New challenge, “Online Services”
 PES provide job information data for
Employment Placement Businesses (EPB);
local governments, vocational training institutes
private-sector jobplacement agencies, schools
About 1,000 EPB
EPB register !!
Jobseekers
(clients)
ＮＥＷ!!
Now on
Release
1st Sep～
PES offices
Providing job
information data
Jobseekers
(PES users)
Obtaininig
consent
matching
Submitting
job offers
matching
Increase the chance Employers
to fill vacancies!!
-10-
Background of The New Challenge
1) Increase the need for PES data from local governments
who needed to support social benefits recipients
after enactment of the law* in 2013.
* “Promoting support system for social benefits recipients”
Local governments
・Provide social benefits for those who
are struggling to make a living.
・Promote recipients to start working.
・Need for job information from PES
・Need much more cooperation with PES
2) Social trend : “Big data”
Promote utilisation of public data as “Open Data”
-11-
Concept of Open Data
 Provide PES data as “Open Data”.
merely picking up data as it is
establishing data formats ; csv, API etc
1) suitable for machine reading
2) data released with the rules of
“secondary use”
without requiring a lot of
manpower
-12-
Effects of Open Data
 Open Data is expected to bring three effects at the same
time.
1. Improve transparency and
reliability of the government
2. Facilitate public participation
in private sectors
3. Stimulate overall economy as well
as efficiency of the government
-13-
PES Are in Transition with Open Data
 Main ideas
1) Data held by PES should be provided as “Open Data”.
2) PES should play a main role in promoting the labour
market.
3) In particular, PES should collaborate with local
governments more closely than before.
Policy making
process
 National policies
“Japan Revitalization Strategy” (June 24th, 2014)
“Declaration to be the World's Most Advanced IT Nation”
(June 14, 2013)
-14-
Short Recap
1. Changing the view of data
Past :
1) Mainly used passively as job information
2) PES should hold whole data carefully
From now : “Open Data”
1) Used in various ways
(matching, data analysis etc.)
2) Under the rule, local governments and private
sectors can use a part of PES data
-15-
Agenda
1. Outline of the labour market and PES in Japan
2. Current employment trend in “Data era”
3. The making process of “Online Service”
-16-
Policy Making Process
 When establishing a new service,
we set two perspectives ;
1) deciding successful strategies from past experience
2) adding new essence regardless of the existing systems
☑New ideas
☑Focusing on
and activities
target
☑Best practices
INPUT
Main Ideas
OUTPUT
Online Service
-17-
The Way to Get Information
 When PES share own holding data ;
Q1.
Who needs
employment
services ?
Q2.
How to
involve other
stakeholders?
☑Focusing
on target
Current users
PES 28.9%
PES Alternatives
Private-sector
jobplacement agencies
4%
Advertisements
27.4%
Others 39.7%
(Personal connections,
Local gov. etc.)
-18-
Successful Strategies from the Past Experience
Q1.
Who needs
employment
services ?
 PES are highly responsible for introducing job.
Merely providing job information
Job information
+ Jobplacements (tailor-made services)
☑ Best
practices
Without job placements, there is no success in finding jobs.
 With the view from PES best practices,
1) EPB
Private-sector jobplacement agencies,
Local governments etc.
PES
2) Advertisements
do not provide jobplacement services
-19-
Advantages of Using PES Data
Q2.
How to
involve other
stakeholders?
Advantages
Responsibilities
 For EPB, using PES data is available for ;
1) acquiring new customers
increase the chance to promote new job
offers from employers (PES users)
2) improving matching services for jobseekers
-20-
Outline of EPB
 Online service is based on the current
“labour supply and demand adjustment system”
Type of EPB
1) Fee-charging (approval system)
Private-sector jobplacement
agencies (17,556)
Online
Service
2) Free (mainly notification system)
a) Schools (5,144)
b) Local governments (164)
c) Special corporations (1,714)
d) Others (834)
*in 2012
-21-
The Rule Under Online Service (1)
 EPB should follow rules ;
Original rule
ex 1) Principle of jobplacement
introducing job offers accepted by others
Jobseekers
(clients)
2) Introducing
EPB
PES offices
1 ) Sending data
Obtaining
consent
1. Accepting data
use data as it is
(= Offers accepted by PES offices)
Must not show PES data (offers)
to EPB’s clients
Submitting
job offers
Employers
(PES users)
-22-
The Rule Under Online Service (2)
EPB
PES offices
Jobseekers
(clients)
3) Introducing
1) Sending data
Obtaining
consent
2. Negotiate with employers
(PES users)
3. Show new job offers
accepted by EPB
Submitting
job offers
☑New
activities
Employers
(PES users)
-23-
The Rule Under Online Service (3)
ex 2) Clear indication of working conditions , etc.
introducing job with vague working conditions
Original rule
EPB
PES offices
2. Promote employers
(PES users)
2.5 Negotiation
1) Sending data
3. Show new job offers
accepted by E.P.B
Working
conditions
should not be
worse !!
Employers
(PES users)
☑New
activities
-24-
Share PES Skills with Local Governments
 PES offices encourage the local governments by ;
☑New
1) Providing basic lessons with the manual
ideas and
activities
・Laws, rules
ex) treatment of personal information
・Know-how about jobplacements
2) Providing software to read data
・Data format (csv, API)
→ Screen (information on job offers)
Sending data
offer No., 999-999,
date, 3/7/2014, address,
Tokyo, work type, full, ･･･
Reading data,
Editing
Job Offer
Nurse
Place : Tokyo
Work type： full
-25-
The Next Level
 PES should take responsibility
to manage matching systems
as a leader of the local labour market.
source of job information
EPB are partners of PES, not competitors
 Further discussion
・Opening data about jobseekers (PES users)
-26-
Short Recap
1. Successful strategies from past experience
1) Focusing on targets
users: EPB and their customers
2) The way to provide data
data + matching services should be provided as a whole
2. New challenges
PES should develop transparency as “Public Services”
1) by responding to EPBs’ needs
2) by managing matching rules
as a leader of the local labour market
-27-
THANK YOU FOR YOUR ATTENTION !!