Recent Trends of

Foreign Workers in Japan

Foreign Workers’ Affairs Division,
Employment Security Bureau,
The Ministry of Health, Labour and Welfare,
The Government of Japan
30 January, 2018

The views expressed in this presentation are the views of the author and do not necessarily reflect the views or policies of the Asian Development Bank Institute (ADBI), the
Asian Development Bank (ADB), its Board of Directors, or the governments they represent. ADBI does not guarantee the accuracy of the data included in this paper and
accepts no responsibility for any consequences of their use. Terminology used may not necessarily be consistent with ADB official terms.
Changes in the Numbers of Foreign Nationals Residing in Japan and Their Share in Japan’s Total Population

Note 1: These numbers are based on the statistics as at the end of December each year.
Note2: The numbers until 1985 represent the number of alien registrations, the numbers between 1990 and 2011 represent the sum of the number of alien
registrations who stayed in Japan with the status of residence eligible for mid to long-term residents and the number of special permanent residents, and the
numbers from 2012 onwards represent the number of foreign residents adding together mid to long-term residents and special permanent residents.
Note 3: The share of foreign residents in Japan‘s total population was calculated based on the population as of October 1 of every year in the “National Census”
and “Population Estimates” of the Statistics Bureau of the Ministry of International Affairs and Communication.

Source: The 2017 Immigration Control

1
Categories of foreign workers in Japan (1,084,000 in total) by Status of Residence
Under the Immigration Control and Refugee Recognition Act, the following
categories of people are allowed to work. “Professional and Technical Fields”
Status of
Examples
residence
① Aiming to work (about 201,000) Professor University professors
“Professional or Technical Fields” Highly Skilled Highly skilled professional under Points-
Professional based system
Business
Company executives and managers
Manager
② Entering or Residing on the Basis of Their Status or Legal/Accounting
Lawyers and CPAs
Position (about 413,000) Services

Medical Services Medical doctors, dentists and nurses

Researchers in government
③ Training and Technical Internship Programs Researcher
organizations and companies
(about 211,000) Instructor
Language teachers at junior and high
schools
Engineer/
Specialists in Engineers, interpreters, designers,
④ Designated Activities (about 19,000) Humanities/ teachers in language schools, and
(ex. nurses and care workers based on EPA) International specialists in marketing services
Services
Intra-company
Transferees from overseas affiliations
⑤ Activity other than that permitted under the Transferee
Care worker
status of residence previously granted (about Nursing care
※Effective from September 1, 2017
240,000) Cooks of ethnic cuisines, sports
(ex. part-time work by students)
Skilled Labor instructors, airplane pilots, and jewelry
artists
※Source: Notification of Employment of Foreign Nationals (at the end of Oct. 2016)
Each company shall, where it has newly hired a foreign national or a foreign national whom if employed has left the service, make a notification of the foreign national’s name, status of residence, period of stay
and other matters to the Ministry of Health, Labour and Welfare. (Foreign nationals with status of residence “Diplomat” “Officials” or “Special Permanent resident” are excluded). 2
Tr e n d s i n f o r e i g n n a t i o n a l s o v e r s t a y i n g t h e a u t h o r i z e d
period of stay
People
350,000
298,646
Five-year plan to reduce the number of illegal foreign
overstayers by half
300,000

219,418
250,000

200,000

150,000 113,072

100,000 62,818

50,000

0
1990 92 94 96 98 2000 02 04 06 08 10 12 14 16

Note: The 1990 number was based on data as of July 1, 1990; the numbers between 1991 and 1996 were based on data as of May 1 of every
year; and the numbers from 1997 onwards were based on data as of January 1 of each year.
3
A c c e p t a n c e o f F o r e i g n Wo r ke r s

Basic Policy of Japan

Actively promote the acceptance

Foreign nationals in In 1999, the Japanese Government decided during its cabinet meeting to adopt
professional and the Ninth Employment Measures Basic Plan to actively promote the acceptance
technical fields of foreign workers in professional and technical fields in an attempt to invigorate
the economy and society of Japan and prepare the country for further
globalization.

Careful consideration is needed

The influx of foreign nationals might cause significant impacts on society and the
economy as well as on people’s lives. The government decided to take a careful
stance based on the consensus of Japanese citizens (the 1999 Ninth Employment
Other foreign
Measures Basic Plan).
nationals
To ensure the sustainability of the economic and social infrastructure, the
Government will advance a comprehensive and detailed study on approaches to
accept foreign human resources while focusing on the field where they are truly
required. To this end, the Government will conduct cross-governmental surveys
and considerations regarding essential issues including a mechanism that would
not be misconstrued as an immigration policy and the way to shape the national
consensus. (Growth Strategy 2017（decided by Cabinet on June 9, 2017）
Statuses of Residence
under Immigration Control and Refugee Recognition Act
Permit to work (activity is limited) Based on foreigners’ status or position (activity is
unlimited)
Status of residence Examples
Status of residence Examples
Diplomat Ambassadors and ministers, and their family members
Permanent Resident Those who are permitted permanent residence in Japan
Official Those engaged in foreign government services and their
family members Spouse or Child of Those with spouses, biological children and adopted children
Japanese National of Japanese nationals
Professor University professors
Spouse or Child of Spouses of permanent and special permanent residents;
Artist Composers, painters and writers Permanent Resident biological children who were born and continue to reside in
Japan
Religious Activities Missionaries assigned by foreign religious organizations Long-term Resident Third-generation persons with Japanese ancestry and
children by a former marriage with a foreign spouse
Journalist Reporters and camera operators from the foreign press
Highly Skilled Highly skilled professionals under Points-based system
Professional
Permit to work only with designated activities
Business Manager Company executives and managers
Status of residence Examples
Legal/Accounting Lawyers and CPAs
Services
Designated Activities House maids of diplomats and those on the Working
Holiday program
Medical Services Medical doctors, dentists and nurses
Researcher Researchers in government organizations and companies
Foreign Nationals who are not permitted to work
Instructor Language teachers at junior and high schools
Status of residence Examples
Engineer/Specialist in Engineers, interpreters, designers and language teachers
Humanities/Internation Cultural Activities Researchers of Japanese culture
al Services
Temporary Visitor Tourists and conference participants
Intra-company Transferees from company overseas affiliations
Transferee Student Students at universities, technical colleges and
Japanese language schools
Nursing care Care worker
Trainee Trainees
※Effective from September 1, 2017
Entertainer Actors, singers and professional athletes Dependent Spouses or children of those with foreign residents
with a working status of residence
Skilled Labor Cooks of ethnic cuisines and sports instructors
Note: With a permit for activity other than that permitted under the status of residence
Technical Intern Technical interns previously granted, the foreign nationals listed above are permitted to work within a certain
Training range of activities.
5
R e m a r k a b l e P o l i c y C h a n g e s o f F o r e i g n Wo r ke r s i n 2 0 1 7
All Over Japan
E sta b l i sh m e nt o f a “J a p a n e s e G re e n C a rd fo r H i g h l y - S k i l l e d
Foreign Professionals” →Effective from April.2017

Acceptance of foreign care workers

→Effective from September.2017

R e v i s i o n o f t h e Te c h n i c a l I n t e r n T r a i n i n g P r o g r a m
→Effective from November.2017

The Structural Reform only in National Strategic Special Zones （※）

Acceptance of Foreigners Conducting Housekeeping Ser vices

→Started to accept from June.2017

Acceptance of Foreigners Conducting Agricultural works

→In preparation for the actual acceptance

Acceptance of Foreigners Supporting overseas Demand

Development →In preparation for the actual acceptance

※In order to strengthen the international competitiveness of the industry and to form a base for international economic activities, various structural
reforms are tested in the regions recognized as “National Strategic Zones”
Po i n t s - b a s e d P r e fe r e n t i a l I m m i g ra t i o n Tr e a t m e nt fo r H i g h l y
Skilled Foreign Professionals

Within professional and technical fields

Points are awarded according to applicant’s
“annual salary” ”academic background” “professional
Highly skilled career” ”research achievement”, etc.
professionals 【qualifying score:70 points】
→recognized as “highly skilled foreign professionals” and
will be given preferential treatments

“Professor”
Preferential treatment in immigration procedures
“Researcher”
“Business manager” ○Permission for multiple purpose of activities
etc. ○Easing of requirements for permanent residence
○Work permission for his/her spouse
○Permission for domestic workers to accompany
the highly-skilled foreign professionals
○Permission for the parent(s) to accompany
【even if total points are under 70】 the highly-skilled foreign professionals
it is still possible to enter and stay in
Japan under the current Status of etc.
Residence framework
 E sta b l i sh m e nt o f a “J a p a n e s e G re e n C a rd fo r H i g h l y - S k i l l e d
Foreign Professionals”

○The residence period required in the applications for permanent residence of Highly-Skilled Foreign
Professionals was reduced from the previous 5 years to 3 years.
○For those human resources with specially outstanding abilities (where the total number of points is
80 points or more), the period was reduced to 1year.
→ Establishment of a “Japanese Green Card for Highly-Skilled Foreign Professionals”

Previous System New System

Over
80
points
Over Over
70 Highly skilled 70 Highly skilled
points professionals points professionals

1 year

The applications for

The applications for
permanent residence
3 years permanent residence
The applications for
permanent residence
5 years
 A c c e p t a n c e o f f o r e i g n c a r e w o r ke r s
Background Creating a new status of residence “Nursing Care”

○the number of those in need of care service 5.64million (FY2013)

○the number of care workers 1.71million (FY2013)
The following status of residence is added to the Immigration Act,
○The number of people in need of care service is projected to be 2.5 million annex 1-2
in FY2025. Activities of engaging in nursing care or nursing
Nursing care guidance conducted by certified care workers
★Calls for quality care Care based on a contract entered into with a public or
Calls for quality care are increasing, as the population ages private organization in Japan
★ Support for foreign students in care service
Currently foreign students studying at institutions providing care-
worker training courses are not allowed to work as care-workers in
Japan, even after acquiring care-worker certification.
(ref.) Accepted based on EPA with Indonesia,
Japan Revitalization Strategy revised and decided by the
cabinet in 2014 Accepted under a status of the Philippines, or Vietnam
residence “Nursing Care”
Enter Japan as a candidate for
Cultivating Human Resources -- Promoting women's social
participation and reforming working styles Certified Care Worker
Developing a Japanese society where foreigners can perform Enter Japan as a
well student
Work or train at
Study at training
nursing-care
<Consideration of new employment systems in fields where an institutions for
urgent response is required to ensure sustainable growth>
facilities or
Study at training certified care
To enable international students studying in Japan to continue [Student] hospitals
Institutions for workers for 2
to play an active role within the country after graduating from a certified care workers years or more [Designed
Japanese higher education institution and obtaining a specific
for 2 years or more Take the national Activities
national qualification such as the certified care worker
qualification, the Government will aim to design within 2014 the examination for care (EPA)]
institutional arrangements for permitting them to work, workers in the 4th year
including augmenting the status of residence categories..
Obtain the qualification of care worker (registered as a
[Nursing certified care worker)
Care]
The number of registered Work as a certified care worker
care workers
1.293 million（FY2014） ※[] shows status of residence
The number of training
Note: Those who graduated from training institutions need to pass the national examination since FY2017,
institutions for certified
although transitional measures of 5 years after graduation are given to those who graduated until
care workers
FY2031.
378（as of April 2014）
R e v i s i o n o f t h e Te c h n i c a l I n t e r n Tr a i n i n g P r o g r a m
To thoroughly pursue the objective of “developing human resources” who are the central force to drive economic
development in developing countries/economies, the Government of Japan reworked the system and build a new robust
framework to strengthen management and operation of the system and to protect technical interns.
Previous System New System

1. No arrangements between government authorities. Create arrangements with respective governments or ministries of sending countries to cooperate
This led to the emergence of unauthorized sending in excluding unauthorized sending organizations.
organizations which confiscate a deposit, etc.

2. Obscure accountability of supervising organizations Require supervising organizations to be approved, Implementing organizations to be registered
and implementing organizations . This caused and every technical intern training plan to be authorized.
insufficient training framework.
Establish Organization on Technical Intern Training as authorized legal entity which is in charge of
3. Japan International Training Cooperation
duties to request reports from implementing organizations, etc. and carry out on-site inspections.
Organization (JITCO), a private entity, provided on-site
guidance without legal authority.
Set up counseling services for reporting unlawful activities. Define criminal sanctions for human
rights violation against technical interns. Improve support for technical interns who want to
4. Insufficient protection of technical interns.
change an implementing organization.
5. Lack of supervision of and cooperation among
Adopt a system which enables request for cooperation from related ministries and agencies as
ministries and agencies in charge of the program.
well as prefectural governments to implement related regulations. Establish “Regional Council on
TITP” consisting of related agencies to enhance supervision and cooperation.

Expansion of Technical Intern Training Program for high

quality supervising organizations, etc.
1. Extend the duration of its training From the training period of 3 years to 5 years (up to 2-year training after returning to their
programs or repeat them, home countries)

2. Expand the maximum number of

technical interns acceptable by high
quality supervising organizations, etc.,
and
3. Expand the range of occupations
covered.
Double the admission quota according to the number of regular employees (ex. maximum of
5% to 10%).
Add training types to meet specific local and company needs (by utilizing in-house
examination); training for multiple work types; and add training types as needed. 9
 Memorandum of Cooperation on TITP
Purpose
The purpose of MOC on TITP is to transfer technical skills, etc. from Japan to the other country appropriately and smoothly through TITP
by setting out the responsibilities of each Ministry (or Government) to send and accept technical intern trainees and thus to promote
international cooperation.

Responsibilities of each Ministry

Japan Sending countries

○ In accordance with the license standards for Japanese Supervising
Organizations and with the accreditation standards for technical intern
training plans, to conduct business relating to the license and the
accreditation in an appropriate manner;
○ When the ministry of Japan receives the information from the Ministry
of the other country on a sending organization that intends to send
technical intern trainees to Japan and has been approved by the Ministry
of the other country to meet Sending Organization’s Approving Standards,
to make such information publicly available in Japan;
○ To check whether or not Sending Organizations that intend to send
technical intern trainees to Japan meet the Approving Standards;
・To appropriately select and send to Japan only those who are motivated to
engage in technical training with the understanding the objectives of TITP:
・To respond the requests (include cooperation on follow-up surveys on the
technical intern trainees who returned to the Sending countries after
completing the TITP) from the Ministry of Japan;
・Never concluding any contracts that impose monetary penalties or that
expects undue transfer of money or other properties;
・Never human rights infringements against trainees and candidates such as
assaults intimidations, and restrictions of freedom

○ When the Ministry of Japan takes administrative measures against
Japanese Supervising Organization by revoking the license or issuing an
order for suspension of operation and issuing an order for improvement, or
administrative measures against a Japanese Implementing Organization by
revoking an accreditation of technical intern training plan or issuing an
order for improvement, to notify the results to the Ministry of the other
country;
○ To revoke the approval when the Ministry of the Sending countries
considers that an Approver Organization no longer meets the approving
Standards, and to notify the results to the Ministry of Japan;
○ When the Ministry of the Sending countries is informed by the Ministry of
Japan that an Approved Sending Organization seems to have exercised
activities inconsistent with Approving Standards or other improper activities,
to investigate, instruct, supervise over the Approved Sending Organization in
question, and then, report the results to the Ministry of Japan;

Cooperation mechanism
○ Each ministry regularly exchanges information on the implementation and changes of policies of the two countries relating to the
TITP .

Creating arrangement between the Vietnam (2017.June), Cambodia (2017.July), India (2017.October), Philippine (2017.November),
Ministries or Governments of Laos (2017.December), Mongolia (2017.December)
 Strengthening of Management and Supervision Scheme of TITP
Ministry of ★Items with RED LETTERS will be
covered by the new legislation
Foreign consecutive Foreign Affairs
Governments ･Request for Cooperation
（Ministries） Ministry of Health, ･Central/Regional Council on TITP
Ministry of Justice （Promotion of cooperation among related
Labour and Welfare agencies）
・ Creating arrangements
between the governments or Establishment of mechanism to ensure acquisition of skills through
the ministries technical training and protection of Technical Intern Trainees
(Requesting approval for establishing supervising organizations / Ministries and
・ Selecting high quality sending
Requesting registration for operating as implementing Its Local Branches
organizations organization Requesting authorization for technical intern training in Charge of the
・ Excluding improper sending plan) or
Entrusting Industries
organizations
delegating duties
MLIT
Organization on Technical Intern Training
Regional
Prefectural Labor MAFF
(New legal entity) Immigration
Department Report
Labor Public Cases of Bureau
Violation of ▶Conduct preliminary survey/screening before
Report
METI
Standards Employme Cases of

Requests and Guidance based on Respective Laws and Regulations

Laws and
Office nt Security Regulations exercising power by the government Violation of
Laws and
Office (including ▶Conduct duties related to supervision, such as Regulations ▶ Residency Local
Suspicious
on-site inspections / collecting reports (including Management on Each Governments
▶ Ensuring ▶Improving Ones) Suspicious Technical （prefectures etc.）
Statutory Labor Employment ▶Establishing reporting/consulting hotline for Ones)
Intern Trainee
Conditions at Management at technical interns, providing necessary support
Implementing Implementing ▶ Developing/Managing database
Organizations Organizations
Industrial
Associations
Protection
Duties related to registration Duties related to approval, Advice etc.
On-site Inspection etc. On-site Inspection etc.
guidance
Supervising Organizations
Supervision

Implementing Organizations
Accepting Accepting Accepting Accepting Technical Intern Trainees
Company Company Company Company
Acceptance of Foreigners Conducting Housekeeping Services in National Strategic Special Zones

The 189th diet enacted the Act on the Partial Revision of the National Strategic Special Economic Zone Act (enforced on September 1,
2015), which includes exceptional measures that enable foreign housekeeping support workers employed by housekeeping support
service companies to enter and stay in Japan under a certain administrative system by the local government, etc.

Third Party Management Council

(consisting of relevant local governments; Office
for Promotion of Overcoming Population Decline Enter Japan
and Vitalizing Local Economy in Japan , Cabinet
Office; Regional Immigration Bureaus, Prefectural
Labor Bureaus; and Regional Bureaus of Economy,
Trade and Industry) Consultation Status or residence
“Designated Activities”
Confirmation of Foreigners conducting
conformity to the housekeeping services Requirements for foreigners [Cabinet Order]
criteria Audit ◆At least 18 years of age
◆At least one year experience of work
Requirements for specified organizations [Cabinet Order] Employment ◆Knowledge and skill for housekeeping services
◆Provision of training to the foreigners conducting contract ◆Minimum competence in the Japanese language
housekeeping services
◆Conformity to the guidelines provided by the prime
minister
Report
◇full-time direct employment
◇No less remuneration than that of Japanese
counterparts Do cooking, washing and
◇Total stay of up to 3 years other domestic duties or
◇Prohibition of confiscating a deposit, etc. Companies offering provide assistance therefore
◇Provision of training
housekeeping services Households in the
◇Provision of consultation service
◇Measures to ensure foreigners’ return
(specified organizations) special zones
◆Financial base
◆At least 3 years’ business performance in Japan
◆Not falling under any disqualification requirements (legal
violation history, involvement with organized crime groups,
National Strategic Special Zones
etc.)
 Acceptance of Foreigners Conducting Agricultural Works in National Strategic Special Zones

National Strategic Special Zones The conference on National

Strategic Special Zones
Established under the conference

An appropriate acceptance management council Office for Promotion of Overcoming Population Decline and
cooperation Vitalizing Local Economy in Japan , Cabinet Office;
Regional Immigration Bureaus, Prefectural Labor Bureaus;
A local government of the zone Regional Agricultural Administration Offices

・Confirmation of
Requirements for specified organizations [Cabinet Order]

on-site inspections
conformity to the
・Conformity to the guidelines provide d by the Requirements for agricultural management bodies
criteria
Prime Minister ・Experience of employment or completion of the course
・Audit
・Financial base about temporary workers
Consultation

Report

・Business performance in Japan ・Appropriate working condition

・Not falling under any disqualification ・ Not falling under any disqualification requirements
requirements (legal violation history, (legal violation history, involvement with organized
involvement with organized crime groups, etc.) crime groups, etc.)

Report
Specified Organizations Agricultural management bodies
(companies accepting foreigners conducting agricultural works) (companies or individuals who manage agricultural business)
A worker
dispatch
・Measures to ensure contract

support works
Activities permitted to engage in [Cabinet Order]

Operation orders
foreigners’ return An employment contract

Agricultural
Consultation

・Measures to secure other ・farmwork

・Full-time employment as a dispatched
Specified Organizations these ・activities related to farming (production,
worker
foreign workers belong to, manufacturing, processing, etc.)
・No less remuneration than that of
in case he or she is fired
Japanese counterparts
unexpectedly
・Total stay up to 3 years
Requirements for foreigners [Cabinet Order]
・Prohibition of confiscating a deposit, etc.
・At least 18 years of age
・Provision of training ,ETC.
・At least one year of work experience
・Knowledge and skills for agricultural works
Foreign Agricultural Support Workers ・Minimum competence in the Japanese language
Acceptance of Foreigners Supporting Overseas Demand Development in National Strategic Special Zones

The content of the structural reform The concrete plan of the project
Current Situation
○ As the number of foreign nationals visiting Japan increases, it is Landing permission
necessary to respond flexibly to the needs for acceptance of foreigners criteria
who have expertise related to “cool Japan and inbound responses” and
to maximize use of the specialized knowledge and skills acquired by Academic
Fields related to “cool
foreign nationals in companies and other enterprises. qualifications
Japan and inbound
○ But foreign nationals who have plans to engage in the fields related responses”
and practical
to “cool Japan and inbound responses” are required to meet the experience
criteria of academic qualifications and practical experience to get the
landing permission for the statuses of residence of Engineer/ Specialist
in Humanities/ International Services” or “Skilled Labor”. ・awards
design

New System
○ ”The Project to Promote Activities Supporting Foreigners Overseas Deemed to be
Demand Development in National Strategic Special Zones” is a special
measure where if the Council on National Strategic Special Zones the criteria
intends to stipulate the contents of the activities as a special zone plan, prescribed by ・Qualifications
it consults the related ministries and agencies in advance as to the Ordinance ・Examinations
whether or not the activities of supporting overseas demand on Criteria
development come under the status of residence of “Engineer/ ○×検定
Specialist in Humanities/ International Services” or “Skilled Labor”. １級
○ If they do come under one of the statuses of residence, the Council
also consults the relevant ministries as to whether the level of
knowledge and skills, etc. of the foreign nationals equivalent to the
academic qualifications and practical experience examinations or
awards, etc. in or outside Japan.

In Expectation of… Further attraction of

○ Further acceptance of foreign professionals who have expertise highly-skilled foreign
related to “cool Japan and inbound responses” professionals !
○ Helping overseas expansion of the so-called “cool Japan” industry
and promoting inbound responses
 Growth Strategy 2017（decided by Cabinet on June 9, 2017）

Further attraction of highly-skilled foreign professionals

・The Government will begin examining the way of matching support overseas utilizing job offer information for
working in Japan in order to secure highly-skilled IT professionals, which leads to corporate innovation.
Improvement of the working environment
・The Government will encourage the development of the working environment including the establishment of
comprehensive strategy on foreigners’ assessment, clarification of human resource management including
foreigners
and job descriptions, fair evaluation mechanism, and introduction of environments so that non-Japanese speakers
can
use their talents, to actively accept highly-skilled foreign professionals.
Support for employment of International Students
・The Government will promote employment of international students by implementing a consultation on
employment management, support for summer jobs, etc., for companies that are considering recruiting international
students and students abroad at foreign employment service centers.
Promotion of acceptance of foreign employees in Japanese companies that develop
globally
・In the retail industry, the Government will realize short-term transfer within the company group, acquisition of
skills,
etc., under the Minister having jurisdiction over the business in question. To do so, the Government will conduct a
concrete institutional design for the system referring to the structure of “Foreign Employee Acceptance Program for
Manufacturing Industry” starting during this fiscal year. The Government will also continue to examine the possibility
and necessity of institution construction with reference to the above mechanism for areas that contribute to the
growth of the Japanese economy other than the manufacturing and retailing industries.
Consideration on approaches to accept foreign human resources
・To ensure the sustainability of the economic and social infrastructure, the Government will implement a
comprehensive and detailed study on approaches to accept foreign human resources while focusing on the field
where