Minutes, Conference with Welfare Ministry Regarding Major Welfare Objectives 1950-51,
Held 29 November 1949, Public Health and Welfare Section, GHQ, SCAP.
Representatives of Welfare Ministry:
Mr. Yoshisuke Kasai, Vice-Minister of Welfare.
Mr. Chujiro Kimura, Chief, Social Affairs bureau.
Mr. Norio Kojima, Chief, Children's Bureau.
Mr. Junichi Hatakenaka, Chief, General Affairs Section.
Mr. Toshikatsu Kuroki, Chief, Rehabilitation Section & Improvement Section.
Mr. Yuichi Saito, Liaison Section, Minister's Secretariate.
Representatives of Public Health and Welfare Section SCAP:
Mr. Nelson B. Neff, Chief, Welfare Division.
Mr. Irvin H. Markuson, Dept, Chit, Welfare Division.
Mr. Thomas L. Metzker, Chief, Administration and Organization Branch.
B. Purpose of Conference:
The purpose of the conference was to set forth and discuss in detail a calendar of major objectives by which SCAP and the Welfare Ministry will schedule their efforts in the further perfection of welfare organization and administration during the period 1950-51.
The Chief of the Welfare Division outline of major welfare objectives and the dates by which they will be accomplished:
1. District system of welfare administration.
a. The Ministry of Welfare will immediately develop detailed plans for accomplishing the following steps, preparatory to the establishment of a uniform system of district welfare administration, the full effectuation of which is to be accomplished by not later than 1 April 1950.
(1) Undertake a national study to determine the most effective district system by which national welfare services can be efficiently and economically administered. Target date for completion 1 August 1950.
(2) Invite towns and villages to voluntarily combine welfare functions for purpose of demonstrating a more effective unit of administration, including use of fun time paid staff.
(3) Encourage the use of full-time paid personnel in any unit of local government having a Daily Life Security Case Load in excess of 25 cases.
(4) Require that all applications for Daily Life Security Assistance be filed with the public welfare official/local major.
(5) Require that all actions upon applications, including rejections, be made a matter of record in the local welfare office for incorporation in basic statistical reports to Welfare Ministry.
(6) Assignment of supervisory and consultant services by prefecture for assistance to local units in the administration of the basic programs.
(7) Clarification of Governor's responsibility for developing services paragraph (6) above.
(8) Devise means by which the National Government will subsidize the costs of public assistance administration at prefectural and local levels of government.
(9) Provide for the ultimate elimination of the Minsei-iin from any official responsibility in connection with the Daily Life Security and Child Welfare programs and any other welfare programs for which the district welfare offices may be responsible.
(10) Provide a clear separation of the district welfare office from the present prefectural district administrative office.
b. Regional Civil Affairs Teams will be advised of steps contemplated in paragraph 1-a above and asked to participate in and to encourage the prefectural and local units of government in undertaking demonstrations in improve methods and organization of welfare administration involving local units of government (towns and villages) in at least one control center in each Region.
2. Reorganization of City Welfare Administration.
a. The Ministry of Welfare will immediately develop detailed plans by which the following steps with respect to the reorganization of the administration of welfare services by all city governments will be realized by not later than 1 April 1951:
(1) Development of uniform standards and procedures by which city welfare departments will be responsible for the administration of the national welfare programs.
(2) Designation of the prefecture as the responsible supervisory agency over city welfare administration and clear delineation of prefectural authority to exercise and enforce supervisory controls.
(3) Require that all investigation and case work service in connection with programs for which the city department are responsible be performed by city welfare employees selected and appointed in accordance with approved personnel standards.
(4) Provide for the elimination of the Minsei-iin from any official responsibility in connection with the Daily Life Security and Child Welfare programs and any other programs for which the city departments of welfare save responsibility under Law.
(5) Provide for establishment of city welfare councils to serve in and advisory relationship to the administration of welfare within city areas.
(6) Provide degree of "local autonomy" to the cities in the administration of welfare service consistent with sound principles of administration and the intent of the Local Autonomy Law.
(7) Devise means by which the National Government will subsidize the expenses of administration in connection with those programs in which services are subsidized.
b. The Ministry is asked to prepare such amendments to existing legislation as in necessary to carry out the provisions of paragraph 2-a above, including amendments to the Daily Life Security Law, The child Welfare Law, the Local Autonomy Law, and the Welfare Commissioner's Law.
c. The Ministry is asked to notify the Governors and Mayors of the details of its plans developed under paragraph 2-a and b above to develop a time schedule by which the cities can be guided in effectuating reorganization as required by 1 April 1951.
In this connection the following suggestion is offered:
(1) Each prefecture be asked to immediately establish a "demonstration" city to be used as control or model center in which innovations in welfare administration can be tested and demonstrated before general adoption in other cities within the prefecture.
(2) Each Region be asked to establish a Committee of prefectural and city welfare officials to act as an advisory body to the Region, and prefectural and city welfare departments during the demonstration interval and the final effectuation of city wetfare reorganization.
d. Civil Affairs Regions will be advised of Ministry plans in connection with the reorganization of city welfare administration and will be asked to give every possible aid and assistance to both the prefectures and city departments during the interval of demonstration and the final effectuation of reorganization. In this connection it will be suggested to the Civil Affairs Regions that:
(1) The Region select one city welfare department as a control or model center to which Civil Affairs staff might center their primary efforts during the demonstration interval.
3. Ministry Consultant and Field Services.
a. As a prelude to a national system of field services the Ministry will immediately assign general field representatives of the basis of at least one representative to each of the present civil Affairs Regions.
b. The field representatives will be responsible for acting as the senior Ministry representative in each region and will be primarily concerned with liaison duties in connection with Ministry plans outlined in paragraph 1 and 2 above.
4. The Ministry will be asked to review its present regulations and directives with respect to government participation in the organization, management and direction of private national welfare agencies and will take effective steps to enforce the final separation of government from any official participation in such agencies at national, prefectural and local levels of government by not later than 1 August 1950.
5. The Ministry will be asked to invite such interested National Welfare Agencies as it deems desirable and necessary to participate in the drawing up of a national plan for the organization and promotion of coordinating councils on social welfare activities for voluntary compliance by interested national and prefectural welfare agencies and institutions, such plan to be completed and ready for national and local release by not later than 1 August 1950.
6. The Ministry will be asked to have drawn up and ready for implementation by not later than 1 February 1950, a national plan for on-the-job training for paid welfare employees at national, prefectural, city. district and local levels of government.
a. In connection with the Ministry plan, the prefectures will be asked:
(1) To establish a Division on In-service Training.
(2) To appoint a minimum of one full time person in charge of implementing a prefectural plan of in-service training.
(3) To draw up a prefectural plan in service training based on Ministry standards.
b. Region Civil Affairs Teams will be advised of the Ministry's national plan for in-service training, And will be asked to be of every possible aid and assistance to the prefectures in developing and implementing their local plans. In this connection the Regions will be asked to:
(1) Establish a Regional Committee on In-service Training to serve in an advisory relationship to the prefectures in the development of their in-service training Programs.
(2) Select one prefecture in which to center its attention and aid in the development of an in-service training demonstration.
1. The principal question raised by the Ministry was whether the Ministry was to accept the objectives as outlined as a firm statement opposition on the part of SCAP, or whether the objectives, particularly the establishment of a district system of welfare administration, were suggestive only and subject to amendment upon further discussion and study with Ministry officials. The answer given that the objectives represented and firm position of SCAP based on long study and consensus of all American personnel interested in the final phases of welfare implementation. It was pointed out that further discussion would only needlessly delay the important initial planning and early action required of the Ministry. However, no objection was raised to the desire of the Ministry to shortly present a detailed plan by which it believed necessary reforms could be brought about with in the present frame work of local town and village administration.
2. The question as to whether the Welfare Ministry wished to have a PHMJG covering the outline of objectives was raised by the Chief of the Welfare Division and was firmly answered in the negative by the Vice-Minister. It was agreed that the Ministry would undertake the accomplishment of the objectives in the spirit of a mutual undertaking to which both the Ministry and SCAP would direct their fullest energies and resources. The Ministry was assure of the utmost in assistance and guidance to the Ministry field representatives and to the prefectural and local welfare authorities from the Civil Affairs Regions, particularly during the demonstration phases of the prosrams.
1. The Ministry will immediately begin the work necessary for the orderly realization of each of the primary objectives outlined.
2. Mr. Kimura, Mr. Hatakeyama and Mr. Koyama were designated by the Vice-Minister as the persons in the Ministry whom he would hold responsible for the planning and staff work necessary to effectuating the detailed of the objectives, with the latter as the person responsible for coordinating the work of Ministry with SCAP. Mr. Mezker was designated by the Chief, of the Welfare Division as the person responsible for coordinating SCAP's efforts in connection with the programs.
3. Close liaison will be maintained between SCAP and the Ministry throughout the course of planning and execution of the objectives. The 6 point program outlined in objectives will be given top priority by the Ministry and the SCAP add no effort will be spared during the coming year in its realization.
SUPREME COMMANDER FOR THE ALLIED POWERS
Public Health and Welfare Section
29 November 1949
MEMORANDUM FOR RECORD
SUBJECT: Conference with Ministry Officials Regarding
Major Welfare Objectives for 1950-51
1. Reference is made to M/R dtd 22 Nov 49, subj: Major Welfare Objectives 1950-51, outlining a calendar of major objectives by which the Welfare Ministry would be asked to schedule its efforts in effectuating the further implementation of the national welfare program in Japan.
2. Subject conference above date was for the purpose of outlining to the Welfare Ministry objectives covered in reference M/R, papa 1 above. Present at conference were Mr. Kasai, Vice Minister, Mr. Kimura, Chief Social Affairs Bureau, Mr. Kojima, Chief Children's Bureau, Mr. Koyama, section Chief, Mr. Hatakenaka, Section Chief, Mr. Kuroki, Section Chief, Mr. Saito, Mr. Neff, Mr. Markuson and Mr. Matsker.
3. Objectives outlined are summarized as follows: (Details of the implementation of the objectives as discussed with the Ministry are included in the attached Minutes of the Meeting.)
a. Ministry Will immediately develope detailed plans for the establishment of a universal system of District Welfare Administration, the full realization of which is to be accomplished by not later than 1 April 1950.
b. Ministry will immediately develope detailed plans by which the reorganization of the administration of welfare services by all city governments Will be accomplished by not later than 1 April 1951.
c. As an initiation of a national system of field services, the Ministry will immediately assign general field representatives on the basis of at least one representative to each of the areas presently contained in Civil Affairs Regions.
d. The Ministry will review present regulations and directives with respect to government Participation in the organization, management and direction of private national welfare agencies and will take effective steps to enforce the final separation of government from any official participation in the internal business and management of such agencies at national, prefectural and local levels of government by not later than 1 August 1950.
e. The Ministry will invite such interested national welfare agencies as it deems desirable and necessary to participate in the formalization of a national plan for the opganization and promotion of coordinating councils on social welfare activities for voluntary compliance by interested national, prefectural and local welfare agencies and institutions, such plan to be completed and ready for national and local release by not later than 1 August 1950.
f. The Ministry will draw up and have ready for implementation by not later than 1 February 1950, a national plan for on-the-job training for paid welfare employees at national, prefectural, city, district and local levels of government.
4. While the Vice Minister and others of the Ministry officials had many questions to ask in the course of the discussion, there was general acceptance in the end that the objectives were realistic and in the best interests of the welfare program as a whole. Mr. Kasai indicated that the Ministry did not wish a PHMJG covering the objectives but desired to undertake their accomplishment as a mutual project between the Ministry and SCAP. Mr. Kasai asked for and was promised the fullest assistance in the way of council and advice in undertaking the details of the several objectives. Mr. Kimura, Mr. Hatakenaka and Mr. Koyama were designated by Mr. Kasai as the persons in the Ministry whom he would hold responsible for the planning and staff work necessary in effectuating the details of the objectives, with the latter as the person responsible for coordinating the work within the Ministry.
5. Details of the objectives, summarized in para 3 above, discussed with the Ministry are included in attachment, Minutes of Meeting. A copy of the Minutes has been handed the Ministry for its further study and information.
THOMAS L. METSKER
& Organization Branch