Introduction

It has long been noted that public policy in Japan is ad hoc in nature, unsystematic and inconsistent. Why has this situation persisted for so long? Much debate has already been devoted to this very question. Causes that have often been cited include the existence of vertical divisions in hierarchical administrative organisations and the inability by the ruling cabinets and political parties to integrate those divisions.

Of course, these observations are, for the most part, valid. In addition to such factors, however, I identify deficiencies of policy analysis, particularly of analyses involving values and norms. In reality, a single policy is formed through a complex interaction among many factors: an array of laws, codes, governmental and ministerial ordinances, notices, much administrative work, budgets, and a host of administrative organisations involved in the policy's implementation. Unless these elements are integrated to realise a specific goal, it is difficult to achieve that goal effectively. To accomplish this kind of integration, it is necessary to clarify the values and norms that form the rationale for that policy. In my view, the absence of such analysis has contributed to the inconsistent nature of policy in Japan.

As an example, I take up social security policies and confirm that they are deficient in terms of consistency, and explore the factors behind that deficiency.

The state and characteristics of social security policies in Japan

To begin with, I present an overview of Japan's social security policies, and go on to discuss whether they can be characterised as truly inconsistent, and, if so, in what sense.

History and the present

As is the case with many developed nations, poverty relief policies in Japan were first put in place in the late 19th century in response to the swelling numbers of the poor associated with the expansion of the market economy, industrialisation and urbanisation. The government's stance was consistently that the burden of providing assistance to the needy should be shouldered by their families and their local communities. However, to deal with frequent serious economic recessions and the ensuing social unrest, the government began to devise new measures.