灾害期间保护就业和就业：日本就业保险制度的经验教训

DISCUSSION PAPER No. 2629 | MAY 2026 Protecting Jobs andEmployment during Disasters:Lessons from EmploymentInsurance System in Japan Yasuhiro KawasoeMasaru SasakiSayuri NakamuraSarah Coll-Black Series Description The Social Policy and Labor Discussion Paper series presents analysis and research that informs policy dialogue andoperational practice across social protection, social development, and labor markets. Social Protection: the collection covers the full lifecycle of Social Assistance, Social Insurance, Care, and SocialServices. Labor: the collection covers Active and Passive Labor Market Programs, Training and Skills Development, YouthEmployment, Economic Inclusion, and International Labor Mobility and Migration. SocialDevelopment:the collection covers Community and Local Development,Inclusion,Cohesion,ForcedDisplacement, Gender, and Human Rights. Across all areas, the series highlights cross-cutting issues such as Climate Change, Fragility and Conflict, andResilience. Copyright © 2026 International Bank for Reconstruction and Development / The World Bank 1818 H Street NW,Washington DC 20433 Telephone: +1 (202) 473 1000; Internet: www.worldbank.org. This work is a product of the staff of The World Bank with external contributions. The findings,interpretations, and conclusions expressed in this work do not necessarily reflect the views of TheWorld Bank, its Board of Executive Directors, or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries,colors, denominations, and other information shown on any map in this work do not imply anyjudgment on the part of The World Bank concerning the legal status of any territory or theendorsement or acceptance of such boundaries. RIGHTS AND PERMISSIONS The material in this work is subject to copyright. Because The World Bank encourages dissemination ofits knowledge, this work may be reproduced, in whole or in part, for noncommercial purposes as longas full attribution to this work is given. Any queries on rights and licenses, including subsidiary rights, should be addressed to World BankPublications, The World Bank Group, 1818 H Street NW, Washington, DC 20433, USA; fax: +1 (202) 5222625; e-mail: pubrights@worldbank.org. Protecting Jobs and Employment during Disasters: Lessons from Employment Insurance System in Japan Yasuhiro Kawasoe1, Masaru Sasaki2, Sayuri Nakamura2, Sarah Coll-Black1 Abstract This paper examines how Japan's employment insurance system adapts to protect jobs and supportworkers during disasters, offering insights into the design of adaptive social protection systems. Theanalysis is set against the backdrop of an increasing frequency of disasters and the need for socialprotectionresponses to crises to go beyond thetraditional use of social assistance. Japan's multi-layered social protection framework uses employment insurance as a primary defenseto protectpeople from criseswith a dual support mechanism: unemployment benefits (basic allowance) fordisplaced workers and employment adjustment subsidies to help employers retain staff during crises.A case study of the 2011 Great East Japan Earthquake illustrates the system's effectiveness. About 51%of the unemployed in the three most affected prefectures received basic allowance benefits.Meanwhile, the Employment Adjustment Subsidies program prevented an estimated 300,000 to400,000 job losses, demonstrating the critical valueof job retention mechanisms. The paper concludeswith actionable recommendations for other countries: First, embed flexibility into legal frameworksfor rapid crisis response. Second, build strong, coordinated administrative networks. Third, designinclusive programs for vulnerable workers. Fourth, ensure sustainable financing through contributoryschemes with government backstops.Japan's experience demonstrates that a well-designed socialinsurance system can enhancethe foundation of disaster resilience. JEL codes: H55, E24, J65, H84, Q54 Keywords:Adaptive Social Protection, Disaster Risk Management,Unemployment Insurance, JobRetention,Natural Hazard,Climate Adaptation 1.Introduction The world is experiencing an unprecedented increase in disasters,fueledby climate change and thegrowing likelihoodof compound events. Over the past five decades, the number of recorded disastershas increased fivefold, with the pace accelerating alarmingly (United Nations Office for Disaster RiskReduction, 2023). The poorest nations are hit hardest, experiencing nearly eight times more naturaldisasters in the last decade than three decades ago, resulting in triple the economic damage(WorldBank, 2023). Extreme eventscause$520 billion to global annual consumptionloss each year and pushapproximately 26 million people into poverty(Bangalore, Hallegatte, Rozenberg, & Vogt-Schilb, 2016). Disasters do not solely target the chronically poor; they also threaten the livelihoods of millionsvulnerable to sudden job and inc