TB - PH - WEL 7 
MINSEI-IIN 
PUBLIC HEALTH AND WELFARE TECHNICAL BULLETIN 
PM GHQ' SCAP APO 500 
November 1947 
1• The Minsei-iin System 
The Minsei-iin are an important part of the welfare adminis- 
trative organization in Japan, • Any consideration of the present 
public welfare program in Japan and advisable future developments 
must therefore, include a thorough understanding of the functions 
and responsibilities of the Minsei-iin for they have been and are 
an integral part of Japanese welfare programs. Minsei-iin are 
volunteer welfare workers selected by the prefectural governors 
from among qualified persons of the prefecture and given official 
status and responsibilities for welfare work in a designated dis- 
trict, Prior to September 194-6, when the Daily Life Security 
Law (Seikatsu Hogoho) was adopted, the Minsei-iin were known as 
Homen-iin, Although the name was changed and responsibilities 
greatly increased under the new program the system of relying 
largely upon official volunteer workers remains fundamentally 
the same. 
The basic idea of the Minsei-iin plan is the appointment of 
a designated official for a particular area, who is responsible 
for ascertaining that aid is provided to needy families. One 
reason the former name of Homen-iin was abandoned, was that the 
term had become associated with, the idea of charity and an effort 
was made to avoid the stigma which was sometimes attached to the 
granting of assistance by the Homen-iin, The fact, that after 
the termination of the war, there were a large number of re- 
patriates, demobilized soldiers and other "war sufferers” who 
found it necessary for the first time to receive public aid, 
made it more advisable to lessen the stigma which was formerly 
attached to the recipient of public aid. With the change in 
name the responsibilities of the Minsei-iin were clarified; they 
are official representatives of the government to provide assist- 
ance to persons in need. The new program calls for the establish- 
ment of social security and social welfare, in the broad sense, 
and to develop the idea of the use of public aid as a means of 
reestablishing those persons who through no individual fault have 
become destitute, (See; Guide to Duties of Minsei-iin, Ministry 
of Welfare Instructions No* 17. Incl* 3 to this bulletin). The fact that Minsei-iin have official status and represent 
the government is a characteristic which distinguishes Minsei-iin 
from other volunteer welfare, workers. Minsei-iin are .volunteers 
in that they are not paid a salary for their work. A basic idea 
in the former Homen-iin plan Was that in each community an out- 
standing citizen would be selected who because of his standing in 
the community and philanthropic nature would assume responsibility 
for being certain that any needy person in the district would be 
provided for. 
Article 23 of the Daily Life Security Law provides: that ex- 
penses of the Minsei-iin shall be borne by the city, town or 
village. The amount of expenses paid depends- upon the policy 
adopted by the particular locality and is not'uniform, Althouga 
Minsei-iin are not paid a salary they, are allowed, under present 
regulations, the sum of two hundred"(200) yen per year, one-half 
of which Is paid by the national government.and the remainder by 
the local government. There have been efforts to. increase, this, 
allowance, but to date, no action has been taken on the proposal. 
One difficulty of the present allowance system lies in the fact' 
that the inactive Minsei-iin who does nothing receives the same 
allowance as- the hard working Minsei-iin# 
2, Tjynslation of Terms 
The . terms Minsei-iin and Homen-iin ..present difficulties in 
translation* Since the terms may be and are translated in several 
different ways and because.the English terminology is not par- 
ticularly descriptive, in this bulletin the Japanese .terms Minsei- 
iin and .Homen-iin are used* The term Minsei-iin is frequently 
translated as '. elfare Worker but a literal translation would be. 
Peoples Life Representative (rain - people5 sei - life5 'iin - 
representative)5 another translation is Committeeman or 
member of the Welfare , Committee, The older term, Homen-iin,. is 
translated as Block or District Welfare Representative or Com- 
mitteeman. This term was used to-convey.the-idea .that the indi- 
vidual Komen-iin was responsible for providing aid to needy 
families living within a designated area.. Because of the confusion 
in translating the terms it' is preferable to use the Japanese...term 
Minsei-iin or Homen-iin. ’• . 
Other terms used in connection with the,. Minsei-iin system, 
are frequently translated in different ways,*. Some of the more, 
important terms and the translation used in this bulletin are;. 
Minsei-iin Kai - .Welfare Committee5 Minsei-iin .Suisen-.iin Kai - 
Minsei-iin Nomination Committee (-sometimes translated -as ‘ "recom- 
mendation" committee)5 Minsei-iin Sonko-iin. Kai - Minsei-iin. 
Selection Shonen, Kyog-o-iin - Juvenile lielinquency 
Worker (or Juvenile .Reformation Committee’) | Minsei-iin , Kan - 
•■'elfare Hall or Zen-Nihon Minsei-iin Ronmei -• All Japan 
Minsei-iin Federation5 Minsei-iin Jimusho - Welfare Office. 
2 3. History 
Having been established about thirty years ago, the Homen- 
iin system in Japan is relatively old. Immediately preceding 
the formation of the Homon-iin plan there was created in Okayama 
Prefecture a welfare plan called Saisei Komon, in 191? (6th year 
of Taisho) which resulted from an inquiry made by Emperor Taisho 
concerning the needy people in that prefecture. The Homen-iin 
plan, as such, began in Osaka a few years later as a result of 
the interest of the prefectural governor. It is to be noted this 
development took place in Japan during and following the first 
Horld War which was a period of industrial expansion in the country. 
The formation of such an organization was also probably hastened 
by the rice riots which occurred in 1918 and 1919 as a result of 
poor crops. 
In many ways the Homen-iin system is similar to other com- 
munity organization schemes which previously existed in Japan, 
For example, during the Tokugawa period there existed what was 
called the Gonin-gumi or five family association. Under this plan 
each family in a group of five was responsible to a certain extent 
for the welfare of the other families in the group. As far as can 
be determined, however, there was no direct connection between 
these former organizations and the creation of the Homen-iin system. 
Development of this type of volunteer welfare administration in 
Japan was influenced by study of the plans of other countries of 
the world. There are similarities between the Homen-iin plan and 
such schemes as the Ebcrfeld system of Germany, the so-called Chal- 
mers plan of England and the Saint Vincent de Paul plan which 
originated in France, It is also interesting to compare the Homen- 
iin system to the use of township supervisors of the poor to ad- 
minister the poor relief laws in the United States, That Japan 
utilized the experiences of other countries in the field of welfare 
administration is indicated by the research and publications of a 
Mr, S, Ogawa who studied other countries and influenced the develop- 
ment of the Homen-iin program in Japan, 
During the war years the Homon-iin wore influenced by the 
Tonari-gumi (Neighborhood Association) but were not officially 
under the control of that organization. Both, however, were 
organized on the block system, and there was at least one Homen- 
iin for each chokai (block). Persons in the block who needed 
assistance were frequently referred by the Tonari-gumi to the 
Homen-iin for official action. The Tonari-gumi system in Japan 
was dissolved in 1947. Analysis of the previous experience of 
persons now serving as Minsel-iin indicates that many of them in 
some localities have at some time in the past served as Chokaicho 
(Chief of Block) when the Tonari-gumi system was in operation. 
4• Responsibilities 
The primary responsibility of the Minsci-iin is the adminis- tration of the Daily Life Security Law (Seikatsu Hogoho), the 
duties being set forth in Imperial Ordinance 426, dated 12 Septem- 
ber 1946 and related Ministry of Welfare Ordinances. It is pro- 
vided by Article 5 of the Daily Life Security Law that the Hotnen- 
iin,.. now Minsei-iin, shall; assist ,’ as determined by ordinance, the 
mayor of a city, town or village in discharging the duties con- 
cerning the business of protection. Under this law (Article 10) 
the kinds of protection to be provided includes.* (1) assistance 
for livelihood - public assistance, both indoor and outdoor5 (2) 
medical treatment; (3) birth aid; (4) occupation aid; and (5) 
funeral aid. , The most .extensive program for which the Minsei-iin 
are 'responsible under the Daily Life Security Law is, of course, 
the public assistance program (assistance for livelihood). 
In addition to their duties under the Daily Life Security 
Law the Kinsei-iin usually have responsibilities in connection 
with child welfare programs. The enforcement ordinance of the 
Juvenile Reformation Act (Shonen .Kyogoho) provides that the "Mem- 
bers of the Juvenile Reformation Committee (Shonen Kyogo-iin) shall 
be concurrently Minsei-iin.11 (See, Supplementary Provisions, 
Minsei-iin Ordinance, Incl. 1 to this bulletin). Authority is 
also granted' for the appointment of Juvenile’Delinquency Workers 
(Kyogo-iin) who are not ; insei-.iin. Although the Minsei-iin have 
been assigned .responsibilities for juvenile delinquency work, many 
of them apparently are not aware of their responsibilities. It is 
expected that with the inauguration of the new Child Welfare Law 
the. responsibilities of . the Minsel-lin will be more carefully de- 
fined . 
although not specifically directed by statute or ordinance 
the Uinsei-iin also participate in the administration of the Tuber- 
culosis Prevention Law, arid the Mental' Patient Nursing Law (Kango- 
ho), National responsibility .for administering these laws is in 
the Medical Affairs Bureau (Imu Kyoku) of the Ministry of Welfare. 
The Minsei-iin are frequently aware of persons in the community 
who should be receiving the benefits of these laws and take action 
to see that they are referred to the proper institution. Enforce- 
ment of the Vagrancy Statute which provides for sick and deceased 
vagrants (Koryo Eyonin oyabi Koryo Shibonin Toriatsukai-ho) also 
becomes, a responsibility.’of the'Minsei-iin. ’ As a part of their 
general duties the .-Minsei-iin are responsible for not only aiding 
tuberculosis and mental patients, and -vagrants, but also those 
persons effected,.by special statutes.concerning trachoma, leprosy, 
venoral disease, -social insurances, pawnshops and related welfare 
laws. 
A * , 
.When the functions of the M.insel-iin were revised in 19.46 
and the name changed .from Eomen-iin to Minsei-.iin, a number of new 
regulations and ordinances were. Issued controlling their work, 
vizi The Minsei-iin Ordinance, Imperial Ordinance 426, dated 
12 September 1946; Order Number 41, Ministry of "'elfare., dated 
27 September 1946; and Ministry of Welfare Instructions No, 17, 
dated 18 November 1946. * Translations of these directives are 
attached as enclosures to this bulletin. The purpose of these 
4 changes was to develop welfare committees and group action on the 
part of the Minsei-iin and to encourage the study of causes of 
economic dependency. This advisory function of the Minsei-iin 
is expanding and in many ways is similar to the advisory welfare 
hoards which are a part of welfare administration in the United 
States. 
Since the Minsei-iin is responsible for a specific area, the 
number of families needing welfare services varies for each Minsei- 
iin. In areas of low economic standards the number of families 
assisted ma3' be as high as twenty (20). Frequently there are no 
families, in the area of the Minsei-iin, who will be receiving 
public assistance or other welfare services. Generally, however, 
it is the policy that one Minsei-iin should be responsible for 
ton to twenty families (See, Instructions No. 705, Social Affairs 
Bureau, Ministry of Welfare, dated 19 Sept 1946). Much of the 
work of the Minsei-iin is supposed to be with families who are not 
receiving benefits under the Daily Life Security Law but are being 
aided by the Minsei-iin in other ways. 
5• Selection; appodntmont and _removal 
The procedure to be followed for the selection and appoint- 
ment of Minsei-iin is set forth in Order No, 41 Ministry of Wel- 
fare, dated 27 September 1946. The Minsei-iin Nomination Com- 
mittee (Minsei-iin Suiscn-iin Kai) is responsible for submitting 
names of possible Minsei-iin to tin prefecture Minsei-iin Selec- 
tion Committee (Minsei-iin Senko-iin Kai). There is one Minsei- 
iin Nomination Committee for each city, town and village appointed 
by the head, and one Minsei-iin Selection Committee for the pre- 
fecture appointed by the Governor. After approval by the Prefec- 
ture Governor the names arc submitted to the Ministry of Welfare 
which issues a certificate to the newly appointed Minsei-iin. In 
actual practice the Governor recommends to the Ministry of Wel- 
fare, in accordance with Article 4 of Order No. 41, the names 
approved by the Minsei-iin Selection Committee. The Ministry 
automatically commissions those persons who have been approved by 
the prefecture governor. Under this procedure it is obvious that 
decisions are actually made by the Minsei-iin Selection Committee. 
Instructions have been issued by the Ministry of Y/clfare en- 
couraging the’removal of Minsei-iin who do not accept their respon- 
sibilities. Among those to be removed are the Minsei-iin who do 
not attend meetings, those who are morally unfit5 and those who 
are physically unable to perform their duties. It is provided in 
Article 5 of the Minsei-iin Ordinance that Minsei-iin may be re- 
moved for "special reasons" before the expiration o'f their two 
year term but this provision has been rarely used. Minsei-iin 
are removed by the Ministry of Welfare only when proper recom- 
mendations are received from the prefecture governor. An effort 
is made to encourage Minsei-iin who'are not able to perform their 
duties to submit their resignations so that formal removal action 
will not bo necessary. 6, Who., are Minsei-iin? 
A definite effort to reorganize and strengthen the Minsei- 
iin system3 has resulted in an increase in the number of Hinsei;- 
iin and the employment of many persons who have had no previous 
experience in this type of work. The total number of Minsei-iin 
in a particular prefecture is determined by the prefecture govern- 
ment, and not by the national government. In determining the number 
of Minsei-iin needed in a prefecture, consideration is given.to 
population, area and other factors such as the number of cities, 
towns and villages. The number of Minsei-iin presently authorized 
for the prefectures is set forth in Incl. 4 to this bulletin. A 
rather thorough study of the persons who are Minsei-iin was made 
as of 31 December 1946, 'when, the total number of Minsei-iin in 
Japan was about 123,000. Tabulations were made to determine sex, 
formal education, age, occupation, and previous experience as 
Homen-lin. This study indicates that they are for the most part 
elderly persons and only,a small percentage of them are women. 
While increasing the total,number of Minsei-iin, an effort 
has been made to secure more women to do the work. For* the nation 
as a whole, about ten percent of all the Minsei-iin are women. 
Analysis of formal education indicates that 60$ of the Minsei-iin 
have primary school education, 30$ are graduates of middle school, 
while about 10$ are college and. University graduates. Analysis of 
age of Minsei-iin indicates that they are older persons usually; 
36$ of the total are in the 50 to 59i 315 are'from 40 
to 49, 1?5 are from 60 to 691 1$ are seventy years of age or older. 
This means that only 15$ of the total are under the age of forty. 
Analysis of the occupations of Minsei-iin indicates that about 
50$ hold some other public office in addition to acting as Minsei- 
iin although public office may not be the primary occupation. 
Many of the Minsei-iin. are members of prefecture, city,, town, and 
village assemblies or officials of towns and villages. About one- 
half of the Minsei-iin report that farming is their primary occupa- 
tion, while ten percent (10$) are merchants. The remaining Minsei- 
iin are divided among other occupations. Various reports sub- 
mitted show that less than one-third, about 30$ of the present 
Minsei-iin have had previous experience as Homen-iin. 
•7. Organization of Minsei-iin 
a, Local Organizations In reviewing the organization of 
the Minsei-iin it" is advisable to distinguish between those groups 
which are required and other organizations which are voluntary. 
The formation of Welfare Committees (Minsei-iin Kai) is required 
by the Minsei-iin Ordinance.; In each town (machi) and village 
(mura) there is one'such committee for the entire area. Each town 
and village is also required to have a Minsei-iin Nomination Com- 
mittee (Minsei-iin Suisen-iin Kai). The cities are divided into 
districts and there is a Welfare Committee for each district. Although not required-,by law or ordinance there is usually a dis- 
trict (gun) organization of MjLnsel-iin which includes all Minsei- 
iin of the villages' and towns in the district (gun). Similarly 
there is an organization of Minsei-iin in each city (shi). All of 
these city and district, organizations of Minsei-iin are in turn a 
part of the prefecture Minsei-iin organization. The Minsei-iin 
Selection Committee (Minsei-iin Senko-iin Kai), which has been 
mentioned previously, is a prefecture committee and is required 
by the Minsei-iin Ordinance. 
b, Nationals It was not until about 1930 that organiza- 
tions of Homen-iin* were formed. Previously there had been national 
meetings in Tokyo of Komen-iin. In February 1930, a Homen-iin 
League was organized in Nagoya. The National Diet in Japan had 
passed a Poor Relief Law (Kyugo-ho) in 1929 (Law No. 39, 2 April 
1929) but no aid was provided under its provisions because of the 
lack of appropriations. The Komen-iin who were officially respon- 
sible for providing aid to destitute persons became concerned about 
the increasing number of needy persons. Consequently, in December 
19317 when a national meeting of Homen-iin was held in Tokyo, a 
petition was filed with the Minister of Home Affairs requesting 
that action be taken to relievo the increasing number'of destitute 
persons. A resolution was also adopted recommending the formation 
of a national federation of Homen-iin. As a result of the interest 
and activities of this group of persons appropriations were made 
available and payments were made under the provisions of the Poor 
Relief Law. 
Also as a result of this activity the All Japan Homen-iin 
Federation (Zen-Nihon Homen-iin Ronmei) was organized in 1932 and 
continues to operate. In 194-6 the Federation was reorganized and 
adopted its-present name of Zon-Nihon Minsei-iin Retimei-. (Note: 
the word Renmoi is translated as League as well as Federation). 
8. The All -Japan Minseir-lin Federation 
a. Purpose; The All Japan Minsei-iin Federation (Zen- 
Nihon Mins.ei-iin Renmei) is a national organization of all Minsei- 
iin in Japan for the purpose of coordinating the work of individual 
members; the exchange of ideas between members'; to promote' "the 
welfare spirit;” and to stimulate interest in the development of 
welfare work. The■Federation is organized independently of the 
Ministry of Welfare but works closely with the Japanese government 
on both the national and profoctural level. In addition to the 
national organization of Minsei-iin, there is a prefectUral associa- 
tion in each prefecture, and a Welfare Committee (Minsei-iin Kai) 
"in each city, town and village. The local committees are required 
by the Minsei-iin Ordinance but there are no government regulations 
requiring or controlling the prefecture and’national organizations. 
bv National Organization: The national organization of the 
Minsei-iin consists of“a Board of Directors of twenty-three (23) 
7 persons selected by 167 delegates from all parts of'Japan. These 
I67 delegates are selected on the basis of one delegate for every 
1000 Minsei-iin or fraction thereof, ' Thirteen of the twenty-three 
(23) board members are selected from seven districts; ond from 
Shikoku and two each from’the six other districts of Tohoku, Kanto, 
Tdkai-Hokuriku, Chugoku, Kinki’and Kyushu. The other ten members 
of the board represent the Welfare Ministry (4), the Japanese Red 
Cross (1), Dobo Engo Kai (1), Japan Social Work Association (1) 
and the general public (3). ■ 7 
The work-of the national office” is carried ■ out through three 
bureaus; ■. (1) General Affairs (Gomu-bu) responsible for research 
•and- accounts; (2) Business (Gyomu-bu) responsible for public re- 
lations and educational programs; (3) Welfare (Fukushi-bu) respon- 
sible for vocational guidance and related programs. The national 
office of the Minsei-iin Renmei consists of thirty-five (35) em- 
ployees, about ten of whom spend much of their time working with 
the prefecture associations of Minsei-iin and attending local con- 
ferences. T'he national office of the Federation is located in the 
Salvation Army building 17, 2 Chome, Jinbo-cho, Chiyoda-Ku, Tokyo, 
c. Finances;’ The- finances of the Federation are secured 
from membership fees (¥20 per year), estimated at ¥2,800,000 for 
the current year; payments from the Ministry of Welfare for speci- 
fied services, estimated at ¥3,506,000; and miscellaneous income 
estimated at ¥2,000,000. In 22 of the largest cities of Japan, 
including the ubig 6" cities, the Ministry of Welfare pays for the 
operation of the Minsei-iin offices. These offices have represen- 
tatives for other welfare programs in addition to the administra- 
tion of»the Daily Life Security Law,' During the. current fiscal 
year it is estimated that 7,430,000 yen will be expended for train- 
ing Minsei-iin; 1,330,000 yen for office management. 
d, Prefecture! Organization; In addition to’the National 
office the Minsei-iin Federation usually has -one employee located 
in each prefecture to handle the work of the local association. 
Although the office of the local representative is usually in the 
prefecture office (Kencho) he is directly under the control of the 
National Federation, and not the prefecture government. Usually 
the prefecture organization is known as the ken Minsei-iin Rehmei 
but various names are used; for example, the local orgqnization 
in Tokyo is the Tokyo-To Minsei-iin Rengokai. 
e, Loca1 Organization; . There Is a Welfare Committee’ 
(Minsei-iih Kai) in- each town (me.chi) and village -(mura) and 
several associations in each of the cities (shi) ,' The organiza- 
tion of Welfare Committees (Minsei-iin Kai) 'is required by Article 
9 of the Minsei-iin Ordinance, Each district is required to have 
a Welfare Committee. The governor decides the districts after 
securing the opinion of ’the mayor of the city, town or village. 
In cities (shi) the district is usually the same as the school 
districts into which the city is divided. In the tovms (Machi) 
and villages (mura) the entire area of the town or village is con- sidorcd as one district and therefor there is a single Minsei-iin 
Kai. These committees (kai) which are local organizations of the 
prefecture association hold conferences and lecture meetings which 
are attended by Minsei-iin* 
Each Welfare Committee has a representative (Jomu-iin) who 
attends central meetings and takes back new information to his own 
association. At least once a year there is a general meeting of 
all Minsei-iin of the prefecture. Such meetings usually last one 
day. It is by means of these meetings that an attempt is made to 
provide Minsei-iin with information concerning their duties and to 
encourage them to discharge their responsibilities in an acceptable 
manner. 
f. Publicationsi The Minsei-iin Renmei publishes a monthly 
magazine, Welfare Times Report (Minsei Jiho) a copy of which is now 
sent to each Minsei-iin, The association also publishes a notebook 
(Minsei-iin Techo) for the use of each Minsei-iin. Plans are being 
developed to publish a yearbook, a collection of illustrative wel-> 
fare cases and various handbooks on certain aspects of social wel- 
fare such as case work and vocational guidance. The shortage of 
paper has prevented the carrying out of publication plans. In 
addition to publications of the national office of the Minsei-iin 
Federation, many prefecture Minsei-iin Associations issue periodi- 
cals containing information which is of primary interest to the 
Minsei-iin of that prefecture, 
4 Incls: a/s I hereby give my Sanction to the Imperial Ordinance con- 
cerning the Minsei-iin and cause the same to he promulgated. 
Signed? IIIROHITO, Seal of the Emperor 
This twelfth day of the ninth month of twenty-first year 
of Shawa (September 12, 194-6) 
Countersigned; 
Prime Ministers YOSHIDA Shigeru 
Minister of Welfares KAWAI Yoshinari 
IMPERIAL ORDINANCE NO. 426 
Minsei-iin Ordinance 
Art* 1* Minsei-iin shall be engaged in the work of pro- 
tection and guidance, with the spirit of benevolence, for the 
promotion of social welfare. 
Art. 2. Minsei-iin shall be established in the district 
of a city (where there are wards in the Metropolis of Tokyo, 
the district shall mean the district of a ward 5 the same shall 
apply hereinafter), town or village. 
Art. 3« The number of Minsei-iin shall be determined by 
the Prefectural Governor for each district of cities, towns 
and villages, after securing the opinion of the headman of the 
city, town or village concerned (where there are wards in the 
Metropolis of Tokyo, the headman shall mean the headman of a 
ward). 
Art. 4. Minsei-iin shall be commissioned by the Minister 
of Y/elfare, upon recommendation of the Prefectural Governor. 
As provided in the preceding paragraph, the prefectural 
governor shall recommend those persons whose names were sub- 
mitted by the Minsei-iin Nomination Committee (Minsei-iin 
Suisen-iin Kai) in each city, town and village after the opinion 
of the Minsei-iin Selection Committee (Minsei-iin Senko-iin Kai) 
of the prefecture has been secured. 
The respective organization of the Minsei-iin Nomination 
Committee and the Minsei-iin Selection Committee which are 
provided for in the preceding paragraph, shall be decided by 
the Minister of Welfare, 
Art. 5, Minsei-iin shall be honorary appointments, their 
tenure of office shall be for two years, provided that, if 
there is any special reason, the Minsei-iin may be relieved 
even during the tenure of office. 
Incl. 1, Art. 6, Minsei-iin shall perform their functions in dis- 
tricts to which they are assigned and handle other specific 
matters assigned in the district of the city,'town or village. 
Art-. 7. The functions of the Minsei-iin shall he as fol- 
lows ; - ■ ' 
1. ,To make investigation into the condition of life. 
2. To give proper protection and guidance to those 
who need protection. 
3. To. keep close contact with social institutions, 
and to aid the functions thereof. 
Minsei-iin shall, in addition to the functions provided in 
the preceding'paragraph, give guidance of life, in compliance 
with necessity. 
Art* 8. Minsei-iin shall he under the command and super- 
vision of the Prefectural Governor in the matter of their func- 
tions. 
Art, 9. Minsei-iin shall organize a Welfare. Committee 
(Minsei-iin Kai) in every district which the Prefectural 
Governor shall decide,: after securing the opinion, of the head- 
man of the city, town or village concerned (where*there are 
wards in the Metropolis of Tokyo, the headman shall mean the 
headman of a ward). • 
In deciding the district in which the Welfare1 Committee 
(Minsei-iin Kai) shall he organized, *as provided in the preced- 
ing paragraph, the city area shall be divided into- several dis- 
tricts, but- the entire town or village shall be a district, 
except where any special circumstances exist. 
Art, 10. The Prefectural Governor may, if he thinks it 
necessary, cause the headman of the city, town or village con- 
cerned (where there are'wards in the Metropolis of Tokyo, and 
in the cities of Kyoto, Osaka, Yokohama, Kobe and Nagoya, the 
headman shall mean the headman of a ward 5 and the same shall 
apply hereinafter) and other proper persons to join the organi- 
zation of Welfare Committee (Minsei-iin-Kai). I 
The headman of the city, town or village concerned, or a 
person so authorized by the -said headman may attend the’Wel- 
fare Committee (Minsei-iin-Kai) and state his opinion. 
Art. 11. 'The duties of the Welfare Committee (Minsei-iin- 
Kai) shall be as follows; 
1. To decide the district or the matters in charge 
of the Minsei-iin.' , 
2* To coordinate and control the functions of the 
Minsei-iin. ■ 
2 3. To collect .necessary data and information. 
4. To caus§ the Minsei-iin to mutually encourage one 
another and to study and cultivate their functions. 
5. To deal with any other matters necessary for the 
performance of the functions by the Minsei-iin. 
The Welfare Committee (Minsei-iin-Kai) may submit to the 
various governmental authorities concerned such opinions as 
considered necessary concerning the functions of the Minsei-iin, 
Art. 12, The headman of the city, town or village con- 
cerned may give the Minsei-iin such directions as necessary in 
respect to their functions. 
Art, 13. The expenses (office) for the Minsei-iin, the 
Minsei-iin Nomination Committee, the Minsei-iin Selection Com- 
mittee and the Welfare Committee (Minsei-iin-Kai) itself shall 
be borne by the Metropolis, Hokkaido and Prefectures, 
Art, 14, Provisions of the present Imperial Ordinance 
concerning a town or village shall be applied to what corres- 
ponds to a town or village, where the town and village systeml 
has not as yet been established, and the provisions concerning 
the headman of a town or village shall be applicable to a person 
who corresponds to the headman of a town or village. 
Supplementary Provisions; 
The present Imperial Ordinance shall come into force as 
from the date of enforcement of the Daily Life Security Act, 
The Homen-iin Ordinance shall be repealed. 
Those who actually hold the posts of Homen-iin at the time 
of the enforcement of the present Imperial Ordinance shall be 
deemed to have been commissioned to be Minsei-iin, provided 
that their tenure of office shall be for two months from the day 
of the enforcement of the present Imperial Ordinance, 
Even in the case of the last paragraph, the application 
of the proviso of Article 5 shall not be prevented. 
A part of the Enforcement Ordinance of the Juvenile Re- 
formation act OShonen Hogo-ho) shall be amended as follows; 
Para. 1 and Para, 2 of Article 9? shall be amended to read 
as the following. 
The members of the Juvenile Reformation Committee (Shonen 
Kyogo-iin) shall be concurrently held by the Minsei-iin, In addition to those as provided in the preceding para- 
graph, the Prefecture!-Governor may, if he thinks it necessary, 
appoint,additional Shonen Kyogo-iin* 
Appointment7as Shonen. Kyogo-ri in shall he honorary* 
The tenure of office of the Juvenile Reformation Com- 
mittee (Shonen Kyogp-iin) selected under the provisions of 
paragraph 2 shall he for two-years, provided that, if there is 
any special reason,■they may he relieved even during the tenure 
of office* 
4 Ministerial Ordinance, Order No,, 4-1, Ministry of Welfare, 
The Organization of the Minsei-iin.Nomination Committee 
and the Minsei-iin Selection Committee 
27 September 194-6 J. Kawai, Minister of Welfa. 
Art, 1. The Minsei-iin Nomination' Committee, required by 
paragraph 3 t>f Article 4 of the Minsei-iin Ordinance (No* 4-26 
of 194-6), shall be composed of several nfetnbeVs, one of whom is 
to be chairman of the committee. 
Art, 2. The members of the Minsei-iin Nomination Com- 
mittee shall be appointed by the headman of the city, town or 
village (within a ward of Tokyo-to, the headman is the Governor 
of Tokyo-to). The chairman of the committee shall be elected by 
vote of the committee. 
Art. 3. The office of chairman and membership in the Minsei- 
iin Nomination Sommittee is honorary5 the terra of office is two 
years, provided that because of special reasons they may be re- 
elected or released from office during the term. In case of 
reelection or release, the term of office of a newly elected 
chairman or committee member shall be for the remaining period* 
Art, 4, The chairman of the Minsei-iin Nomination Com- 
mittee shall preside over the general affairs of the Committee, 
In case unavoidable circumstances prevent the chairman from 
executing his duty a committee member named by him shall act 
for him, 
Artr 7* The Minsei-iin Nomination Committee may have 
several secretaries and clerks to be appointed by the headman 
of a city, town or village. Secretaries will deal with general 
affairs upon the request of the chairman; clerks will handle 
matters as directed by the committee chairman and secretaries. 
Art, 6. The Minsei-iin Selection Committee required by 
paragraph 3 of Article 4 of the Minsei-iin Ordinance shall be 
organized with one chairman and members of nine or lass in 
number. 
Art. 7* The chairman and members of the Minsei-iin Selec- 
tion Committee shall be men of learning and experience and per- 
sons connected with social work, to bo commissioned by the local 
governor. 
Art, .8, The provisions of Articles 3 and 4 of this order 
shall apply equally to the Minsei-iin Selection Committee, 
Art. 9* The Minsei-iin Selection Committee may have several 
secretaries and clerks to be commissioned hy the local governor. 
Inclo 2 Secretaries will deal with general affairs upon the order of 
the chairman; clerks will-, handle matters as directed by the 
chairman and secretaries. 
Supplementary rule: This Ministry Order shall be put in 
force on the'date' of the promulgation of the Minsei-iin 
Ordinance, (Ministerial Order No, 44, Home Affairs Ministry, 
dated November 1936 and Ministerial Order No, 45 of 1936 are 
•hereby repealed), , . 
2 INSTRUCTIONS 
Ministry of Welfare Instruction No. 1? 
To; Minsei-iin November 18, 194-6 
Since The establishment of the Hornen-iin system, it has 
contributed to the stability of national life and the promotion 
of social welfare which to a great extent is due to'the efforts 
for many years of the district committee and the persons con- 
cerned. For such efforts I hereby heartily express my sense of 
gratitude and respect. 
After the termination of the war the social situation in 
our country underwent sudden changes with a day by day increase 
in insecurity. Because the state has definite responsibilities 
it may not leave these conditions as they arc. In order to meet 
these responsibilities the Government established and enforced 
the Daily Life Security Law providing protection by the State to 
all those who are in want* At the same time the Minsci-lin 
Ordinance was issued and enforced substituting the new Minsci- 
lin system for the former Hornen-iin plan. Thus the Government 
has taken more firm and improved measures for the promotion of 
social welfare. 
The now Minsoi-iin system is different from the Hornen-iin 
s3rstcm in its guiding spirit, the status, method of selection, 
duties and method of management, v/e have retained, however * the 
good points which are characteristic of the former Homcn-iin 
system. Wo are determined to realize the aim of the Daily Life 
Security Law and all other measures which aim to * stabilize 
national life. 
Whether or not these measures will achieve the expected 
results will entirely depend upon the future activity of the 
now Minsei-iin* Therefore, the mission of the Minsei-iin is 
very important* 
In view of the important responsibilities of the Minsei- 
iin we herewith set forth their duties and fix their respon- 
sibilities * Those who arc Minsoi-iin arc requested to undor- 
stand these instructions and endeavor to discharge their duties 
in a creditable manner. 
Minister of Welfare 
KAWAI Yoshinari 
Guide to Duties of Minsei-iin 
1. Minsei-iin shall endeavor to carry out their mission 
in accordance with the intention of Article 1 of the Minsei- 
iin Ordinance and through understanding of their responsibilities 
Incl. 3 2. The Minsei-iin shall make an effort to acquire know- 
ledge.. and necessary technique for the performance of their 
duties, as well as to develop their character and constantly 
cultivate their views. 
3. The Minsei-iin shall be'aloof from riches hand fame; 
being always fair in their work; not being' partial because of 
personal relationships; political or religious beliefs and 
contentions, ' ' 
4., The Minsei-iin shall respect the personality of those 
persons who receive.'assistance'and protection, and do their 
work with sincerity and affection taking care"not to expect 
servility from those receiving protection, Minsei-iin shall 
take prompt and definite action to provide necessary assistance 
and take all necessary action. 
5. The Minsei-iin shall keep strictly confidential informa- 
tion received in the course of performing their duties concern- 
ing, the personal circumstances of clients. In case publication 
is necessary attention shall be paid that it will net result in 
trouble for the persons concerned. ■ ’ . ,M ; 
6. The Minsei-iin shall study in detail the methods of 
providing assistance and protection lest it be limited to 
material relief, and shall make an effort to inspire those who 
receive protection with aspiration to became self-supporting, 
paying attention to their mental guidance. ‘ » ‘ a 
7. The Minsei-iin shall give attention to the proper 
execution of their duties keeping close liaison not only with 
each other, but also with the government and public officials 
concerned, various corporations and social institutions, 
* • ■ 
8. The Minsei-iin shall patrol their*area of jurisdiction 
and visit the,homes of needy persons at all times, and make an 
effort to understand correctly the actual social.situation and 
circumstances in which people live. 
•• ' f ' - i 
2 Number of Minsei-iin 
Prefecture 
Men 
Women 
Total 
Hokkaido 
4,882 
268 
5,150 
Aomori 
2,92? 
134 
2,l6l 
Iwate 
2,770 
560 
3,530 
Mlyagi 
1,829 
300 
2,129 
Akita 
2,239 
291 
2,530 
Yamagato 
1,623 
137 
1,760 
Pukushima 
3,701 
389 
4,090 
Ibaraki 
2,476 
284 
2,760 
Tochigi 
1,612 
188 
1,800 
Gumma 
2,483 
574 
3,057 
Saitama 
2,94? 
172 
3,117 
Chiba 
2,772 
370 
3,142 
Tokyo 
3,992 
243 
4,235 
Kanagawa 
2,307 
144 
2,451 
Niigata 
2,443 
346 
2,789 
Toyama 
1,657 
286 
1,943 
Ishikawa 
2,238 
473 
2,691 
Fukui 
1,401 
199 
1,600 
Yamanashi 
2,138 
2 57 
2,395 
Nagano 
2,514 
401 
2,915 
Gifu 
2,509 
204 
2,713 
Shizuoka 
2,289 
317 
2,606 
Aichi 
3,854 
184 
4,038 
Hie 
2,176 
195 
2,371 
Shiga 
1,666 
78 
1., 744 
Kyoto 
3,229 
314 
3,543 
Osaka 
4,914 
291 
5,205 
Hyogo 
5,906 
238 
6,144 
Nara 
1,318 
99 
1,417 
Wakayama 
1,632 
104 
1,736 
Tottori 
911 
89 
1,000 
Shimane 
1,834 
190 
1,984 
Okayama 
3,346 
84 
3,430 
Hiroshima 
4,343 
969 
5,312 
Yamaguchi 
2,190 
321 
2,511 
Tokushima 
1,294 
236 
1,530 
Kagawa 
1,211 
145 
1,356 
Ehirne 
1,753 
401 
2,154 
Kochi 
1,737 
185 
1,922 
Kukuoka 
3,132 
329 
3,461 
Saga 
1,055 
101 
1,156 
Nagasaki 
2,052 
135 
2,187 
Kumamoto 
1,745 
69 
1,814 
Oita 
1,451 
131 
1,582 
Hiyazaki 
1,050 
94 
1,144 
Kagoshima 
2,247 
353 
2,600 
Total 
111,093 
11,812 
122,905 
Incl. 4