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Yawata Steel Works, which now belongs to Nippon Steel Corporation, was the first
large scale integrated steel making enterprise in Japan. As an enterprise owned by the
Japanese Government, it started iron and steel making in 1901. The enterprise grew
in size so rapidly that in the 1920s it employed about 30,000 workers. The Yawata
Steel Works consisted of a huge complex of numerous mills. The total number of blast
furnace mills, steel making mills, roll mills, repair shops, railway shops and other
mills were counted as more than one hundred in the late 1920.
Although individual mills had to follow a primitive production control and
accounting requirements imposed by the top management, the execution of the
business was largely left to mill managers. It is important to note that each mill was
more or less independent of the control by the top management in its implementation
of labor management. Until early 1910s, most of the labor management in Yawata had
been carried out by the mill managers who were responsible for recruitment, discharge,
promotion, and pay raise of their workers.
For the whole period, there existed a central labor office which was in charge of
labor management in general. But the resources of the office were so limited that tasks
it could perform were mainly confined to enactment of by-laws which stipulated codes
of labor conditions for operators and day laborers.
In order to compensate for the weak position of the central labor office and to
strengthen the control over individual mills, the top management with the assistance
of the central labor office made use of a stratified personnel system. While the status of
top and middle management which included executive officers, engineers and assistant
engineers in its fold was defined by the statutes and governmental decrees, the top
management could decide the number and the status of the lower rank of supervisors.
As there had always been a need with the rise of production in each mill to increase the
number of lower ranks of supervisors, the top management and the central labor office
could gain control over the activities of each mill through its policy as to supervisors.
Thus, until the outbreak of the war in Europe, the role of the central labor office
remained quite limited. But the economic boom which took place during and after the
war changed the situation. The hectic economic activities all over Japan produced an
acute labor shortage almost everywhere in Japan. The Yawata Steel Works was forced
to raise the workers' pay, and the following inflationary pressures invigorated the
workers' demand for better working conditions. After the short-lived unsuccessful
strikes in February 1920, the top management implemented a series of reforms in
labor management which were to change the role of the central labor offices. One of the
reforms was an establishment of the works councils, the labor offices being responsible
for its working. New supervisory classes mostly recruited from operators were created.
The labor office began issuing a bi-monthly newspaper. As it was evident that each
mill could do almost nothing in reacting to the workers' demand, the labor
management by the central labor offices began to take the place of the management by
individual mills.
The economic depression following the post-war boom also contributed to the
strengthening of the function of the central labor office. The need to raise productivity
by way of restraining the increase of man-power necessarily limited the power of each
mill in its recruitment activity. In case a mill manager wanted to increase the number
of his workers, he was required to get a permission from the central labor office. The
manning was no more regarded as a matter which only mill managers could handle.
The central labor office could decide the number of workers which a mill could employ,
move workers from one mill to another more easily, start productivity and safety
campaigns which mobilized all the workers.
The evidence as to the labor management shows that there was a clear-cut trend
toward centralization within the Steel Works. But it will exaggerate the situation to
say that there was no strong trend other than centralization. We cannot forget the
countervailing trend of decentralization at this period. Accounting system was the case
in point. In earlier period the top management controlled the activities of each mill
through a centralized accounting system, but in the 1920s and 1930s there developed
an accounting system which put more responsibility for cost control on each mill. Even
in the labor management, centralization and decentralization took place at the same
time. While the central labor office was responsible in checking the working of the
wage systems, each mill could invent and implement a local wage system as long as it
was based on the general wage policy. In the productivity drive promoted by the
central labor office, each mill set up a committee including staffs and workers in order
to discuss the productivity measures.
The centralization in the labor management of Yawata Steel Works is important
in that it became an integral part of the policy of the top management to achieve a
highly integrated state of production. Before the application of Taylorism and other
production techniques on a large scale which began in 1950s, there were few methods
available to the top management in coordinating the activities of each mill. The labor
management by the central labor office was one of those methods which could offer an
effective means of coordination.
The emergence of the new way of running a giant enterprise through the
centralized labor management will be also of note in its connection with the fact that
from the late 1930s to 1950s the Steel Works made use of the centralized labor
management in mobilizing workers participation in war production effort and in post
war reconstruction. After the Second World War the newly established labor union
organizing operators of the Yawata Steel Works held joint consultation with the
management. The issues discussed was status of operators, manning policy and pay
rise, all of which the central labor office had dealt with before the war. It will not miss
the point to say that the centralized labor management became an institutional basis
on which post war industrial relations was constructed. |