『保健医療科学』 保健医療科学 2025 Vol.74 No.4 p.332－ 337（2025年10月）
特集： 障害者の就労を通じたダイバーシティ・エクイティ＆インクルージョンの再考
＜総説＞
包摂的労働市場の理念と現実―障害者雇用制度を取り巻く国際比較と日本の課題―
近藤武夫
東京大学先端科学技術研究センター
Inclusive labour markets—Between the norm and reality: International perspectives on disability employment and Japan’s policy challenges
KONDO Takeo
Research Center for Advanced Science and Technology, The University of Tokyo
＜抄録＞
本稿は，障害者雇用をめぐる国際的理念の変遷を概観し，日本の現状と課題を批判的に検討する．1983 年の国際労働機関（ILO）第 159 号条約は，障害者の職業リハビリテーションと雇用を各国に求め，特に発展途上国において生活保障としての就労確保を重視した．その後，2006 年に採択された国連障害者権利条約（CRPD，日本は 2014 年に批准）第 27 条では，障害者が「開かれた，包摂的で，アクセス可能な労働市場」で働く権利が明記され，締約国には特別枠に隔離せず，主流の労働市場へ包摂することを志向する国際的規範が形成された．さらにILOが 1999 年に提唱したディーセント・ワーク（DW）は，障害者に限定されない普遍主義的な枠組みを提示した上で，①仕事の創出，②社会的保護，③社会対話，④仕事における権利の保障の 4 つの戦略目標を掲げ，就労の量だけでなく質を重視する枠組みを国際的に定着させた．加えて，1990 年代以降，欧州では就労統合型社会的企業（WISE）やソーシャルファームが，刑余者やひとり親，移民など多様な就労困難層を包摂する制度として整備され，米国でも差別禁止法体系や労働力革新機会法（WIOA）による障害を含めた就労困難者全般に対するワンストップ支援が展開されてきた．これに対し日本は，障害者雇用率制度と生活困窮者自立支援が縦割りで並立し，DWの普遍主義や，WISEやWIOAに見られる包摂性には至っていない．「障害」のみを対象とする支援施策は，多様な就労困難に隠れた障害や疾患のある人々を周縁化し，支援のアウトリーチから取り残されたままにする可能性がある．他方で，超短時間雇用モデル，東京都のソーシャルファーム認証条例，ニューロダイバーシティ雇用，高等教育機関からキャリアへの移行支援といった自治体・民間・教育機関の実践は，普遍主義に基づく包摂の萌芽と評価できる．本稿は，日本がILO第 159 号条約的な枠組みに留まる現状を指摘しつつ，普遍的・包摂的な政策設計の必要性を論じるとともに，障害者や病弱者などを含む就労困難層に適した「雇用の質」の再定義を提示する．
キーワード：ディーセント・ワーク，就労統合型社会的企業，障害者雇用，国連障害者権利条約，ニューロダイバーシティ雇用
Abstract
This paper reviews the evolution of international principles on the employment of persons with disabilities, and critically examines the current situation and challenges in Japan. The International Labour Organization (ILO) Convention No. 159, adopted in 1983, required States to provide vocational rehabilitation and employment opportunities for persons with disabilities, with a particular emphasis on securing work as a means of livelihood in eveloping countries. Subsequently, Article 27 of the United Nations Convention on the Rights of Persons with Disabilities (CRPD; adopted in 2006 and ratified by Japan in 2014) explicitly recognized the right of persons with disabilities to work “in a labour market and work environment that is open, inclusive, and accessible,” thereby establishing an international norm encouraging State Parties to pursue inclusion in the mainstream labour market rather than segregation into special schemes. Furthermore, the concept of Decent Work (DW), introduced by the ILO in 1999, presented a universalist framework beyond disability, articulating four strategic objectives— (1) employment creation, (2) social protection, (3)social dialogue, and (4) rights at work— and establishing an internationally recognized paradigm that values not only the quantity, but also the quality of employment. Since the 1990s, Europe has institutionalized Work Integration Social Enterprises (WISEs) and Social Firms to include diverse disadvantaged groups such as ex-offenders, single parents, and migrants. In the United States, anti-iscrimination legislation and the Workforce Innovation and Opportunity Act (WIOA) have provided comprehensive one-stop support for a broad range of disadvantaged workers, including persons with disabilities. In contrast, Japan maintains a dual structure comprising a disability employment quota system and welfare-based support for the poor,without yet having achieved the universality of DW or the inclusivity exemplified by WISE and WIOA.Policies focused solely on “disability” risk marginalizing individuals with hidden impairments or chronic illnesses, leaving them beyond the outreach of existing measures. At the same time, innovative practices such as ultra-short-time employment models, the Tokyo Metropolitan Governmentʼs Social Firm Certification Ordinance, neurodiversity employment initiatives, and career transition support from higher education institutions can be regarded as emerging efforts toward universalist inclusivity. This paper highlights that Japan remains largely within the framework of ILO Convention No. 159, while arguing for the necessity of universal and inclusive policy design, and presents a redefinition of “quality of work” that is appropriate for persons with disabilities, people with chronic health conditions, and other disadvantaged groups.
keywords : decent work, work integration social enterprise, employment of persons with disabilities, convention on the rights of persons with disabilities, neurodiversity employment