Introduction: The Truth Behind the Numbers

On March 16, 2026, the Ministry of Health, Labour and Welfare (MHLW) announced the results of the national Certified Care Worker examination, sending ripples through the care industry and organizations involved in foreign employment.

According to media reports based on the MHLW announcement, 380 EPA candidates from Indonesia, the Philippines, and Vietnam passed the 2025 Certified Care Worker national examination, down from 498 the previous year. Their pass rate was 31.8%, reportedly the lowest since EPA candidates first began taking the exam.

Looking at these figures alone, one might conclude that “foreign caregivers are declining.” However, the reality on the ground is far more complex. In fact, these numbers indicate that Japan’s foreign workforce acceptance policy is undergoing a major transformation.

In this article, as an administrative scrivener specializing in visa applications and residence status procedures, I will explain the true meaning of this news and outline the necessary responses for both employers and foreign residents in Japan.

Understanding EPA: The Basics of the System

The Fundamental Framework of EPA

EPA (Economic Partnership Agreement) is not merely a trade agreement—it is a broader economic partnership framework that also includes arrangements for the movement of human resources. Japan has concluded EPAs with Indonesia, the Philippines, and Vietnam, accepting candidates for certified care workers and nurses.

Career Path of EPA Certified Care Worker Candidates

Foreign nationals who come to Japan as EPA certified care worker candidates follow this process:

  1. Pre-arrival Training: Study basic Japanese language and caregiving in their home country
  2. Post-arrival Training: A period of post-arrival Japanese language and practical training in Japan
  3. Commencement of Employment: Work in care facilities while continuing to study
  4. National Examination: Take the Certified Care Worker national exam after typically 3-4 years of employment
  5. Post-qualification: After passing the national exam, they may apply to change their status of residence to “Care Worker,” which generally allows long-term employment subject to renewal

Thus, the EPA route is a time-intensive human resource development program.

Advantages and Disadvantages of EPA

Advantages:

  • High stability as a government-backed system
  • Enables gradual education and development
  • High level of expertise as nationally qualified professionals

Disadvantages:

  • Time-consuming from acceptance to full productivity
  • Requires robust educational and support systems at facilities
  • Challenges in addressing examination failure cases

Why the Decline in Successful Candidates: Three Factor Analysis

Factor 1: Expansion of the Specified Skilled Worker System

The “Specified Skilled Worker” system, established in 2019, has rapidly expanded in the caregiving field. Compared to EPA, it has the following characteristics:

  • Shorter time until arrival: No need for lengthy training like EPA candidates
  • Relatively faster deployment into the workplace: Designed for workers who can begin contributing in practice relatively quickly once certain Japanese language proficiency and care skills are demonstrated
  • Flexible staffing: Facilities can recruit the necessary number of workers when needed

As pointed out by MHLW officials, the increase in users of the Specified Skilled Worker system is considered a primary factor in the decline of EPA examinees.

Factor 2: Examination Difficulty and Language Barriers

The Certified Care Worker national examination is challenging even for Japanese nationals. For foreign nationals, it requires understanding complex Japanese including technical terminology and answering accurately.

The 31.8% pass rate, compared with the generally higher pass rates seen among Japanese examinees, illustrates how significant the language barrier is.

Factor 3: Prolonged Impact of the COVID-19 Pandemic

Arrival restrictions and changes in training systems due to the pandemic greatly affected candidates’ learning environments. These effects may be reflected in the current examination results.

Overview of Residence Status Systems: Options Beyond EPA

There are multiple routes for foreign nationals to work in caregiving in Japan. Understanding the characteristics of each is crucial for both employers and foreign workers.

1. EPA (Economic Partnership Agreement)

As mentioned, this is a long-term development route. After obtaining national qualifications, individuals can acquire the “Certified Care Worker” residence status, which is renewable without the five-year cap that applies to some other statuses, enabling stable long-term employment.

2. Specified Skilled Worker (i) – Care

  • Period of Stay: Maximum 5 years in total
  • Requirements: Pass Care Skills Evaluation Test + Japanese Language Test
  • Job Changes: Permitted within the same industry
  • Family Accompaniment: Generally not permitted

The Specified Skilled Worker (i) status is available for up to five years in total, and family accompaniment is generally not permitted. While expected to be immediately productive, there are limitations on the period of stay.

3. Technical Intern Training – Care

  • Period of Stay: Maximum 5 years
  • Purpose: Skills transfer (international contribution)
  • Job Changes: Generally not permitted
  • Family Accompaniment: Not permitted

The Technical Intern Training framework has traditionally been explained as a skills-transfer program rather than a direct labor-shortage measure, and it therefore comes with stricter structural limitations.

4. Residence Status “Care Worker”

For foreign nationals who graduate from Certified Care Worker training facilities and obtain national qualifications. This is among the most stable residence statuses, renewable without the five-year cap that applies to some other statuses.

5. Status-Based Residence Statuses (Permanent Resident, Long-term Resident, Spouse of Japanese National, etc.)

Foreign nationals with these residence statuses have no employment restrictions and can freely work in caregiving.

Foreign Worker Recruitment Strategies Every Employer Should Know

How to Choose the Right System for Your Organization

Care facility managers and HR personnel need to select the optimal system based on the following perspectives:

For Long-term Development: EPA / Training Facility Route

  • Want to develop talent gradually
  • Have established educational systems
  • Seek nationally qualified personnel

For Immediate Workforce Needs: Specified Skilled Worker

  • Urgent need for personnel
  • Desire candidates with certain experience and skills
  • Employment expected within 5 years

For Emphasizing Skills Transfer Significance: Technical Intern Training

  • Value international contribution aspects
  • Aim for long-term relationship building

Proper Reception Systems Are Key to Success

Regardless of which system you choose, establishing proper reception systems is essential:

  1. Japanese Language Support: Ensure work instructions and documentation are accurately understood
  2. Cultural Considerations: Understanding and accommodating religious practices and dietary customs
  3. Mentor System: Support structure by Japanese staff members
  4. Career Path Presentation: Showing future prospects maintains motivation
  5. Legal Compliance: Thorough adherence to labor laws and residence status management

Common Failure Patterns

Case 1: Insufficient Understanding of Residence Statuses Hiring technical interns as a “labor shortage solution” and restricting job changes leads to conflicts arising from dissatisfaction.

Case 2: Inadequate Support Systems Insufficient language and cultural support causes isolation of foreign staff, leading to early turnover.

Case 3: Delayed Visa Renewal Procedures Neglecting renewal procedures results in illegal employment status, exposing employers to penalty risks.

Career Strategies Foreign Residents in Japan Should Know

Benefits of Obtaining National Qualifications

Obtaining the Certified Care Worker national qualification provides significant benefits:

  1. Ability to Change to “Care Worker” Residence Status: Renewable without the five-year cap that applies to some other statuses
  2. Improved Salary and Treatment: Opportunities for qualification allowances and promotions
  3. Expanded Job Change Options: Ability to transfer to facilities with better conditions
  4. Potential advantage in future immigration procedures: Holding a national qualification may strengthen the overall picture of career stability and professional continuity in future immigration procedures

Options if Examination is Failed

Even if you came to Japan as an EPA candidate and failed the national examination, several options exist:

Option 1: Change to Specified Skilled Worker Status If requirements are met, changing to Specified Skilled Worker (i) – Care is possible, enabling continued employment for up to 5 years.

Option 2: Aim for Re-examination Under certain conditions, extending the period of stay to attempt re-examination may be possible.

Option 3: Return Home and Re-enter Returning and coming back as a Specified Skilled Worker is also an option.

Important Points When Changing Residence Status

When changing residence status, pay attention to the following:

  • Application Timing: Applications possible from 3 months before expiration
  • Document Preparation: Employment contracts, qualification certificates, etc.
  • Examination Period: Typically 2 weeks to 1 month
  • Non-approval Risk: Possibility of non-approval if conditions are not met

These procedures are complex, and professional support is recommended.

Future Outlook: What Will Happen to Foreign Caregivers?

Care Worker Shortage Continues to Worsen

Japan is projected to need roughly 690,000 additional care workers by fiscal 2040, which means foreign care workers will remain an important part of the sector’s future.

Further System Flexibility is Expected

The government continues to review foreign worker acceptance systems. The broader direction of policy appears to be toward a more diversified foreign-worker framework, with multiple pathways coexisting rather than a single dominant route.

Toward Multicultural Care Settings

Future care settings will become multicultural workplaces where Japanese and foreign nationals collaborate. Creating environments that overcome language and cultural differences and foster mutual respect is essential.

Support Administrative Scriveners Can Provide

Support for Employers

1. Residence Status System Consulting We propose the optimal foreign worker acceptance route for your organization.

2. Application Support and Authorized Filing Services We provide preparation and filing support for status-of-residence applications, including work visas and changes or renewals of residence status, helping ensure successful approvals.

3. Reception System Development Support We provide comprehensive support from establishing compliance systems to preventing troubles.

Support for Foreign Individuals

1. Residence Status Consultation We diagnose the possibility of changing from your current residence status to better options.

2. Application Preparation and Filing Support Staff capable of responding in native languages support everything from preparing complex application documents to submission.

3. Trouble Resolution We respond promptly to workplace troubles and residence status issues.

Conclusion: Making Change Work for You

The news of declining EPA care worker examination pass rates may appear negative at first glance, but it actually indicates that Japan’s foreign worker acceptance has entered a new stage.

For Employers: We have entered an era where you can select the optimal method from diverse acceptance routes. Strategic staffing tailored to your organization’s situation is now possible.

For Foreign Workers: Career options have increased, allowing you to choose work styles that suit you. With proper information and procedures, stable careers can be built.

What Matters for Both: Understanding systems correctly, following appropriate procedures, and respecting each other’s cultures and values.

As administrative scriveners and legal procedure professionals, we serve as a bridge between employers and foreign workers. If you encounter any difficulties with visas or residence statuses, please feel free to contact us anytime.

Creating environments where foreign workers supporting Japan’s care settings can confidently demonstrate their abilities—that is our mission.

Reference Article: 380 Foreign Caregivers Pass Examination from 3 EPA Countries, 24% Decrease from Previous Year https://news.yahoo.co.jp/articles/04532ecea8647cc3f84af146bcea53bc167e5b6f

Contact Us: For consultations regarding foreign employment, visa applications, and residence statuses, please feel free to contact us. Initial consultations are free of charge.