Abstract
With recent administrative reforms, the Council of Social Welfare puts forward plans to organize people to undertake public welfare service. As a result of these plans there has been an increase in the number of volunteers engaging in a welfare work. But why do they voluntarily when they are simply substitute labor? This paper will focus on the organizational reform of the volunteer management by the Council of Social Welfare. The findings are as follows: in recent years on-the-spot voluntary acts have been highly rationalized to use individual competence, and the Council has produced organizational reforms to support this. However, this may easily lead to people becoming nothing more than basic substitute labor.
