Observation (CEACR) - adopted 2007, published 97th ILC session (2008)

Employment Policy Convention, 1964 (No. 122) - Madagascar (Ratification: 1966)

1. Articles 1 and 2 of the Convention. Coordination of employment policy with poverty reduction. The Committee notes the Government’s detailed report received in December 2006 and in particular Act No. 004-2005 on the National Employment Policy (PNE). It notes with interest that the PNE is intended to “promote full, productive and freely chosen employment” and that the “creation of decent jobs is the principal objective of sustainable and equitable economic growth to improve the living conditions of the population in the context of a labour market open to social dialogue” (sections 1 and 3 of Act No. 004-2005). It also notes that, with a view to the implementation of the PNE, a National Employment Support Programme (PNSE) has been formulated with the technical support of the ILO and was validated on 18 October 2006 in a tripartite national workshop, but that it still has not been adopted by Parliament. The Committee also notes, according to the information published by the International Monetary Fund (IMF) in February and July 2007 on the Poverty Reduction Strategy Paper, that Madagascar has prepared its second growth and poverty reduction strategy, entitled the Madagascar Action Plan (MAP) 2007–12. The Committee notes with interest that, as the MAP incorporates fully the PNSE, Madagascar has succeeded in integrating the operational approach of its national employment policy into its poverty reduction strategy. Noting in particular that emphasis is placed in Commitment No. 8 of the MAP on the importance of ensuring macroeconomic stability to achieve higher economic growth, the Committee recalls the importance of the role of macroeconomic policy in stimulating investment and employment. The Government indicates that, with a view to assessing the impact and effectiveness of the PNE in terms of its objectives and with a view to identifying new approaches and action in the context of open and dynamic national social dialogue, mechanisms to follow up and evaluate the PNE have been established, such as the holding of an employment conference every five years, technical assessments and evaluations and a broad national debate on the implementation of the PNE. The Government is currently working on the formulation of an institutional structure to monitor the overall implementation of the MAP (IMF report No. 07/240 of July 2007, paragraph 26). The Committee requests the Government to provide information on the measures adopted to ensure that employment, as a key element of poverty reduction, is central to macroeconomic policy. It hopes that the National Employment Support Programme validated in October 2006 will be adopted at the national level in the near future so as to allow the effective implementation of the National Employment Policy with a view to “promoting full, productive and freely chosen employment”. The Committee also requests the Government to provide detailed information on the evaluation of the employment policies and programmes implemented, such as the PNSE and MAP, with an indication of the extent to which the initial objectives have been achieved.

2. Labour market policies. The Committee notes that the labour market is characterized by the inadequate match between education and employment needs. While the active population consists of 64.6 per cent of the total population, some 13.4 per cent of active persons are in the formal sector. Although the unemployment rate is relatively low, the underemployment rate remains significantly high (IMF report No. 07/09 of February 2007). The Government indicates that the situation of young persons on the labour market is a matter of great concern, as they are more exposed to unemployment, underemployment and low quality jobs, and that the participation by women in all sectors of activity remains highly inadequate. The Committee notes that the PNE is intended to facilitate the access of vulnerable social groups (young persons, women and workers with disabilities) to the employment market (section 11 of Act No. 04-2005). In this respect, it notes with interest that the Ministry of the Public Service, Labour and Social Legislation is currently working with UNDP to assist in the implementation of the PNE in relation to the insertion or reinsertion of young persons and women into the labour market. The Committee requests the Government to provide information on the measures adopted to balance the supply and demand for labour and to meet the needs of specific categories of workers, with particular reference to women and young persons, with an indication of the results achieved in terms of job creation.

3. Collection and utilization of employment data. The Government emphasizes the need to establish a real employment observatory which responds to the structural imperatives arising out of the implementation of a National Employment Policy. It refers in this respect to the National Employment Information System (SNIE) intended to make use of a new system for the processing of data with a view to promoting employment (sections 14 and 26 of Act No. 04-2005). The Committee notes with interest that the Government is currently formulating a National Statistical Development Strategy (SNDS) with a view to reinforcing statistical capacities, coordinating and rationalizing the statistical system, improving the quality of statistics, improving access to and the utilization of data for policy formulation, updating the legal framework and coordinating external assistance. The implementation of the SNDS is a key priority (IMF report No. 07/240, paragraph 27). The Committee requests the Government to indicate in its next report the progress achieved in the collection of employment data, particularly in the context of the implementation of the National Statistical Development Strategy, with an indication of the employment policy measures adopted as a result of the National Employment Information System.

4. Article 3. Participation of the social partners in the formulation and implementation of policies. The Government indicates that the institutionalization of social dialogue as a permanent process of concerted action between the social partners on employment problems is a significant step forward, even though the impact and scope of social dialogue are still currently relatively limited. The Committee notes that the National Employment Council (CNE), an advisory body for dialogue and negotiation between the social partners, has been designated as the body to orient and guide the PNSE. It also notes that a National Monitoring Committee for the Promotion of Employment and Poverty Reduction (CNSPERP), which includes the social partners in its composition, was established in 2005 and that several consultations were held in this framework in 2006, both at the national and regional levels, with a view to discussing the content and implementation of the PNSE. The Committee notes with interest that the CNSPERP has received training from the ILO in August 2006 with a view to influencing national poverty reduction strategies and policies. The Committee requests the Government to describe examples of the consultations held with the social partners, particularly in the context of the CNE and the CNSPERP, in the fields covered by the Convention, with an indication of the views expressed and the manner in which they have been taken into account. The Committee recalls that the consultations envisaged by the Convention require the consultation of representatives of all the persons affected, including those working in the rural sector and the informal economy, and it requests the Government to indicate the measures envisaged with a view to ensuring that the latter collaborate fully in the formulation and implementation of employment policies.

5. Part V of the report form. ILO technical assistance. The Committee notes the information on the technical assistance received from the ILO, and particularly the close collaboration of the Ministry of Labour and the social partners with the ILO in the formulation of the PNE and the PNSE. The Committee requests the Government to continue supplying information on the action taken as a result of the technical assistance received from the ILO with a view to ensuring the implementation of an active employment policy within the meaning of the Convention.