Direct Request (CEACR) - adopted 2022, published 111st ILC session (2023)

Direct Request (CEACR) - adopted 2017, published 107th ILC session (2018)

Direct Request (CEACR) - adopted 2014, published 104th ILC session (2015)

Direct Request (CEACR) - adopted 2012, published 102nd ILC session (2013)

Direct Request (CEACR) - adopted 2010, published 100th ILC session (2011)

Labour market trends and active employment policy. The Committee notes the information provided by the Government in its report supplied in October 2009, in reply to the 2008 direct request, and the attached documentation. The Committee notes the Belgian National Reform Programme 2008–10, which includes among its priorities: the implementation of a global employment strategy and the strengthening of a strategy for the activation of jobseekers; and the continuation of a policy based on the reduction of the fiscal and parafiscal burden and the encouragement of entrepreneurship. According to the estimates of the National Employment Office, the number of jobseekers at the national level rose from 403,845 in 2008 to 434,120 in 2009. The Government indicates that unemployment reached a rate of 8.1 per cent in April 2009 although, under the impact of the global financial crisis, it could rise to 9.4 per cent in 2010. The Committee notes that regional disparities remain significant, with the unemployment rate being 17.2 per cent in Brussels, 10.5 per cent in Wallonia and 4.4 per cent in Flanders. According to the estimates of the Federal Planning Bureau, the employment rate in 2012 will be 69 per cent in Flanders, 59 per cent in Wallonia and 58 per cent in Brussels. In this respect, the Government indicates that the regional employment services have strengthened their collaboration with a view to reducing these regional disparities through, among other measures, the automatic exchange of information on job vacancies and training, bonuses for inter-regional mobility and linguistic bonuses. The Committee notes that, in the context of the crisis, the measures adopted have focused on maintaining employment, supporting and recycling those who have lost their jobs as a result of economic difficulties. The measures adopted include a federal action plan for SMEs and a plan for the active accompaniment and follow-up of the unemployed, covering unemployed persons under 50 years of age in receipt of benefits, combined with supervision of compliance with the criteria governing unemployment allowances. The Committee notes that, in view of the economic crisis and the need to rebuild confidence, an exceptional interoccupational agreement 2009–10 has been concluded between the social partners with a view to negotiations at the sectoral and enterprise levels. In addition to strengthening the purchasing power of workers, these agreements have also established employment measures, such as the simplification of recruitment plans, particularly for target groups, and the reduction of social contributions. The Committee also notes the contribution provided by the Flemish Government on the implementation of the Convention. The Flemish Government indicates that, due to the economic crisis, unemployment is rising steeply and that between June 2007 and June 2009 the number of unemployed jobseekers rose from 168,000 to 195,000. It adds that, with a view to addressing the crisis, in November 2008 it adopted a recovery plan (Rétablir la confiance/Herstel het vertrouwen) containing measures for vulnerable groups and, in particular, those who have been victims of restructuring. The Committee refers to its General Survey 2010 on employment instruments in which it emphasized that the employment Conventions and Recommendations taken together provide a framework which contributes to realize the human right to work and education for all, confronting and mitigating the effects of the global economic crisis and ensuring continuing and genuine tripartite consultations (General Survey, op. cit., paragraph 788). In this respect, the Committee hopes to be able to examine, in the next report, information on the effectiveness of the measures adopted to combat regional disparities and long-term unemployment. It also invites the Government to indicate the effect of the measures taken in the context of the National Reform Programme for the young unemployed and to maintain employment in sectors severely affected by the economic recession or by enterprise closures.

Article 1(2) of the Convention. Labour market policies. In reply to the 2008 direct request, the Government provided information on the integration of immigrants into the labour market, elderly workers and youth employment policies.

Integration of immigrants into the labour market. The Government indicates that since 2005 it has established a process of “labelling” enterprises which adopt a personnel management policy which favours diversity at the workplace. It adds that the project for intercultural exchanges has been undertaken in the framework of the integration of immigrants into the labour market with a view to developing solutions, proposals and recommendations for the promotion of an intercultural society. The Committee invites the Government to provide information on the results achieved as a result of the implementation of measures for foreign workers, such as the “labelling process”. Please indicate whether additional measures have been taken to overcome obstacles to the vocational integration of immigrants and to improve their situation in the labour market.

Older workers. According to estimates by the Employment Office, the number of jobseekers over 50 years of age rose from 94,395 in 2008 to 101,140 in 2009. In its contribution, the Flemish Government reports the implementation of measures to promote the integration of elderly workers, such as the agreement “All together for the 50+” (Ensemble sur la brèche pour les 50+/Samen op de bres voor 50+), establishing a new model for persons over the age of 50 and the 50+ employment bonus. The Committee invites the Government to continue providing information on the measures adopted to facilitate the integration of older workers and, particularly, those who have been affected by restructuring.

Youth employment. The Government indicates that youth unemployment is a very important problem, with an unemployment rate for 15–25-year-olds which reached 6.4 per cent in 2008, and that there is a very high risk of being dragged into long-term unemployment, particularly for the least skilled young persons. The Government reports several measures to remedy the problems of the transition between education and the labour market, including the establishment of the “first job” system, an apprenticeship contract and a system for the reduction of social contributions for employers. Intensive personalized support for young low- and medium-skilled jobseekers has also been introduced in Flanders and Wallonia. In its contribution, the Flemish Government indicates that it has implemented a youth employment plan intended to help them quickly obtain work in appropriate jobs in response to demand. The Decree of 10 July 2008 respecting the learning and employment system is targeted at young persons in alternate training and work experience programmes and lays the basis for full-time recruitment, in both its apprenticeship and employment components. The Committee notes the initiative by the Flemish Government “Skills agenda 2010”, the objective of which is to take action to link education and the world of work, particularly through work experience for students. The Committee hopes that the next report will contain data on the impact of the measures adopted, at both the national and regional levels, to combat youth unemployment, with particular reference to young persons leaving the school system without qualifications.

Education and training policy. According to the National Reform Programme 2008–10, measures to develop the supply of training are a response to the crisis. The development of skills related to trades has continued in various branches of teaching and vocational training. For example, in 2008, specialized centres of the employment services trained 101,359 persons in Wallonia (jobseekers, workers and students). The Committee observes the indication in the National Reform Programme that, although progress has been made in raising awareness of the importance of lifelong learning, and that substantial means have been allocated by enterprises, individuals and the public authorities, there is no overall training strategy in Belgium. The social partners were invited to develop a diagnosis of the further training system and to make recommendations on this subject. The Committee invites the Government to indicate in its next report whether the diagnosis of the further training system has been undertaken and the recommendations made by the social partners in this respect. The Committee also invites the Government to provide information on the measures adopted to coordinate education and training policies with employment, and their impact in terms of the long-term integration into the labour market of the most vulnerable categories of workers.

Direct Request (CEACR) - adopted 2008, published 98th ILC session (2009)

1. Article 1, paragraph 1, of the Convention. Labour market trends and active employment policy. The Committee notes the detailed information contained in the Government’s report for the period ending 31 May 2007, and the full documentation attached. It further notes the contribution of the Brussels-Capital Region and the Flemish Government to the implementation of the Convention. It notes that there are still significant labour market disparities between, and even within, regions with the employment rate in Flanders being 65 per cent in 2006, while it was only 56.1 per cent in Wallonia and 54.3 in Brussels. The employment rate rose from 61 per cent in 2006 to 61.5 per cent in 2007, but still remains lower than the European Union average, which is 64.4 per cent. The Federal Public Service for Employment, Labour and Social Dialogue considers that, despite this rise, the goal of 70 per cent by 2010, which Belgium set in the context of the European Employment Strategy, would appear to be particularly difficult to achieve. The cooperation agreement concluded in 2005 has made it possible to increase collaboration between the employment services of the regions and communities, principally through the mutual systematic exchange of job vacancies. It is planned to strengthen this systematic exchange of vacancies. The Committee, however, notes that the Higher Employment Council indicates in its report for 2007 that, in view of the significance of regional differences, further measures are required to stimulate mobility and that the mutual transmission of vacancies between regional employment services must be accompanied by a strengthening of collaboration between regional services in relation to training and the placement of jobseekers. The Committee invites the responsible authorities to specify in the next report the results achieved in facilitating balanced regional development of the labour market and the specific activities undertaken to promote full employment in underprivileged regions.

2. Article 1, paragraph 2. Employment market policies. The Committee notes that in Belgium the standardized OECD unemployment rate fell from 8.4 per cent in 2005 to 7.5 per cent in 2007, and that the employment rate for women has increased to 54 per cent in 2006. The recent fall in unemployment attributed, among other factors, to the scheme for the activation of attitudes to jobseeking introduced in 2006, has principally benefited Flanders and younger workers. The employment rate of young persons, nevertheless, remains relatively low and the obstacles to their vocational integration most frequently referred to are the inadequacy of their level of training or the mismatch between training and the needs of enterprises and the lack of professional experience. The Committee notes that this fall in unemployment does not, however, apply to older workers or the long-term unemployed. The employment rate of workers between the ages of 55 and 64 years was 32 per cent in 2006 (36.9 per cent in Brussels, 31.4 per cent in Flanders and 31.9 per cent in Wallonia), or 11 per cent lower than the European Union average (43.5 per cent), which is still well under the objective of 50 per cent set for 2010. The employment rate of foreigners is lower than that of the native population, with the gap being around 3 per cent for nationals of the European Union, but exceeding 27 per cent for persons originating from countries outside the European Union. The Committee notes that, according to the 2007 report of the Higher Employment Council, proactive measures are necessary to improve the integration of categories which are currently under-represented on the labour market, including the conclusion of diversity plans. The Committee notes that in the inter-occupational agreement “for an innovative economy and for employment” for 2007–08, concluded on 2 February 2007, the social partners call upon all sectors and all enterprises, in dialogue between employers and workers, to conclude agreements and take measures to facilitate greater diversity at the workplace, contributing among other objectives to strengthening the participation of workers with disabilities, persons with low educational levels and older workers in the labour market, and promoting equality of opportunity for women and men. The Committee requests the Government to provide specific information in its next report on the results achieved by the measures implemented to promote lasting employment for vulnerable categories of workers, such as women, young persons, older workers, ethnic minorities and workers with disabilities.

3. Education and training policies. The Committee notes the emphasis placed by the Higher Employment Council in its 2007 report on the importance of training as a determining factor in accessing employment and that it is, therefore, essential for enterprises to pursue and intensify their efforts in the field of vocational training. The Committee notes the measures adopted, particularly at the regional level, to encourage training for young persons and jobseekers, and the implementation of a system for the certification of acquired skills with a view to improving the matching of education and further training. In the inter-occupational agreement of 2 February 2007, the social partners confirmed their previous commitments in the field of training, and invited the sectors to give effect to them during the next cycle of sectoral bargaining. The Committee requests the Government to continue providing information on the results achieved in terms of labour market integration through the measures implemented in the context of education and training policies.

4. Article 2(a). Collection and analysis of employment data. The Committee notes that the Higher Employment Council in its 2007 report indicates that an overall view of the supply and demand of labour is necessary to carry out a precise evaluation of the labour market situation and that it hopes that the regional employment services and private actors in vocational integration will collaborate for the adoption of a common methodology with a view to the compilation in the near future of reliable statistics on the real number of vacancies in each region and throughout the country. The Committee requests the Government to provide information on the measures adopted at both the federal and the regional levels for the compilation and analysis of statistical data on employment as a basis for decisions relating to employment policy measures.

5. Article 2(a). General economic policies. In reply to the 2006 direct request, the Government refers to measures intended to promote the social economy (and particularly the system of service cheques for local jobs and services). The Committee hopes that the next report will contain other information on the measures established by the authorities responsible for promoting productive employment “within the framework of a coordinated economic and social policy”, with an indication of the results achieved through these measures.

6. Article 3. Participation of the social partners in the formulation and application of policies. In reply to the 2006 direct request, the Government indicates that, despite difficulties relating to concerted action, the joint statement of 27 March 2006 for “a more competitive economy for employment” and the inter-occupational agreement 2007–08 “for an innovative economy and for employment”, concluded on 2 February 2007, show that constructive inter-occupational dialogue remains possible. The Committee notes that, following the consensus achieved in the inter-occupational agreement of 2 February 2007, sectoral bargaining is under way. It notes the Government’s indication that this aspect of the contribution of the social partners to employment policy would appear to be essential, particularly to take into account the specific characteristics of the various branches, and at the enterprise level particularly in relation to further training, work organization, the reconciliation of work and private life, worker mobility and flexibility. The Committee would welcome receiving information and data on the results achieved, and on the problems encountered and lessons to be learned from the experience of the social partners concerning the implementation of the provisions of the Convention.

Direct Request (CEACR) - adopted 2006, published 96th ILC session (2007)

1. Labour market trends and active employment policy. The Committee notes the detailed information contained in the Government’s report for the period ending 31 May 2005, and the full documentation attached. It notes the slight increase in the employment rate (rising from 59.6 per cent in 2003 to 60.3 per cent in 2004), which remains low relative to the European average of 63.3 per cent, and the objective of 70 per cent by 2010 established by Belgium in the framework of the European Employment Strategy (EES). The Committee notes that the National Plan of Action for Employment (PAN) of September 2004 identified raising employment rates as one of its priorities and that the Government is committed to promoting the creation of 200,000 jobs by 2007 through measures to make employment more beneficial for workers and less burdensome for employers. Furthermore, the planned rise in economic growth up to 2 per cent should result in stabilization, or even a very slight increase in the employment rate of between 0.1 and 0.2 points, and a greater increase in the years to come. The Committee also notes the measures adopted by the Flemish and Walloon communities to increase employment. It hopes that the next report will contain information on the results achieved by these programmes at both the federal and regional levels as part of an active policy intended to promote full, productive and freely chosen employment (Article 1, paragraph 1, of the Convention).

2. Global and sectoral development policies. The Committee has noted the significant disparities on the Belgian labour market between and even within regions, with the employment rate in Flanders being 64 per cent in 2004, compared with 55.5 per cent in Wallonia and 55.4 per cent in Brussels. It notes that measures have been adopted to strengthen cooperation between regional employment services, and that the Higher Employment Council noted with satisfaction in 2005 that the various regional and community authorities had renewed and updated the cooperation agreement concerning the interregional mobility of jobseekers, which should contribute to developing the interregional exchange of job vacancies and strengthening cooperation in training activities. The Committee hopes that the next report will contain information on the results achieved by the measures adopted to achieve balanced regional development.

3. Employment market policies. The Committee notes that the standardized OECD unemployment rate stabilized at 7.9 per cent in 2003-04, although it rose slightly for women (increasing from 8.9 per cent in 2003 to 9.5 per cent in 2004). Youth unemployment, which is particularly high in Brussels (35.1 per cent in 2003) and in Wallonia (31.8 per cent in 2003), especially among low-skilled young persons, remains considerably higher than the general unemployment rate (20 per cent of the population between the ages of 15 and 24 years in 2004), and in this connection the “first job agreement” has been simplified to promote the hiring of young persons under 26 years of age. In reply to its direct request of 2004, the Government’s report enumerates the various measures adopted to raise the employment level of older workers, as their low employment rate, despite a rise of 4.9 points between 2001 and 2004, remains a matter of concern (30 per cent of the population aged 55-64 years in 2004, compared with 41 per cent at the European level). The Committee notes that, with a view to increasing the participation of older workers in the labour market, the minimum age for coverage by the unemployment system, which gives entitlement to unemployment benefit without the obligation to seek employment, was raised to 55 years in 2002 and 58 years in July 2004. The Committee also notes that, according to the economic study of Belgium undertaken by the OECD in 2005, it is not only indispensable to raise the employment rate of young persons and older workers, but also that of ethnic minorities, whose employment rate is half that of native Belgians, while their unemployment rate is three times as high. It notes that, in the context of the National Employment Conference of 2003, the various partners formulated plans of action intended to increase the participation of under-represented groups on the labour market, such as persons of foreign origin and persons with disabilities, through the establishment of awareness-raising campaigns and the intensification of controls to enforce compliance with the non-discrimination legislation. The Committee requests the Government to provide information on the measures adopted to promote the employment of vulnerable categories of workers, such as women, young persons, older workers, ethnic minorities and workers with disabilities, and on the results achieved in terms of lasting integration into the labour market (Article 1, paragraph 2).

4. Education and training policies. In reply to its 2004 direct request, the Government’s report indicates that, with a view to reducing long-term unemployment (unemployed for over one year), which rose once again in 2004 (49.6 per cent compared with 46.3 per cent in 2003), a new cooperation agreement has been signed between the federal State, the regions and communities establishing a new procedure to follow up the unemployed, which entered into force on 1 July 2004 and makes accompanying measures compulsory for the unemployed. The regions and communities will ensure that a new start is offered progressively to all young jobseekers before they have been unemployed for six months, and to all unemployed persons over 25 years of age before they complete 12 months of unemployment. In parallel, an examination has commenced of the cases of beneficiaries of unemployment allowances to ascertain that they are complying with the obligation to be seeking employment. The examination of the cases of all beneficiaries under 50 years of age should be completed during the course of 2007 and an assessment will be made of the findings. The Government’s report emphasizes the need to implement a policy of lifelong learning and refers in this respect to the latest interoccupational agreement of the social partners which envisages devoting 1.9 per cent of their wage mass to training with the objective of one worker out of two participating in training each year by 2010. It also refers to the action taken by the regions and communities to increase the supply of training and to develop a system for the certification of acquired skills, so that their value on the labour market can be recognized more effectively. The Committee requests the Government to continue providing information on the measures adopted in the context of education and training policies, and on their impact in terms of integration into the labour market.

5. General economic policies. The Committee notes the measures envisaged to promote the social economy, with the objective of the creation of 12,000 additional jobs for the social integration of workers from target groups over a period of four years. It also notes the conclusion by the Federal State and the regions in 2005 of a new cooperation agreement on the plural economy with a view to pursuing efforts in this respect and promoting the development of the social economy and the social responsibility of enterprises. The Committee requests the Government to keep it informed of the results achieved by these measures and to continue providing information on the manner in which the measures adopted for the promotion of employment lie within the framework of a “coordinated economic and social policy” (Article 2(a)).

6. Participation of the social partners in the formulation and application of policies. The Government’s report indicates that many of the challenges in the field of employment go beyond the fields of competence of the various authorities and require a common approach in which the social partners are also associated. In this respect, it adds that a substantive debate is currently being held with the social partners on the issue of the final stages of working life. The Committee notes that discussions with the social partners are also envisaged with a view to developing an overall strategy on active ageing and that a new interoccupational agreement is expected for the period 2005-06. It requests the Government to continue providing information on the manner in which the representatives of the persons affected are consulted in relation to employment policies (Article 3).

Direct Request (CEACR) - adopted 2004, published 93rd ILC session (2005)

1. The Committee notes the Government’s reports for the period ending May 2003. It has also had access to the national plan of action for employment of September 2004. The Committee notes that the period has been marked by an increase in unemployment, with an OECD standardized unemployment rate increasing from 6.7 per cent in 2001 to 7.3 per cent in 2002 and to 8.1 per cent in 2003. The unemployment rate of young persons below 25 years of age has increased significantly, from 14.3 per cent in 2001 to 20.1 per cent in 2003, while the share of long-term unemployment has decreased from 51.7 per cent of all unemployed in 2001 to 46.3 per cent in 2003.

2. Labour market policies. In order to enable an assessment of the effect given to the Convention, the Committee requests the Government to endeavour to submit a more focused presentation in which the principal labour market policy objectives and measures taken are analysed in light of the impact they may have had. The Government is also requested to submit information on measures taken to increase the employment rate of older persons over 55 years of age. Please submit all available evaluations of results obtained through the use of incentives designed to boost employment by reducing the non-wage labour costs. Please clarify how the unemployment benefits policy contributes to promoting the re-entry into employment of the beneficiaries. Please describe the measures taken to favour lifelong learning both of the unemployed and the employed.

3. General economic policies. The Committee also wishes to reiterate its interest in information on how measures taken to promote employment operate within a "framework of a coordinated economic and social policy" (Article 2, paragraph (a), of the Convention). It would appreciate it if the Government could indicate how the key elements of monetary and fiscal policies contribute to the employment objectives.

Direct Request (CEACR) - adopted 2001, published 90th ILC session (2002)

The Committee notes the information provided in the Government’s report and the supplementary information provided by the Walloon Region, as well as the draft law on the development of domestic services to promote employment.

1. Articles 1 and 2 of the Convention. The Government states that the economy grew by more than expected during the reporting period, particularly during the second half of 1999. Growth was due primarily to business investment, exports, and household spending. The number of employed people increased by 46,000 during 1998, 49,000 during 1999 and 51,000 during 2000. The participation rate for women increased from 41.2 per cent in 1990 to 44.4 per cent in 1998; but for men it decreased from 61.9 per cent to 59.9 per cent during the same period. Part-time work as a percentage of total employment for women grew from 20 per cent to 32 per cent in the decade to 1998. The number of long-term unemployed also has gone down. In the Walloon Region, the number of employed people increased by 23,200 from 1996 to 1998, and the number of unemployed decreased by 4,300. Three-quarters of the new jobs created were in the private sector.

2. The Government states that it is moving from passive to active labour market measures. The Government indicates that linking unemployment benefits to active measures has resulted in the creation of 11,800 posts, mainly in health and domestic services (house cleaning, childcare, etc.), and it has expanded its active programmes. The Government also aims to increase the participation rate of older workers, through raising the minimum age for retirement for a full pension to 58 and making part-time work more attractive. To stimulate labour demand, it is reducing social contributions of employers. The Government aims to increase access to independent professions with independent internships and assistance in setting up a business. It is encouraging the voluntary establishment of a four-day working week, within the capacity of the enterprise and without prejudice to the salary of the worker. The Committee requests that the Government send any information it may have on the numbers and types of workers availing themselves of this four-day working week option. The Committee notes this information and would appreciate being kept informed of the impact of these measures on employment promotion. Please also continue to provide information on how employment policies and programmes are kept under review within a coordinated framework of economic and social policy.

Observation (CEACR) - adopted 1999, published 88th ILC session (2000)

The Committee notes the detailed information contained in the Government's report for the period ending May 1998. The Government states that the employment rate has increased from 54.7 per cent in 1990 to around 57 per cent in 1997, mainly due to an increase in employment of women in part-time work. It explains that the rate remains below the European average because the post-secondary education rate remains above the average, and the retirement age is lower. The participation rate was 58.6 per cent in 1990 but has increased to 62.8 per cent in 1996, again mainly due to the increase in women entering the workforce. Although this is below the European average, the Government points out that the growth rate is above average. As of 1996, 15.4 per cent of workers were self-employed, and 14.7 per cent were in part-time employment in 1997. The unemployment rate decreased slightly from 10 per cent in 1994 to 9.2 per cent in 1997. According to Eurostat, unemployment was at 9 per cent as of May 1999.

The Committee notes both the areas of improvement and those where problems linger, particularly concerning long-term and youth unemployment, and notes the various programmes, both federal and community-level, aimed at solving the problems. It would appreciate being kept informed of the Government's progress in tackling these issues. It also notes the detailed information supplied by the Government on the manner in which the policies are reviewed within a framework of coordinated economic and social policy, as requested in Articles 1 and 2 of the Convention, and would appreciate it if the Government would continue to do so.

The Committee notes that, according to the OECD country report for Belgium, women comprise over 80 per cent of part-time workers, and approximately 25 per cent of women work part time involuntarily. The Committee would appreciate receiving further information on the Government's policy pertaining to part-time work in general, and measures taken to ensure that such work is accepted voluntarily, as requested in the report form under Article 1 of the Convention pertaining to underemployment.

Observation (CEACR) - adopted 1997, published 86th ILC session (1998)

1. The Committee took note of the Government's report for the period ending June 1996. The data provided by the Government, which confirm those published by the OECD, demonstrate the persistent nature of a worrying employment situation owing to the continuing high level of unemployment and the characteristics of its distribution. The modest increase in employment growth in 1995 and 1996 was not sufficient to compensate for the previous reduction and, despite the slight improvement in the situation of the active population, the unemployment rate was still 12.4 per cent in 1996. Regional disparities were maintained with the unemployment rate remaining stable in Wallonia, while in Flanders, where the situation was already more favourable, it decreased. Although they continue to occupy an ever-decreasing share of the active population, young people under the age of 25 continue to be subject to an unemployment rate of over 20 per cent. Long-term unemployment represents more than 60 per cent of all unemployment, and this proportion is among the highest in western Europe.

2. In its report, the Government explains the main policies incorporated in the multi-year employment plan adopted in October 1995, which relate to the reduction in labour costs in order to promote the employment of least skilled workers, the incentive to distribute the jobs available by extending entitlement to a career break and the encouragement of part-time work, a new mechanism for the labour market integration of young people and the search for new sources of employment in the non-commercial services sector. The Committee also notes the provisions of the Inter-Professional Agreement relating to the promotion of the recruitment of young people or the long-term unemployed and to pre-retirement schemes. With reference to its previous observation, the Committee hopes that the Government's next report will contain an initial assessment allowing the effectiveness of the different programmes implemented to be evaluated. In addition, the Committee notes the importance assumed by measures designed to redistribute existing employment or to encourage early retirement from the labour market, in a context where activity rates are already relatively low. The Committee invites the Government to specify the manner in which it envisages the development of such measures in relation to the fundamental aims of the Convention. Finally, the Committee would be grateful if the Government would provide more detailed information on its education and training policy with a view to making workers more employable.

3. The Committee notes that the Government refers, without providing any details, to other aspects of the economic and social policies affecting employment policy, such as the review of the Act relating to competitiveness, entry into European monetary union or the financing of social security. With reference to the requests which it has made in each of its observations over many years, the Committee trusts that in its next report the Government will provide the information required in the report form on the manner in which the main policies are pursued, and in particular monetary and budgetary policies, contribute, "within the framework of a coordinated economic and social policy", to the promotion of full, productive and freely chosen employment, in accordance with Articles 1 and 2 of the Convention. Explanations by the Government of the different aspects of employment policy, as it is defined in the Convention, would be all the more useful since the labour market policy measures which it describes do not in themselves appear to have enabled it to make significant progress in the fight against unemployment.

Observation (CEACR) - adopted 1995, published 83rd ILC session (1996)

1. The Committee notes the Government's report for the period ending June 1994. The Government indicates in the report that the economic recession in 1993 resulted in a heavy decline in employment and a new rise in the unemployment rate, which reached 11.9 per cent in 1993 and 12.6 per cent in 1994. However, it states that the recovery of growth should lead to a flattening out of the unemployment rate, which would appear to be confirmed by the most recent OECD estimates, which point to an unemployment rate of 12.4 per cent in 1995. Among the structural characteristics of unemployment, which the Government considers still to be a matter of concern, the Committee notes the substantial rise in the unemployment rate for young persons, the persistence of broad regional disparities and the continued substantial rise in long-term unemployment. Another picture of the labour market situation is given by the estimate of a broad definition of unemployment (including the persons covered by special programmes) which the OECD considers to be around one-quarter of the active population.

2. As in its previous reports, the Government describes in detail all the labour market policy measures implemented to encourage employers to offer new jobs through measures to reduce social contributions for the recruitment of a first employee, a young person or a worker affected by long-term unemployment; to encourage withdrawals from the labour market through an early pensions scheme; and to achieve a better balance between the supply and demand for labour by promoting a redistribution of work negotiated at the enterprise level and through career breaks. The Committee would be grateful if the Government would supplement this information by an evaluation of each of these measures in order to make it possible to assess their impact on the employment of the persons affected, as well as on the overall employment situation. The Committee also notes that the 1978 Act respecting contracts of employment has been amended to authorize on a temporary basis the conclusion of consecutive fixed-term contracts. It requests the Government to indicate the measures which have been taken or are envisaged to ensure that this measure has the effect of creating new jobs, rather than making existing jobs more precarious. More generally, it would be grateful if the Government would indicate, in the light of recent experience, whether the implementation of the various measures to eliminate or reduce a number of rigidities on the labour market has made it possible to increase the employment potential of growth.

3. The Government also refers to the conclusion of the inter-occupational agreement for 1993-94, which provides that the social partners have to take into account in their negotiations the effects of wage costs on competitiveness and employment. It also describes the major strategies of the overall plan for employment, competitiveness and the social security adopted in November 1993, which is designed to encourage the distribution of work, promote employment for young persons and reduce the cost of labour. The Government considers that the high cost of labour is a barrier to employment and that this barrier can be reduced through the financing of social security, by making it more favourable to employment generation. The Government's description of the various measures which have been adopted or are envisaged sheds light on the link that it is seeking to establish between labour market reform, the reform of the social security system and employment policy. The Committee notes that these questions were covered by standards adopted in 1988 (the Employment Promotion and Protection Against Unemployment Convention (No. 168) and Recommendation (No. 176)) which may, where appropriate, be a source of inspiration for the formulation of policies in these fields.

4. With reference to its previous observations, the Committee once again requests the Government to provide the information required by the report form on the measures adopted in fields such as monetary and budgetary policies. It would be grateful if the Government would indicate the manner in which it endeavours to ensure that their impact on employment is taken into account and that employment policy measures are decided upon and kept under review within the framework of a "coordinated economic and social policy", with a view to achieving the objectives set out in Article 1 of the Convention. The Committee notes that the Government considers it imperative to pursue an active employment policy which makes it possible to attain the objective of full employment in so far as possible. This policy should be the means of implementing the constitutional obligation newly introduced into statutory law by the adoption of the Act of 31 January 1994 to amend the Constitution, which now includes "the right to work and to the free choice of professional activity within the framework of a general employment policy" among the "economic, social and cultural rights" which form part of the right of every person to "lead a life worthy of human dignity".

Observation (CEACR) - adopted 1994, published 81st ILC session (1994)

1. The Committee notes the Government's documented report for the period ending June 1992. In its report, the Government states that, in a situation which is characterized by lower economic growth, the employment situation has deteriorated rapidly. Despite a very slight increase in the active population, the unemployment rate, which was 9.7 per cent in 1990, rose to 10.3 per cent in 1991. The rise was more rapid in 1992, and it reached 11.7 per cent in July 1992. The Government had hoped to be able to stabilize unemployment in 1993, but supplied additional information in January 1994 to confirm the acceleration in the rise in the number of jobseekers (the unemployment rate rose to 12.2 per cent in June 1993). Furthermore, the characteristics governing the distribution of unemployment in the various regions and categories of the population which the Committee had noted in its previous comments have persisted. In particular, the proportion of long-term unemployment is especially significant. According to the Government, nearly 50 per cent of the unemployed have been without employment for more than two years.

2. The Government states in its report that it is less the level than the structure of unemployment which is a matter of concern, and that particular attention is being paid to training and reintegrating the long-term unemployed. With reference to the conclusion in November 1990 of the inter-occupational agreement for the period 1991-92, it notes that the parties to the agreement stated that they were in favour of overall measures to combat unemployment, rather than isolated activities for specific categories. In the framework of this agreement, the concept of high-risk categories was extended and training and employment measures took the form of both new initiatives and the renewal of the measures taken under the previous inter-occupational agreement.

3. In this respect, the report gives a detailed and updated description of each of the measures adopted to increase job offers and decrease the demand for employment, to which the Government referred in its previous reports. The Committee would have preferred this description to be supplemented, in addition to the provision of gross data on the number of beneficiaries, by an evaluation of the overall and lasting effect of these measures on employment and it believes that it can discern a trend for a decline in the number of beneficiaries of measures to find work for the unemployed (including vocational integration courses for young persons and measures known as "the third work circuit"), as well as an increase in the number of beneficiaries of incentives to withdraw temporarily from the labour market (career breaks). It would be grateful if the Government would indicate whether these trends are a result of a modification in the measures adopted in the context of its labour market policy. The Committee notes the importance of measures which have the effect of decreasing the demand for jobs, in a context in which activity rates are already relatively low and, more generally, the emphasis which is placed on social measures for the unemployed, in a context in which maintaining the level of competitiveness of the economy appears to be vital.

4. The Committee notes that by placing emphasis on describing the measures adopted in the context of labour market policies, the Government's report does not permit a full evaluation to be made of the effect given to the Convention. It recalls in this respect that the scope of an "active" employment policy in the sense set out in the Convention goes beyond the adoption of measures to seek a balance between the supply of jobs and demand on the labour market, and that it has to be pursued "as a major goal", "within the framework of a coordinated economic and social policy". With reference in particular to the questions contained in the report form, the Committee would be grateful if the Government would state in its next report the manner in which the principal measures taken in fields such as fiscal and monetary policies, prices, incomes and wages policies, and measures related to social security, contribute to the pursuance of the objective of "full, productive and freely chosen employment".

Observation (CEACR) - adopted 1992, published 79th ILC session (1992)

1. The Committee has taken note of the Government's two successive reports dealing with the period ending June 1990 and of the attached documentation. As usual the Government has supplied an exhaustive collection of information dealing with various aspects of its economic policy and in particular with employment policy measures.

2. The Committee notes that the trend towards an improvement in the general employment situation to which it drew attention in its previous comments was confirmed in the course of the period under review. The high growth rate of economic activity made it possible for employment to grow steadily and for the unemployment rate to continue to decline; according to the OECD standardised rates, the unemployment rate was 7.9 per cent in 1990. The Committee notes in particular the significant reduction in the unemployment rate among young people. It nevertheless observes that serious structural problems persist. There are still substantial regional disparities in the situation and trends of employment and unemployment: the decrease in unemployment essentially benefits Flanders, where the unemployment rate is half that in Wallonia. Long-term unemployment continues to account for nearly two-thirds of total unemployment and affects older workers, women and the least-skilled in particular. The decline in unemployment among men is greater than that in unemployment among women, which is tending to increase in relative terms. Furthermore the combination, in a context of growing economic activity, of a decline in unemployment and a heavy increase in the number of unfilled job vacancies is a sign of imbalance between the structures of supply and demand on the labour market.

3. The Government gives details in its report of the various measures designed to bring the labour market into balance, paying particular attention to the problem of structural unemployment. In essentials those measures aim, in the first place, to increase the supply of employment, especially for the benefit of young people and the long-term unemployed, through programmes of financial incentives for recruitment or temporary assignment to tasks in the public interest; in the second place they aim to reduce the demand for employment by reducing the length of economically active life through a system of early retirement, by encouraging flexible working time, by promoting leaves of absence; or again by increasing the duration of compulsory schooling.

4. The Committee notes that the social partners, in adopting the inter-occupational agreement for the period 1989-90, agreed to give priority, in making allocations from the Employment Fund, to the training and integration of young people and jobseekers who experienced particular difficulty in fitting into the labour market. It observes, however, that, according to the Government, special employment programmes (unemployed persons put to work, special setting for work, third work circuit, traineeships for young people) have made only a limited contribution to the reduction of unemployment, which is mainly due to the combined effects of improving economic activity and declining population trends. With reference to measures which affect the flexibility of labour, the Government states that it is impossible to give a precise picture of their effect on employment and that they have probably made it possible to divide up the available jobs among a greater number of workers but at the risk of a proliferation of precarious situations. The Committee notes further that the reduction in unemployment has been secured at the cost of keeping employment rates relatively low. It would be grateful if the Government would indicate in its next report whether the population trends and the attendant risks of manpower shortages are not likely, in the long run, to call into question programmes encouraging withdrawal from the labour market.

5. With reference to its previous observation, the Committee hopes that the Government will be in a position to supply in its next report a summary of the available information on the effect produced on employment by the various measures of economic and social policy and labour market policy described.

Observation (CEACR) - adopted 1989, published 76th ILC session (1989)

The Committee notes the Government's two reports on the application of the Convention and the reply to its previous observation.

The very detailed information which they contain covers a range of specific measures taken to mitigate the effects on the labour market of the programme of economic recovery put into effect since 1982.

Referring to its previous comments, the Committee notes in particular the extension by law for 1987 and 1988 of the so-called "5-3-3" agreements as well as the complementary "Employment Promotion" agreement. The 5-3-3 agreements provide for a 5 per cent reduction of working time with a 3 per cent compensatory recruitment of labour, employers being entitled to retain the product of the wage moderation which averages out at 3 per cent of the payroll. The "Employment Promotion" agreement invites enterprises to take new measures to promote employment (for example, recruitment of apprentices, part-time work, and career interruption) at a cost of up to 1.5 per cent of their total wage bill. Non-observance by employers of the obligations set out in the two types of agreement is sanctioned by the payment of a percentage of the wage bill into the Employment Fund.

The Committee also notes a new agreement to promote employment that has been in force since 1986, namely the inter-occupational agreement of 7 November 1986, which is a model agreement for the period 1987-88, marks the return to the principle of free joint negotiation, and is concerned principally with employment promotion, in particular for young people. It provides for the use of 0.5 per cent of the total payroll for this purpose. It also contains specific provisions for the reduction of working time, and other measures concerning problems of labour market flexibility. The Committee further notes that the Government, in its recommendations for the 1989-90 inter-occupational agreement, requests the social partners to continue their efforts in the area of employment creation and considers that the improvement in purchasing power of wage earners should involve an element of solidarity with the unemployed.

The many and continued efforts made in co-operation with the social partners, as called for by Article 3 of the Convention, bear witness to the Government's determination to implement an active employment policy. The Government states, in its report, that employment promotion should be the ultimate policy objective, and that competitivity and stability are indispensable to attaining that objective. In the absence of available or appropriate data to evaluate the general employment policy, the Committee notes that the trend towards a certain improvement in the labour market situation has been observed during the period 1986-88. Total employment continued to increase in 1986 and 1987 (although at a slower rate) and this growth can be attributed entirely to the private sector: employment has ceased to grow in the public sector with the implementation of economy measures since 1982. Unemployment shows a slight decrease while remaining at a high level. The Committee noted in its previous observation that the rate of unemployment was 12.4 per cent for the second quarter of 1986. Currently, the rate is approximately 11 per cent of the economically active population for the period 1986-88, the improvement being particularly marked among young people. On the other hand, long-term unemployment has continued to deteriorate. According to the latest edition of "Employment Perspectives" (OECD, September 1988), the incidence of long-term unemployment, that is the proportion of the unemployed who had been out of work for longer than 12 months, amounted to 70 per cent in 1987. Another cause for concern is the profound change in the type and structure of employment which the Government indicates has been the price to pay for the progress made since 1983: the "explosion" in part-time work (which has become the main source of employment creation); the appearance of precarious forms of employment and of so-called "peripheral" forms of employment, the increasing difficulty of finding the divisions between employment, unemployment and inactivity.

The Committee hopes that, in accordance with Article 2, the Government will continue to endeavour to decide on and keep under review, within the framework of a co-ordinated economic and social policy, the measures to be adopted for attaining the objectives of the Convention as set out in Article 1. It would be grateful if the Government would continue to supply information on any developments relating to the questions and concerns referred to above and if, when the appropriate data and analyses are available, it would supply a summary report on the impact on employment of economic and social policy measures (Part VI of the report form).