Individual Case (CAS) - Discussion: 2002, Publication: 90th ILC session (2002)

A Government representative referred to the demand by the Confederation of Employer Associations of Turkey (TISK) that the Economic and Social Council be given a legal status, and to the allegation by the Confederation of Trade Unions of Turkey (TURK-IS) that consultation mechanisms were not being used; he indicated that Act. No. 4641 on the establishment and working methods of the Economic and Social Council was passed by Parliament on 21 April 2001 giving the Economic and Social Council a permanent legal status. The Economic and Social Council, whose main function involved advisory discussions among representatives of interest groups on macroeconomic and social issues, including policy formulation and implementation on employment problems, had met several times in 1999 and 2000.

With regard to the information requested by the Committee of Experts on the work of the tripartite employment consultation committees established in 12 provinces, the speaker stated that the Istanbul Employment Committee had decided, for instance, to initiate vocational training courses in cooperation with IS-KUR (the recently reformed Public Employment Organization which replaced the former IIBK) on information technologies in order to combat unemployment among young workers as well as to take action jointly with related institutions with a view to fighting clandestine employment. Although the actual performance of these employment consultation committees had not yet been evaluated, their continuing efforts were expected to yield concrete results in the regions concerned. The speaker indicated that his Government would be pleased to provide further information on their performance in its next report.

In an attempt to promote dialogue on the formulation of a national employment strategy, an initiative was taken by IS-KUR to formulate national employment policies supplemented by an "urgent action plan", thus aiming to draw up a National Employment Strategy along the four pillars on employment of the European Union.

Turkey's integration into the global markets since the 1980's had rendered its economy very vulnerable to successive waves of economic crisis, resulting in adverse effects on the productive sectors and employment levels. The various recessions of a secondary nature, the three serious financial crises, coupled with the devastating effects of the earthquake in 1999, also exacerbated unemployment to high levels in Turkey.

However, the Government had taken several measures, including the adoption of active labour market policy measures to combat unemployment. These included adopting legislation to encourage employment by reducing the rate of social security contributions and taxes and deferring their payment to future dates. This legislation was the outcome of social dialogue since it was drafted through consultations among the Ministries of Labour and Finance, Under-Secretariat of Treasury, Union of Chambers as well as the labour and employers' confederations. Other measures included programmes of vocational guidance and education and reform of the banking system.

Concerning the demand by TISK that private employment agencies be permitted, the Decree of 4 October 2000 which reorganized the structure and functions of ISKUR permitted the establishment of private employment agencies along the lines envisaged in the Private Employment Agencies Convention, 1997 (No. 181), which would be licensed and supervised by ISKUR. However, the enabling legislation on which the said Decree was based was struck down by the Constitutional Court for procedural reasons, so there was at present a void, pending the enactment of new legislation on ISKUR.

On the issue of forced retirements at an early age, the speaker stated that the complaint of TURK-IS had to be acknowledged, but this situation was due to Turkey's standby agreements with the International Monetary Fund aimed at restructuring the economy and privatizing the ailing state economic enterprises.

The speaker concluded by stating that, while acknowledging that proper economic policies were essential for sustainable employment, he had to limit his references to only those aspects raised by the Committee of Experts. He wished to stress again that the great part of Turkey's unemployment problem was caused by the recurrent financial crises. Both the ILO and the World Bank were aware of the unemployment problem with which Turkey was trying to cope, as evidenced by the projected ILO mission on developing a national employment policy in Turkey - foreseen in the Protocol signed two years ago - as well as the ILO's role in providing assistance cited in the World Bank report (Component 6: Labour market information). The World Bank had in the recent past provided financial assistance for a large-scale project on employment promotion (the labour adjustment programme) and the restructuring of the Public Employment Organization.

The Worker members took note of the information presented by the Government. Convention No. 122 concerning employment policy was one of the priority Conventions because employment policy was one of the cornerstones of social policy and of a solid economy. It was the first time that Turkey had been called before the Committee with regard to Convention No. 122 and it was appropriate to note here that, thanks to the regular submission of reports by the Government, the Committee of Experts had been able to observe closely the development of the situation over the past 15 years and to be aware of these developments and especially of the efforts undertaken by the Government.

Naturally, the difficult economic situation in Turkey had a negative impact on employment; this obliged the Government to have an advised policy in this area. The Committee of Experts drew particular attention to Articles 1 and 3 of the Convention. As the Turkish trade unions confirmed, the consultation machinery provided for in this area did not function normally. In fact, the competent bodies did not meet. The Worker members, therefore, hoped that the Government would be requested to engage in a genuine dialogue with the organizations of workers and employers on different aspects of employment policy. Turkey had a very serious problem of unemployment, especially in the cities. In this regard, Article 1 of Convention No. 122 required the Government to formulate an active policy with a view to promoting full, productive and freely chosen employment. The real situation, confirmed by the statistics, was far from reflecting such a policy. Yet access to employment remained for every individual a precondition for a decent life. When talking about decent work, it was appropriate not to forget that for someone who did not even have work, such an objective remained utopian. The Worker members welcomed the signs of goodwill demonstrated by the Government in its written communications as well as in its verbal presentation and they hoped that, to the extent that it would act in consultation with the social partners, the Government would achieve progress in the area of employment. They wished to be kept informed of the development of the situation.

The Employer members commenced by noting that Turkey has appeared before the Conference Committee 17 times over the past 20 years, in regard to various Conventions. The significance of such a high level of appearances should not be lost on the Conference Committee, although the Government had always provided the information requested. Recalling that Convention No. 122 was promotional in nature, placing no specific demands on ratifying governments but rather emphasizing the pursuit of an objective-oriented policy, they drew attention to the fact that the creation of policy often involved an "art of the possible", with numerous possibilities for promoting employment. On this point they noted that the Government had passed a new Decree establishing an Economic and Social Council, thereby creating a legal basis for consultation with the social partners, and requested that the Government supply information on the manner in which tripartite consultations concerning employment policies take place, as per the request made in the Committee of Expert's report. In reference to the request made by the Committee of Experts for further information on the manner in which other groups, such as rural and informal sector workers, were consulted, they pointed out that the informal economy posed particular problems of definition and delineation, and was often characterized by an absence of representative structures.

Noting the criticisms of government employment policy by the Confederation of Turkish Trade Unions (TURK-IS), as reflected in the Committee of Experts' observation, they cautioned against taking the employment statistics provided by a government at face value. They recalled that there were different methods of recording statistical information, and stated that only by comparing the various methods utilized can a full sense of what they reflect be acquired. Concerning the criticism that workers were being forced to retire at an early age, they pointed out that the Government had increased the age for pensions and that many countries were currently undergoing rapid changes in the retirement age. In reference to the assertion by TURK-IS that public spending had failed to generate jobs, they underscored the fact that employment creation was not the sole objective of public investment; education and health-care spending were also important priorities, although these investments did not affect short-term employment rates. Finally, they acknowledged the various difficulties faced by the Government in promoting employment - including the earthquake of August 1999 and the increase in migration from rural to urban areas - and expressed their confidence that the Government would provide the information requested by the Committee of Experts in its next report.

The Worker member of Turkey indicated that he was aware of the negative impact on employment opportunities of the economic crises, of the customs union with the European Union, and of the continuous impositions of the IMF and the World Bank. The Government had taken steps to promote employment that were worthy of praise. For instance, the Government had last year granted permanent status to more than 70,000 workers who had been employed on a temporary basis for decades, and had postponed the payment of 37 per cent of the income tax and of the social insurance contributions of newly recruited workers for a period of one year; the postponement was of 50 per cent for workers holding trade union membership. These positive steps were in line with the requirements of the Convention, but were contradicted by some other actions. Referring to paragraph 2 of the experts' observation, the speaker stated that, although the law on the Economic and Social Council was enacted on 11 April 2001, the Council had never been invited to convene, in spite of the express stipulation of regular meetings every three months. This law had been a good example of tripartite activity, since its text was drafted by a tripartite commission. However, since the Economic and Social Council had never met, it had never been in a position to discuss employment policy with the organizations directly concerned.

The speaker recalled that last year this Committee had discussed the application of the Termination of Employment Convention, 1982 (No. 158), in Turkey. The Ministry of Labour and Social Security had prepared, again on a tripartite basis, a Bill almost in harmony with Convention No. 158 and forwarded it to the Council of Ministers. The Bill was now pending debate in Parliament. Acceleration of the legislative process on this issue would contribute to the objectives of Convention No. 122.

The speaker indicated that it was correct to criticize the Government for violating Convention No. 122; but one should also be aware of the fact that the Government could not pursue a policy of promoting full, productive and freely chosen employment because the interest paid on the public debt exceeded the total tax revenues. The Turkish Government had concluded standby arrangements with the IMF, which demanded extensive dismissals in the public sector. Tens of thousands of workers and public servants were waiting for compulsory retirement.

The financial institutions were providing funds not to create new employment, but to assuage the anger of those dismissed, and they were demanding extensive and rapid privatization of enterprises which then are liquidated or dismiss workers. The demand of these institutions also had led to the termination of subsidies to the agricultural sector. He urged the governments of the developed countries to change the policies of the IMF and the World Bank to promote full, productive and freely chosen employment.

The Worker member of the Netherlands indicated that the issue of Turkey's numerous appearances before the Conference Committee had to be put in relation with the fact that a military coup had taken place in September 1980, thus leading to the jailing of the current Worker member of Turkey and the holding of numerous discussions concerning trade union freedom under Conventions Nos. 87 and 98. With regard to Turkey's relationship with the European Union, the speaker noted that the establishment of a joint consultative committee was one requirement for membership in the European Union. He stated that, although Turkey had formally established a Social and Economic Council, it had as yet held no actual, meaningful consultations with the social partners on matters of employment policy. He drew attention to the European Union's employment policy, which calls for active involvement on the part of the social partners, and concluded by urging the Government to consider this model in designing its own employment policy - especially in light of its ratification of Conventions Nos. 122 and 144.

The Worker member of Romania emphasized that Convention No. 122 was a priority Convention and of great importance to the workers, and it was in this context that the case of Turkey had to be analysed in light of the observation of the Committee of Experts on the application of Articles 1 and 3 of the Convention. With regard to Article 1 of the Convention, according to the Turkish trade unions, the Government's employment policy aggravated the problem of unemployment and its public investments did not create employment. None of the criteria for employment promotion were being implemented to strengthen the private sector. Moreover, many older workers were forced to take early retirement and no measures were taken to avoid collective dismissal. The unemployment rate remained high and youth unemployment remained unchanged. The speaker recalled the sensitive question of the rural exodus and there remained an insufficient number of jobs offered to absorb the number of jobseekers. Underemployment had increased in 1998 and 1999 and was prevailing in both rural and urban areas. Concerning the application of Article 3 of the Convention, according to the information received from the Turkish trade unions, the procedures for consultation were not being followed and there were no means for consultation with rural workers and workers in the informal sector. The speaker requested that the Government make progress in the area of employment policy and emphasized that this approach should be carried out in the context of a dialogue with the workers' organizations.

The Government representative stated that Convention No. 122 was promotional in nature - with no specific solutions, just objectives. He agreed that unemployment was one of the most significant ills in society. All labour legislation was meaningless without a sound employment base. The Government was trying to cope with economic development problems and unemployment. In its next report the Government will detail progress achieved as a consequence of the employment subsidies taking effect. However, there might be a slight increase in unemployment due to the unemployment insurance scheme which took effect in 2002, which would induce more registration of unemployment. He agreed with the Employer members that unemployment rates vacillated and one needed to look at the underlying statistical methods used. Concerning consultations, the law establishing the Economic and Social Council foresees it convening upon the request of one-third of the members. Therefore, the social partners were able to request that the Economic and Social Council convene. The other employment consultation committees were just getting started, but he assured the Committee that efforts on social dialogue would continue. Finally, he quoted a representative of TURK-I^, saying "the Government of Turkey is taking positive steps in order to eradicate unemployment in Turkey, despite the unnecessary interventions of the IMF".

The Employer members emphasized that, although employment policy was of paramount importance, it could not be viewed in isolation. Employment must be considered in relation to other policies, and an integrated approach must be achieved. They stated that tripartite consultation must remain an essential aspect of the implementation and devising of employment policy, and requested the Government to provide further information on all matters relevant to its commitments under Convention No. 122.

The Worker members recognized that Turkey currently found itself in a difficult economic situation, which, inevitably, had negative consequences for employment, and that this situation was in large part the result of factors external to the Government's will, such as the impact of the policies of the International Monetary Fund and the World Bank. Nevertheless, it remained that the Government of Turkey was bound by the obligations it had taken when ratifying Convention No. 122 in 1977. Consequently, the Worker members asked that the Government be requested to take all necessary measures to bring its law and practice into conformity with the Convention by resorting to an open dialogue with the social partners and respecting their freedom and independence.

The Conference Committee notes the statement made by the Government representative, as well as the discussion in the Committee. The Conference Committee recalls that the employment policy Convention is a priority Convention that requires the promotion of full, productive and freely chosen employment within the framework of a coordinated economic and social policy, carried out in consultation with representatives of the persons affected by the measures to be taken. It notes the economic conditions Turkey is currently facing, as well as the various active measures taken by the Government to promote employment, including the adoption of numerous measures aimed at reforming the Public Employment Service and the functioning of private employment agencies. It hopes that the Government will continue to furnish in its next report on the application of the Convention information on progress made in promoting employment. It trusts that its reports on the application of the Convention will also include information on other measures taken to ensure that there is effective consultation in the framework of the Economic and Social Council and that the views of representatives of employers' and workers' organizations, as well as those of other interested parties, are taken fully into account in the formulation, implementation and evaluation of employment policies and programmes.

Direct Request (CEACR) - adopted 2023, published 112nd ILC session (2024)

Direct Request (CEACR) - adopted 2016, published 106th ILC session (2017)

Direct Request (CEACR) - adopted 2013, published 103rd ILC session (2014)

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

Direct Request (CEACR) - adopted 2011, published 101st ILC session (2012)

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

The Committee notes that the Government’s report has not been received. It must therefore repeat its 2009 observation which read as follows:

The Committee notes the Government’s report received in November 2008 including detailed contributions by the Confederation of Turkish Trade Unions (TÜRK–İŞ) and the Turkish Confederation of Employer Associations (TİSK).

Articles 1 and 2 of the Convention. Implementation of an active employment policy. In its 2007 observation, the Committee asked the Government to provide information on the active employment policy measures implemented, in order to be able to examine the extent to which economic growth translated into better economic outcomes and poverty reduction. The Government reports that following Turkey’s economic crisis of 2001, which caused a decrease in employment, the overall employment rate has progressively increased over the period 2004–06 and the unemployment rate decreased. The Committee notes from statistical data available in the ILO that the unemployment rate, which was slightly below 10 per cent in 2006, is envisaged to reach 15 per cent in 2009 while the employment rate is envisaged to decrease below 40 per cent. The Government indicates that a significant step towards increasing employment was made with the entry into force in May 2008 of Law No. 5763 containing an “Employment package” as part of a labour market reform programme entailing amendments to the Labour Law and other legislative acts. The measures to be implemented under the employment package include, among others, a reduction of the administrative and financial burden on employment to promote job creation, especially for women, young workers and persons with disabilities, and an increase in unemployment benefits. New active labour market policies will be developed by the Turkish Employment Agency (İŞKUR) and funded under the Unemployment Insurance Fund to help reduce the mismatch between skills on offer and in demand in the labour market. The Committee notes that the Government’s Medium-Term Programme covering the period 2008–10 envisages to create employment for approximately 1.4 million people. The TÜRK–İŞ stresses the importance of speeding up the process for redesigning the education and training system so as to reflect labour market needs. The Committee invites the Government to provide information in its next report on the results achieved and difficulties encountered in implementing the measures set out under the employment package to promote full employment and combat unemployment.

Women. The Committee notes that the female employment rate in Turkey is still low. In December 2008 the employment rate for women was around 21.3 per cent (as compared to 61.5 per cent for men). The Government indicates in its report that the new Employment Package places a special emphasis on the promotion of job opportunities for women through a reduction of the employers’ social security contributions. A national action plan is being prepared by the general directorate on the status of women, which is to address gender issues in employment. Women have been granted wider access to active employment measures whereas social services, especially childcare, have been further developed. Support is also given to female entrepreneurship and access to micro credit. The Committee notes that the improvement of female employment is referred to as one of the decent work country priorities in a Memorandum of Understanding signed in February 2009 with the ILO. It further notes that the ILO, in cooperation with the İŞKUR, has launched a project on active labour market measures for enhancing employment for women to be carried out in three pilot provinces where female labour participation rates are low (Ankara, Gaziantep and Konya). The Committee asks the Government to continue providing information in its next report on the efforts made to improve the employment situation of women and the results achieved in terms of job creation as a result of the measures adopted.

Youth employment. The Committee notes that the high level of youth unemployment (19.6 per cent in 2007) continues to be a matter of concern for Turkey. The Government indicates that the employment package envisages a reduction of employers’ social security contributions over a period of five years in order to increase employment opportunities for young workers. It further indicates that 71 per cent of the participants in the training courses regularly organized by the İŞKUR in 2006 and 2007 were young persons aged 15–29. In this regard, the TİSK observes that a national youth employment policy should be developed in collaboration with the social partners and other stakeholders. The Committee notes that the Memorandum of Understanding concluded with the ILO includes youth employment among the country’s priorities. The Committee asks the Government to continue providing information in its next report on the efforts made to improve the employment situation of young persons, and the results achieved in terms of job creation as a result of the measures adopted.

Small and medium-sized enterprises and the informal economy. The Government indicates in its report that one of the objectives of the employment package is decreasing informal employment. In this connection, the Committee notes that, based on funds provided by the Administration for the Development and Support for Small and Medium-sized Enterprises (KOSGEB), interest-free credit is granted to small and medium-sized enterprises which is proportional to the number of qualified workers or newly graduated young people that they hire, with a view to encouraging employment formalization. The employment of 25,146 workers has been supported by the KOSGEB over the period 2006–08. In their comments the TÜRK–İŞ and the TİSK emphasize the high level of unregistered employment. Out of the total 21.6 million employed persons in the country, almost half (46 per cent in 2007) is not registered. The Committee asks the Government to supply further information in its next report on the results of the measures adopted with a view to increasing employment opportunities in the non-declared economy and facilitating the gradual integration of its workers into the labour market.

Article 3. Participation of social partners in the formulation and application of policies. In reply to previous comments, the Government states that the efficiency of the national Economic and Social Council (EKOSOK) will be increased. The Government also indicates that under the new employment package, the labour market monitoring functions of the provincial employment boards operating under the İŞKUR, where the social partners are represented, have been redefined so as to cover vocational education and that the number of the board’s members have been decreased to make them more efficient. The Committee notes with interest several projects jointly implemented by the social partners aimed at strengthening their involvement in the modernization of the vocational education and training system, developing the IŞKUR’s institutional capacity and services as well as improving the efficiency of labour market monitoring mechanisms at provincial level. In its comments on the report for the Tripartite Consultation (International Labour Standards) Convention, 1976 (No. 144), the TİSK stresses the need to approve, without delay, the Bill on the new composition of the EKOSOK prepared in consultation with the social partners in order to ensure a participatory approach in the development of employment policies. In this connection, the TÜRK–İŞ observes that although under the existing legislation EKOSOK should meet every three months, it has held only one meeting over the period 2006–08. The TÜRK–İŞ also indicates that the composition of the provincial employment boards operating under the İŞKUR has been changed and that social partners have been excluded. The Committee asks the Government to provide in its next report further information on how social partners are involved in the formulation and implementation of active employment policies, particularly through such mechanisms as EKOSOK and other bodies operating at local level, so as to fully take into account their experiences and views.

Part V of the report form. ILO technical assistance. The Committee notes with interest the information included in the report on the programmes implemented by the ILO as part of its technical cooperation activities in Turkey. A pilot programme to strengthen social dialogue in order to combat unregistered employment is being implemented in the provinces of Çorum and Gaziantep. Under this programme the Government and the social partners have developed employment strategies targeted at specific local contexts and studies have been conducted to identify factors causing unregistered employment. A pilot project to improve employment services has been implemented in the province of Koçaeli to serve as a model for the entire country with the specific objective to increase the effectiveness of social dialogue through the İŞKUR’s local employment committees. Labour market analyses are being carried out with the aim of developing appropriate labour market policies and the İŞKUR officials have been trained in restructuring, redundancy management and job counselling. Under an ILO–EU textile training project, workers and managers in factories supplying multinational enterprises in the textile and clothing sector have been trained on issues related to quality, productivity and workplace conditions with a focus on worker–management relations in order to raise awareness on the importance of social dialogue. The Committee would appreciate continuing to receive information on the employment policy measures implemented as a result of the ILO technical cooperation activities.

The Committee hopes that the Government will make every effort to take the necessary action in the near future.

Observation (CEACR) - adopted 2009, published 99th ILC session (2010)

The Committee notes the Government’s report received in November 2008 including detailed contributions by the Confederation of Turkish Trade Unions (TÜRK-İŞ) and the Turkish Confederation of Employer Associations (TİSK).

Articles 1 and 2 of the Convention. Implementation of an active employment policy. In its 2007 observation, the Committee asked the Government to provide information on the active employment policy measures implemented, in order to be able to examine the extent to which economic growth translated into better economic outcomes and poverty reduction. The Government reports that following Turkey’s economic crisis of 2001, which caused a decrease in employment, the overall employment rate has progressively increased over the period 2004–06 and the unemployment rate decreased. The Committee notes from statistical data available in the ILO that the unemployment rate, which was slightly below 10 per cent in 2006, is envisaged to reach 15 per cent in 2009 while the employment rate is envisaged to decrease below 40 per cent. The Government indicates that a significant step towards increasing employment was made with the entry into force in May 2008 of Law No. 5763 containing an “Employment package” as part of a labour market reform programme entailing amendments to the Labour Law and other legislative acts. The measures to be implemented under the employment package include, among others, a reduction of the administrative and financial burden on employment to promote job creation, especially for women, young workers and persons with disabilities, and an increase in unemployment benefits. New active labour market policies will be developed by the Turkish Employment Agency (İŞKUR) and funded under the Unemployment Insurance Fund to help reduce the mismatch between skills on offer and in demand in the labour market. The Committee notes that the Government’s Medium-Term Programme covering the period 2008–10 envisages to create employment for approximately 1.4 million people. The TÜRK-İŞ stresses the importance of speeding up the process for redesigning the education and training system so as to reflect labour market needs. The Committee invites the Government to provide information in its next report on the results achieved and difficulties encountered in implementing the measures set out under the employment package to promote full employment and combat unemployment.

Women. The Committee notes that the female employment rate in Turkey is still low. In December 2008 the employment rate for women was around 21.3 per cent (as compared to 61.5 per cent for men). The Government indicates in its report that the new Employment Package places a special emphasis on the promotion of job opportunities for women through a reduction of the employers’ social security contributions. A national action plan is being prepared by the general directorate on the status of women, which is to address gender issues in employment. Women have been granted wider access to active employment measures whereas social services, especially childcare, have been further developed. Support is also given to female entrepreneurship and access to micro credit. The Committee notes that the improvement of female employment is referred to as one of the decent work country priorities in a Memorandum of Understanding signed in February 2009 with the ILO. It further notes that the ILO, in cooperation with the İŞKUR, has launched a project on active labour market measures for enhancing employment for women to be carried out in three pilot provinces where female labour participation rates are low (Ankara, Gaziantep and Konya). The Committee asks the Government to continue providing information in its next report on the efforts made to improve the employment situation of women and the results achieved in terms of job creation as a result of the measures adopted.

Youth employment. The Committee notes that the high level of youth unemployment (19.6 per cent in 2007) continues to be a matter of concern for Turkey. The Government indicates that the employment package envisages a reduction of employers’ social security contributions over a period of five years in order to increase employment opportunities for young workers. It further indicates that 71 per cent of the participants in the training courses regularly organized by the İŞKUR in 2006 and 2007 were young persons aged 15–29. In this regard, the TİSK observes that a national youth employment policy should be developed in collaboration with the social partners and other stakeholders. The Committee notes that the Memorandum of Understanding concluded with the ILO includes youth employment among the country’s priorities. The Committee asks the Government to continue providing information in its next report on the efforts made to improve the employment situation of young persons, and the results achieved in terms of job creation as a result of the measures adopted.

Small and medium-sized enterprises and the informal economy. The Government indicates in its report that one of the objectives of the employment package is decreasing informal employment. In this connection, the Committee notes that, based on funds provided by the Administration for the Development and Support for Small and Medium-sized Enterprises (KOSGEB), interest-free credit is granted to small and medium-sized enterprises which is proportional to the number of qualified workers or newly graduated young people that they hire, with a view to encouraging employment formalization. The employment of 25,146 workers has been supported by the KOSGEB over the period 2006–08. In their comments the TÜRK-İŞ and the TİSK emphasize the high level of unregistered employment. Out of the total 21.6 million employed persons in the country, almost half (46 per cent in 2007) is not registered. The Committee asks the Government to supply further information in its next report on the results of the measures adopted with a view to increasing employment opportunities in the non-declared economy and facilitating the gradual integration of its workers into the labour market.

Article 3. Participation of social partners in the formulation and application of policies. In reply to previous comments, the Government states that the efficiency of the national Economic and Social Council (EKOSOK) will be increased. The Government also indicates that under the new employment package, the labour market monitoring functions of the provincial employment boards operating under the İŞKUR, where the social partners are represented, have been redefined so as to cover vocational education and that the number of the board’s members have been decreased to make them more efficient. The Committee notes with interest several projects jointly implemented by the social partners aimed at strengthening their involvement in the modernization of the vocational education and training system, developing the IŞKUR’s institutional capacity and services as well as improving the efficiency of labour market monitoring mechanisms at provincial level. In its comments on the report for the Tripartite Consultation (International Labour Standards) Convention, 1976 (No. 144), the TİSK stresses the need to approve, without delay, the Bill on the new composition of the EKOSOK prepared in consultation with the social partners in order to ensure a participatory approach in the development of employment policies. In this connection, the TÜRK-İŞ observes that although under the existing legislation EKOSOK should meet every three months, it has held only one meeting over the period 2006–08. The TÜRK-İŞ also indicates that the composition of the provincial employment boards operating under the İŞKUR has been changed and that social partners have been excluded. The Committee asks the Government to provide in its next report further information on how social partners are involved in the formulation and implementation of active employment policies, particularly through such mechanisms as EKOSOK and other bodies operating at local level, so as to fully take into account their experiences and views.

Part V of the report form. ILO technical assistance. The Committee notes with interest the information included in the report on the programmes implemented by the ILO as part of its technical cooperation activities in Turkey. A pilot programme to strengthen social dialogue in order to combat unregistered employment is being implemented in the provinces of Çorum and Gaziantep. Under this programme the Government and the social partners have developed employment strategies targeted at specific local contexts and studies have been conducted to identify factors causing unregistered employment. A pilot project to improve employment services has been implemented in the province of Koçaeli to serve as a model for the entire country with the specific objective to increase the effectiveness of social dialogue through the İŞKUR’s local employment committees. Labour market analyses are being carried out with the aim of developing appropriate labour market policies and the İŞKUR officials have been trained in restructuring, redundancy management and job counselling. Under an ILO–EU textile training project, workers and managers in factories supplying multinational enterprises in the textile and clothing sector have been trained on issues related to quality, productivity and workplace conditions with a focus on worker–management relations in order to raise awareness on the importance of social dialogue. The Committee would appreciate continuing to receive information on the employment policy measures implemented as a result of the ILO technical cooperation activities.

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

1. Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Committee takes note of the information contained in the Government’s report received in October 2006, and the supplementary information and comments provided thereon by the Confederation of Turkish Trade Unions (TÜRK-İŞ) and the Turkish Confederation of Employer Associations (TİSK), annexed to the report. The Government indicates that, in 2004, the rate of unemployment declined, for the first time since 1999, to 10.3 per cent and remained unchanged in 2005. The Committee notes that the survey‑based unemployment rates produced by the Organisation for Economic Co-operation and Development (OECD) reports Turkey’s unemployment rate at 9.9 per cent for 2006. The Committee notes that TÜRK-İŞ expressed its concern that, despite an overall economic growth of 35 per cent from 2002 to 2006, there has not been a significant change in the number of people in employment. It hopes that the information contained in the next report on active employment policy measures implemented by the Government under the Convention will enable the Committee to examine the extent to which economic growth translates into better labour market outcomes and poverty reduction.

2. The Government has reported that to tackle unemployment, active employment policies have been implemented through various institutions and organizations. To this end, the Ministry of National Education has been charged with administering programmes for professional training, while the Turkish Employment Agency (İŞ-KUR) is tasked with analysing matters related to the labour market, and undertaking consultations with social partners, with a view to developing, implementing, and keeping under review, programmes for professional training. The Administration for the Development and Support for Small and Medium-sized Enterprises (KOSGEB) has been, similarly, developing programmes to assist its particular sector. The Government reports that all such programmes have also been developed with due regard to the female working population. The Committee would welcome information on the principal policies pursued by the Government, with particular regard to labour market policies developed in order to match labour supply and demand, on both an occupational and geographical basis.

3. Particular categories of workers. The Committee notes that the unemployment rate of women was 10.3 per cent in 2005, and that for young men 20.1 per cent in 2004, and 19.3 per cent in 2005. TÜRK-İŞ expresses its concern that over 1 million young people, graduates from universities, high schools and equivalent vocational schools are unemployed, and young people entering the labour market for the first time are finding it increasingly difficult to find work or to be offered salaries to match their qualifications. TİSK observes that the following measures have been planned to be executed as part of the 2006 Government Programme with a view to eliminating the difficulties encountered by women and youth seeking to enter the labour market: (a) the provision of effective and extensive enterprise training, in which youth and women will be encouraged to become more enterprising, through the provision of professional information, guidance, advice and training; and (b) the development of work experience programmes entails organizing short-term working arrangements for youth and women in selected workplaces to facilitate their entry into the labour market. The Committee asks the Government to provide information on the measures taken, and results thereof, aimed at improving access of women and youth to the labour market.

4. Article 3. Participation of social partners in the formulation and application of policies. The Committee takes note of the information provided by the Government, in response to its request for information in its 2004 observation, on the manner in which consultations are held with representatives of employers’ and workers’ organizations in the Economic and Social Council (EKOSOK). The Committee notes TÜRK-İŞ’ indication that the Government and social partners are continuing to work on the adaptation of the structure of the Council in order to establish a structure where representatives from the social parties for the majority, and a platform for effective social dialogue and conciliation. The Committee notes that EKOSOK has held two further meetings between November 2003 and March 2005 in which it discussed restructuring the Council, sought views on the role to be played by civil society in EU accession talks, and undertook a general assessment of social policy and employment, further to the 2004 Development Report, and that further meetings were held with respect to social security reform. The Committee also notes that TİSK formulates some suggestions which may contribute to addressing Turkey’s employment situation. The Committee asks the Government to provide information on how such recommendations, and those of other social partners, are considered in the formulation and implementation of active employment policies, including through such mechanisms as EKOSOK, so as to fully take into account their experiences and views.

5. Part V of the report form. ILO technical assistance. The Committee notes the comments provided by TÜRK-İŞ on the value of the technical cooperation project implemented by the ILO in encouraging social dialogue to promote employment and address unregistered unemployment in Turkey. The Committee requests that the Government describe in its next report the actions that have been taken as a result of the ILO technical cooperation activities carried out in Turkey.

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

1. The Committee notes the Government’s report for the period ending May 2004, including observations made by the Confederation of Turkish Trade Unions (TÜRK-IŞ), the Confederation of Progressive Trade Unions of Turkey (DISK), the Turkish Confederation of Employers’ Associations (TISK) and the Confederation of Public Employees’ Unions of Turkey (TÜRKIYE KAMU-SEN). The Committee also notes the information provided in reports on the application of Convention No. 88 on employment services, Convention No. 142 on human resources development, Convention No. 158 on termination of employment, as well as of Convention No. 159 concerning vocational development of persons with disabilities, and refers to its comments on the application of the Conventions.

2. Article 1 of the Convention. The Committee notes the continued progressive increase in the unemployment rates which, in the first quarter of 2004, had reached 12.4 per cent on average, including 11.2 per cent for women and 25 per cent among young educated people. According to TÜRK-IŞ, DISK and TÜRKIYE KAMU-SEN a central cause for these deteriorating conditions in the labour market continues to be an insufficiently active labour market policy and the implementation of the economic policies prescribed by the International Monetary Fund (IMF) and the World Bank, including efforts to reduce inflation and to keep social transfers low. These policies are said to exacerbate the ongoing structural changes in the labour market, including the privatization process in the agricultural and public sectors.

3. The Committee notes, however, that the recent decision to harmonize Turkey’s employment policy with that of the European Union represents a major policy shift towards a more effective implementation of the objectives of Convention No. 122. The Committee also notes that both the Government and TISK provide information on a series of new laws, institutions, projects and policies initiated, adopted or under way as part of the implementation of this policy shift. The Committee notes this information and would appreciate being kept informed of progress made in its implementation. The Committee also requests the Government to provide detailed information on measures addressing in particular the increasing difficulties experienced by women and young persons in accessing the labour market, and the results of these measures.

4. Article 2. The Committee notes the concerns raised by TÜRKIYE KAMU-SEN concerning the lack of an effective social policy, and that the Government has announced that the economic programme it will be implementing in 2005 will contain more social elements. The Committee would appreciate receiving further and more detailed information from the Government on the planned social dimension of its future economic policy and how it plans to coordinate this policy with the newly adopted employment policy.

5. Article 3. The Committee notes the information provided by the Government regarding tripartite consultation in the formulation and application of its current labour market policy, including its application at the local and regional level activities initiated by the Turkish Employment Agency (IŞKUR) and through the reorganized tripartite Economic and Social Council (EKOSOK). As regards EKOSOK the Committee notes the detailed information the Government has provided concerning meetings held until 7 November 2003. TÜRKIYE KAMU-SEN stresses that EKOSOK has not been convened since November 2003 - in spite of legislation requiring meetings every three months - and states that the Government has taken a number of important decisions since then. It further contends that, to the extent consultations have been held, they have involved only the employers’ organizations but not the workers’ organizations and their unions and have thus not been tripartite. The Committee would appreciate continuing to receive information on the manner in which consultations are held with representatives of employers’ and workers’ organizations in keeping with Article 3 of the Convention.

Observation (CEACR) - adopted 2003, published 92nd ILC session (2004)

1. The Committee notes the Government’s report for the period ending May 2002, which includes, as has often been the case in recent years, observations made by the Confederation of Turkish Trade Unions (TÜRK-IS), the Confederation of Progressive Trade Unions (DISK) and the Turkish Confederation of Employer Associations (TISK). It also notes the discussions in the Conference Committee on the Application of Standards on the application of the Convention at its 90th Session (June 2002) and the conclusions of the Conference Committee calling for measures to be taken to ensure that effective consultations are held in the context of the Economic and Social Council (EKOSOK) and for the views of the representative organizations of employers and workers and other persons affected to be fully taken into consideration in the formulation, implementation and evaluation of employment policies and programmes.

2. Article 1 of the Convention. The Government indicates in its report that the labour market situation deteriorated over the period under review. The average unemployment rate rose from 8.5 per cent in 2001 to 10.6 per cent in 2002. The unemployment rate of women rose to 9.9 per cent in 2002, with the unemployment rate of men increasing to 10.9 per cent. In 2001, the employment rate reached 48.9 per cent, with a rate of 67 per cent for men and 26.3 per cent for women. However, it remains low in comparison with the average for OECD countries, which is 68 per cent. The particularly high unemployment rate of women and young persons is a matter for concern. The problem of registered unemployment is related to that of the expansion of the informal economy. From a level of 50.3 per cent of total employment in 2000, registered employment giving entitlement to social protection fell to 48.4 per cent in 2001. The Committee requests the Government to continue providing detailed statistics on the active population, employment, unemployment and underemployment in the various sectors and for the different categories of the population, so that it can assess the related levels and trends.

3. The Government states that the growth of employment is one of its policy priorities and objectives in relation to the labour market. Its objectives include changing the structure of employment to favour labour-intensive sectors and to direct vocational training more effectively towards labour market needs. It has also adopted a number of special measures against unemployment among young persons, women and persons with disabilities. The Committee requests the Government to keep it informed of the various labour market policy measures referred to in its report and their impact on employment, particularly with regard to the most vulnerable categories of workers and the sectors most affected by the crisis.

4. Article 2. The Government refers in its report to its intention to establish a labour market information council which would include representatives of the Turkish Employment Institute (ISKUR), other public establishments and the social partners. Through this new body, the Government hopes to improve its means of compiling information and detailed statistical data on the labour market. Noting this information with interest, the Committee would be grateful to be kept informed of any progress achieved in this field. It would also be grateful if the Government would indicate the manner in which the labour market information that is compiled is taken into consideration in deciding upon and keeping under review national employment policy measures.

5. Article 3. With reference to the Committee’s request for further information concerning tripartite consultations, the Government explains that EKOSOK, far from being the only body for dialogue and consultation, contributes alongside others to the formulation of the national employment policy. The decisions taken and opinions expressed by these various bodies are taken into account in the context of the five-year development plans, the annual plans of action of the Sub-secretariat of State for the Organization of State Planning (DPM) and in the activities of ISKUR. For its part, TÜRK-IS indicates that in its view the Government is not pursuing a policy based on job creation and that its employment policy does not apply to the private sector any of the criteria that are characteristic of productive employment. It considers that the fact that the Termination of Employment Convention, 1982 (No. 158), is not reflected in any way in national legislation only exacerbates the situation. Furthermore, the standby arrangements concluded with the International Monetary Fund are in total contradiction with Convention No. 122.

6. From the point of view of DISK, despite the existence of an act establishing the EKOSOK for the purposes of consultation, this body is still not in a position to discharge its functions effectively.

7. TISK has provided a very detailed document in which it emphasizes the importance of a tripartite employment policy based on the reduction of unemployment and the creation of quality jobs, within the context of the strategy adopted in this respect by the European Union. The starting point for a healthy employment policy would be the effective operation of the EKOSOK. Following the first general assembly of ISKUR, held in May 2001, proposals for a national plan of action and an emergency plan of action for an employment policy were adopted. TISK enumerates a number of legal texts adopted in 2001 and 2002 in various fields, including vocational and technical training, the payment of certain employers’ contributions and fiscal reform. Finally, TISK would be grateful if the Government would describe the rationalization measures planned for the public sector.

8. The Committee notes that the preparation of a detailed report provided an opportunity for the Government and the social partners to undertake an evaluation of the situation with regard to the objective of full, productive and freely chosen employment, as set forth in the Convention. It hopes that in its next report the Government will provide further information on the tripartite consultations held in practice for the formulation, implementation and evaluation of an active employment policy, including the progress made in the context of EKOSOK and ISKUR in achieving the objectives of the Convention.

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

The Committee notes the information provided in the Government’s report for the period 1 June 1998 to 30 May 2000.

1. Article 1 of the Convention. The Government’s objectives for its employment programme for 2000 include: decreasing inflation; promoting foreign direct investment and investment in infrastructure; diversifying and promoting exports; increasing credit to small and medium enterprises and helping them compete better in the international market; modernize the labour market to improve matching; and providing credit to women, youth and the disabled to establish enterprises. The Government has continued several projects undertaken with World Bank loans, including evaluating employment standards and data collection concerning the workforce, and reorganizing the National Employment Agency and enabling the establishment of private placement agencies. The Committee notes this information, and would appreciate continuing to receive information on the impact of these programmes on employment promotion.

2. The Committee notes the Government’s statement that the increase in compulsory schooling from five to eight years has not increased labour demand. The Committee also notes, however, that from 1993-99 the Government provided about 3,500 courses with about 67,000 participants, 83 per cent of which were subsequently placed in employment. A project to improve the match between skills provided and demanded also provided training for 81,000 people over the course of five years, and 900 courses were provided for entrepreneurs, with about 15,000 participants. Furthermore, the Government established standards for training in 250 occupations. The Committee would appreciate continuing to receive information on measures taken to expand the availability of training to all jobseekers in need, and to improve the balance in the labour market between skills offered and demanded.

3. The Committee notes with interest that a draft law to reorganize the National Employment Agency has been submitted to the National General Assembly, and would appreciate further information on the outcome of this project.

4. Article 2. The Committee notes that the Government implemented in October 1999 a new methodology for collecting labour market data. It hopes that the new system will enable the Government to better analyse the impact of its employment policies and programmes. The Committee looks forward to receiving detailed disaggregated data, including data on employment of women, young people, people with disabilities and older workers. Please also provide further information on how the employment policy and programmes are kept under review within the framework of a coordinated economic and social policy.

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

The Committee notes the information provided in the Government’s report for the period 1 June 1998 to 30 May 2000, as well as the comments provided by the Confederation of Turkish Trade Unions (TÜRK-IS) and the Turkish Confederation of Employers’ Associations (TISK).

Article 3 of the Convention. The Government states that consultations with employers’ and workers’ representatives take place through the Central Consultation Committee and consultation committees established in 12 villages. The social partners actively participate in the planning and organization of vocational guidance and training courses. The Economic and Social Council also is tripartite and discusses broader issues related to employment. It met once during the reporting period to discuss a macroeconomic programme. TÜRK-IS believes that the consultation machinery is not being used, and TISK advocates giving the Economic and Social Council a legal status and making it responsible for developing national employment policy. The Committee notes this information and would be grateful if the Government would provide further details on the manner in which representatives of workers and employers are consulted concerning employment policies and programmes, and whether any formal consultative procedures have been established. The Committee also requests information on the outcome of these consultations and on how the views expressed were taken into account in the formulation, implementation and evaluation of employment policies and programmes. Lastly, please provide information on the manner in which other groups affected, such as rural and informal sector workers, are consulted.

Article 1. TISK states that unemployment is one of the most critical problems in the country. It also draws attention to the high rate of underemployment, at 6.9 per cent, in addition to the problem of unemployment. The TISK considers that measures are needed to support production, investment and entrepreneurship. It expresses particular concern about the need to ensure that legislation, wage policies and collective bargaining are all sensitive to the need to promote employment. It questions the value of compulsory employment obligations, which harm productivity. Lastly, it supports the establishment of private placement agencies.

In the opinion of TÜRK-IS, the Government’s employment policy exacerbates unemployment, public investment does not create jobs, and no employment promotion criteria are applied in supporting the private sector. It also considers that many older workers are forced to retire at an early age and no measures are being taken to deal with widespread dismissals in the private sector.

The Government recognizes that unemployment increased from 6.7 per cent in 1998 to 7.3 per cent in 1999. The participation rate went down, from 72 per cent for men and 28 per cent for women in October 1998, to 70 per cent for men and 27 per cent for women in October 1999. Unemployment among youth has not changed. It is highest in the cities for men (at 25 per cent compared with 19 in rural areas), highest in rural areas for women (at 38 per cent compared with 33 per cent in cities). The difficulties in promoting employment were due in part to the earthquake on 17 August 1999 at the highly industrialized Marmara Region. To encourage investment, the Government is granting tax holidays for setting up an enterprise in cities considered in urgent need of development; and the National Employment Agency has channelled about 10 million dollars into training with employment guarantees and to developing enterprises in the regions affected. In general, unemployment is higher in urban areas (10.4 per cent) than in rural areas (2.9 per cent). The Government states that its biggest problem is urban migration with insufficient employment openings to absorb the jobseekers. Underemployment increased from 5.9 per cent in 1998 to 10.2 per cent in 1999, and was as prevalent in rural areas as in cities. The new unemployment insurance system has resulted in an increase in the number registering with the employment placement services as a condition for receiving benefit.

The Committee notes this information. It would appreciate receiving further information on progress made in promoting employment, particularly in light of the comments made by TISK and TÜRK-IS. The Committee has also raised other points concerning employment promotion programmes, education and training, and a new methodology for collecting labour market data in a request addressed directly to the Government.

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

1. The Committee notes the information contained in the Government's report, as well as the comments made by the Turkish Confederation of Employers' Associations (TISK) and the Confederation of Turkish Trade Unions (TURK-IS). According to the Turkish National Statistics Institute, general unemployment stood at 6.9 per cent in 1997, with 9.7 per cent in urban areas and 4.2 per cent in rural areas. The Committee observes in particular that the unemployment rate has exceeded 30 per cent among young people graduated from upper secondary schools and universities in the cities, as indicated in Turkey's Seventh Five-Year Development Plan, 1996-2000. It would appreciate receiving further information on the measures taken or envisaged to remedy this situation. The Committee is also aware of the widespread suffering and great loss caused recently by the earthquakes and expresses its hope for a quick recovery.

2. The Government reports that policy measures have been taken on various issues impeding full employment. These policies include revenue tax breaks and a decrease in social security contributions to improve investment in priority development regions in Turkey; developing new products to expand Turkey's export markets; and assisting regions with particularly high unemployment rates through support and assistance to small and medium enterprises. Furthermore, the Government has rapidly increased compulsory education from five to eight years of schooling. The Committee notes this information with great interest and requests further details on the impact of these projects on expanding employment. It would also appreciate receiving information on wage and income policies, as requested in the report form under Article 1 of the Convention.

3. The Government states that through the employment and training project, in effect since 1995, the State Employment Agency has organized more than 4,000 courses and provided training to 75,000 unemployed, three-quarters of whom are women. The Committee notes this information and requests further details on what proportion of these participants subsequently obtained jobs, if such information is available.

4. The Government also describes its labour force adjustment project, which aims to facilitate the privatization of public enterprises. This project includes counselling, education and placement services for workers who lose their jobs, as well as providing work in public utilities and other infrastructure projects. On the other hand, TURK-IS again states that the Government's policies have resulted in mass redundancies in both the public and private sectors, without effective adjustment policies. The Committee requests further information on the effectiveness of this project.

5. The Committee also notes that the Government reaffirms its commitment to reducing the informal sector, and has introduced an educational campaign on employer payment of contribution for various forms of insurance for workers, and flexible measures to improve payment. For their part, TISK and TURK-IS again emphasize the need to reduce the growth of the informal sector. The Committee would appreciate receiving further information on the effect of this campaign in reducing the informal sector.

6. Article 3 of the Convention. In reply to the Committee's previous request for further information on tripartite consultations, the Government states that the tripartite Economic and Social Council met 16 times between 1946 and 1972, and annually since 1972. In addition, local councils meet on request of the Prefect, more often in the more active local labour markets. TURK-IS repeats its allegation that there is no consultation with workers' organizations to implement Convention No. 122. The Committee once again requests information on the consultations actually held, including the specific workers' organizations included, the opinions received, and how these views were incorporated into employment policies and programmes.

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, which contains information in reply to its previous observation and transmits comments made by the Turkish Confederation of Employers' Associations (TISK) and the Confederation of Turkish Trade Unions (TURK-IS). The Committee notes that after a period of sharp recession in 1994, in 1995 and 1996 the economy has had an annual growth rate of around 7 per cent. OECD data show that the volume of total employment increased by 2.5 per cent in 1995 and 3.1 per cent in 1996, while the active population increased by 1.8 and 2 per cent in the same years. According to the October 1996 Labour Force Survey, the rate of unemployment stood at 5.8 per cent of the labour force and that of underemployment at 6.2 per cent. Although these figures show a significant improvement in the employment situation as compared with the previous period, the TISK emphasizes the importance of the structural component of unemployment as well as the particular impact of long-term unemployment and unemployment among young people. The Confederation also draws attention to the serious problem of underemployment, especially in the form of poorly productive and low-paid employment in the informal sector.

2. The Government indicates that implementation of the April 1994 stabilization programme has restored confidence in business activity and brought about an environment more conducive to employment creation, which remains a priority. The customs union with the European Community, which has been in effect since January 1996, should cause recession in employment in the sectors which are not competitive and have been protected in the past, but should improve export and employment prospects in other sectors. In general, the customs union should boost competitiveness in the economy even though it does not lead to an increase in employment in the very short-term. The Government emphasizes that its policy in regard to employment and combatting unemployment relies on a coordinated set of economic and social measures which, in the framework of the Seventh Five-Year Development Plan (1996-2000), highlight human resources development and structural reforms. The TISK, for its part, considers that macroeconomic stability, through the control of deficits, tax and social security reforms, and privatization, is essential to encourage investment and employment. The Confederation stresses that real wage increases should be linked to the growth rate of each sector, that minimum wages should be differentiated by age in order to improve employment prospects for young people and, more generally, that flexibility should be introduced into the labour law. The Committee requests the Government to supply in its next report more detailed information on the measures taken or contemplated within the framework of the Seventh Five-Year Development Plan, particularly in regard to monetary and budgetary policies, investment policy, trade policy, prices, incomes and wages policies. It also requests the Government to describe the objectives of its employment policy in regard to the informal sector, the growth of which, according to the TISK, should be slowed down in order to promote employment opportunities in the modern sector. In this respect, the Government may find it useful to refer to the relevant provisions of Part V of the Employment Policy (Supplementary Provisions) Recommendation, 1984 (No. 169).

3. The TURK-IS considers that the policies implemented by successive governments are contrary to the objectives of the Convention and have resulted in massive redundancies in the public and private sectors alike. The Committee notes that the Government states that it has been implementing a labour force adjustment project since 1994, with financial support from the World Bank, along with funds resulting from privatization. With reference to its previous comments, the Committee requests the Government to continue to supply detailed information on measures encouraging employment in the private sector of workers affected by privatization. The Committee also notes that the Government mentions active labour market policy measures designed to improve the skills of the labour force, provide training for the unemployed, and technical and financial support for small and medium-sized enterprises, as well as special employment projects for regions suffering high unemployment levels. The Committee hopes to find in the Government's next report detailed information on the nature and scope of these measures, as well as results obtained. It also requests the Government to indicate whether assistance is planned for young people who seem to have particular difficulty in finding employment.

4. Article 3 of the Convention. The Government states that the TURK-IS and the TISK participated actively in formulating the employment policies for the Seventh Five-Year Development Plan. It refers, furthermore, to the institution by a Decree of 6 May 1996 of a new Economic and Social Council with considerably more representation of various workers' and employers' organizations as well as other organizations concerned. The TISK, however, considers it of vital importance to give legal status to the Council to ensure its adequate operation. The Committee wishes to recall that the consultations required by this Article of the Convention should relate not only to the formulation of employment policies but also to their implementation, and that they should include, in addition to employers' and workers' representatives, representatives of other sectors concerned by the measures to be taken, such as the representatives of persons engaged in the rural and informal sectors. The Committee requests the Government to supply in its next report information on the consultations actually held on the subject of formulation and application of the employment policy, specifying the opinions received and how they were taken into account. In addition, referring to its 1996 observation on the application of the Employment Service Convention, 1948 (No. 88), it hopes that the Government will soon be in a position to indicate that the advisory committees provided for by the Act of 1946 on the Employment Service are fully operational.

Observation (CEACR) - adopted 1995, published 82nd ILC session (1995)

The Committee notes a communication from the Confederation of Turkish Trade Unions (TURK-IS) dated 4 July 1994, in which the above organization alleges that the Government is not pursuing an active policy designed to promote full, productive and freely chosen employment, and that it has embarked upon a systematic programme of retrenchment in the public sector. The Committee notes that the Government has not taken up the invitation to transmit its own observations on the matters raised in the above communication and notes that the report due from the Government for the period ending June 1994 has not been received. The Committee trusts that a report will be submitted for examination at its next session and that it will contain full information in reply to its previous observation, which read as follows:

1. The Committee notes the Government's report for the period ending June 1992 which contains detailed information in answer to its previous comments and includes the observations made by the Turkish Confederation of Employer Associations (TISK).

2. In its report, the Government refers to factors and circumstances which adversely affected employment during the period in question, particularly the consequences of the Gulf crisis which led to the loss of approximately 100,000 jobs and the return to Turkey of 25,000 migrant workers employed in the region. In total, civilian employment dropped by 2.7 per cent between 1990 and 1991. The Committee also notes that the strong recovery in economic growth in 1992 (over 5 per cent) has not reduced the rate of registered unemployment, estimated to be approximately 8 per cent, and that the underemployment rate has attained roughly the same percentage. Certain major structural features of the employment market are still worrying, such as the continued rapid growth of the active population, the continued drop in the average activity rate, the low activity rate of women, particularly in urban areas, the particularly high incidence of unemployment among young people under 30 years of age who account for more than two-thirds of the total number of unemployed, and the large proportion of low-productivity jobs in the urban informal sector.

3. The Government sets out the main lines of its economic policy in 1993: combating inflation, reducing public sector deficits, strengthening business competitiveness and improving income distribution. In this connection, the report mentions plans for tax reforms and the privatization of state economic enterprises. The TISK considers that combating structural unemployment means reducing fiscal and parafiscal levies and the level of social contributions, and lowering wage costs. The Committee notes that the programme for privatizing state economic enterprises should result in the abolition of 230,000 jobs over a five year period. It asks the Government to indicate the nature of the accompanying measures referred to which are to ensure that redundant workers are redeployed in productive jobs. The Committee would also be grateful if the Government would give detailed information on the projects for the development of southern Anatolia and the expected incidence of these projects on employment. More generally, the Committee would appreciate more detailed information on the employment objectives and the priority given to them, and on how it is ensured that measures in areas such as monetary, budgetary and fiscal policies, prices, incomes and wages policies and regional development policies contribute effectively to the pursuit of the objective of full, productive and freely chosen employment "within the framework of a coordinated economic and social policy", in accordance with Articles 1 and 2 of the Convention.

4. The Committee notes the information on labour market policy measures provided in response to its direct request. It notes that the Supreme Coordination Board for Employment Development is the interministerial body that decides on such measures and that the State Employment Agency is responsible for implementing them. It notes that the latter is being reorganized and modernized, inter alia, in the context of the World Bank project on employment and training. It asks the Government to indicate in its next report the progress made in this area. Furthermore, the Committee hopes that the setting up, with ILO assistance, of a labour market information system (IPES) will shortly give the Government access to the reliable and up-to-date statistics that are essential to the choice and implementation of employment policies. It would again be grateful if the Government would indicate the latest developments with regard to the planned legislation on unemployment insurance and employment protection.

5. Lastly, the Committee observes that the Government's report does not state whether any consultations were held with the social partners during the reporting period (except as regards the planned legislation mentioned above) on employment policies. It recalls that under Article 3 of the Convention representatives of all persons affected by the measures to be taken must be consulted "with a view to taking fully into account their experience and views and securing their full cooperation in formulating and enlisting support for such policies". The Committee points out that such consultations should include, in addition to representatives of employers and workers, representatives of other important sectors of the active population such as the rural and informal sectors. It asks the Government to provide full information in its next report on the effect given to this essential provision of the Convention. The Committee also refers to its comments on the application of the Employment Service Convention (No. 88), 1948, where it notes the observations made by the Confederation of Turkish Trade Unions (TURK-IS), alleging that employers' and workers' organizations have not been consulted on the organization and running of the employment service and, more generally, that there is no active employment policy.

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

1. The Committee notes the Government's report for the period ending June 1994, which contains detailed information in reply to its previous observation and transmits the observations made by the Confederation of Turkish Trade Unions (TURK-IS) and the Turkish Confederation of Employers' Associations (TISK). The Committee notes that the period of rapid economic growth between 1992 and 1993 did not suffice to create enough jobs to absorb the growth in the active population and contain the rise in the unemployment rate which, according to the OECD, rose from 7.9 per cent in 1992 to 8.7 per cent in 1993. Furthermore, the beginning of the economic recession which, commencing at the end of 1993, resulted in a brutal fall in employment of around 4 per cent in 1994, with the OECD's standardized unemployment rate reaching 10.9 per cent and the rate of underemployment being estimated at 9.3 per cent. The Government further emphasizes in its report the particular significance of urban unemployment and the unemployment of young graduates. The Committee notes that the employment situation, which was already a cause for concern, worsened substantially over the reference period.

2. The Government states that, following a serious monetary crisis due to the worsening of the public deficit, it has been implementing a stabilization programme since April 1994 to reduce the deficit and introduce structural reforms with the view to promoting the medium-term growth of the economy based on free market principles. However, it recognizes that this programme is likely to have the effect at first of causing a recession in economic activity, but considers that the employment promotion policy is dependent on the effectiveness of the economy as a whole. The TISK also emphasizes that it is indispensable to establish, as planned under the Government's programme, a macroeconomic and institutional framework that is conducive to the development of the private sector, which creates employment. The Committee notes that the deterioration in the employment situation worsened during the first months of the implementation of the restrictive measures and requests the Government to indicate in its next report the manner in which, in its opinion, the implementation of stabilization and structural reform measures contributes, "in the framework of a coordinated economic and social policy", to the promotion "as a major goal" of full, productive and freely chosen employment, in accordance with Articles 1 and 2 of the Convention. It requests the Government to indicate the employment objectives that it has established in this context, as well as in the framework of the preparation of the next five-year development plan. Furthermore, the Committee would be grateful if the Government would indicate the expected impact on employment of the coming into force in the near future of the customs union with the European Union.

3. TURK-IS considers that the Government is ignoring the objectives set out in the Convention by pursuing a policy of privatization, which is resulting in massive redundancies. In reply to the Committee's previous request on this matter, the Government states that the Privatization Act provides for a separate indemnity for workers made redundant by public enterprises, who also benefit from priority access to employment and vocational training services, and that the Government is endeavouring to find the necessary resources for the creation of new employment opportunities for workers who are to be made redundant as a result of privatization. Noting this information, the Committee hopes that the Government's next report will contain more detailed information on the measures actually implemented for this purpose, as well as details on the number of beneficiaries of such measures. It recalls in this respect that it is essential for redundancies in the public sector to be accompanied by effective measures to promote the employment in the private sector of the workers made redundant as a result of privatization.

4. The Committee notes the information concerning the restructuring and modernization of the employment services. It requests the Government to continue to supply detailed information on the progress achieved in this respect. More generally, the Committee notes the emphasis placed by the Government on the need to train a skilled labour force by strengthening vocational training both within the school system and outside it. The Committee also notes the statement that the Employment Security Bill has been prepared in accordance with the provisions of the Termination of Employment Convention, 1982 (No. 158), which Turkey ratified recently. The Committee has no doubt that the Government will provide full information on this matter in its first report on the application of the above Convention.

5. With regard to the effect given to Article 3 of the Convention, the Government reports its plan to establish an Economic and Social Council, which will be of an advisory nature and enable the social partners to make known their opinion on matters such as productivity, employment, unemployment and wages. It also refers to the consultation committees envisaged under the 1946 Act establishing the Turkish Employment Office, and states that they have not been fully operational up to the present time. The Committee is bound to note the lack of information on the manner in which, in practice, the representatives of the persons affected, and in particular representatives of employers and workers, are currently consulted concerning employment policies. It is bound once again to emphasize the particular importance that attaches to such consultations being held in the context of the current structural reforms. It trusts that the Government will take the necessary measures in the very near future to give full effect to this fundamental provision of the Convention.

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

1. The Committee notes the Government's report for the period ending June 1992 which contains detailed information in answer to its previous comments and includes the observations made by the Turkish Confederation of Employer Associations (TISK).

2. In its report, the Government refers to factors and circumstances which adversely affected employment during the period in question, particularly the consequences of the Gulf crisis which led to the loss of approximately 100,000 jobs and the return to Turkey of 25,000 migrant workers employed in the region. In total, civilian employment dropped by 2.7 per cent between 1990 and 1991. The Committee also notes that the strong recovery in economic growth in 1992 (over 5 per cent) has not reduced the rate of registered unemployment, estimated to be approximately 8 per cent, and that the underemployment rate has attained roughly the same percentage. Certain major structural features of the employment market are still worrying, such as the continued rapid growth of the active population, the continued drop in the average activity rate, the low activity rate of women, particularly in urban areas, the particularly high incidence of unemployment among young people under 30 years of age who account for more than two-thirds of the total number of unemployed, and the large proportion of low-productivity jobs in the urban informal sector.

3. The Government sets out the main lines of its economic policy in 1993: combating inflation, reducing public sector deficits, strengthening business competitiveness and improving income distribution. In this connection, the report mentions plans for tax reforms and the privatization of state economic enterprises. The TISK considers that combating structural unemployment means reducing fiscal and parafiscal levies and the level of social contributions, and lowering wage costs. The Committee notes that the programme for privatizing state economic enterprises should result in the abolition of 230,000 jobs over a five year period. It asks the Government to indicate the nature of the accompanying measures referred to which are to ensure that redundant workers are redeployed in productive jobs. The Committee would also be grateful if the Government would give detailed information on the projects for the development of southern Anatolia and the expected incidence of these projects on employment. More generally, the Committee would appreciate more detailed information on the employment objectives and the priority given to them, and on how it is ensured that measures in areas such as monetary, budgetary and fiscal policies, prices, incomes and wages policies and regional development policies contribute effectively to the pursuit of the objective of full, productive and freely chosen employment "within the framework of a coordinated economic and social policy", in accordance with Articles 1 and 2 of the Convention.

4. The Committee notes the information on labour market policy measures provided in response to its direct request. It notes that the Supreme Coordination Board for Employment Development is the interministerial body that decides on such measures and that the State Employment Agency is responsible for implementing them. It notes that the latter is being reorganized and modernized, inter alia, in the context of the World Bank project on employment and training. It asks the Government to indicate in its next report the progress made in this area. Furthermore, the Committee hopes that the setting up, with ILO assistance, of a labour market information system (IPES) will shortly give the Government access to the reliable and up-to-date statistics that are essential to the choice and implementation of employment policies. It would again be grateful if the Government would indicate the latest developments with regard to the planned legislation on unemployment insurance and employment protection.

5. Lastly, the Committee observes that the Government's report does not state whether any consultations were held with the social partners during the reporting period (except as regards the planned legislation mentioned above) on employment policies. It recalls that under Article 3 of the Convention representatives of all persons affected by the measures to be taken must be consulted "with a view to taking fully into account their experience and views and securing their full cooperation in formulating and enlisting support for such policies". The Committee points out that such consultations should include, in addition to representatives of employers and workers, representatives of other important sectors of the active population such as the rural and informal sectors. It asks the Government to provide full information in its next report on the effect given to this essential provision of the Convention. The Committee also refers to its comments on the application of the Employment Service Convention (No. 88), 1948, where it notes the observations made by the Confederation of Turkish Trade Unions (TURK-IS), alleging that employers' and workers' organizations have not been consulted on the organization and running of the employment service and, more generally, that there is no active employment policy.

Direct Request (CEACR) - adopted 1991, published 78th ILC session (1991)

With reference to its observation, the Committee hopes that the Government's next report will include information on the following questions:

1. The Committee notes the information on the Supreme Co-ordination Council of Employment Creation and notes that the functions of the employment service are to carry out labour market policies rather than to prepare them. It requests the Government to supply more detailed information on the procedures adopted by the special expertise committees, to which it referred in its previous direct request, and the above Council, and on the way in which they operate in practice, in accordance with Articles 2 and 3 of the report form adopted by the Governing Body.

2. The Committee notes the information supplied by the Government concerning the ILO/UNDP labour market information project, and particularly that the household manpower surveys are due to be extended throughout the country. It would be grateful if the Government would supply detailed information on the practical measures that have been taken to collect and analyse information on the labour market and to conduct research, for example, on the development and application of labour-intensive work methods, in comparison with capital intensive methods (Article 2 of the Convention). Please clarify the divergencies noted in the statistics on the unemployment rate supplied by the Government in its general report and its report for the period ending 30 June 1990.

3. The Committee notes that, despite the absence of detailed statistical data concerning their impact on employment, overall economic policy measures relating to investments and commerce have made it possible to create jobs in certain sectors of the economy, particularly in construction and tourism. It hopes that the Government will be in a position to give details concerning the impact on employment of these measures, and of the measures related to income referred to in its previous report (question I of Article 1 of the report form).

4. The Committee notes with interest that the employment rate of persons who have taken vocational training courses increased from 84.5 per cent to 94 per cent and that it should increase yet again since trainees who conclude their training successfully are offered job opportunities. It would be grateful if the Government would continue to supply further details in this connection, and information of this type on other programmes, projects and activities related to training, rehabilitation and retraining. The Committee notes the project on the promotion of human resources and employment, within the context of which a study has been carried out on the creation of additional sources of productive employment through the development and co-ordination of the employment market with the education and training system. The results of this study are to be presented to the Government in order to be given practical effect. Please supply information on the composition of the group that carried out the above study, on their conclusions and the extent to which these were adopted and have been followed up in practice.

5. The Committee notes that the number of persons placed in employment in the private sector rose from 101,767 in 1988 to 116,027 in 1989 and that it should exceed 120,000 in 1990. Please continue to indicate the number of jobs that it is envisaged to create or which have been created in this sector as a result of the Government's financial or practical assistance policies.

6. The Committee notes the projects that have been commenced and the measures that have been taken to promote regional development and employment in the least developed regions of the country, particularly in the East, the Centre and the South-East of Anatolia, and in the Black Sea region. It notes that the irrigation project in South-East Anatolia should, in addition to the jobs created during its implementation, practically double the level of employment in the region (this should rise from 1.5 million in 1985 to around 3 million in 2005). Please supply information in the next report on developments in these fields and indicate, if possible, the number of jobs concerned (question 1 of Article 1).

7. The Committee notes with interest the special employment assistance and other measures taken to assist migrant workers returning to the country. It would be grateful if the Government would continue to supply information in this respect, and particularly statistical data on the number of migrant workers who have returned or who it is estimated will return in the years to come, and details of the extent to which they are integrated into the labour market.

Observation (CEACR) - adopted 1991, published 78th ILC session (1991)

The Committee notes the information supplied by the Government in reply to its previous comments and appreciates the quality of the report on the application of the Convention. This report indicates that the level of employment increased by 2.49 per cent between September 1988 and April 1990, while the unemployment rate remained stable during the same period (8 per cent and 8.03 per cent respectively). The Committee notes, however, that the unemployment rates indicated in the Government's general report for the period ending 30 June 1989 are 14.4 per cent in 1988 and 13.7 per cent in 1989. It also notes that unemployment among young persons continues to be high (the rates for the age groups 15-19, 20-24 and 25-29 years are respectively 12.5 per cent, 40.3 per cent and 23.4 per cent, representing together some 76 per cent of all unemployed persons).

The Committee notes that the measures taken within the framework of the Action Programme 1990 of the Sixth Five Year Development Plan (1990-94) were intended to increase the growth rate in the manufacturing industry, services and agricultural sector by 12.6 per cent, 11.8 per cent and 10 per cent respectively, but that these rates are unlikely to be achieved as a result of the Gulf crisis. Furthermore, investments having a positive and direct effect on the creation of employment should increase by 8.6 per cent in comparison with the previous year. The Committee also notes the impact of measures taken under the regional and industrial development, the labour market, the education and the training policies, and of measures for women, the disabled, returning migrant workers and released prisoners.

The Committee also notes the information concerning the employment projects in which the ILO and other international agencies have participated, and particularly the commencement of the project on the labour market information system (IPES). It would be grateful if the Government would continue to supply information on the matters referred to above and particularly on the employment objectives set out in the Sixth Five Year Development Plan, especially as regards young persons, and if it would indicate the extent to which these objectives have been or are being attained. The Committee is addressing a request directly to the Government on other points.

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

Further to its observation, the Committee hopes the Government's next report will include information on the following matters:

1. The Committee refers to its previous direct request and has noted the Government's references to the co-ordinating (the Supreme Co-ordination Council of Employment Creation) and tripartite consultative (the Special Expertise Committees) machinery. It again requests information as to the procedures adopted by these bodies and their practical functioning, as indicated under Articles 2 and 3 in the report form approved by the Governing Body. Please indicate to what extent the employment service is involved in the formulation of labour market policies.

2. The Committee noted in its last direct request that ILO/UNDP assistance had been received in a labour market information project. It notes the Government now refers to a possible new ILO/UNDP project for the improvement of labour statistics. The Committee hopes the next report will include information on the status of this project and any other technical co-operation projects ongoing, and on the effective measures taken to collect and analyse labour market information, and conduct research into, for example, the development and application of labour-intensive, as opposed to capital-intensive, work methods (Article 2 of the Convention).

3. Whilst the Committee has noted the general indications in the report as to general economic policy measures relating to investment, trade and incomes, it would be grateful for details of any employment effects directly attributed to such measures (question 1 under Article 1 in the report form).

4. The Committee has noted with interest the information on skill-acquisition courses provided: the Government indicates that in one such programme 83.5 per cent of participants were placed in employment. The Committee hopes further details of this kind will be supplied. It would also be glad of information concerning the relation of education (especially primary education) to employment opportunities (question 3 under Article 1 in the report form).

5. The Committee notes that particular attention has been given to the development of the private sector, especially small-scale enterprises, through both financial and practical assistance from the Government. Please indicate how far employment is planned to be or has been created as a result of these policies (Article 1(1)).

6. The Committee has noted the general indications as to regional policies, the promotion of rural employment and certain projects for infrastructure improvement. Please include information on the development of these in the next report, indicating in particular, if possible, the numbers of jobs involved (question 1 under Article 1).

7. Please indicate any particular measures taken in aid of the employment of returning migrant workers, referred to in the report, and handicapped workers (question 2 under Article 1).

8. Please describe briefly how employment policy objectives are related to other social objectives (Article 1(3)).

9. Please indicate what measures have been taken to make sure work is as productive as possible (Article 1(2)(a)).

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

The Committee notes the information provided in reply to its previous comments. The report provides certain data on employment and refers to overall economic policies (relating to investment, taxation and money supply, trade, and incomes), as well as policies of regional development and labour market policy measures. The Government states that the GNP has increased by 8.0 per cent in 1986 and 6.8 per cent in 1987 and that unemployment fell from 15.8 per cent in 1986 to 15.2 per cent in 1987 in response to its policies, although it continues to worsen among the young, in particular for the age group 20-24 and 25-29.

The Committee has also noted the communication from the Turkish Confederation of Employer Associations (TISK), drawing attention to certain aspects of the unemployment problem. In particular, the Confederation points to the rapid growth of population, inflation, lack of investment, and educational and training inadequacies. In the Confederation's view, burdens imposed on employers with a social purpose have a negative effect on employment. It calls for the encouragement of exports, the simplification of formalities for new businesses, a fair wage system, the encouragement of short-term and part-time employment, support for employment in the public sector and in smaller enterprises, more effective placement services, an increased influx of foreign capital, improved labour market information, and the development of tripartite dialogue.

The Committee welcomes the information in the report concerning employment-related projects in which the ILO and other international agencies have co-operated. It would, however, also welcome more precise information on employment goals - especially for the young - in terms of the numbers of jobs to be created in specific projects or through overall economic policy measures and the extent to which the goals are achieved. The Committee is addressing a direct request to the Government on several questions.