Individual Case (CAS) - Discussion: 2021, Publication: 109th ILC session (2021)

Employment Policy Convention, 1964 (No. 122) - Mozambique (Ratification: 1996)

Written information provided by the Government

The information covers sectors other than the Ministry of Labour and Social Security, as follows:

1. The Committee of Experts asks the Government to provide comprehensive information on the results achieved and the challenges encountered to achieve the objectives set out in the NEP (National Employment Policy), particularly on the results of the programmes established to stimulate growth and economic development, raise working and living standards, respond to labour market needs and deal with unemployment and underemployment

The Government approved the Employment Policy in 2016, and the respective Action Plan 2018–22, which contains eight pillars, namely: (1) human capital development; (2) creation of new jobs; (3) harmonization and prioritization of sectorial policies and strategies; (4) promotion of decent, productive and sustainable work; (5) improvement of the labour market information system; (6) occupational health, hygiene and safety at work; (7) strengthening international cooperation; and (8) transversal affairs.

In the 2015–19 period, 1,893,921 jobs were registered, of which 478,904 in 2019.

In 2020, due to the impact of the COVID-19 pandemic, there was a reduction of jobs in the order of 47.05 per cent in relation to 2019, reaching 253,542.

Of this total, 162,893 are new jobs; 90,649 is a person’s first job; 158,468 are permanent jobs, 69,311 seasonal and 25,763 temporary jobs; 153,171 jobs for young people corresponding to 60.4 per cent, and 62,293 jobs occupied by women, corresponding to 25 per cent of the total.

Average inflation was 3.14 per cent, against 2.78 per cent recorded in 2019, below the average of 6.6 per cent forecast for the year 2020 and the gross domestic product of 2020 registered a decrease of -1.28 per cent, against 2.29 per cent in 2019.

The national electrical network (REN) was expanded, establishing 222,640 new home connections, making a total of 9,997,425 domestic consumers, corresponding to 38 per cent of access to energy in the national territory; the construction of five new water supply cisterns in rural areas and two new water supply cisterns in cities and towns, which culminated in the establishment of approximately 38,677 household connections, benefiting approximately 114,000 inhabitants.

Adoption of sustainable fiscal and monetary policy measures to support the private sector in addressing the economic impact of the COVID-19 pandemic. Within the scope of this measure and in order to provide greater resilience to the Mozambican financial system, in order to face the growing risks arising from the macroeconomic impact of COVID-19, the Bank of Mozambique decided to release US$500 million to establish a credit line for commercial banks, with the aim of allowing them to have greater liquidity in foreign currency to cover imports of goods and services.

Introduction of new work modalities, depending on the specificities of the area of activity, ensuring, however, the preventive measures issued by the health sector and the mechanisms for controlling effectiveness.

Creation of alternative forms of care to replace face-to-face care in public and private institutions.

Implementation of measures, among others, (i) the granting of credit lines in foreign currency to local banks and the recommendation to restructure customer credits; (ii) constitution of a credit line in the amount of 1,600 million meticais to support small and medium-sized companies, operated by the National Bank of Investment; (iii) suspension of interpellations, constitutions in arrears and executions resulting from the delay in fulfilling obligations related to bank credits, provided that this delay results from the application of the measures imposed by the state of national emergency; (iv) customs and tax facilitation, including the authorization of early departures for the import of goods related to the prevention and treatment of COVID-19, the waiver of payments on account and the postponement of social payment on account, among other measures; (v) 10 per cent reduction in the electricity tariff from 1 June to 31 December 2020, to all consumers (companies and individuals); and, (vi) exemption from VAT (17 per cent) on sugar, edible oils and soaps, from 26 May for one year, aiming to mitigate the costs of these essential goods.

2. The Committee asks the Government to provide updated information, including statistical data disaggregated by economic sector, sex and age, on the current situation and trends in relation to the active population, employment and unemployment

According to the results of the Household Budget Survey of 2019/20 (preliminary data), the employment rate is 74 per cent and the unemployment rate is 17.5 per cent.

The employment rate of 15–35 years old is 66.7 per cent (67.7 per cent men and 65.8 per cent women).

The unemployment rate for 15–35 years old is 17.5 per cent (17.4 per cent men and 17.7 per cent women).

3. The Commission asks the Government to provide detailed information on how the implementation of the NEP, the Pre-occupational Traineeship Regulations and other programmes that provide education and vocational training for young people or supporting the entrepreneurship of young women and men have increased access of young people to full, productive and sustainable employment

Agreements were signed to promote pre-professional internships with the business and banking sectors and 3,008 pre-professional internships were carried out, of which 1,174 benefited women.

The telescope was introduced in vocational training to deal with the COVID-19 pandemic.

The management procedures for the Youth Initiatives Support Fund were reviewed and 188 projects were financed, benefiting around 1,000 young people.

The Creative Youth Prize Programme was introduced and 145 young people were awarded in the areas of entrepreneurship, scientific innovation, artistic creation and revelation.

Multigenerational forums for dialogue held to encourage youth participation and integration.

The “My Kit, My job” programme was introduced and 741 self-employment kits were acquired and allocated, generating 2,101 jobs, of which 499 are occupied by women.

The Scholarship Regulation for Girls was introduced with a view to entering courses in the industrial sector (engineering).

The ECITB international certification for a training center has been renewed.

The ISO9001 International Quality System Management certification of a training centre has been carried out.

National Catalog of Professional Qualifications for Vocational Certificates and Professional Education Professionals produced for the areas of hospitality and tourism, education, health and social security, administration and management, agriculture and nature conservation, planning, physical, industrial maintenance, engineering and industrial production, ICTs, hydrocarbons, mining, civil construction, statistics, aquaculture, fisheries and navigation.

4. The Commission asks the Government to provide detailed and updated information on the results of the specific measures adopted and implemented on the NEP to promote equal employment and income opportunities for women and men and to close the gender gap in education, especially in relation to literacy rates

The net enrollment rate for students who entered Grade 1 at the age of 6 registered 78.9 per cent (78.1 per cent girls) of a 94 per cent plan. The student/teacher ratio stood at 67 per cent (primary education) against the annual target of 63.6 per cent.

7,570 primary school teachers were hired out of a target of 7,639 teachers.

Hired 7,266 literacy teachers benefiting more than 181,000 literacy students.

In the scope of professional technical education, 104 teachers were hired.

551 classrooms were built, with a plan of 1,355, benefiting about 22,110 students.

Acquired and distributed 25,120 school desks, out of a plan of 33,875.

Trainers admitted to vocational training centres.

5. The Commission asks the Government to continue to provide information, including statistical information disaggregated by age and sex, on the impact of measures taken in the area of education and vocational training and on its relationship with prospective employment opportunities

In 2020, the school network grew by 0.75 per cent, equivalent to 99 new schools. In secondary education, the school network grew by 8.3 per cent, from 819 schools in 2019 to 887 in 2020.

In higher education, a total of 239,602 students were enrolled, corresponding to an achievement of 99.7 per cent of the planned target and a growth of 6 per cent, compared to the year 2019.

In vocational technical education, a total of 93,463 students were enrolled, corresponding to an achievement of 98.9 per cent of the planned goal and a growth of 5 per cent, compared to the year 2019.

In the area of literacy and non-formal education, 229,329 literacy students were enrolled, corresponding to 69 per cent of the annual goal.

Trained 3,430 women in entrepreneurship and business management

Approved by the Government, the Gender Strategy in the elaboration of sectorial instruments of the Government.

Trained 1,140 women to access productive resources and emerging opportunities in the extractive industry.

6. The Commission asks the Government to continue to provide detailed information on the involvement of the social partners in the promotion and implementation of the NEP. The Committee hopes that the Government will make every effort to take the necessary measures in the near future

The Employment Policy and the respective Action Plan were presented, discussed and approved by the social partners partners in the Consultative Labour Committee.

The implementation of the “MozTrabalha” programme covers the employment area and involves the social partners.

Discussion by the Committee

Government representative, National Director of Planning and Cooperation – It is with honour and a sense of responsibility that we take the floor to provide a brief report on the responses to the questions raised by the Committee of Experts.

The Committee of Experts raised six questions for the Government of Mozambique. The answers to these questions were submitted on time to the Conference Committee. For the sake of time, I will not share the details of this response as they mostly consist of statistical data aimed at assessing the impact of the employment policy on job creation.

It should be noted that the employment policy in force in the country was approved in 2016, in a process that involved the relevant actors of the labour market, including employers’ and workers’ organizations. The Government also established an action plan for the implementation of the National Employment Policy (NEP) in a process that involved the social partners.

The lack of institutional capacity and financial resources to monitor the impact of the employment policy and other economic policies on employment is one of the great challenges. Without systematic labour force surveys, it is difficult to analyse the structure and dynamics of the labour market. Despite this difficulty, in 2015, the Government created a Labour Market Observatory and this Observatory has been setting up an information system on the labour market that has been gradually producing some indicators of the labour market based on administrative sources.

The Government is currently preparing an integrated Labour Force Survey, 15 years after the previous one, and has recently completed a household budget survey, which included the employment dimension. These are surveys that can help us understand the impact of different policies on job creation.

As I said before, we have submitted the answers requested by the Committee of Experts, highlighting the fiscal and monetary policies that have been adopted, the measures to stimulate the private sector in the current context of COVID-19, the active measures to promote employment, and some macroeconomic and labour market indicators. Unfortunately, due to the lack of production of regular surveys, it is still a challenge to see trends in labour market indicators. Faced with these challenges, the Government will continue its efforts to further improve labour market statistics with a view to facilitating the monitoring and evaluation of the impact of the employment policy, and in this process we would appreciate the technical assistance of the ILO.

Employer members – The case before us concerns the application in law and in practice of Convention No. 122 by the Government of Mozambique. Convention No. 122 is an ILO priority Convention which, in essence, requires ratifying Member States to declare and pursue as a major goal an active policy designed to promote full, productive and freely chosen employment. While the Convention does not prescribe the means and strategies to achieve this goal, the key role of the private sector and the need for an enabling environment for entrepreneurship and sustainable enterprise for its achievement should be recognized. The Employer members trust that the Committee of Experts will give due consideration to an enabling environment for sustainable enterprises in its future assessments of the Convention in Mozambique, as highlighted in the ILO Centenary Declaration on the Future of Work.

Now, turning to the case of Mozambique itself, it is the first time that the Committee has discussed Mozambique’s application in law and in practice of the Convention. The Convention was ratified by the Government of Mozambique in 1996. Unfortunately, due to the absence of the Government’s report, the Committee of Experts repeated its 2017 observations twice, in 2019 and in 2020.

We do, however, thank the Government for the written information and its earlier presentation on this case, responding to the Committee of Experts’ observation. We would like to take this opportunity to remind all Member States to fulfil their constitutional reporting obligations and, importantly, to provide up-to-date information on the application of ratified Conventions in law and in practice. This information is absolutely vital to assist the Committee of Experts in its non-binding assessment and our discussions in this Committee. We therefore encourage the Government of Mozambique to fulfil its constitutional reporting obligations.

This case is also about how, following receipt of ILO technical assistance, Mozambique adopted a National Employment Policy (NEP) in 2016, in accordance with its national reality and in consultation with the social partners, to promote full, productive and freely chosen employment. The policy aims to promote job creation, entrepreneurship and sustainable employment. It includes among its main targets: the creation of new jobs, the implementation of programmes contributing to increased productivity, competitiveness and the development of human capital, establishment of the institutional conditions necessary to improve the functioning of the labour market, and ensuring the harmonization of sectoral policies, as well as an institutional framework for employment and self-employment.

It is important to highlight that, in line with Article 3 of the Convention, the policy was also the result of tripartite social dialogue, as it was discussed by the Labour Advisory Commission prior to its adoption and continues to be monitored with the support of the social partners in this Commission and by the development observatory.

Moreover, we note that the Government has recently adopted the action plan related to the NEP for the period of 2018–22. By listening to the Government, we have also learned how the action plan has been adapted to the specific situation brought about by COVID-19 in the country, taking into account the reduction in jobs over the last year, as well as the economic difficulties faced by the private sector.

The pandemic has spotlighted the importance of the private sector, the undeniable value of small and medium-sized enterprises, and the relevance of global supply chains. Conducive environments for business are not an aim, but rather provide the basis for employment creation, growth and sustainable development, also in Mozambique.

Businesses in Mozambique need the Government to do what only governments can do, namely, to facilitate and create an enabling environment for private sector growth and resilience, to be able to create productive employment. In the absence of governments creating such an environment, growth cannot take place, and productive jobs cannot be created. An enabling business environment is essential for creating a stable, predictable and incentivizing environment for investment, innovation and employment, all of which are vital for any sustained and job-rich recovery from the COVID-19 crisis.

We therefore invite the Government to communicate up-to-date information to the Committee of Experts on the implementation of the action plan of 2018–22, including statistical data on the current situation and trends regarding the active population, employment, unemployment and underemployment throughout the country.

We also invite the Government to provide information to the Committee of Experts on the enabling business environment in Mozambique for employment creation and on how the national employment policy’s plan of action and enabling business environment go hand-in-hand and are having an impact on the ground. This information is important because we now need to see the impact on the ground of the policy and plan of action.

With respect to youth employment, we welcome efforts to promote investment to create employment for young people and note that the NEP sets out lines of action to promote youth entrepreneurship through training programmes, particularly in rural areas, as well as increasing access to credit, investing in training for youth and increasing the number of traineeships available to young people.

We note that the Government has held awareness-raising conferences on pre-occupational traineeship regulations at the national and provincial levels to encourage enterprises to engage young trainees, and that the Government has established initial programmes to support entrepreneurial initiatives developed by young people.

We invite the Government to provide detailed information on the manner in which the implementation of the NEP, its action plan and different government programmes providing education and vocational training for young people and supporting entrepreneurship by young women and men, have increased or hampered the access of young people to full, productive and freely chosen employment opportunities. We also invite the Government to inform the Committee of Experts of how the NEP, the action plan and the different government programmes take into account the needs of sustainable enterprises to ensure a balanced approach.

With regard to the employment of women, we note that the NEP calls for action to: promote women’s employment, including in traditionally male occupations; prioritize education and vocational training with a view to promoting equal employment opportunities for women and men; and eliminate gender discrimination in access to employment. We invite the Government to provide detailed information on the concrete impact of the NEP on women’s access to full, productive and freely chosen employment, including any challenges and obstacles that they might be facing.

Lastly, in relation to education and vocational training, we note the Government’s indication that access to secondary education in the country is limited, and the completion rate remains very low at 13 per cent. The relevance of education and vocational training to the needs of the labour market is also very low. We note that the Government refers to reforms introduced in the areas of education and vocational training to address these challenges. We therefore encourage the Government to show that education and vocational training policies and programmes are defined and implemented in close consultation with employers’ organizations.

Worker members – We must first express our regret that the Committee of Experts has not received the report of the Government since 2016 and has had to reiterate its previous comments without the benefit of updated information. We acknowledge the written information provided by the Government to the Committee, but we regret that this information was not provided in due time to the Committee of Experts.

According to the latest available statistics dated 2016, the poverty rate in Mozambique is between 41 per cent and 45 per cent of the population, which represents over 10 million people. Based on a recent study, the unemployment rate was estimated at 17.5 per cent between 2019 and 2020. We take note of these concerning figures, which highlight the need for the Government to adopt and implement inclusive employment policies focused on creating decent and secure jobs, with strong social protection measures.

We note that Mozambique adopted a National Employment Policy in 2016 with the technical assistance of the ILO. This policy is aimed at promoting job creation, entrepreneurship and sustainable employment to contribute towards the economic and social development of the country and the well-being of the population. It was later supplemented by an Action Plan for 2018–22 and an Implementation Plan for 2021–24. Unfortunately, the Government provides no information on the results obtained or any difficulties encountered in implementing these plans, or in achieving the policy objectives.

We note, however, that in September 2016, the Government and the ILO launched the “Decent Work for Sustainable and Inclusive Economic Transformation in Mozambique” project, also known as “MozTrabalha”. This project, which runs until 2021, aims to support the implementation of the National Employment Policy by promoting investments in employment-intensive market infrastructures, stimulating green jobs through SME development and fostering women’s economic empowerment. The project’s main activities consist of collecting information on the labour market, policy processes and institutional capacity, disseminating information on the National Employment Policy and conducting pilot projects to introduce employment-intensive investment programmes in selected sectors and regions.

While we acknowledge the Government’s efforts to implement its National Employment Policy, we are concerned that these measures fall short of the needs of workers and do not provide the requisite protections in line with the scope of the Convention.

Mozambique faces enormous challenges. Nine out of ten workers are in the informal economy, with limited or no access to social protection. Due to the concentration of Mozambique’s workforce in subsistence agriculture and low-productivity informal enterprises, the country is characterized by high levels of individual and household vulnerability, particularly in rural zones in the north and central areas. In addition, the pandemic has had devastating impacts on the economy. According to the National Statistical Institute, over 80,000 enterprises employing 3,300,000 workers have been affected by the pandemic. There is a reduction of jobs in the order of 47 per cent in relation to 2019; that is, over 250,000 jobs have been lost.

In light of these realities, the Government must pursue a national policy aimed at promoting full, productive and freely chosen employment, overcoming unemployment and underemployment and raising living standards throughout the country. Specific measures must be adopted to create paths to formalization of the informal economy in line with the Transition from the Informal to the Formal Economy Recommendation, 2015 (No. 204), to promote investment in the creation of decent, stable and lasting employment and reduce poverty. In the context of post-pandemic recovery policies, policies must particularly address the needs of workers who were or still are hard hit by the pandemic and its consequences, due to their overexposure to infection risk, their lack of protection, or their heightened vulnerability to exclusion from the labour market.

Furthermore, we note that the National Employment Policy has set specific targets to promote the employment of youth and women. In this regard, the Committee of Experts had asked the Government to provide information on the manner in which the implementation of the policy and its accompanying measures had increased access to employment, equal treatment in employment and training opportunities. With respect to the latter, the Committee of Experts had noted important challenges in education and vocational training, including in access to secondary education, the low completion rate and the low relevance of education and vocational training to the needs of the labour market. The Government has indicated that it has launched several programmes to encourage internships and traineeships in certain sectors, such as the banking sector, and to promote self-employment. The Government also provides statistics on the recruitment of teachers in primary schools and professional technical education and on the building of schools. We welcome these developments.

However, the picture painted is incomplete and does not allow for a full assessment of the effects of these programmes. Strong and impactful measures targeted at a job-rich economy, promotion of investment in the creation of decent, stable and lasting employment and poverty alleviation need to be adopted. Their design and implementation must be based on a strong and in-depth analysis of the composition of the workforce, employment and labour market in the country. Therefore, we echo the Committee of Expert’s call for more detailed and contextual statistical data, especially on the current situation and trends regarding the active population, employment, unemployment and underemployment throughout the country.

Finally, we note that the Labour Advisory Commission and the Observatory are the bodies entrusted with the responsibility of following up on the implementation of the National Employment Policy. However, despite the Committee’s specific request on this point, the Government provides no information on the involvement of the social partners in these two institutions. We recall that for the National Employment Policy to be successful, it must fully include the social partners in its design, implementation and review. We emphasize the need to establish strong mechanisms for the consultation of the social partners.

Interpretation from Portuguese: Worker member, Mozambique – I am taking the floor on behalf of the Workers’ Organization of Mozambique (OTM). On 23 December 1996, Mozambique ratified Convention No. 122. In the context of its domestication of this instrument, the Government adopted its first National Employment Policy (NEP) in 2016, which was designed to ensure the participation of all social partners – the Government, employers and workers. The NEP is a very valuable instrument for promoting employment in any country and in the specific case of Mozambique. As a rule, this policy is something that sets out the general framework on how the social partners are to work on promoting and implementing laws. The trade unions, as representatives and defenders of the workers, are key players. This must always be taken into account where employment-related initiatives are concerned.

As well as an instrument for social inclusion, employment is a means of fighting poverty, reducing social inequalities, begging and crime, because those factors often cause or exacerbate instability and conflicts in developing countries such as Mozambique.

The level of unemployment reported by the NEP, which contains statistics for 2014–15, paints a worrying picture where the achievement of acceptable levels of employability in the country is concerned. Even more concerning are the types of jobs that contribute to those statistics, because they often do not fulfil the criteria for decent work.

The fact that Mozambique is having to appear at this session of the Committee following the comments made by the Committee of Experts points to the weakness of the mechanisms that have been applied under the NEP and the country’s inability to transform the policy into a practical road map to benefit its people and the relevant institutions. In our opinion, the NEP should not be merely a political instrument; it should also be a practical tool for promoting employment.

The workers in Mozambique recognize the efforts that the Government has been making to ensure that more Mozambicans, and particularly young Mozambicans, can have access to employment. We also appreciate the information produced by the National Employment Observatory. We also salute a number of initiatives that the Secretary of State for Youth and Employment has developed. These merit encouragement. However, the Workers’ concerns remain. For example, one of the pillars of an employment policy is decent work and it is therefore inconceivable that a country such as Mozambique should not have a Decent Work Country Programme which would be a guiding instrument for the quantity and quality of jobs to be created.

The workers understand that creation of jobs is not just the Government’s responsibility. It is also something that falls to the private sector. Indeed, when we speak about the private sector, we should take into account its role in employment. However, we feel that the private sector should be doing much more to create secure and sustainable jobs, especially jobs in which certain rights are enjoyed.

It is not enough to speak of flexibility or simplicity in policymaking. Over the past few years, many initiatives have been approved by the Government and in our opinion the results have fallen short.

As everyone knows, the creation of decent jobs and the protection of workers’ rights are core targets for trade unions around the world. In the specific case of the OTM and the National Confederation of Independent and Free Trade Unions of Mozambique (CONSILMO), and the trade union movement in general, we feel that there is a need for further inclusive social dialogue where employment and jobs are concerned.

Mozambique is not an island, and as a means of raising awareness of the NEP, and how to implement it, the Government should have supplied more information to the Committee of Experts on time, as part of its periodic reporting obligations. The Workers do not understand why this delay has arisen and we hope that it is not due to a mere oversight. We hope that henceforth the Government of Mozambique will comply with all its obligations to provide information to the Committee of Experts on time.

We call upon the ILO to offer technical assistance to the Government to improve its performance in implementing its policy and involving workers in that process. As Worker representatives, we reiterate our commitment to contribute to the legislative developments in the country and the adoption of social policies at the national level that ensure workers’ rights are protected, extend social protection, and develop social dialogue, as well as fighting all kinds of discrimination. We reiterate our commitment to the ILO’s goal of ensuring lasting universal peace, which can only be achieved if it is rooted in social justice and decent work.

Interpretation from Arabic: Government member, Egypt – We have taken note of the measures adopted and the efforts made by Mozambique in order to ensure that it is bringing its law and practice into line with the provisions of the Convention.

An employment policy was indeed adopted in 2016 in order to train people, create jobs and develop appropriate policies and strategies to cover the various sectors of the economy, increase sustainable and productive employment and improve the labour market information system. In addition, the Government has taken measures to tackle the impact of the COVID-19 pandemic and bring about greater stability in the financial system. Furthermore, it has taken measures to contain the COVID-19 pandemic and help to strengthen the private and public health sectors. Mozambique has also reached agreements to increase vocational training opportunities.

In conclusion, we salute the Mozambican Government’s efforts to make sure it is in step with the provisions of the Convention and we hope that in its conclusions the Committee will take these efforts fully and duly into account.

Interpretation from Portuguese: Worker member, Portugal – Distinguished members of the Committee, the objective of Convention No. 122 is to promote employment policies with a view to full employment, and it was ratified by Mozambique in 1996. That is an indication of the effort that has been made to improve employment policies in the country, in response to the incentives offered by the ILO through the principles endorsed by the Organization, such as combating unemployment and guaranteeing wages that offer appropriate living conditions.

The informality of precarious work and low skills are problems faced by Mozambique and in 2016 they led to the adoption of the National Employment Policy. The creation of these policies, in which emphasis has to be placed on employment generation, increasing national production, improving support for occupational health and safety issues, was supposed to have guaranteed greater participation by unions in generating work with rights and ensuring social protection, which are of vital importance if we are to be able to return to our activities following the pandemic.

Mozambique, in cooperation with other organizations, and particularly the ILO, has engaged in the work of providing support as a result of these policies.

In light of the above, the discussion of this case cannot fail to give rise to certain doubts about why it was selected. In a context in which the State of Mozambique is a victim of terrorist acts, murders, looting, the destruction of infrastructure and public services, the threat of the expulsion of the population challenges the efforts devoted to employment policies which, as has been recognized, are very important for the recovery of countries that are victims of aggression. They also contribute to responding to those who are undermining the sovereignty of Mozambique and who are seeking to introduce foreign military forces into the country, taking over the natural resources which can constitute a window of hope for the people of Mozambique. Mozambique is in need of true and disinterested solidarity and cooperation, which can help us to reinforce policies for the creation of quality employment and allow us to enjoy rights.

Based on our knowledge of the policies and praiseworthy role that the ILO has played in the implementation of these policies, we are convinced that ILO cooperation with Mozambique needs to be strengthened to achieve progress in the application of policies that promote and protect workers’ rights, in the development and support of which the unions of Mozambique play a fundamental role through social dialogue.

Government member, Zimbabwe – The Government of Zimbabwe would like to thank the representative of the Government of Mozambique for providing this Committee with information concerning how Mozambique is giving effect to the principles enshrined in the Convention through its National Employment Policy, adopted in 2016. We also note from the submission made by Mozambique that the employment policy was adopted through a consultative process and is accompanied by a very substantive implementation plan.

My Government commends the Republic of Mozambique for domesticating the Convention and urges the ILO to provide technical assistance to Mozambique to better manage its labour market information. We have confidence that there will be continued collaboration between the Government of the Republic of Mozambique and the ILO, as demonstrated by the submission made by the representative of the Government of Mozambique. We also urge the ILO to provide technical assistance to build the capacity of the Government of Mozambique to be able to provide the Office and other supervisory bodies with the reports that are requested from time to time.

Employer member, Colombia – I would like to refer to two aspects of the case. First, Convention No. 122 refers to the need to promote economic growth and development through the implementation of policies for full, productive and freely chosen employment. In this sense, for the implementation of the Convention, the framework of a macroeconomic structure is needed to be able to attract investment and the expansion of production by the private sector.

It is in this respect that the creation of an enabling environment for sustainable enterprises takes on greater relevance, as well as the need to recognize the role of the private sector as the principal source of economic development and the creation of productive employment. In this light, we find that the report provided by the Government of Mozambique, although late, provides important details on the National Employment Policy and the current situation of the country. We emphasize that this policy was developed with ILO technical assistance and in consultation with the social partners.

We call on the Government, in the implementation of the National Employment Policy, to take into account the importance of promoting a conducive environment for enterprise development, and to report to the Committee of Experts on how the needs of enterprises are taken into account in the implementation and updating of the policy, particularly to address the effects of the crisis resulting from the COVIC-19 pandemic.

Second, with regard to education and vocational training, we emphasize the progress made and the projects undertaken by the Government of Mozambique in relation to the implementation of pre-employment training programmes. We call for employers to be taken into account in linking the education system with vocational training, and in identifying the skills and competences required by entrepreneurs to generate more and better high-quality and lasting jobs.

Worker member, Canada – I am speaking on behalf of the Canadian Labour Congress. Available data places Mozambique’s national poverty rates in the range of 41–45 per cent. This corresponds to between 10.5 and 11.3 million people living in extreme poverty. Mozambique’s unemployment rate is about 25 per cent, with only 20 per cent of employment being waged labour. The remaining 80 per cent of workers are precariously self-employed, employed as unpaid family workers, or in temporary or casual work.

Many elements of Mozambique’s 2016 National Employment Policy outline important strategies to promote job creation and contribute towards economic development and the social well-being of the population. Its emphasis on youth and women’s employment, as well as on educational and vocational training, are key to creating decent work and reducing inequality.

Meaningful social dialogue will be fundamental to the success of these programmes and policies. Currently, access to secondary education is limited and completion rates remain very low at 13 per cent. Studies have shown that putting more emphasis on social dialogue in education and employment programmes increases the ability to address the unique challenges faced by participants and leads to higher completion rates. However, to ensure meaningful social dialogue, the Government of Mozambique must improve the gathering and dissemination of accurate employment data.

Finally, during the discussion on the General Survey, the Employers indicated that in the recovery from the COVID-19 pandemic, they would like to advance issues of sustainable enterprises and flexibility. One of the most effective ways to ensure sustainable enterprises is by respecting the rights of workers and encouraging workplace democracy through the participation of workers in decisions affecting them at the enterprise level. As we all know, the Employers’ call for flexibility has been consistently used as a way to increase profits at the expense of ordinary workers by lowering working conditions and creating more precarious jobs. Increasing social dialogue and the workers’ voice, on the other hand, will support decent work and contribute towards our shared goals of a just and sustainable recovery.

Interpretation from Arabic: Government member, Algeria – Algeria wishes in the first place to reiterate its support for the Government of Mozambique and support the initiatives taken by the Government with a view to fulfilling its obligations under the terms of the Convention.

Algeria considers that the adoption by Mozambique of the National Employment Policy in 2016, following consultations with the social partners and the implementation of an action plan for the period 2018–22, are positive aspects. We note that the measures adopted principally target the fields of entrepreneurship promotion, the improvement of the qualitative performance of the vocational education and training system, and the modernization of the public employment service and the promotion of decent work, particularly in relation to equality of opportunities in employment. All these initatives will undoubtedly have an important impact on the objectives to be achieved with a view to responding to the needs of the labour market in Mozambique and combating unemployment and underemployment.

The measures adopted by the Government of Mozambique in relation to sustainable budgetary and monetary policy should also be welcomed. These measures are intended to provide support for enterprises and preserve employment. They also have the effect of responding to the economic impact of the COVID-19 pandemic. We also welcome the efforts made to guide workers and enterprises towards sustainable development, so that the post-COVID-19 recovery will be better and stronger.

Finally, Algeria encourages the Republic of Mozambique to promote regional and international cooperation, as cooperation at these two levels is the appropriate means of facilitating the exchange and transfer of knowledge and know-how with a view to promoting its National Employment Policy.

Employer member, Mexico – The case that we are examining is very important since, even though it would be desirable for the economic and social conditions described to be more encouraging, we cannot fail to place emphasis on certain pertinent aspects which demonstrate progress and set out a relevant route that is an example to be followed.

We welcome the adoption of the National Employment Policy in 2016 with ILO technical assistance, which also has an action plan for its implementation, containing programmes designed to increase productivity, competitiveness and the development of human capital, on the basis of the corresponding principles of sustainable employment, which will undoubtedly contribute to the economic and social development of the country.

It is clear that, without an enabling environment for enterprise development, the objective of full and freely chosen employment is an abstract aim, an aspiration that is difficult to achieve and sustain over time.

Having taken this important step, it is now necessary to articulate the employment policy and vocational education and training practices with the requirements of the labour market and of sustainable enterprises, with a view to launching investment, and therefore development.

Under these conditions, it is necessary and important for the Government to report how it understands and responds to the needs of sustainable enterprises, and whether it is already designing and implementing public policies and programmes to promote productive employment for youth and women with a view to achieving equality in employment.

Interpretation from Portuguese: Worker member, Angola – I am speaking on behalf of the trade unions of Africa. The essence and vocation of the Convention is the need to address poverty and to contribute to the achievement of social justice, productivity and prosperity through the generation of decent employment. This Convention offers the possiblity of achieving all that through the promotion of policies that generate the creation of decent employment in all sectors of the economy.

Taking all of this into account, there are grounds for concern, particularly as the report of the Committee of Experts indicated that the poor, around 41 to 45 per cent of the population, are living in extreme poverty in Mozambique, and that self-employment accounts for 75 per cent of the labour force. When these figures are juxtaposed, and the Report of the Director-General indicated that over 255 million jobs have been lost as a result of COVID-19, it is necessary to give consideration to responses and a creative recovery policy. One of these responses should be the development of a pragmatic plan for the transition from the informal economy to the formal economy.

The unemployment situation in Mozambique is similar to that in all the economies of our continent. The situation is being worsened by the effects of COVID-19. In order to offer a response for effective and resilient recovery, it would be necessary to engage in a broad and collaborative process. The Government essentially has to make conscious efforts to facilitate a process of social dialogue for the application of the Decent Work Country Programme, and develop a realistic road map with a timeline for its application, based on the same process.

With regard to the report of the Committee of Experts, in a situation charactarized by 75 per cent self-employment, it is necessary to demonstrate the will for people to help themselves to earn a living. This effort is necessary, and it is now fundamental to make all these policy measures available to the self-employed and workers in the informal economy.

The economic and financial crisis of 2008, in the same way as the global health, economic and social crisis of 2019, reaffirmed the fundamental role of the State in the adoption of policies as being essential to confront crises.

Unfortunately, Mozambique is a country that has been afflicted by three conflicts, has been struck by the tropical cyclones Idai and Kenneth, and where we do not have policies or the fiscal capacity for an effective response to the situation of unemployment and underemployment, as our GDP deficit is 113.70 points and the repayment of the external debt, estimated in United States dollars, amounts to US$1,375 million by the end of 2019. We are in need of ILO technical support to be able to overcome this fragility.

Government member, Namibia – Namibia welcomes the detailed response and the efforts made by the Republic of Mozambique in relation to the National Employment Policy, most notably the action plan 2018–22, which highlights eight pillars namely, human capital development; creation of new jobs; harmonization; and prioritization of social policies and strategies, just to mention a few.

The Government of Mozambique is commended for involving the social partners in the formulation of the National Employment Policy and the action plan. Namibia further commends the Republic of Mozambique for the efforts made on pre-occupational traineeship regulations and other programmes which have increased access of young people to full, productive and sustainable employment.

Employer member, New Zealand – As we have heard from the Employer members, Mozambique, with ILO technical assistance, adopted the National Employment Policy (NEP) in 2016 and the principal objective ostensibly is to improve the economic and social development of the country and the well-being of the population through job creation, entrepreneurship and sustainable employment.

However, as we have also heard, these aims are challenged by reality: significant poverty afflicts nearly half the population, equating to over 11 million extremely poor people. Furthermore, due to the concentration of Mozambique’s workforce in subsistence agriculture and low-productivity informal enterprises, the country is also characterized by high levels of individual and household vulnerability, particularly in the northern half of the country. We further note that access to secondary education in the country is limited and the completion rate remains very low at 13 per cent. Clearly then, the targets are ambitious in a country characterized by poverty.

Experience suggests that the way forward must be carefully managed, incremental and, above all, done cooperatively. Employers and workers alike are supportive of the aims of the NEP. However, it is not simply enough to like these aims. What is needed is the plan that brings them to life. This is the information we now seek. In this regard we note that, with respect to youth employment, the NEP focuses on promoting investment to create employment for young people, setting out lines of action to promote youth entrepreneurship through training programmes, particularly in rural areas, as well as increasing access to credit, investing in youth training and increasing the number of traineeships available to young people.

While education and training is laudable, without investment, it is not enough to grow both the formal and the informal economies in Mozambique. What is also needed is the jobs that will use the skills learned. An early consequence of not doing this is the departure of youth to countries in which work is available. There is little sustainability in that as an outcome.

Similar issues may arise with regard to women’s employment. The NEP calls for the promotion of women’s employment, including in traditionally male occupations; it calls for prioritization of education and vocational training with a view to promoting equal employment opportunities for women and men; and eliminating gender and discrimination in access to employment. However, without job growth the effect of achieving this goal is the displacement of males, young and old, from existing work.

As with youth, achieving this goal requires growth in the jobs available, and that will happen only with investment in both traditional and entrepreneurial job opportunities.

Lest there be any doubt, the Employer members are clear that education is a vital prerequisite to building a flourishing economy. Progress will not come overnight, but it will not come at all if education, training and jobs are not part of an established continuum in which education and training is relevant to the needs of the labour market.

We urge the Government to continue to work towards an approach that attracts job-rich investment.

Government member, Eswatini – Mozambique is one of our two closest neighbours and therefore we relate to their current and past internal, social and political circumstances. The reasons advanced by the Government of Mozambique for the difficulty to submit its report, which would have enabled the Committee of Experts to examine the progress made in implementing the Committee’s comments, as made during its previous examination, are noted and we urge that they must be considered in the conclusions of this case.

When listening to the information that has been presented by the Government of Mozambique, we get the sense that there are serious intentions by the Government, dedicated towards full implementation of the Committee’s comments. However, these efforts are curtailed by side disturbances, such as the outbreak of the COVID-19 pandemic and several other human and natural disasters.

The steps taken by the Government to adopt a comprehensive National Employment Policy whose objectives are to promote job creation, entrepreneurship and sustainable employment to contribute towards the economic and social development of the country and the well-being of the population, deserves on its own some comments and encouragement of the Government to continue building towards achieving what it set out to achieve through this policy.

The main targets of this policy, these being the creation of new jobs (particularly in the private sector); implementation of programmes contributing to increased productivity; competitiveness and the development of human capital; establishment of the institutional conditions necessary to improve the functioning of the labour market; and ensuring the harmonization of sectoral policies, as well as an institutional framework for employment and self-employment, resonate so very well with the aspirations of the ILO Centenary Declaration.

Instead of being burdened by further strict recommendations by the ILO supervisory bodies, continued technical assistance and support must be availed to the Government of Mozambique in order to drive maximum promotion and implementation of the National Employment Policy, through the recently developed action plan in close consultation with social partners.

Observer, Public Services International (PSI) – We also regret that the Government has not provided its report on something as fundamental as employment policy, particularly in view of the economic and social situation in the country.

Despite the Government boasting about the high levels of GDP growth achieved in recent years, Mozambique is one of the poorest countries in the world and the level of development of its economy is limited. Around 50 per cent of the population is living below the poverty level, which represents 11 million extremely poor people. Moreover, the great majority of the population, around 80 per cent, continues to be dependent on subsistence agriculture.

On the other hand, the public budget depends largely on foreign aid. Mozambique is financially subject to the designs of donor countries and multinational institutions, the contributions of which represent approximately 40 per cent of the public budget. These contributions and donations condition the country’s economic and labour policies. As part of the economic reforms undertaken by Mozambique over recent years, around 1,500 state enterprises have been privatized and there has been liberalization in all sectors of the economy. Moreover, privatization and personnel reductions in the public sector have resulted in increased unemployment, an increase in the informal economy and the phenomenon of disguised self-employment.

We therefore wish to emphasize that Article 3 of the Convention requires the consultation of representatives of employers and workers with a view to taking fully into account their experience and views and securing their full cooperation in formulating employment policy and enlisting the necessary support for its implementation.

We regret the fact that the Government has not registered the union for the public administration, as recommended by the ILO supervisory bodies, which undermines the capacity of public sector workers to participate activitely in these consultations, and allows the Government to continue treating them as third-class social partners.

In conclusion, we wish to emphasize that the Government of Mozambique must make greater efforts to regulate the labour market effectively, collaborate adequately through social dialogue and undertake to include employment creation processes in the Decent Work Programme.

Government representative – I would like to invite my colleague, the National Director of the Labour Market Observatory, to deliver the final remarks.

Another Government representative – First, we would like to thank the Committee for this opportunity to table our report, which was thoroughly read by the delegates, and thoroughly debated in this session. We would like to acknowledge the challenges that we have as a country in terms of data collection and dissemination of data, but most importantly, I would like to highlight one very important aspect on this issue of data: statistical data.

As of late, we are talking about 20 May 2021, we held a high-level meeting on employment, and this meeting had three high-level individuals from the ILO who addressed our meeting and the progress that we have made. We also had in that meeting two experts that addressed the issue of the concept of employment that we are still struggling with, the issue of statistics that we still have as a big problem, a big headache as a country. They are helping us look at how best we can handle these issues of the concept of employment, the collection of data, and also how Mozambique should address the issue of informality, the transition from the informal to the formal economy. The meeting was attended by some 200 people and 5,000 participants attended remotely.

So, we fully agree with the recommendations that were made here, but we would also like to reiterate our commitment to address those issues that are big problems for us.

If you look at our plan of action for the employment policy for 2021–24, it states clearly what the Government commits itself to do to meet the needs of the Mozambican people. We are talking about fiscal and monetary programmes that would speed up job creation. It is very clear in that plan of action. We are talking about the commitment and involvement of our social partners.

A very clear example of how Mozambique embraces social dialogue is our labour law review. It is getting big support, and strong involvement of our social partners. We are talking about the employers, represented by the Business Associations Confederation of Mozambique (CTA), and also our workers’ representatives from the Workers’ Organization of Mozambique (OTM) and CONSILMO, and the whole society at large is also involved.

We are grateful for the support given by all the delegates, and also request heartily that the ILO should extend and deepen its support and technical assistance to Mozambique.

Employer members – I will start off just making the last point from my original intervention before I proceed to my concluding remarks. Achieving the goal of full, productive and freely chosen employment requires productivity, growth and an enabling business environment for employment opportunities to be created. That will only happen with investment in both traditional and entrepreneurial job opportunities. While it is investment that will make the biggest difference, it is also on investment that we most lack information in this case.

We wish the Government of Mozambique to further develop an enabling business environment for employment creation. We also urge the Government to further develop its plans for investing in jobs and to make these plans clear so that the international community can understand and support them.

Now turning to my concluding remarks. The Employers’ group would like to thank the Government for the useful information already available in the written submission. We are pleased to note the measures that have been undertaken by the Government of Mozambique to elaborate, review and keep updated its Employment Policy, especially in light of the COVID-19 pandemic.

We also thank all participants for their insightful submissions here today. The Employer members recall the importance of the timely submission of the report to the Committee of Experts because this is the only way that ILO supervision can work properly and provide adequate information prior to the discussions in this Committee.

In light of the debate, the Employer members invite the Government to provide updated detailed information on the results of the specific measures adopted, the challenges encountered and the measures adopted to overcome those challenges concerning employment of young women and men, stimulating professional training and labour mobility for young people, women’s empowerment, vocational training and education.

Considering the specific situation arising due to the COVID-19 pandemic, the Employer members would also like to request the Government to report on the long-term policies adopted in support of a sustainable and resilient business recovery from the COVID-19 crisis.

Businesses in Mozambique and everywhere in the world need governments to do what only governments are empowered to do – to facilitate and create an enabling environment for private sector growth and resilience and to be part of solutions to SME financing partnerships. In the absence of governments creating such an environment, growth cannot take place and productive employment cannot be created. An enabling business environment is essential for creating a sustainable, predictable and incentivizing environment for investment and innovation.

Worker members – The Worker members would like to thank the Government of Mozambique for its comments. We also thank all the other speakers for their interventions. We welcome the efforts of the Government to adopt a National Employment Policy to address the huge economic and social challenges faced by the country.

The overwhelming majority of the working population is concentrated in subsistence agriculture. The poverty rate in Mozambique is rising. Nine in every ten workers are in the informal economy and the COVID-19 pandemic and its impact on society have cut down the rate of employment growth by almost half compared to 2019.

In view of these challenges, we call on the Government of Mozambique to review, in consultation with the social partners, the 2016 National Employment Policy in light of any recovery plans, to ensure that the post-pandemic recovery is human-centred, inclusive and that it respects labour rights. This must be done together with a review of the “Decent Work for Sustainable and Inclusive Economic Transformation in Mozambique” project, referred to as “MozTrabalha”.

The Government of Mozambique must review its policies and programmes with a view to promoting investment in the creation of decent, stable and lasting employment and to reducing poverty. In that regard, we recall the interdependence of economic, social and employment objectives and the need to coordinate the National Employment Policy with other economic and social policies so as to ensure their complementarity.

In addition, taking into account the characteristics and composition of employment in the country, it appears clear that specific measures must be adopted to create paths to formalization of the informal economy in line with Recommendation No. 204 and to address poverty in the agricultural sector.

In the context of post-pandemic recovery, policies must particularly address the needs of workers who were or still are hard hit by the pandemic and its consequences due to their overexposure to the infection risk, their lack of protection, or their heightened vulnerability to exclusion from the labour market.

The National Employment Policy must also address the great inequalities on the labour market, which specifically affect women and young workers. Further efforts are needed to achieve greater equality of opportunities in terms of access to employment, as well as equality of treatment concerning conditions of work.

All these measures must rest on a robust system of collection and analysis of statistical data, especially on the current situation and trends regarding the active population, employment, unemployment and underemployment throughout the country.

Finally, and this is a key point, the Government of Mozambique must take measures to ensure the full participation and genuine consultation of the social partners in all the steps of the National Employment Policy, from design to implementation and evaluation.

The objectives and principles of the Convention remain at the heart of any national employment policy and any national response to the pandemic.

Therefore, the Government must provide timely and updated information to the Committee of Experts to ensure that the measures adopted are in line with the Convention. We also call on the Government of Mozambique to accept ILO technical assistance.

Conclusions of the Committee

The Committee took note of the written and oral information provided by the Government representative and the discussion that followed.

The Committee noted with regret the absence of any government report to the Committee of Experts since 2016.

The Committee noted the efforts made by the Government with the technical assistance of the ILO Office leading to the adoption a National Employment Policy. However, the Committee noted the persistence of a high level of poverty, unemployment and informality and the low completion rate of secondary education.

Taking into account the discussion, the Committee calls upon the Government of Mozambique to:

• review, in consultation with the social partners, the 2016 National Employment Policy, its subsequent implementation plans and the “Decent Work for Sustainable and Inclusive Economic Transformation in Mozambique” or “MozTrabalha” in line with the Convention to ensure an inclusive and human-centred post-pandemic recovery based on decent and sustainable employment;
• adopt measures to create paths to formalization of the informal economy in line with Recommendation 204;
• in consultation with social partners, take measures to improve access to higher education, increase the completion rate of higher education and ensure that vocational training is relevant to the labour market needs;
• establish and maintain a robust system of collection and analysis of statistical data, especially on the current situation and trends regarding the active population, employment, unemployment and underemployment throughout the country;
• adopt measures to address inequalities in the labour market, which specifically affect women and young workers, with a view to achieving greater equality of opportunity in employment as well as equality of treatment at work;
• in the context of post-pandemic recovery, report on the long-term policies adopted in support of a sustainable, resilient employment and economic recovery from the COVID-19 crisis, as well as measures to protect workers, in particular those at risk of exposure to infection;
• provide information on the stage and level of economic development and the mutual relationships between employment objectives and other economic and social objectives and any active policy designed to promote full, productive and freely chosen employment; and
• take measures to ensure the full participation and consultation of the social partners in line with the Convention.

The Committee requests the Government to provide a detailed report, including statistical data on the current situation and trends regarding the active population, employment, unemployment and underemployment throughout the country; and detailed information on the results of the specific measures adopted to address inequalities in the labour market, vocational training, education and women empowerment, as well as the challenges encountered, to the Committee of Experts before its next meeting in 2021.

Government representative – The Government of Mozambique has taken note of the observations and recommendations of this honourable Committee. As we said in our presentation during the debate of this case, we have been facing tardiness in collecting data on labour market statistics. Our Government will continue its efforts. This year we are starting a survey on the labour force and in the middle of next year we will have a report, which will show us or which will allow us to see the impact of the employment policy and other economic policies on the labour market.

The Government will take all necessary measures to fully implement the recommendations of this honourable Committee and in this process we expect to have the technical assistance of the ILO.