Employment Policy Convention, 1964 (No. 122) - Togo (Ratification: 2012)

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

Article 1(2) of the Convention. Implementation of an active employment policy. The Government reiterates that the framework employment policy document adopted in 2004 was updated following the preparation of a new National Employment Policy (PNE), adopted in 2014, combined with an operational plan of action covering the period 2014-2018. The Government indicates that the 2014 PNE is undergoing revision and that its principal objective is the reduction of the unemployment rate by 0.50 percentage points and the underemployment rate by 1 percentage point in order to contribute to combating poverty in Togo. However, it adds that, despite the progress achieved, the absorption capacity of the market is below the level of demand for employment. With a view to resolving the problem, the Government indicates that the current approach to employment creation is targeted towards the implementation of structural projects, such as the Adetikopé Industrial Platform (PIA) and the Blitta Solar Energy Plant. It adds that, with a view to addressing the difficulties, it is engaged in multiple negotiations to mobilize more resources from technical and financial partners and is preparing a meeting, through the Ministry of Employment, with the actors in the sector with a view to specifying the responsibilities of each actor and improving the coordination of their action in the context of the process of preparing and implementing a new inclusive policy that is accepted by everyone. The Committee notes the adoption of the Togo National Development Plan 2018-2022, which has the overall objective of transforming the structure of the economy, with a view to achieving strong, sustainable, resilient and inclusive growth that creates decent jobs and produces an improvement in social welfare. The National Development Plan is based on three strategic elements: the establishment of a logistical hub of excellence and a first-rate business centre at the subregional level; the development of transformation poles for agriculture, manufacturing and the extractive industry; and the consolidation of social development and the reinforcement of inclusion mechanisms by placing emphasis on the access of population groups, and particularly vulnerable groups, such as young persons, women and persons with disabilities, to productive, decent and sustainable employment and to social protection, education and gender equity, among others. The Government adds that, with a view to achieving the objective of national development, the authorities are aiming to create 500,000 jobs during the 2018-2022 period. The Committee notes, according to the statistical data available from the ILO Statistics Department, that the activity rate was 58.1 per cent (60.6 per cent for men and 55.9 per cent of women) and the unemployment rate was 3.7 per cent (4.7 per cent for men and 2.8 per cent for women) in 2017. It notes the Government’s indication that the unemployment rate rose to 3.9 per cent in 2018, and the underemployment rate was 26.8 per cent. The Committee requests the Government to continue providing updated and detailed information, including statistics disaggregated by age and sex, on the results achieved and the difficulties encountered in achieving the employment objectives established in the National Employment Policy and the Strategy for Accelerated Growth and Employment Promotion (SCAPE 2013-2017). It also requests the Government to continue providing updated information on the measures adopted or envisaged to make work as productive as possible. The Committee further requests the Government to keep it informed of any developments in relation to the review of the National Employment Policy, and in relation to the meeting of the social partners referred to above and to indicate the manner in which the involvement of all the actors concerned is ensured.

Youth employment. The Government refers to the establishment of the National Inclusive Finance Fund (FNFI), which provides access to economic and financial services for young people. The Committee notes that, according to an OECD report from 2017 reviewing youth well-being policies in Togo, young persons are three times more likely to be unemployed than adults. One young national of Togo in five is neither in employment, school or training (NEET), and those who are working are in their great majority concentrated in low quality jobs. Young workers are almost all engaged in informal employment (93.3 per cent). Moreover, the skills mismatch has taken on considerable proportions, with no fewer than three in four young workers being underqualified (74.2 per cent). The Government adds that, based on the measures taken in the fields of investment and taxation, 25 per cent of public contracts are awarded to young persons and women. The Government requests the Government to provide fuller information, including statistics disaggregated by age and sex, on the nature, implementation and impact of the above programmes on the labour market integration of young persons. In particular, it requests the Government to provide detailed information, including statistics disaggregated by age and sex, on the number of young persons who have benefited from the services provided by the National Inclusive Finance Fund (FNFI) and the impact of these services on the access of the young beneficiaries to decent work.

Education and training policies and programmes. The Committee notes the measures implemented by the Government within the framework of education and training policies and programmes. The Government refers, among other measures, to the adoption of the sectoral education plan, the implementation of the National Apprenticeship, Training and Further Training Fund (FNAFPP), the existence of regional technical education and vocational training centres (CRETFP), the creation of industrial trade training centres (CFMI), the existence of synergy in the action of the Department of Vocational Training and the employment authorities, as well as the updating and adoption of the Labour Code adapted to the new employment trends in June 2021. The Committee once again requests the Government to provide detailed and updated information, including statistics disaggregated by sex and age, on the impact of the measures adopted, in consultation with the social partners and representatives of the persons affected, to update and reinforce the coordination of technical education and vocational training programmes with a view to ensuring that education and training courses are designed and provided in a manner that responds to current demands on the labour market. It also requests the Government to provide updated information on the nature and scope of the vocational guidance and training available to women, young persons and other vulnerable groups, and particularly to those in the informal economy and in rural areas.

Informal economy. The Committee notes, according to the ILO publication, Women and men in the informal economy: A statistical picture (2018), that the proportion of informal employment in total employment in Togo was 92.8 per cent (90.3 per cent for men and 95.2 per cent for women), with a high level of poverty. The poverty level in 2018 was 65 per cent for workers in the informal sector, compared with 49 per cent for workers in the formal sector. The Committee also notes that, according to the National Employment Policy, the informal economy is very widespread in Togo in both rural and urban areas. The Committee reiterates its request to the Government to provide detailed and updated information on the nature and impact of the measures adopted to organize the informal sector and integrate informal economy workers into the formal labour market, with particular reference to women, young workers and other groups in vulnerable situations who are concentrated in the informal economy. In this regard, the Government may find it useful to refer to the provisions of the Transition from the Informal to the Formal Economy Recommendation, 2015 (No. 204).

Overall and sectoral development policies. The Committee notes the measures adopted by the Government as part of its overall and sectoral development policies. In this regard, the Government refers, among other things, to the measures adopted in the fields of investment and the tax system, including the adoption of a new General Tax Code and Book of Fiscal Procedures, as well as to the attribution of 25 per cent of public contracts to young persons and women. With reference to policies and measures for balanced regional development, and industrial, rural, agricultural and infrastructure development, it refers to the membership of Togo in the Platform for the Mutualization of Vocational Training Tools and Resources of the West African Economic and Monetary Union (UEMOA), the implementation of the National Agricultural Investment Programme for Food and Nutritional Security (PNIASAN), and the development of road infrastructure and socio-economic equipment, such as the extension of the electricity network to rural areas. The Committee requests the Government to continue providing information on the labour market measures adopted and on the impact of overall and sectoral development policies in contributing to the promotion of full, productive and freely chosen employment. It reiterates its request to the Government to indicate whether the regional development measures envisaged in the SCAPE 2013-2017 have been implemented in practice with a view to ensuring better balanced economic activity in the country.

Article 2. Collection and use of employment data. The Government reports the existence of the National Institute of Statistics and Economic and Demographic Studies (INSEED) and the Employment and Training Observatory (OEF). It indicates that these institutions produced the QUIBB reports in 2011 and 2015, the ERI-ESI and the mapping of poverty in 2018. The Government specifies that they form part of the measures adopted to compile and analyse statistical and other data on the volume and distribution of labour, the nature and extent of unemployment and underemployment and trends in this fields. It indicates that the OEF also prepares in year N+1 a report on the Labour Market Information System (LMIS), while the General Directorate of Employment (DGE) produces the annual assessment report on employment creation efforts during the course of the year. The Government adds that it has created a National Statistical Council and established an integrated information system and single identifier for employment promotion projects and programmes that are under consideration. It indicates that several measures have been taken to ensure that the employment effects are taken into consideration in the planning and implementation of measure to promote socio-economic development objectives. These consist of the registration of programmes and projects in the programming of public investment with an indication of their effects in terms of the jobs created; respect for the principle of inclusion in the preparation of policy, programme and project documents; the establishment of interministerial coordination and monitoring committees for employment promotion action; and the establishment of consultation bodies and the presence of focal points at the sectoral level. The Committee requests the Government to continue providing information on the measures implemented with a view to resolving the current difficulties relating to employment data and their impact. The Committee also reiterates its request to the Government to provide updated labour market statistics.

Article 3. Participation of the social partners in policy formulation and implementation. The Government indicates that in 2006 a national tripartite standing consultation body was established consisting of representatives of the administration, employers’ and workers’ organizations to discuss any matters relating to the living and working conditions of workers. This is the National Social Dialogue Council, which is mandated to further social dialogue, promote a culture of the prevention of labour disputes, participate in the resolution of major labour disputes and in reflection on labour legislation. The Government indicates that employers’ and workers’ organizations are closely involved in the process of formulating and implementing employment policy. The Committee requests the Government to provide detailed information on the establishment of the National Social Dialogue Council. It also requests the Government to indicate the manner in which the views of employers’ and workers’ organizations will be taken into account in the context of the formulation and implementation of employment policy. The Committee reiterates its request for the Government to indicate the manner in which the views of the representatives of other sectors of the active population, including workers in the rural sector and the informal economy, are taken into account, with a view to securing their full cooperation in formulating and enlisting support for the employment measures adopted.

ILO technical assistance. The Government reiterates that Togo has benefited from ILO technical assistance, for example for the drafting of the National Employment Policy and its operational plan of action, and in support of the assessment of the Labour Market Information System (SIMT) and its action plan. It adds that it also received ILO assistance in support of capacity-building for the National Employment Service (ANPE) through the Employment Promotion and Poverty Reduction Programme (APERP) for the implementation of a pilot programme of personal services, capacity-building for the National Employment Agency, the diagnosis of youth employment and the strengthening of the capacities of constituents at the Turin Centre. The Committee requests the Government to continue providing detailed and updated information on the measures adopted as a result of the ILO assistance provided in the areas covered by the Convention and on their impact.

Direct Request (CEACR) - adopted 2015, published 105th ILC session (2016)

Article 1(2) of the Convention. Implementation of an active employment policy. The Government refers in its report to the establishment of the National Fund for Inclusive Financing, which has the objective of facilitating the access of the poor, young persons and farmers to economic and financial services. The Government observes that the difficulties encountered in achieving employment objectives include an inadequate institutional framework and a lack of cohesion between the labour market actors. The Government reiterates that the National Employment Policy (PNE), which was validated in September 2012 and adopted by the Council of Ministers on 24 March 2014, is inspired by the Five-year Programme for Economic and Social Development of the President of the Republic, the Strategy for Accelerated Growth and Employment Promotion (SCAPE) (2013–17) and analysis of sectoral policies and strategies. The Committee notes that the design of the PNE forms part of the efforts to reduce poverty and to promote shared economic development and social progress. The Committee requests the Government to indicate the results achieved and the difficulties encountered in achieving the employment objectives set out in the National Employment Policy (PNE) and the Strategy for Accelerated Growth and Employment Promotion (SCAPE). The Committee also requests the Government to indicate the measures adopted with a view to ensuring that work is as productive as possible.

Youth employment. The Government indicates that the absence of reliable statistical data on youth employment is hindering the achievement of the objectives that have been set in relation to training and education. The Government refers to the implementation of programmes to strengthen employability, promote vocational integration and stimulate self-employment among young persons. The Committee requests the Government to provide further information on the impact of the programmes adopted to ensure the integration of young persons into the labour market.

Education and training policies and programmes. The Government refers to the establishment of the Training Centre for Industrial Trades (CFMI). The Committee notes that, according to the data contained in the PNE, illiteracy remains a major problem preventing the development of populations aged between 15 and 49. It also notes that in the SCAPE reference is made to the Government’s intention to promote education in skills by orienting vocational training towards the labour market. The Committee requests the Government to provide updated information on the education and training policies and programmes implemented and the results achieved in terms of the integration of beneficiaries, particularly women and young persons, into lasting employment.

Informal economy. The Committee notes the importance of the informal economy (the private informal sector on its own accounts for 90 per cent of jobs), the insufficient dynamism of modern structured activity and the preponderant presence of women (who account for 70 per cent of activity). The Government indicates that there is a delegation for the organization of the informal economy entrusted among other matters, with identifying, monitoring and regulating activities in the sector. The Committee requests the Government to provide information on the impact of the measures adopted in terms of the creation of productive jobs for workers in the informal economy. The Government may consider it useful to refer in this respect to the provisions of the Transition from the Informal to the Formal Economy Recommendation, 2015 (No. 204).

Overall and sectoral development policies. The Committee requests the Government to provide information on the employment market measures adopted and on the impact of overall and sectoral development policies in contributing to the promotion of full, productive and freely chosen employment. It also requests the Government to indicate whether the regional development measures envisaged in the Strategy for Accelerated Growth and Employment Promotion (SCAPE) 2013–17 have been implemented in practice to ensure a balanced distribution of economic activity in the country.

Article 2. Collection and use of employment data. The Committee notes that, in order to overcome the shortcomings of the employment information system and the consequent lack of understanding of the labour market, it was planned to establish a programme to collect labour market data and a strategy for the development of statistics under the responsibility of the Ministry of Planning and Development. The Committee requests the Government to continue providing information on the measures taken to overcome the difficulties existing in relation to employment data. The Committee also requests the Government to provide updated statistics on the labour market.

Article 3. Participation of the social partners in formulating and implementing policies. The Government indicates that the PNE is the product of a process of dialogue and consultation with all the stakeholders. In the context of the PNE, it is planned to establish the Higher Employment Council, with responsibility for dialogue, guidance and monitoring. The PNE indicates that labour market governance, which also implies the coordination of the various stakeholders, has to be based on the consolidation of social dialogue, with the effective implementation of the resolutions adopted by the National Social Dialogue Council, and the effective representation and participation of the social partners in the various bodies responsible for employment. The Committee requests the Government to provide information on the establishment of the Higher Employment Council. It also requests the Government to indicate the manner in which the views of the representatives of other sectors of the active population, including workers in the rural sector and the informal economy, are taken into account, with a view to securing their full cooperation in formulating and enlisting support for the employment policy measures adopted.

ILO technical assistance. The Government reiterates that Togo has benefited from the technical assistance of the Office, for example for the drafting of the PNE, the strengthening of the capacities of the National Employment Agency and analysis of youth employment. The Committee requests the Government to continue providing information on the measures taken as a result of the assistance received from the ILO in the fields covered by the Convention.

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

Article 1(2) of the Convention. Implementation of an active employment policy. The Committee takes note of the Government’s first report on the application of the Convention received in August 2014. The Government states that the national employment policy (PNE), endorsed in September 2012 and adopted in the Council of Ministers on 24 March 2014, draws upon the Five-Year Economic and Social Development Programme of the President of the Republic, the Strategy of Accelerated Growth and Employment Promotion (SCAPE) (2013–17) and an analysis of sectoral policies and strategies. The Committee notes that the PNE was established in the framework of efforts to reduce poverty, promote shared economic development and social progress. According to the Unified Questionnaire on Basic Welfare Indicators (QUIBB) of 2011, unemployment and underemployment account for 6.51 and 22.76 per cent of the active population, respectively. Women are more affected by underemployment (25.5 per cent) than men (20.5 per cent). Furthermore, there are twice as many women unemployed (9 per cent) than men (4.3 per cent), and the unemployment rate in urban areas (9.7 per cent) is three times higher than that in rural areas (2.8 per cent). The Committee invites the Government to specify the results achieved and the difficulties encountered in attaining the employment objectives contained in the PNE and the SCAPE. Furthermore, the Committee invites the Government to indicate the measures that have been adopted to ensure that work is as productive as possible.

Youth employment. The Committee notes that, according to the information contained in the PNE, 60 per cent of the population in Togo are under 25 years of age and 42 per cent are under 15 years of age. According to the data contained in the SCAPE, the employment rates among young people were 8.1 per cent in 2011, whereas underemployment was estimated to be 20.5 per cent. The Government refers to the implementation of programmes to strengthen employability, promote occupational integration and stimulate the self-employment of young people. The Committee invites the Government to provide information on the impact of the programmes adopted to ensure the integration of young people into the labour market.

Education and training policies and programmes. The Committee notes that, according to the data in the PNE, illiteracy is still a major problem that hampers the development of persons in the 15- to 49-year age group. It also notes that reference is made in the SCAPE to the Government’s intention to promote skills development by gearing vocational training to the labour market. The Committee invites the Government to provide information on the training and educational programmes implemented and to specify the results achieved with respect to integrating those involved in the programmes, particularly women and young persons, in sustainable employment.

Informal economy. The Committee notes the considerable size of the informal economy (the private informal sector alone absorbs 90 per cent of jobs), the lack of jobs in the modern formal economy and the overwhelming presence of women (they account for 70 per cent of the activities in this sector). The Government states that there is a group of officials entrusted with organizing the informal economy, whose task is to identify, monitor and regulate the activities pertaining to this sector. The Committee invites the Government to provide information on the impact of the measures adopted, in terms of the establishment of productive jobs, for workers in the informal economy.

Global and sectoral development policies. The Committee invites the Government to provide information on the measures taken to promote the employment market, as well as on the impact of global and sectoral development policies designed to contribute towards full, productive and freely chosen employment. It also invites the Government to indicate whether the regional development measures provided for under the SCAPE 2013–17 have been effectively implemented to guarantee a balanced distribution of the country’s economic activity.

Article 2. Collection and use of employment data. The Committee notes that, in order to overcome the shortcomings of the labour information system and the ensuing lack of understanding of the labour market, there are plans to introduce a programme to collect labour market data and a strategy to develop statistics under the Ministry of Planning and Development. The Committee invites the Government to continue providing information on the measures implemented to offset the difficulties existing in the area of employment data. Furthermore, the Committee invites the Government to provide up-to-date information on the labour market.

Article 3. Participation of the social partners in formulating and implementing policies. The Committee states that the PNE is the outcome of a process of consultation and social dialogue with all the parties concerned. According to the PNE, labour market governance, involving also the coordination of the various actors, must be based on the consolidation of social dialogue, with the effective application of resolutions issued by the National Social Dialogue Council, and the effective representation and participation of the social partners in the various employment organizations. The Committee invites the Government to indicate in what manner account has been taken of the opinions of representatives from other sectors of the active population, including workers from the rural sector and the informal economy, to secure their full cooperation in formulating employment policies and their help in enlisting support for such policies.

Technical assistance of the ILO. The Government states that Togo benefited from the Office’s technical assistance in drafting the PNE, strengthening the capacities of the national employment agency and undertaking a youth employment diagnostic analysis. The Committee invites the Government to continue providing information on the measures taken to follow up the assistance received from the ILO in the areas covered by the Convention.