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

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

Previous comment

The Committee notes the observations of the General Confederation of Workers’ Unions of Madagascar (FISEMA) and the Trade Union Confederation of Malagasy Revolutionary Workers (FISEMARE), received on 1 September 2022. The Committee also notes that the Government’s report contains observations attributed to FISEMA but that the latter are identical to the above-mentioned observations of FISEMARE and that FISEMA indicates in its observations that it did not receive the Government’s report. The Committee requests the Government to communicate its comments on the observations received by the social partners.

Articles 1 and 2 of the Convention. Implementation of an active employment policy. In its previous comments, the Committee noted the Government’s indications that Act No. 2015-040 of 9 December 2015 determining the orientation of the National Employment and Vocational Training Policy (PNEFP) had been adopted with an Operational Plan of Action (PAO) containing the various policy priorities for the implementation of the PNEFP. In its report submitted in August 2022, the Government indicates that achievements under Act No. 2015-040 on the PNEFP and its PAO are being approved and that a new policy is being developed in collaboration with the stakeholders. The Government adds that the recent main achievements under the PNEFP are: operationalization of steering and coordination partnership committees; establishment of a vocational skills information monitoring system; upgrading of the centres for technical and vocational education and training/skills development; establishment of the National Malagasy Certification Framework; training of ministry officials in Competency-Based Approach (CBA) engineering and training of trainers. With regard to the impact of the PNEFP on employment and unemployment rates, the Government indicates that a periodic household survey is currently being carried out. The Government adds that, according to the third General Census of Population and Habitat, conducted in 2018, the unemployment rate remains low, despite a rise of 0.4 percentage points compared to 2010 (that is 4.2 per cent in 2018 compared to 3.8 per cent in 2010). With regard to the impact of the PNEFP on the transition from the informal to the formal economy, the Government notes that the latest National Survey on Employment and the Informal Sector dates back to 2012, which is before the adoption of the Act on the PNEFP. In 2012, 95.1 per cent of jobs were in the informal sector. In 2020, the National Employment and Training Office (ONEF), in cooperation with the ILO, performed a diagnostic of the informal economy in the construction sector, a priority sector according to the PNEFP. According to this study, which involved 62 enterprises in three regions of the country, while 76.3 per cent of enterprises in the construction sector are “formal”, 43.5 per cent of workers in these enterprises are informally employed. With regard to the economic policy of Madagascar and its contribution to the employment objectives as set forth by the Convention, the Government indicates that information in this regard was not transmitted by the departments concerned. With respect to the measures taken or envisaged to create lasting employment among specific categories of workers, the Government indicates that, as part of the implementation of the Initiative for Development in Madagascar (IEM) and in line with the will of the Malagasy State to promote entrepreneurship and job creation for vulnerable persons, the Ministry of Labour, Employment, the Public Service and Social Laws (MTEFPLS), in collaboration with its technical and financial partners, has initiated the following projects and programmes: the monitoring plan for the road map on capturing the demographic dividend; an empowerment programme for vulnerable women; the creation of an internship center; vocational training for young baccalaureate holders and for those in the final year of high school; the Sera ben’ny asa program; and employment forums. Furthermore, the National Vocational Training Centre for Persons with Disabilities provides two types of training: professional training leading to qualification (FPQ) and apprenticeships in core occupations (AMB). In 2021, 191 persons with disabilities were trained through FPQ and 2,085 persons with disabilities were trained through AMB.

With regard to the observations of the social partners, the Committee notes that FISEMA denounces the absence of an employment promotion policy in Madagascar. It observes that the 2015 PNEFP and the texts adopted subsequently, in particular the PAO, have been suspended or even abandoned. It considers that there is a significant delay in issuing a replacement document. The Committee also notes that FISEMARE, while acknowledging the establishment of an employment and vocational training policy, points out that this policy has not had the expected impact on the unemployment rate and the informal economy. FISEMARE indicates that there is still a mismatch between training provision and the job market, that persons in positions of responsibility are poorly qualified and that the matter of poverty is far from resolved. According to FISEMARE, the employment policy must be implemented and subject to periodic monitoring that will result in amendments to the policy where needed.

The Committee recalls that the objective of the Convention is to stimulate economic growth and development, raise levels of living, meet manpower requirements and overcome unemployment and underemployment through the application of an active policy designed to promote full, productive and freely chosen employment (Article 1 of the Convention) (see the 2020 General Survey on promoting employment, paragraph 39). In this regard, the Committee once again requests the Government to provide information to enable it to examine the manner in which the main components of the country’s economic policy, in such areas as monetary, budgetary, trade or regional development policies, contribute, within the framework of a coordinated economic and social policy, to the achievement of the employment objectives set out in the Convention. In addition, the Committee requests the Government to provide information on the results of surveys, studies and other work, regarding the impact of the PNEFP, adopted in 2015, on employment, unemployment and the transition towards the formal economy. In addition, the Committee requests the Government to provide a copy of the periodic household survey, mentioned in its report, once it has been completed. The Committee also requests the Government to continue to provide updated information on any measures implemented to reduce unemployment and underemployment, create lasting jobs for specific categories of workers, such as women, persons with disabilities, rural workers and young persons, and to ensure the transition of the informal to the formal economy. Further, the Committee requests the Government to continue to provide information on the training delivered by the national vocational training centre for persons with disabilities. With regard to the new employment policy, which is currently being developed, the Committee requests the Government to provide information on the progress made in its preparation. The Committee reminds the Government that it may avail itself of the technical assistance of the Office in this regard.

Coordination of the education and training policy with the employment policy. With regard to the results of the actions taken to ensure the coordination of vocational education and training policy with employment policy, the Government indicates that it has developed various programmes and objectives in order to capture the demographic dividend in Madagascar. In particular, the Government has: set up a system of validation of skills and experience; strengthened the structures for training trainers; established a system of partnership with enterprises for the revision of training curricula; and developed vocational training for young persons who are out of school in centres for socio-economic promotion. With respect to the results achieved by the implementation of these programmes in terms of access of qualified young persons to lasting employment, the Government indicates that the departments involved have not provided the information requested. The Government also indicates that the relevant departments have not provided the information requested concerning the impact of the measures taken to promote the creation of small and medium-sized enterprises. The Committee requests the Government to indicate how the objective of coordination of the education and training policy with the employment policy will be taken into account in the new employment policy that is being drawn up. It once again requests the Government to provide information on the results achieved through the implementation of the coordination programmes for these policies in terms of access for qualified young persons to lasting employment. The Committee once again requests the Government to indicate the impact of the measures taken to promote the creation of small and medium-sized enterprises.

Compilation and use of employment data. In its previous report, the Government referred to a partnership project with the ILO relating to a system of databases on employment and indicated that it had started to establish a Regional Employment Service (SRIE). With regard to the system of databases, the Government indicates that an order was issued in 2018 establishing a Vocational Training and Labour Market Information System (SIMTFP). However, following financial difficulties encountered by ONEF and a change in the organizational structure of the competent ministry, the operationalization of the SIMTFP, initiated with the help of the Office, has been suspended. ONEF currently plans to set up a digital platform, named e-KANDRA, to help to match job supply and demand, and to ensure the circulation of information in the labour market. With regard to the implementation of the SRIE, the Government indicates that it has been operational in five regions. The Government considers that the SRIE has facilitated the collection and use of employment data. In particular, the use of an application has made it possible to gather information and transmit it to ONEF for processing and analysis. However, the application only worked for one year because, as the operating budget of the SRIE was cut due to COVID-19, its hosting was discontinued. The MTEFPLS is currently looking for ways to relaunch and develop the SRIE. The Government highlights that ONEF has also carried out several studies on employment since 2018, in particular on: the situation of young people in the labour market, the participation of women in working life and at decision-making levels, the employability and inclusion of persons with disabilities, child labour, the indicators of Sustainable Development Goal 8 for decent work, the informal economy in the construction sector, skills demand in the tourism, hotels and catering sector, and the lack of and opportunities for decent work in the textile value chain. The Government has not transmitted these studies nor the information they contain. The Committee notes that the data available to the ILO Statistics Department (ILOSTAT) for Madagascar date back to 2015. The Committee requests the Government to continue to provide detailed and up-to-date information on the measures taken to gather data on the labour market and use them to implement or review employment policy. In this respect, it invites the Government to provide further information on the e-KANDRA digital platform project, as well as on a possible relaunch of the Vocational Training and Labour Market Information System (SIMTFP) and the Regional Employment Service (SRIE). The Committee also requests the Government to provide copies or extracts of reports, surveys, studies and up-to-date statistical information on the labour market trends, particularly on employment, unemployment and visible underemployment, disaggregated by sex and age.

Article 3. Participation of the social partners in the formulation and implementation of policies. The Government indicates that the two structures for developing the new national employment policy – the coordination unit and the technical implementation committee – include employers’ and workers’ representatives. More specifically, the coordination unit is composed of: two representatives of the Ministry of Technical Education and Vocational Training (METFP), two representatives of the MTEFPLS, one representative of the Prime Minister’s Office, one representative of the Ministry of the Economy and Finance, two employers’ representatives and two workers’ representatives. The main task of the coordination unit is to outline the relevant points of the reform, enforce the deadlines set for the road map, and act as an intermediary between the members of the technical implementation committee and its consultants. The technical implementation committee is composed of: two representatives of the METFP, two representatives of the MTEFPLS, one representative of the Ministry of the Population, one representative of the Ministry responsible for young persons, five representatives of the sectoral ministries, two employers’ representatives and two workers’ representatives. The task of the technical implementation committee is to collect and analyse official documents, as well as information and observations from the stakeholders, and to subsequently prepare interviews and meetings, before consolidating the data gathered and supporting the development of the national policy document, while ensuring similar procedures as those for other existing reference texts. The Government also indicates that, during the broader national consultation on the reform of the Labour Code, representatives of persons with disabilities were invited and took part in the discussions. A representative trade union for persons with disabilities also took part in the discussions on the reform of the Civil Servants Regulations. The Government has not, however, provided any information concerning the consultations held on the employment policy with representatives of the most disadvantaged categories of the population, particularly the representatives of workers in rural areas and the informal economy. With regard to the observations of the social partners, the Committee notes that FISEMA regrets that the consultation with the social partners on employment policy issues is not carried out within the National Labour Committee, that is, namely the body for tripartite consultation with the social partners on employment matters. FISEMA observes that the disfunctioning of the National Labour Committee prevents proper information and evaluation of Government action on employment matters, and that the existence of separate ministerial departments for employment and vocational training makes this work even more complex. FISEMA notes that requests for support for jobs affected by the COVID-19 pandemic have been rejected by the Government.

The Committee recalls that the Government is bound to consult representatives of employers and workers in order to take full account of their experience and views and secure their full cooperation in formulating such policies (Article 3 of the Convention) (see the 2020 General Survey on promoting employment, paragraph 94). The Committee notes, however, the disagreement between the Government and some of the most representative social partners concerning the manner in which national employment policy is designed and implemented. The Committee considers that in the absence of an effective dialogue among all interested parties, as required by the Convention, its proper implementation, which is already very complex, is made even more challenging or could be totally compromised. The Committee therefore requests the Government to provide information showing how the objectives of the Convention are pursued by properly involving the representatives from all interested parties, in particular in the context of the development of the new national employment policy. In this regard, it once again requests the Government to provide detailed information on the consultations held with the representatives of the most disadvantaged categories of the population, and particularly with the representatives of workers in rural areas and the informal economy.

Part VII of the report form. Representative organizations consulted. The Committee notes the Government’s indication that it consulted the representative workers’ and employers’ organizations at a workshop to present and approve the report, held from 3 to 5 August 2022. The Government specifies that it sent a copy of the report to the Group of Enterprises of Madagascar (GEM) and to Fivondronan’ny Mpandraharaha eto Magagasikara (FivMpaMa) (for the employers’ organizations), as well as to FISEMARE, FISEMA and the Christian Confederation of Malagasy Trade Unions (SEKRIMA) (for the workers’ organizations). FISEMA notes, however, that it did not receive the Government’s report. The Committee recalls that, in accordance with Article 23(2) of the ILO Constitution, the Government is bound to communicate the report to the representative organizations and requests the Government to provide its comments on FISEMA’s observation that it did not receive the Government’s report.

Observation (CEACR) - adopted 2021, published 110th ILC session (2022)

The Committee notes with deep concern that the Government’s report has not been received. It is therefore bound to repeat its previous comments. The Committee informs the Government that, if it has not supplied replies to the points raised by 1 September 2022, then it may proceed with the examination of the application of the Convention on the basis of the information at its disposal at its next session.

Repetition

Articles 1 and 2 of the Convention. Implementation of an active employment policy. In its previous comments, the Committee expressed the hope that the Government would soon be in a position to report progress in the formulation and implementation of an employment policy. In this regard, the Committee notes with interest the Government’s indications that Act No. 2015-040 of 9 December 2015 determining the orientation of the National Employment and Vocational Training Policy (PNEFP) has been adopted and is the subject of an awareness-raising campaign. It adds that the National Plan of Action for Employment and Training (PANEF) has been replaced by the Operational Plan of Action (PAO), which contains the various policy priorities implemented by the PNEFP. The Government indicates that the objective of the PNEFP, together with the implementation of the General State Policy (PGE), the National Development Plan (PND) and the Sustainable Development Objective (ODD), is to eradicate unemployment and underemployment by 2020 through the creation of sufficient numbers of formal jobs to absorb jobseekers. The PNEFP also has the goal of establishing a relevant information system on the labour market and vocational training and of designing and introducing a harmonized system of certification and training. The Government adds that four employment fairs were organized in December 2015 and that 1,119 young school-leavers were trained and integrated into small-scale rural occupations within the context of a partnership with UNESCO. Also in relation to employment promotion, the Government reports two “Rapid Results” initiatives of the Ministry of Employment, Technical Education and Vocational Training (MEETFP), which it indicates have been fully achieved. The first initiative focused on the matching of training and employment in 12 growth sectors. The second established a vocational training centre in the town of Andranofeno Sud with a view to employment generation. The centre provides training to around 100 students in six main areas: tourism, hotels and catering, agriculture and livestock, wood art and trades, automobile mechanics, construction and public works. The Government adds that 1,058 rural young school-leavers have been trained in 15 types of trades in several regions and that 59 persons with disabilities were trained by the National Training Centre for Persons with Disabilities (CNFPPSH) in the regions of Analanjirofo and Sava. The National Employment and Training Observatory has been transformed into the National Employment and Training Office. With regard to the upgrading of technical education and vocational training, the Government reports the rehabilitation in 2015 of five technical and vocational schools, 60 classrooms and the accreditation of 97 public and private technical establishments. The Government adds that four vocational training centres for women are now operational. The Committee requests the Government to continue providing information on any developments relating to the implementation of the National Employment and Vocational Training Policy, as well as on its impact on the employment rate and the reduction of unemployment, and on the transition from the informal economy to the formal economy. The Committee once again requests the Government to provide information to enable it to examine the manner in which the main components of economic policy, in such areas as monetary, budgetary, trade or regional development policies, contribute “within the framework of a coordinated economic and social policy” to the achievement of the employment objectives set out in the Convention. The Committee also requests the Government to provide updated information on the measures adopted or envisaged to create lasting employment, reduce underemployment and combat poverty, particularly for specific categories of workers, such as women, young people, persons with disabilities, rural workers and workers in the informal economy. In this regard, it requests the Government to provide further information on the types of training provided by the CNFPPSH to persons with disabilities.

Coordination of education and training policy with employment policy. The Committee notes with interest that, under the terms of section 2 of the PNEFP, its objective is the implementation of a policy for massive job creation and the promotion of vocational training. Section 10 of the PNEFP specifies that the policy includes in particular activities for employment creation, enterprise support, labour market mediation, the direct promotion of employment for young persons, women and vulnerable categories, the promotion of decent work and the extension of social security. In section 5, it establishes the right to training and qualifications irrespective of a person’s individual and social situation and educational level. The Committee further notes that section 46 calls for the creation of partnership between the State, territorial communities and technical and financial partners with a view to launching and financing employment promotion action for young persons, women and disadvantaged categories of workers. The Government indicates that the action taken for youth employment includes, on the one hand, the promotion of self-employment and traditional or informal enterprises and, on the other, support for integration into enterprises and traditional activities. The objectives of this action include support for young persons in their vocational projects and the reinforcement of financing capacities. The Ministry provides training to young persons with a view to promoting self-employment and the creation of small and medium-sized enterprises and industry. During the course of 2015 and the first half of 2016, training of this type was provided to 1,436 young persons from six regions. The Committee requests the Government to continue providing information on the results of the action taken to ensure the coordination of vocational education and training policy with employment policy. It once again requests the Government to indicate the results achieved through the implementation of these programmes in terms of the access of qualified young persons to lasting employment. The Committee further requests the Government to indicate the impact of the measures taken to promote the creation of small and medium-sized enterprises.

Compilation and use of employment data. The Government indicates that the Periodic Household Survey was commenced and then replaced by the global population census in light of the State’s priorities due to the significant increase in the population. However, it reports the preparation of a partnership project with the International Labour Office with a view to establishing a system of reliable databases on employment. The National Employment and Training Office will be responsible for the management of the system. The Government adds that in 2016 the MEETFP started to establish Regional Employment Services (SRIE) in Regional Departments, and that there are now SRIEs in nine Regional Departments and that they are responsible for managing the regional employment information system, which involves matching young jobseekers and enterprises. The Committee requests the Government to provide information on the progress achieved by the project in the establishment of a system of reliable databases on employment. It also requests the Government to provide further information on the impact of the SRIEs in relation to the compilation and use of employment data.

Article 3. Participation of the social partners in the formulation and implementation of policies. The Government indicates that a National Agreement on Employment and Vocational Training was concluded with the social partners in October 2015 and with enterprise groups in the five priority areas in November 2015. The Government also reports the conclusion of two other agreements including the social partners, namely the agreement on the financing of the Technical Support Team for the PNEFP and the agreement on the fund for its implementation. The Committee requests the Government to continue providing updated information on the consultations held with the representatives of the social partners on the subjects covered by the Convention. The Committee once again requests the Government to provide detailed information on the consultations held with the representatives of the most disadvantaged categories of the population, and particularly with the representatives of workers in rural areas and the informal economy.

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

Observation (CEACR) - adopted 2020, published 109th ILC session (2021)

The Committee notes with concern that the Government’s report has not been received. It is therefore bound to repeat its previous comments.

Repetition

Articles 1 and 2 of the Convention. Implementation of an active employment policy. In its previous comments, the Committee expressed the hope that the Government would soon be in a position to report progress in the formulation and implementation of an employment policy. In this regard, the Committee notes with interest the Government’s indications that Act No. 2015-040 of 9 December 2015 determining the orientation of the National Employment and Vocational Training Policy (PNEFP) has been adopted and is the subject of an awareness-raising campaign. It adds that the National Plan of Action for Employment and Training (PANEF) has been replaced by the Operational Plan of Action (PAO), which contains the various policy priorities implemented by the PNEFP. The Government indicates that the objective of the PNEFP, together with the implementation of the General State Policy (PGE), the National Development Plan (PND) and the Sustainable Development Objective (ODD), is to eradicate unemployment and underemployment by 2020 through the creation of sufficient numbers of formal jobs to absorb jobseekers. The PNEFP also has the goal of establishing a relevant information system on the labour market and vocational training and of designing and introducing a harmonized system of certification and training. The Government adds that four employment fairs were organized in December 2015 and that 1,119 young school-leavers were trained and integrated into small-scale rural occupations within the context of a partnership with UNESCO. Also in relation to employment promotion, the Government reports two “Rapid Results” initiatives of the Ministry of Employment, Technical Education and Vocational Training (MEETFP), which it indicates have been fully achieved. The first initiative focused on the matching of training and employment in 12 growth sectors. The second established a vocational training centre in the town of Andranofeno Sud with a view to employment generation. The centre provides training to around 100 students in six main areas: tourism, hotels and catering, agriculture and livestock, wood art and trades, automobile mechanics, construction and public works. The Government adds that 1,058 rural young school-leavers have been trained in 15 types of trades in several regions and that 59 persons with disabilities were trained by the National Training Centre for Persons with Disabilities (CNFPPSH) in the regions of Analanjirofo and Sava. The National Employment and Training Observatory has been transformed into the National Employment and Training Office. With regard to the upgrading of technical education and vocational training, the Government reports the rehabilitation in 2015 of five technical and vocational schools, 60 classrooms and the accreditation of 97 public and private technical establishments. The Government adds that four vocational training centres for women are now operational. The Committee requests the Government to continue providing information on any developments relating to the implementation of the National Employment and Vocational Training Policy, as well as on its impact on the employment rate and the reduction of unemployment, and on the transition from the informal economy to the formal economy. The Committee once again requests the Government to provide information to enable it to examine the manner in which the main components of economic policy, in such areas as monetary, budgetary, trade or regional development policies, contribute “within the framework of a coordinated economic and social policy” to the achievement of the employment objectives set out in the Convention. The Committee also requests the Government to provide updated information on the measures adopted or envisaged to create lasting employment, reduce underemployment and combat poverty, particularly for specific categories of workers, such as women, young people, persons with disabilities, rural workers and workers in the informal economy. In this regard, it requests the Government to provide further information on the types of training provided by the CNFPPSH to persons with disabilities.

Coordination of education and training policy with employment policy. The Committee notes with interest that, under the terms of section 2 of the PNEFP, its objective is the implementation of a policy for massive job creation and the promotion of vocational training. Section 10 of the PNEFP specifies that the policy includes in particular activities for employment creation, enterprise support, labour market mediation, the direct promotion of employment for young persons, women and vulnerable categories, the promotion of decent work and the extension of social security. In section 5, it establishes the right to training and qualifications irrespective of a person’s individual and social situation and educational level. The Committee further notes that section 46 calls for the creation of partnership between the State, territorial communities and technical and financial partners with a view to launching and financing employment promotion action for young persons, women and disadvantaged categories of workers. The Government indicates that the action taken for youth employment includes, on the one hand, the promotion of self-employment and traditional or informal enterprises and, on the other, support for integration into enterprises and traditional activities. The objectives of this action include support for young persons in their vocational projects and the reinforcement of financing capacities. The Ministry provides training to young persons with a view to promoting self-employment and the creation of small and medium-sized enterprises and industry. During the course of 2015 and the first half of 2016, training of this type was provided to 1,436 young persons from six regions. The Committee requests the Government to continue providing information on the results of the action taken to ensure the coordination of vocational education and training policy with employment policy. It once again requests the Government to indicate the results achieved through the implementation of these programmes in terms of the access of qualified young persons to lasting employment. The Committee further requests the Government to indicate the impact of the measures taken to promote the creation of small and medium-sized enterprises.

Compilation and use of employment data. The Government indicates that the Periodic Household Survey was commenced and then replaced by the global population census in light of the State’s priorities due to the significant increase in the population. However, it reports the preparation of a partnership project with the International Labour Office with a view to establishing a system of reliable databases on employment. The National Employment and Training Office will be responsible for the management of the system. The Government adds that in 2016 the MEETFP started to establish Regional Employment Services (SRIE) in Regional Departments, and that there are now SRIEs in nine Regional Departments and that they are responsible for managing the regional employment information system, which involves matching young jobseekers and enterprises. The Committee requests the Government to provide information on the progress achieved by the project in the establishment of a system of reliable databases on employment. It also requests the Government to provide further information on the impact of the SRIEs in relation to the compilation and use of employment data.

Article 3. Participation of the social partners in the formulation and implementation of policies. The Government indicates that a National Agreement on Employment and Vocational Training was concluded with the social partners in October 2015 and with enterprise groups in the five priority areas in November 2015. The Government also reports the conclusion of two other agreements including the social partners, namely the agreement on the financing of the Technical Support Team for the PNEFP and the agreement on the fund for its implementation. The Committee requests the Government to continue providing updated information on the consultations held with the representatives of the social partners on the subjects covered by the Convention. The Committee once again requests the Government to provide detailed information on the consultations held with the representatives of the most disadvantaged categories of the population, and particularly with the representatives of workers in rural areas and the informal economy.

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

Observation (CEACR) - adopted 2019, published 109th ILC session (2021)

The Committee notes that the Government’s report has not been received. It is therefore bound to repeat its previous comments.

Repetition

Articles 1 and 2 of the Convention. Implementation of an active employment policy. In its previous comments, the Committee expressed the hope that the Government would soon be in a position to report progress in the formulation and implementation of an employment policy. In this regard, the Committee notes with interest the Government’s indications that Act No. 2015-040 of 9 December 2015 determining the orientation of the National Employment and Vocational Training Policy (PNEFP) has been adopted and is the subject of an awareness-raising campaign. It adds that the National Plan of Action for Employment and Training (PANEF) has been replaced by the Operational Plan of Action (PAO), which contains the various policy priorities implemented by the PNEFP. The Government indicates that the objective of the PNEFP, together with the implementation of the General State Policy (PGE), the National Development Plan (PND) and the Sustainable Development Objective (ODD), is to eradicate unemployment and underemployment by 2020 through the creation of sufficient numbers of formal jobs to absorb jobseekers. The PNEFP also has the goal of establishing a relevant information system on the labour market and vocational training and of designing and introducing a harmonized system of certification and training. The Government adds that four employment fairs were organized in December 2015 and that 1,119 young school-leavers were trained and integrated into small-scale rural occupations within the context of a partnership with UNESCO. Also in relation to employment promotion, the Government reports two “Rapid Results” initiatives of the Ministry of Employment, Technical Education and Vocational Training (MEETFP), which it indicates have been fully achieved. The first initiative focused on the matching of training and employment in 12 growth sectors. The second established a vocational training centre in the town of Andranofeno Sud with a view to employment generation. The centre provides training to around 100 students in six main areas: tourism, hotels and catering, agriculture and livestock, wood art and trades, automobile mechanics, construction and public works. The Government adds that 1,058 rural young school-leavers have been trained in 15 types of trades in several regions and that 59 persons with disabilities were trained by the National Training Centre for Persons with Disabilities (CNFPPSH) in the regions of Analanjirofo and Sava. The National Employment and Training Observatory has been transformed into the National Employment and Training Office. With regard to the upgrading of technical education and vocational training, the Government reports the rehabilitation in 2015 of five technical and vocational schools, 60 classrooms and the accreditation of 97 public and private technical establishments. The Government adds that four vocational training centres for women are now operational. The Committee requests the Government to continue providing information on any developments relating to the implementation of the National Employment and Vocational Training Policy, as well as on its impact on the employment rate and the reduction of unemployment, and on the transition from the informal economy to the formal economy. The Committee once again requests the Government to provide information to enable it to examine the manner in which the main components of economic policy, in such areas as monetary, budgetary, trade or regional development policies, contribute “within the framework of a coordinated economic and social policy” to the achievement of the employment objectives set out in the Convention. The Committee also requests the Government to provide updated information on the measures adopted or envisaged to create lasting employment, reduce underemployment and combat poverty, particularly for specific categories of workers, such as women, young people, persons with disabilities, rural workers and workers in the informal economy. In this regard, it requests the Government to provide further information on the types of training provided by the CNFPPSH to persons with disabilities.

Coordination of education and training policy with employment policy. The Committee notes with interest that, under the terms of section 2 of the PNEFP, its objective is the implementation of a policy for massive job creation and the promotion of vocational training. Section 10 of the PNEFP specifies that the policy includes in particular activities for employment creation, enterprise support, labour market mediation, the direct promotion of employment for young persons, women and vulnerable categories, the promotion of decent work and the extension of social security. In section 5, it establishes the right to training and qualifications irrespective of a person’s individual and social situation and educational level. The Committee further notes that section 46 calls for the creation of partnership between the State, territorial communities and technical and financial partners with a view to launching and financing employment promotion action for young persons, women and disadvantaged categories of workers. The Government indicates that the action taken for youth employment includes, on the one hand, the promotion of self-employment and traditional or informal enterprises and, on the other, support for integration into enterprises and traditional activities. The objectives of this action include support for young persons in their vocational projects and the reinforcement of financing capacities. The Ministry provides training to young persons with a view to promoting self-employment and the creation of small and medium-sized enterprises and industry. During the course of 2015 and the first half of 2016, training of this type was provided to 1,436 young persons from six regions. The Committee requests the Government to continue providing information on the results of the action taken to ensure the coordination of vocational education and training policy with employment policy. It once again requests the Government to indicate the results achieved through the implementation of these programmes in terms of the access of qualified young persons to lasting employment. The Committee further requests the Government to indicate the impact of the measures taken to promote the creation of small and medium-sized enterprises.

Compilation and use of employment data. The Government indicates that the Periodic Household Survey was commenced and then replaced by the global population census in light of the State’s priorities due to the significant increase in the population. However, it reports the preparation of a partnership project with the International Labour Office with a view to establishing a system of reliable databases on employment. The National Employment and Training Office will be responsible for the management of the system. The Government adds that in 2016 the MEETFP started to establish Regional Employment Services (SRIE) in Regional Departments, and that there are now SRIEs in nine Regional Departments and that they are responsible for managing the regional employment information system, which involves matching young jobseekers and enterprises. The Committee requests the Government to provide information on the progress achieved by the project in the establishment of a system of reliable databases on employment. It also requests the Government to provide further information on the impact of the SRIEs in relation to the compilation and use of employment data.

Article 3. Participation of the social partners in the formulation and implementation of policies. The Government indicates that a National Agreement on Employment and Vocational Training was concluded with the social partners in October 2015 and with enterprise groups in the five priority areas in November 2015. The Government also reports the conclusion of two other agreements including the social partners, namely the agreement on the financing of the Technical Support Team for the PNEFP and the agreement on the fund for its implementation. The Committee requests the Government to continue providing updated information on the consultations held with the representatives of the social partners on the subjects covered by the Convention. The Committee once again requests the Government to provide detailed information on the consultations held with the representatives of the most disadvantaged categories of the population, and particularly with the representatives of workers in rural areas and the informal economy.

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

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

Articles 1 and 2 of the Convention. Implementation of an active employment policy. In its previous comments, the Committee expressed the hope that the Government would soon be in a position to report progress in the formulation and implementation of an employment policy. In this regard, the Committee notes with interest the Government’s indications that Act No. 2015-040 of 9 December 2015 determining the orientation of the National Employment and Vocational Training Policy (PNEFP) has been adopted and is the subject of an awareness-raising campaign. It adds that the National Plan of Action for Employment and Training (PANEF) has been replaced by the Operational Plan of Action (PAO), which contains the various policy priorities implemented by the PNEFP. The Government indicates that the objective of the PNEFP, together with the implementation of the General State Policy (PGE), the National Development Plan (PND) and the Sustainable Development Objective (ODD), is to eradicate unemployment and underemployment by 2020 through the creation of sufficient numbers of formal jobs to absorb jobseekers. The PNEFP also has the goal of establishing a relevant information system on the labour market and vocational training and of designing and introducing a harmonized system of certification and training. The Government adds that four employment fairs were organized in December 2015 and that 1,119 young school-leavers were trained and integrated into small-scale rural occupations within the context of a partnership with UNESCO. Also in relation to employment promotion, the Government reports two “Rapid Results” initiatives of the Ministry of Employment, Technical Education and Vocational Training (MEETFP), which it indicates have been fully achieved. The first initiative focused on the matching of training and employment in 12 growth sectors. The second established a vocational training centre in the town of Andranofeno Sud with a view to employment generation. The centre provides training to around 100 students in six main areas: tourism, hotels and catering, agriculture and livestock, wood art and trades, automobile mechanics, construction and public works. The Government adds that 1,058 rural young school-leavers have been trained in 15 types of trades in several regions and that 59 persons with disabilities were trained by the National Training Centre for Persons with Disabilities (CNFPPSH) in the regions of Analanjirofo and Sava. The National Employment and Training Observatory has been transformed into the National Employment and Training Office. With regard to the upgrading of technical education and vocational training, the Government reports the rehabilitation in 2015 of five technical and vocational schools, 60 classrooms and the accreditation of 97 public and private technical establishments. The Government adds that four vocational training centres for women are now operational. The Committee requests the Government to continue providing information on any developments relating to the implementation of the National Employment and Vocational Training Policy, as well as on its impact on the employment rate and the reduction of unemployment, and on the transition from the informal economy to the formal economy. The Committee once again requests the Government to provide information to enable it to examine the manner in which the main components of economic policy, in such areas as monetary, budgetary, trade or regional development policies, contribute “within the framework of a coordinated economic and social policy” to the achievement of the employment objectives set out in the Convention. The Committee also requests the Government to provide updated information on the measures adopted or envisaged to create lasting employment, reduce underemployment and combat poverty, particularly for specific categories of workers, such as women, young people, persons with disabilities, rural workers and workers in the informal economy. In this regard, it requests the Government to provide further information on the types of training provided by the CNFPPSH to persons with disabilities.

Coordination of education and training policy with employment policy. The Committee notes with interest that, under the terms of section 2 of the PNEFP, its objective is the implementation of a policy for massive job creation and the promotion of vocational training. Section 10 of the PNEFP specifies that the policy includes in particular activities for employment creation, enterprise support, labour market mediation, the direct promotion of employment for young persons, women and vulnerable categories, the promotion of decent work and the extension of social security. In section 5, it establishes the right to training and qualifications irrespective of a person’s individual and social situation and educational level. The Committee further notes that section 46 calls for the creation of partnership between the State, territorial communities and technical and financial partners with a view to launching and financing employment promotion action for young persons, women and disadvantaged categories of workers. The Government indicates that the action taken for youth employment includes, on the one hand, the promotion of self-employment and traditional or informal enterprises and, on the other, support for integration into enterprises and traditional activities. The objectives of this action include support for young persons in their vocational projects and the reinforcement of financing capacities. The Ministry provides training to young persons with a view to promoting self-employment and the creation of small and medium-sized enterprises and industry. During the course of 2015 and the first half of 2016, training of this type was provided to 1,436 young persons from six regions. The Committee requests the Government to continue providing information on the results of the action taken to ensure the coordination of vocational education and training policy with employment policy. It once again requests the Government to indicate the results achieved through the implementation of these programmes in terms of the access of qualified young persons to lasting employment. The Committee further requests the Government to indicate the impact of the measures taken to promote the creation of small and medium-sized enterprises.

Compilation and use of employment data. The Government indicates that the Periodic Household Survey was commenced and then replaced by the global population census in light of the State’s priorities due to the significant increase in the population. However, it reports the preparation of a partnership project with the International Labour Office with a view to establishing a system of reliable databases on employment. The National Employment and Training Office will be responsible for the management of the system. The Government adds that in 2016 the MEETFP started to establish Regional Employment Services (SRIE) in Regional Departments, and that there are now SRIEs in nine Regional Departments and that they are responsible for managing the regional employment information system, which involves matching young jobseekers and enterprises. The Committee requests the Government to provide information on the progress achieved by the project in the establishment of a system of reliable databases on employment. It also requests the Government to provide further information on the impact of the SRIEs in relation to the compilation and use of employment data.

Article 3. Participation of the social partners in the formulation and implementation of policies. The Government indicates that a National Agreement on Employment and Vocational Training was concluded with the social partners in October 2015 and with enterprise groups in the five priority areas in November 2015. The Government also reports the conclusion of two other agreements including the social partners, namely the agreement on the financing of the Technical Support Team for the PNEFP and the agreement on the fund for its implementation. The Committee requests the Government to continue providing updated information on the consultations held with the representatives of the social partners on the subjects covered by the Convention. The Committee once again requests the Government to provide detailed information on the consultations held with the representatives of the most disadvantaged categories of the population, and particularly with the representatives of workers in rural areas and the informal economy.

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

Articles 1 and 2 of the Convention. Implementation of an active employment policy. In its report, the Government indicates that it is aware of the fact that the adoption of a new national employment policy is a matter of urgency and is a priority in the current context of massive underemployment. The Government adds that the National Employment and Vocational Training Policy (PNEFP) is at the stage of awareness raising. The Government observes that the National Plan of Action for Employment and Training (PANEF), drawn up in 2014, is the reference framework for the promotion of employment and vocational training in Madagascar. The Committee hopes that the Government will soon be in a position to report progress in the formulation and implementation of an employment policy. It also hopes that the Government will be in a position to provide information as a basis for assessing how the main components of economic policy, in such areas as monetary, budgetary, trade or regional development policies, contribute “within the framework of a coordinated economic and social policy” to the pursuit of the employment objectives set out in the Convention. The Committee also hopes that the Government will provide information on the measures adopted to create lasting employment, reduce underemployment and combat poverty, with an indication of the measures taken to promote employment among specific categories of workers, including women, young people and rural workers.

Coordination of education and training policy with employment policy. The Government indicates that the programme of capacity building for Education for All (EFA) in the field of technical and vocational education and training (TVET) for the promotion of training and education for young people in rural areas who have dropped out of school (Cap.EFA/TVET) have the objective of vocational integration through the acquisition of basic vocational and transversal competencies (simplified management and entrepreneurship). Five ministries have been involved in the Cap.EFA/TVET, which has been initiated in 100 basic territorial communities, distributed in 11 communes in the three pilot regions (namely Amoron’i Mania, Analanjirofo and Antsinanana). In 2014, in the context of the first wave of training initiated in that year, a total of 1,019 young persons from rural areas who had dropped out of school were trained in 13 trades. The region of Menabe was included in the second wave of training initiated in 2015, the objective of which is to train 1,628 young rural persons who have dropped out of school. The Government specifies that as the Cap.EFA/TVET is still being implemented, data on post-training follow-up are not yet available. The Committee requests the Government to provide information on the results of the action taken to ensure the coordination of education and vocational training policies with employment policy. Please indicate the results achieved through the implementation of these programmes in terms of the access of young trained persons to lasting employment.

Collection and use of employment data. The Government indicates that state institutions, such as the Malagasy National Statistics Institute (INSTAT), are subject to budgetary restrictions. However, the surveys are conducted as part of the Periodic Household Survey (EPM), particularly on the Consumer Price Index. The Committee requests the Government to communicate the results of the surveys conducted by INSTAT of households when they have been published. It also requests the Government to provide information on the progress achieved in obtaining reliable data for the formulation and implementation of an employment policy, within the meaning of the Convention.

Article 3. Participation of the social partners in the formulation and implementation of policies. The Government indicates that the Ministry of Employment, Technical Education and Vocational Training is responsible for preparing legislation on the national employment policy. The Government adds that the Estates General for Employment and Training, held in July 2014, were organized by the Ministry of Employment with a view to preparing the PANEF. The Madagascar Enterprise Group (GEM) and the Confederation of Malagasy Workers (CTM) participated in the Estates General. The Committee requests the Government to provide updated information on the consultations held with the representatives of the social partners on the subjects covered by the Convention. Please also provide detailed information on the consultations held with the representatives of the most vulnerable categories of the population, and particularly with the representatives of workers in rural areas and the informal economy.

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

Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Committee notes the Government’s report received in October 2013, in reply to certain points raised in its previous observation. The Government indicates that the main economic, social and development policies are not effective in terms of their application, particularly because of the crisis that the country is undergoing. Moreover, the national employment policy and its support programme continue to be the reference framework for employment promotion. The Committee also notes the observations made by the General Confederation of Workers’ Unions of Madagascar (FISEMA) in a communication transmitted to the Government in September 2013. FISEMA reiterates the observations formulated jointly in August 2012 with the other trade union federations belonging to the International Trade Union Confederation (ITUC). Moreover, FISEMA points out that the adoption of a new national employment policy is an urgent priority in view of the seriousness of the situation of youth unemployment, since one out of two young persons is unemployed and eight out of ten who are in work are underemployed. The Committee once again expresses its concern about the effective pursuit of “an active policy designed to promote full, productive and freely chosen employment”, “as a major goal” “within the framework of a co-ordinated economic and social policy” (Articles 1 and 2 of the Convention). It hopes that the Government will be in a position to send a report in 2015 containing information that will allow an assessment of how the main components of economic policy, in areas such as monetary, budget, trade or regional development policies, contribute “within the framework of a coordinated economic and social policy” to the pursuit of the employment objectives laid down in the Convention. The Committee hopes that the Government will provide information on the measures taken to create lasting employment, reduce underemployment and combat poverty, specifying the measures taken to promote employment among the most vulnerable categories (women, young people and rural workers).

Coordinating education and training policy with employment policy. The Government indicates that a number of employment projects and programmes have been suspended since the onset of the crisis. The Committee notes that the programmes for capacity building geared to “Education for All” (EPT) in the field of technical and vocational education and training (EFTP) and for the promotion of training and education for young people in rural areas who have dropped out of school (Cap. EPT/EFTP) are being implemented. The Committee invites the Government once again to include information in its next report on the action taken to ensure the coordination of education and vocational training policies with employment policies and on the results of the latter, especially regarding the implementation of the Cap. EPT/EFTP. It also requests the Government to give an account of the results achieved, through the implementation of these programmes, in terms of access for young graduates to lasting employment.

Collection and use of employment data. In its previous comment the Committee invited the Government to send the results of the household surveys conducted by the Malagasy National Statistics Institute (INSTAT). The Government indicates that the surveys have been conducted but the results have not yet been published. The Committee again invites the Government to send the results of the household surveys conducted by INSTAT, once these have been published. It also invites the Government to give an account in its next report of the progress made in obtaining reliable data, so as to formulate and implement an employment policy within the meaning of the Convention.

Article 3. Participation of the social partners in the formulation and implementation of policies. In its previous comment the Committee noted the observations of four Malagasy trade union federations affiliated to the ITUC (FISEMA, FMM, SEKRIMA and USAM), submitted to the Government in September 2012, in which reference was made to the lack of dialogue before decisions are taken. The four trade union federations expressed their concern about the Government’s unilateral conduct and said that dialogue between the Government and the social partners on employment had almost broken down. The Government indicates that, as regards the formulation and implementation of employment programmes and policy measures, it continues to consult the social partners, especially within the National Labour Council. The Government also points out that it has consulted the representatives of the most vulnerable workers of the population, namely the SEKRIMA-FISEMARE-SVS unions, with a view to finding solutions to the case of expatriate workers. The Committee once again recalls the importance of giving full effect to Article 3 of the Convention, particularly in a context of massive and persistent underemployment. It therefore invites the Government to supply detailed information on the consultations held with representatives of the social partners on the subjects covered by the Convention. Furthermore, it requests the Government to provide information on the consultations held with the most vulnerable categories of the population, particularly with the representatives of workers in rural areas and in the informal economy.

[The Government is asked to reply in detail to the present comments in 2015.]

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

Implementation of an active employment policy. Involvement of the social partners. The Committee takes note of the observations of four Malagasy trade union federations belonging to the International Trade Union Confederation (ITUC) (FISEMA, FMM, SEKRIMA and USAM), submitted to the Government in September 2012. The four trade union federations refer to the lack of dialogue before decisions are taken; they cite the abandoning of the Action Plan for Madagascar (MAP), the repeal of the National Employment Policy, the National Employment Support Programme (PNSE) and the Employment Programme implemented with support from the United Nations Development Programme (UNDP); and the adoption of Decree No. 2012-558 dated May 2012 concerning the reorganization of the Malagasy Observatory of Employment. In its 2011 observation, the Committee also noted that the closure of several enterprises had had adverse effects on employment. In this context, the Committee once again expresses its concern about the effective pursuit of “an active policy designed to promote full, productive and freely chosen employment”, “as a major goal” “within the framework of a co-ordinated economic and social policy” (Articles 1 and 2 of the Convention). It hopes that the Government will be in a position to send information in a report in 2013 that will allow an assessment of how the main axes of the economic policy, in areas such as monetary, budget, trade or regional development policies, contribute “within the framework of a co ordinated economic and social policy” to the pursuit of the employment objectives laid down in the Convention. The Committee trusts that the Government will provide information on the measures taken to create lasting employment, reduce underemployment (reported to affect some 25 per cent of the active population) and combat poverty, specifying the measures taken to promote employment among the most vulnerable categories (women, young people and rural workers).

Coordinating education and training policy with employment policy. In its last report, the Government indicated that the Decree establishing the Malagasy Employment Promotion Office (OMPE) had been repealed in 2009 and that the employment programmes implemented with support from the UNDP had also been suspended since the onset of the crisis. Furthermore, the 2010 periodic household survey would seem to suggest that the level of education is a discriminating factor in job seeking, with unemployment tending to increase with the number of years of study. The Committee invites the Government once again to include information in its next report on the action taken to ensure the coordination of education and vocational training policies with employment policies. It also asks the Government to give an account of the results obtained in terms of access for young graduates to lasting employment.

Collection and use of employment data. The Committee understands that work was recently carried out by the Malagasy National Statistics Institute (INSTAT) on employment and the informal sector. The Committee invites the Government to send in its next report the results of the household surveys conducted by INSTAT. It accordingly invites the Government to give an account of the progress made in obtaining reliable data so as to formulate and implement an employment policy within the meaning of the Convention.

Article 3. Participation of the social partners in the formulation and implementation of policies. The Committee notes that the four trade union federations expressed their concern about the Government’s unilateral conduct. They state that dialogue between the Government and the social partners on employment has almost broken down, as the work of the National Monitoring Committee for the Promotion of Employment and Poverty Reduction has been put on hold. The Committee again draws attention to the importance of giving full effect to Article 3 of the Convention, particularly in a context of massive and persistent underemployment. It hopes that the next report will contain detailed information on the consultations held with representatives of the social partners on the subjects covered by the Convention. Furthermore, it asks the Government to provide information on the consultations held with the most vulnerable categories of the population, particularly with the representatives of workers in rural areas and the informal economy, in order to obtain their cooperation in the formulation and implementation of employment policy programmes and measures.

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

Articles 1 and 2 of the Convention. Coordinating employment policy and poverty reduction. The Committee notes the information sent by the Government in a report received in October 2010. The Government indicates that, since the regime change in 2009, the Action Plan for Madagascar 2007–11 (MAP), which placed employment promotion and poverty reduction at the heart of economic priorities, was abrogated and that statistical data on labour market trends are not available. In view of the national crisis and the reactions imposed against the new regime by the African Union, the European Union and the South African Development Community (SADEC), the economic and trade advantages granted by the United States under the African Growth and Opportunity Act (AGOA) have been suspended. Furthermore, the closure of several enterprises in the export processing zones and the problems encountered by enterprises have likewise had adverse effects on employment. In such a context the Committee is concerned about the effective pursuit of “an active policy designed to promote full, productive and freely chosen employment”, “as a major goal” “within the framework of coordinated economic and social policy” (Articles 1 and 2 of the Convention). It hopes that the Government will be in a position to send information in its next report that will allow an assessment of how the main axes of the economic policy, in areas such as monetary, budget, trade or regional development policies, contribute “within the framework of a coordinated economic and social policy” to the pursuit of the employment objectives laid down in the Convention. The Committee trusts that the Government will provide information on the measures taken to create lasting employment, to reduce underemployment (reported to affect some 25 per cent of the active population) and combat poverty, specifying the measures taken to promote employment among the most vulnerable categories (women, young people and rural workers).

Coordinating education and training policy with employment policy. In reply to the previous observation, the Government states that the decree to create the Malagasy Employment Promotion Office (OMEP) was repealed in 2009 and that the employment programmes implemented with support from the UNDP have likewise been suspended since the onset of the crisis. The Government states that large enterprises that have vocational training centres have been alerted with a view to the provision of training opportunities to facilitate re-entry to the labour market for workers made redundant. The Committee hopes to be able to examine information in the Government’s next report on the results of the action taken to ensure the coordination of education and vocational training policies with employment policies. It asks the Government to give an account of the results obtained in terms of access for young graduates to lasting employment.

Collection and use of employment data. The Government again points out that the training organized by the ILO in 2008 on monitoring indicators was of benefit to employment managers. The statistical data allowing implementation of an employment policy are still not reliable because data collection has been disrupted by the national crisis. The Committee hopes that the Government will be in a position to send the results of the household surveys conducted by the National Statistics Institute. It accordingly asks the Government in its next report to give an account of the progress made in obtaining reliable data so as to formulate and implement an employment policy within the meaning of the Convention.

Article 3. Participation of the social partners in the formulation and implementation of policies. The Government states that at the last consultation, the social partners discussed the dissolution of the OMPE and the transfer of functions to the Malagasy Observatory of Employment and Ongoing and Entrepreneurial Training (OMEF). The Committee again draws attention to the importance of giving full effect to Article 3 of the Convention, particularly in a context of massive and persistent underemployment. It hopes that the next report will contain detailed information on the consultations held with representatives of the social partners on the subjects covered by the Convention. Furthermore, it asks the Government to provide information on the consultations held with the most vulnerable categories of the population, particularly with the representatives of workers in rural areas and the informal economy, in order to obtain their cooperation in the formulation and implementation of employment policy programmes and measures.

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

Articles 1 and 2 of the Convention. Coordination of employment policy with poverty reduction. The Committee notes the Government’s report received in October 2008, which contains brief replies to the observation of 2007. The Government indicates in its report that the Madagascar Action Plan (MAP)
2007–11, which places employment promotion and poverty reduction at the heart of economic priorities, is supervised by the Ministry of Labour, which is responsible for integrating it with the programmes of all ministries. The Government also indicates that the National Employment Support Programme (PNSE) has been disseminated in approximately ten regions by ministry staff with the support of UNDP experts and that the National Agency for the Implementation for the PNSE (OMPE/VATSI) has been established as a support structure. The Integrated National Monitoring and Evaluation System (SNISE) has also made it possible to evaluate the implementation of the MAP, with the indication that the promotion of full employment was less dynamic during the first half of 2008. Data recorded on employment by the Malagasy Employment and Training Observatory (OMEF) indicate that, while unemployment affected 6 per cent of the workforce, namely 483,000 persons, underemployment (disguised unemployment) remains very high, affecting 60 per cent of the active population. The numbers of new jobseekers have also increased by 4 per cent per year, i.e. an annual average of 382,000 persons of working age (15–65 years) entering the job market. Moreover, according to UNDP estimates, more than two-thirds of the population of the country (68.7 per cent) still live beneath the poverty line and nearly three-quarters of those living in poverty are in rural areas, where nearly 80 per cent of the population live. The Committee also notes that the draft Decent Work Country Programme for 2008–12 stipulated that improvements in employment policy must be based on strengthening the employability of vulnerable groups, such as young persons, women and rural residents, by means of vocational training and the matching of skills to the requirements of the labour market. The Committee cannot overemphasize the key role of an active employment policy in economic and social policies for reducing poverty and creating productive employment. The Committee requests the Government to supply detailed information in its next report on the results achieved in the context of the MAP in terms of the creation of lasting employment, reduction of underemployment and poverty reduction. The Committee also requests the Government to provide up to date information on trends in the labour market, particularly regarding the general situation, and levels and trends relating to employment, underemployment and unemployment throughout the country, stating what steps have been taken to promote employment among the most vulnerable categories (women, young persons and rural workers).

Coordination of education and training policy with employment policy. The Government indicates that the Malagasy Employment Promotion Office (OMEP) and the employment promotion programme, implemented with UNDP support, give priority to targeting young persons, women and disabled persons, particularly in the informal sector. The Committee notes that, according to UNDP estimates, underemployment affects more than 45 per cent of the workforce in rural areas and that the level of illiteracy remains a source of concern. The latter affects 47 per cent of the population, particularly the female population, and affects nearly 31 per cent of young persons. Despite significant progress in education, nearly 27 per cent of the population over 15 years of age is illiterate, according to figures for 2006, and an even greater proportion has not received basic schooling. Furthermore, 94 per cent of workers have not received any vocational training. The Committee requests the Government to provide information in its next report on the results achieved through the actions taken by the Government to ensure the coordination of education and vocational training policies with employment policy. It requests the Government to communicate the results achieved in terms of access to lasting employment for young persons leaving university.

Collection and use of employment data. The Government states that the National Strategy for the Development of Statistics has been established with the participation of the Ministry of Labour. The National Employment Information System (SNIE) is operational owing to the establishment of the OMEF, which has a web site on which employment offers and requests may be consulted. The Government points out that training organized by the ILO in 2008 on the MAP/PNSE information system and monitoring indicators was of particular benefit to managerial staff at the Ministry of Labour and the OMEF. The Committee requests the Government to supply information on the progress made to establish reliable statistical data, thereby enabling the formulation and implementation of an employment policy pursuant to the requirements of the Convention.

Article 3. Participation of the social partners in the formulation and implementation of policies. The Government describes the functions of the National Labour Council (CNT) and the National Monitoring Committee for the Promotion of Employment and Poverty Reduction (CNSPERP), two tripartite bodies concerned with employment policy. The Committee requests the Government to supply full information on consultations conducted under the auspices of the CNT and the CNSPERP with a view to the formulation and implementation of an active employment policy. It also requests the Government to supply information in its next report on consultations conducted with the representatives of workers in the rural and informal sectors, and also on the outcome of these consultations with regard to employment policies.

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

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

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

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

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

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

Direct Request (CEACR) - adopted 2005, published 95th ILC session (2006)

1. Coordination of employment policy with poverty reduction. In reply to the direct request of 2003, the Government indicates in the report received in October 2004 that a framework document on the national employment policy has been formulated and approved. It also reports the creation of the Malagasy Employment and Vocational Training Observatory, a public establishment under the authority of the Minister of Employment and Vocational Training, the objective of which is to develop and coordinate the implementation of programmes and policies in the field of employment and vocational training. The Government indicates that the major difficulty encountered in achieving its employment objectives is one of finance. The Committee requests the Government to indicate in its next report the measures taken within the framework of the implementation of its poverty reduction strategy in order to promote the objectives of full and productive employment, as defined by the Convention. To this end, the Committee emphasizes the importance of having available statistical information on the size and distribution of the labour force and the nature and extent of unemployment as an essential means of pursuing an active employment policy within the meaning of Articles 1 and 2 of the Convention. Please provide statistical data on the labour market, in particular with regard to the most vulnerable groups (women, unemployed graduates, unskilled young people), as well as indications on the implementation of the national employment policy (the labour information system and the systems to facilitate access to employment and to finance employment measures).

2. The Committee recalls that the poverty reduction strategy paper (PRSP) envisaged stimulating the private sector and those sectors with a high capacity for employment, such as export processing zones. On this last point, the Committee is aware of the studies carried out by the Office in 2004 on improving productivity through the promotion of decent work in export processing enterprises in Madagascar. These studies suggest that job creation and the increased competitivity of enterprises are the main results expected of the action plan for the development of export processing enterprises envisaged in the PRSP, in particular through an increase in the investment rate and the diversification of export processing enterprises. The Committee requests the Government to continue to supply, in its next report, indications on the manner in which export processing enterprises contribute to the creation of productive and sustainable employment.

3. Participation of the social partners in the formulation and implementation of policies. In reply to its previous comments requesting information on cases of consultation with the representatives of the social partners, the Government reports the participation of the members of the National Employment Council in the formulation and validation of the framework document on the national employment policy. The Government indicates that, before being transmitted to the competent authorities for adoption, the texts on the national employment policy must be discussed by the National Employment Council. The Committee hopes that the Government will continue to inform it of the manner in which the representatives of the persons affected are consulted on the implementation of the national employment policy. Please also supply information on the manner in which consultations on the employment policy are carried out with rural workers and those working in the informal economy (Article 3 of the Convention).

4. ILO technical cooperation. The Committee notes the information provided by the Government on the technical assistance project on employment policy undertaken in collaboration with the ILO. The Committee would be grateful if the Government would supply, in its next report, information on the action taken as a result of the ILO’s technical assistance in the field of employment policy (Part V of the report form).

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

The Committee notes the information provided in the Government’s brief report received in June 2003.

1. Articles 1 and 2 of the Convention. With reference to the Committee’s previous comments, the Government indicates that, with the support of the ILO, it has initiated a process of formulating a National Employment Policy (NEP) to combat poverty, the second phase of which provides for the preparation of a document encompassing the following aspects: the compilation of labour market statistics; sensitive groups (women, unemployed graduates, unskilled young persons, persons with disabilities); the framework for the promotion of employment (an employment information system, a system of access to employment, legislative, legal and organizational systems, a system to finance employment). The Committee notes this information and would be grateful if the Government would continue to keep it informed of any progress achieved in the implementation of this policy, as well as its impact in terms of employment promotion.

2. The Committee also notes the decision by the Council of Ministers of 14 May 2003 to adopt the complete draft of the Poverty Reduction Strategy Paper (PRSP). This draft document envisages, in the context of measures to combat poverty, improving the dynamism of the private sector and, in particular, sectors with a high employment potential, such as industrial free trade zones (EFZ). The Committee notes the information provided on the employment promotion project included in the PRSP and would be grateful if the Government would provide information in its next report on any difficulties encountered in the achievement of the employment objectives established in the PRSP in the context of a coordinated economic and social policy.

3. Article 3. The Government explains that representatives of the social partners participate in the work of the National Employment Council, which plays an advisory role in the context of the new National Employment Policy and the detailed strategic framework to combat poverty. However, it explains that it is not in a position to provide more detailed information on this subject for the period under consideration. The Committee would be grateful if the Government would refer in its next report to specific examples of consultations held with the representatives of the persons affected, bearing in mind that the consultations envisaged by the instruments should be held both with regard to the formulation of the employment policy and its implementation.

4. Part V of the report form. Finally, the Committee notes the information provided by the Government on the technical assistance project on employment policy carried out in collaboration with the ILO. It would be grateful if the Government would continue to provide information on the action taken as a consequence, with an indication, where appropriate, of any factors which may have prevented or delayed such action. The Committee hopes that the assistance and advice provided in the context of this project will make it possible not only to promote the application of the Convention, but will also contribute to assisting the Government in the provision of information for the preparation of its report.

Direct Request (CEACR) - adopted 2002, published 91st ILC session (2003)

The Committee notes that the Government’s report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its 2001 direct request which read as follows:

1. The Committee notes the supplementary information on application of the Convention communicated by the Government in October 2000. It notes that a new approach has been adopted for preparing the national employment policy to which the ILO has provided support in the form of technical and financial assistance. The Committee requests that the Government describe in its next report the action undertaken following the assistance received from the ILO in relation to employment policy and to indicate whether particular difficulties have been encountered in achieving the objectives set. In addition, please provide a copy of reports, studies and surveys, and disaggregated statistical data enabling correct assessment of the situation, the level and trends in employment, unemployment and underemployment in Madagascar.

2. The Committee also notes that the World Bank and the International Monetary Fund deem Madagascar eligible to apply for a debt reduction plan under the strengthened Heavily Indebted Poor Countries (HIPC) Initiative. Despite some improvement in economic indicators, seven out of ten people suffer from poverty. Resources allocated under the HIPC initiative are intended for priority spheres defined by the Government in a detailed strategic campaign against poverty, which should be defined through broad consultation with civil society. In this respect, the Committee trusts that the Government will continue to give priority to its programmes aimed at full employment, and will provide in its next report indications on the extent to which the employment objectives set forth in the detailed strategic campaign against poverty have been achieved (Articles 1 and 2 of the Convention).

3. Referring to its 1999 direct request, the Committee would be grateful to receive information on the effects produced by the programmes mentioned earlier (particularly project MAG/94/006 for the promotion of employment for women, project MADIO and the rural employment programmes).

4. Article 3. Please provide examples of the way in which the National Council for Employment broaches employment policy questions, particularly in the framework of the new national employment policy and of the detailed strategy against poverty. The Committee requests once again that the Government inform it of the manner in which consultations are conducted with persons engaged in the rural sector and informal sector.

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

1. The Committee notes the supplementary information on application of the Convention communicated by the Government in October 2000. It notes that a new approach has been adopted for preparing the national employment policy to which the ILO has provided support in the form of technical and financial assistance. The Committee requests that the Government describe in its next report the action undertaken following the assistance received from the ILO in relation to employment policy and to indicate whether particular difficulties have been encountered in achieving the objectives set. In addition, please provide a copy of reports, studies and surveys, and disaggregated statistical data enabling correct assessment of the situation, the level and trends in employment, unemployment and underemployment in Madagascar.

2. The Committee also notes that the World Bank and the International Monetary Fund deem Madagascar eligible to apply for a debt reduction plan under the strengthened Heavily Indebted Poor Countries (HIPC) Initiative. Despite some improvement in economic indicators, seven out of ten people suffer from poverty. Resources allocated under the HIPC initiative are intended for priority spheres defined by the Government in a detailed strategic campaign against poverty, which should be defined through broad consultation with civil society. In this respect, the Committee trusts that the Government will continue to give priority to its programmes aimed at full employment, and will provide in its next report indications on the extent to which the employment objectives set forth in the detailed strategic campaign against poverty have been achieved (Articles 1 and 2 of the Convention).

3. Referring to its 1999 direct request, the Committee would be grateful to receive information on the effects produced by the programmes mentioned earlier (particularly project MAG/94/006 for the promotion of employment for women, project MADIO and the rural employment programmes).

4. Article 3. Please provide examples of the way in which the National Council for Employment broaches employment policy questions, particularly in the framework of the new national employment policy and of the detailed strategy against poverty. The Committee requests once again that the Government inform it of the manner in which consultations are conducted with persons engaged in the rural sector and informal sector.

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

Article 1 of the Convention. The Committee notes the detailed information provided in the Government's report for the period ending September 1998. The Government states that the participation rate was 62.9 per cent in 1996 and 63.4 per cent in 1997, and the unemployment rate was 6.8 per cent in 1996 and 5.8 per cent in 1997. The principal sectors for job creation in this period were the informal sector and the free enterprise zones. The Government explains that a programme of social action and aid for economic management has been established to mitigate the negative effects of structural adjustment by helping displaced workers to find new employment, particularly by promoting self-employment. The programme also ensures that back wages and an indemnity are paid to laid-off workers and provides counselling, apprenticeships and some equipment.

The Government explains that the goals of its employment policy in relation to its structural adjustment policy are to maintain the level of employment and promote self-employment. Means of achieving this are to develop the communications infrastructure, rural areas and free enterprise zones. Programmes for rural development, formulated in consultation with the social partners, include water usage, revolving credit funds and developing fisheries. The Government reports that project MAG 94/006 for the promotion of employment for women has 30 locations and has organized 1,179 women into groups for a revolving loan fund. The programme also provides training to help the women run their micro-enterprises. The Committee notes this information. It would appreciate being kept informed of the success of these programmes, and of any programmes aimed at developing non-agricultural rural economic activities. The Committee also notes the Government's statement that it is studying, through CNATAP, the possibility of developing six autonomous provinces with independent employment and vocational training policies. The Committee asks to be kept informed of the outcome of this study. Lastly, the Committee notes that project MADIO is aimed at analysing the labour market. It hopes that MADIO will be able to produce detailed disaggregated data on the trends in employment, unemployment and underemployment, and requests copies of any reports or studies produced.

Article 2. The Government states that employment policies are always developed within the context of the larger economic and social objectives, but no clear procedure has yet been adopted to promote full employment in the context of the economic and social plan. Furthermore, as the employment policy measures are not yet well elaborated, no regular review procedure has yet been established. The Committee would be grateful if the Government would keep it informed of progress made in ensuring that the measures adopted for attaining the objectives specified in Article 1 are decided on and kept under review within a framework of a coordinated economic and social policy.

Article 3. The Government states that the National Employment Council, composed of a national committee and regional councils, was established by law in 1997. It is a tripartite body for consultation, dialogue, negotiation and information concerning employment, training and social protection. The Government also states that the Employment and Vocational Training Commission has established a work plan which it is now in the first phase of being carried out. The Committee asks to be kept informed of the activities of these bodies and asks the Government to indicate whether they include or consult with representatives of the informal and rural sectors on the development and review of general employment policies and programmes.

Part V of the report form. The Government states that it is not yet possible to evaluate the technical cooperation activities due to their sporadic nature. The Committee would appreciate being kept informed of these activities and any follow-up action taken.

Direct Request (CEACR) - adopted 1998, published 87th ILC session (1999)

The Committee notes that the Government's report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

The Committee notes with interest the Government's short but helpful report for the period from 1 September 1993 to 1 September 1995 and the information it contains in response to the questions in the report form. It asks the Government to continue to provide the fullest information possible on the following points.

1. The Committee notes the information on the distribution of and developments in employment in the various sectors of activity. It hopes that the Government will shortly be able to provide more detailed information on levels and trends with regard to the active population, employment, underemployment and unemployment. Please describe the measures taken by the National Statistics Institute to collect and analyse relevant data, stating the difficulties encountered, if any.

2. The Committee notes the useful information supplied by the Government on the focus of the main general and sectoral development policies. Noting that priority is given to liberalization of economic activity and reducing State involvement, it asks the Government to indicate the effect -- noted or expected -- of privatization on employment and the measures taken as a consequence to encourage the employment of the workers affected in the private sector. Please also describe the results obtained by the policy for the development of transport and telecommunication infrastructures. Please continue to provide information on the measures taken for the diversification of activities and rural development, and job creation in the industrial free zones. More generally, the Committee asks the Government to state how it envisages the consequences for employment of the structural adjustment policies conducted with the support of the World Bank.

3. The Committee notes with interest that several labour market policy programmes are being implemented to promote the development of micro-enterprises, the employment of women and disabled persons. It notes that several of these projects receive technical cooperation support from the ILO, and assistance from non-governmental organizations. The Committee asks the Government to continue to provide information on the number of beneficiaries of these programmes.

4. The Committee notes that the Government attributes high priority to strengthening the vocational training system and adapting it to the requirements of the economy. In this connection it draws the Government's attention to the provisions of the Human Resources Development Convention (No. 142) and Recommendation (No. 150) 1975, which the Government may find useful as a basis for developing and adapting its vocational training system taking account of employment prospects.

5. The Government refers to various institutions which enable employers' and workers' organizations to participate in determining and implementing the employment policy. The Committee would be grateful if the Government would provide more detailed information on the composition and attributions of the bodies it refers to. In particular, please describe the work of the National Employment Council with regard to employment policy and provide any relevant extracts of opinions, reports or studies it may have adopted. The Committee recalls in this connection that the consultations required by Article 3 of the Convention should be extended to all aspects of economic and social policy which have an influence on employment and should involve, in addition to representatives of employers and workers, representatives of other sections of the active population such as persons employed in the rural sector or the informal sector. The Committee has also been informed that several tripartite seminars and workshops on employment policy have been held under the auspices of the ILO. The Committee is of the opinion that such activities can make a useful contribution to developing the consultations required by this important provision of the Convention. It stresses that, in the political and institutional context described by the Government, the establishment of a broad social dialogue on employment problems and their solution is an essential component of the continuity of policies in this area.

6. The Committee asks the Government to provide the information required on the ILO's advisory or technical cooperation activities in the area of employment promotion, stating how it considers such activities can contribute to better application of the Convention (Part V of the report form).

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

With reference to its previous direct request, the Committee notes with interest the Government's short but helpful report for the period from 1 September 1993 to 1 September 1995 and the information it contains in response to the questions in the report form. It asks the Government to continue to provide the fullest information possible on the following points.

1. The Committee notes the information on the distribution of and developments in employment in the various sectors of activity. It hopes that the Government will shortly be able to provide more detailed information on levels and trends with regard to the active population, employment, underemployment and unemployment. Please describe the measures taken by the National Statistics Institute to collect and analyse relevant data, stating the difficulties encountered, if any.

2. The Committee notes the useful information supplied by the Government on the focus of the main general and sectoral development policies. Noting that priority is given to liberalization of economic activity and reducing State involvement, it asks the Government to indicate the effect -- noted or expected -- of privatization on employment and the measures taken as a consequence to encourage the employment of the workers affected in the private sector. Please also describe the results obtained by the policy for the development of transport and telecommunication infrastructures. Please continue to provide information on the measures taken for the diversification of activities and rural development, and job creation in the industrial free zones. More generally, the Committee asks the Government to state how it envisages the consequences for employment of the structural adjustment policies conducted with the support of the World Bank.

3. The Committee notes with interest that several labour market policy programmes are being implemented to promote the development of micro-enterprises, the employment of women and disabled persons. It notes that several of these projects receive technical cooperation support from the ILO, and assistance from non-governmental organizations. The Committee asks the Government to continue to provide information on the number of beneficiaries of these programmes.

4. The Committee notes that the Government attributes high priority to strengthening the vocational training system and adapting it to the requirements of the economy. In this connection it draws the Government's attention to the provisions of the Human Resources Development Convention (No. 142) and Recommendation (No. 150) 1975, which the Government may find useful as a basis for developing and adapting its vocational training system taking account of employment prospects.

5. The Government refers to various institutions which enable employers' and workers' organizations to participate in determining and implementing the employment policy. The Committee would be grateful if the Government would provide more detailed information on the composition and attributions of the bodies it refers to. In particular, please describe the work of the National Employment Council with regard to employment policy and provide any relevant extracts of opinions, reports or studies it may have adopted. The Committee recalls in this connection that the consultations required by Article 3 of the Convention should be extended to all aspects of economic and social policy which have an influence on employment and should involve, in addition to representatives of employers and workers, representatives of other sections of the active population such as persons employed in the rural sector or the informal sector. The Committee has also been informed that several tripartite seminars and workshops on employment policy have been held under the auspices of the ILO. The Committee is of the opinion that such activities can make a useful contribution to developing the consultations required by this important provision of the Convention. It stresses that, in the political and institutional context described by the Government, the establishment of a broad social dialogue on employment problems and their solution is an essential component of the continuity of policies in this area.

6. The Committee asks the Government to provide the information required on the ILO's advisory or technical cooperation activities in the area of employment promotion, stating how it considers such activities can contribute to better application of the Convention (Part V of the report form).

Direct Request (CEACR) - adopted 1996, published 85th ILC session (1997)

Further to its previous observations and direct requests, the Committee has noted that a report was received shortly before its current session. It intends to examine it in detail at its next session.

In the meantime, the Committee hopes that the Government will consider maintaining close contact with the competent units of the ILO, in order to obtain all necessary advice and assistance as to the formulation and pursuit of a policy and measures for full, productive and freely-chosen employment in terms of the Convention and the provision of full information in its next report.

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

The Committee notes with regret that, for the third year in succession, the Government's report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

The Committee hopes that the Government will continue to supply regularly full reports on the application of the Convention. Furthermore, it would be grateful if the Government would supply information on the following points:

1. The Government states in its report that the growth of employment in the formal sector was very slow during the period 1986-88. The objective established by the 1986-90 Plan (the creation of 17,500 jobs per year over the 1984-90 period) has not been achieved, and the sector only recorded the creation of 1,350 jobs per year. However, the informal sector continues to employ the great majority of the active population and to take up most of the new jobseekers, with an annual average creation of jobs of around 117,000. The Committee notes that, among the "essential objectives" of the current phase of the Government's adjustment programme, it is planned to achieve a rate of economic growth that is higher than the demographic growth, to restructure the industrial sector, to promote small and medium enterprises, to improve the quality of education and to promote a social policy for the most underprivileged groups. In this connection, within the framework of the social aspects of adjustment, the "project for social activities and support for economic management" (PASAGE) was prepared in 1989. The Committee refers to Article 1, paragraph 1, of the Convention, which provides that each Member that has ratified the Convention shall declare and pursue "as a major goal" an active policy designed to promote full, productive and freely chosen employment. It trusts that the orientations of the structural adjustment programme will not conflict with the pursual of the objective of promoting full employment, as set out in the Convention, and that the Government will be in a position to supply information on the impact of the measures that have been taken within the framework of the structural adjustment programme on the situation, level and trends of employment, both on the aggregate and as they affect particular categories of workers such as women, young persons, older workers and disabled workers.

2. Article 2. The Committee notes with interest the results of the measures taken to improve information on employment. It notes the assistance received from the Office and from other international organizations. It hopes that surveys, studies and especially the establishment of a database on employment will assist the Government to "decide on and keep under review, within the framework of a coordinated economic and social policy", the measures to be adopted for attaining the objectives specified in Article 1 of the Convention. Please forward extracts of reports, studies and enquiries that are available and related to economic social policy measures on employment (Part VI of the report form).

3. Please supply information on the extent to which the new Investment Code and the Act respecting free industrial zones have contributed to the creation of new jobs.

4. The Committee notes with interest the detailed information on the action taken as a result of the assistance received from ILO technical cooperation projects in various fields (development of crafts, vocational training and further training, the promotion of young entrepreneurs, the vocational rehabilitation of the disabled, programme of labour-intensive works, project for a programme for the vocational reintegration of redundant workers within the context of the reform of public enterprises). The Committee welcomes these activities, which contribute to a better knowledge and application of the Convention, and it would be grateful if the Government would continue to supply information on the progress of the current programmes (Part V of the report form).

5. The Committee notes with interest the Government's policies in the field of education. Within the context of the programme to strengthen the education sector (CRESED), two higher institutes of technology have been established on an experimental basis and a project on training and technical education is being prepared with the support of the World Bank. With reference to the final comments contained in its General Survey of 1991 on the instruments relating to the development of human resources, the Committee emphasizes the contribution made by vocational training and guidance to attaining the objectives of the Convention, particularly within the framework of an overall strategy to combat problems related to structural adjustment. It would be grateful if the Government would continue to supply information on the measures that have been adopted to coordinate education and training policies with prospective employment opportunities.

6. Article 3. The Government indicates that professional groups of employers and workers are represented on special bodies such as the National Institute for the Promotion of Training (INPF), the National Workers' Education Centre and on inter-enterprise health organizations. Representatives of the professions participated in consultations prior to the adoption of legislation respecting the Code of Investments and the industrial free zones. Please supply further information on activities in the field of employment that have been developed as a result of consultations with the representatives of the persons affected, and particularly with representatives of workers employed in the rural and informal sectors.

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

The Committee notes with regret that, for the fourth year in succession, the Government's report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

The Committee hopes that the Government will continue to supply regularly full reports on the application of the Convention. Furthermore, it would be grateful if the Government would supply information on the following points:

1. The Government states in its report that the growth of employment in the formal sector was very slow during the period 1986-88. The objective established by the 1986-90 Plan (the creation of 17,500 jobs per year over the 1984-90 period) has not been achieved, and the sector only recorded the creation of 1,350 jobs per year. However, the informal sector continues to employ the great majority of the active population and to take up most of the new jobseekers, with an annual average creation of jobs of around 117,000. The Committee notes that, among the "essential objectives" of the current phase of the Government's adjustment programme, it is planned to achieve a rate of economic growth that is higher than the demographic growth, to restructure the industrial sector, to promote small and medium enterprises, to improve the quality of education and to promote a social policy for the most underprivileged groups. In this connection, within the framework of the social aspects of adjustment, the "project for social activities and support for economic management" (PASAGE) was prepared in 1989. The Committee refers to Article 1, paragraph 1, of the Convention, which provides that each Member that has ratified the Convention shall declare and pursue "as a major goal" an active policy designed to promote full, productive and freely chosen employment. It trusts that the orientations of the structural adjustment programme will not conflict with the pursual of the objective of promoting full employment, as set out in the Convention, and that the Government will be in a position to supply information on the impact of the measures that have been taken within the framework of the structural adjustment programme on the situation, level and trends of employment, both on the aggregate and as they affect particular categories of workers such as women, young persons, older workers and disabled workers.

2. Article 2. The Committee notes with interest the results of the measures taken to improve information on employment. It notes the assistance received from the Office and from other international organizations. It hopes that surveys, studies and especially the establishment of a database on employment will assist the Government to "decide on and keep under review, within the framework of a coordinated economic and social policy", the measures to be adopted for attaining the objectives specified in Article 1 of the Convention. Please forward extracts of reports, studies and enquiries that are available and related to economic social policy measures on employment (Part VI of the report form).

3. Please supply information on the extent to which the new Investment Code and the Act respecting free industrial zones have contributed to the creation of new jobs.

4. The Committee notes with interest the detailed information on the action taken as a result of the assistance received from ILO technical cooperation projects in various fields (development of crafts, vocational training and further training, the promotion of young entrepreneurs, the vocational rehabilitation of the disabled, programme of labour-intensive works, project for a programme for the vocational reintegration of redundant workers within the context of the reform of public enterprises). The Committee welcomes these activities, which contribute to a better knowledge and application of the Convention, and it would be grateful if the Government would continue to supply information on the progress of the current programmes (Part V of the report form).

5. The Committee notes with interest the Government's policies in the field of education. Within the context of the programme to strengthen the education sector (CRESED), two higher institutes of technology have been established on an experimental basis and a project on training and technical education is being prepared with the support of the World Bank. With reference to the final comments contained in its General Survey of 1991 on the instruments relating to the development of human resources, the Committee emphasizes the contribution made by vocational training and guidance to attaining the objectives of the Convention, particularly within the framework of an overall strategy to combat problems related to structural adjustment. It would be grateful if the Government would continue to supply information on the measures that have been adopted to coordinate education and training policies with prospective employment opportunities.

6. Article 3. The Government indicates that professional groups of employers and workers are represented on special bodies such as the National Institute for the Promotion of Training (INPF), the National Workers' Education Centre and on inter-enterprise health organizations. Representatives of the professions participated in consultations prior to the adoption of legislation respecting the Code of Investments and the industrial free zones. Please supply further information on activities in the field of employment that have been developed as a result of consultations with the representatives of the persons affected, and particularly with representatives of workers employed in the rural and informal sectors.

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

The Committee notes with regret that the Government's report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

The Committee hopes that the Government will continue to supply regularly full reports on the application of the Convention. Furthermore, it would be grateful if the Government would supply information on the following points:

1. The Government states in its report that the growth of employment in the formal sector was very slow during the period 1986-88. The objective established by the 1986-90 Plan (the creation of 17,500 jobs per year over the 1984-90 period) has not been achieved, and the sector only recorded the creation of 1,350 jobs per year. However, the informal sector continues to employ the great majority of the active population and to take up most of the new jobseekers, with an annual average creation of jobs of around 117,000. The Committee notes that, among the "essential objectives" of the current phase of the Government's adjustment programme, it is planned to achieve a rate of economic growth that is higher than the demographic growth, to restructure the industrial sector, to promote small and medium enterprises, to improve the quality of education and to promote a social policy for the most underprivileged groups. In this connection, within the framework of the social aspects of adjustment, the "project for social activities and support for economic management" (PASAGE) was prepared in 1989. The Committee refers to Article 1, paragraph 1, of the Convention, which provides that each Member that has ratified the Convention shall declare and pursue "as a major goal" an active policy designed to promote full, productive and freely chosen employment. It trusts that the orientations of the structural adjustment programme will not conflict with the pursual of the objective of promoting full employment, as set out in the Convention, and that the Government will be in a position to supply information on the impact of the measures that have been taken within the framework of the structural adjustment programme on the situation, level and trends of employment, both on the aggregate and as they affect particular categories of workers such as women, young persons, older workers and disabled workers.

2. Article 2. The Committee notes with interest the results of the measures taken to improve information on employment. It notes the assistance received from the Office and from other international organizations. It hopes that surveys, studies and especially the establishment of a database on employment will assist the Government to "decide on and keep under review, within the framework of a coordinated economic and social policy", the measures to be adopted for attaining the objectives specified in Article 1 of the Convention. Please forward extracts of reports, studies and enquiries that are available and related to economic social policy measures on employment (Part VI of the report form).

3. Please supply information on the extent to which the new Investment Code and the Act respecting free industrial zones have contributed to the creation of new jobs.

4. The Committee notes with interest the detailed information on the action taken as a result of the assistance received from ILO technical cooperation projects in various fields (development of crafts, vocational training and further training, the promotion of young entrepreneurs, the vocational rehabilitation of the disabled, programme of labour-intensive works, project for a programme for the vocational reintegration of redundant workers within the context of the reform of public enterprises). The Committee welcomes these activities, which contribute to a better knowledge and application of the Convention, and it would be grateful if the Government would continue to supply information on the progress of the current programmes (Part V of the report form).

5. The Committee notes with interest the Government's policies in the field of education. Within the context of the programme to strengthen the education sector (CRESED), two higher institutes of technology have been established on an experimental basis and a project on training and technical education is being prepared with the support of the World Bank. With reference to the final comments contained in its General Survey of 1991 on the instruments relating to the development of human resources, the Committee emphasizes the contribution made by vocational training and guidance to attaining the objectives of the Convention, particularly within the framework of an overall strategy to combat problems related to structural adjustment. It would be grateful if the Government would continue to supply information on the measures that have been adopted to coordinate education and training policies with prospective employment opportunities.

6. Article 3. The Government indicates that professional groups of employers and workers are represented on special bodies such as the National Institute for the Promotion of Training (INPF), the National Workers' Education Centre and on inter-enterprise health organizations. Representatives of the professions participated in consultations prior to the adoption of legislation respecting the Code of Investments and the industrial free zones. Please supply further information on activities in the field of employment that have been developed as a result of consultations with the representatives of the persons affected, and particularly with representatives of workers employed in the rural and informal sectors.

Direct Request (CEACR) - adopted 1993, published 80th ILC session (1993)

The Committee notes that the Government's report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

The Committee notes with interest the encouraging information contained in the Government's report. It hopes that the Government will continue to supply regularly full reports on the application of the Convention. Furthermore, it would be grateful if the Government would supply information on the following points:

1. The Government states in its report that the growth of employment in the formal sector was very slow during the period 1986-88. The objective established by the 1986-90 Plan (the creation of 17,500 jobs per year over the 1984-90 period) has not been achieved, and the sector only recorded the creation of 1,350 jobs per year. However, the informal sector continues to employ the great majority of the active population and to take up most of the new jobseekers, with an annual average creation of jobs of around 117,000. The Committee notes that, among the "essential objectives" of the current phase of the Government's adjustment programme, it is planned to achieve a rate of economic growth that is higher than the demographic growth, to restructure the industrial sector, to promote small and medium enterprises, to improve the quality of education and to promote a social policy for the most underprivileged groups. In this connection, within the framework of the social aspects of adjustment, the "project for social activities and support for economic management" (PASAGE) was prepared in 1989. The Committee refers to Article 1, paragraph 1, of the Convention, which provides that each Member that has ratified the Convention shall declare and pursue "as a major goal" an active policy designed to promote full, productive and freely chosen employment. It trusts that the orientations of the structural adjustment programme will not conflict with the pursual of the objective of promoting full employment, as set out in the Convention, and that the Government will be in a position to supply information on the impact of the measures that have been taken within the framework of the structural adjustment programme on the situation, level and trends of employment, both on the aggregate and as they affect particular categories of workers such as women, young persons, older workers and disabled workers.

2. Article 2. The Committee notes with interest the results of the measures taken to improve information on employment. It notes the assistance received from the Office and from other international organizations. It hopes that surveys, studies and especially the establishment of a database on employment will assist the Government to "decide on and keep under review, within the framework of a coordinated economic and social policy", the measures to be adopted for attaining the objectives specified in Article 1 of the Convention. Please forward extracts of reports, studies and enquiries that are available and related to economic social policy measures on employment (Part VI of the report form).

3. Please supply information on the extent to which the new Investment Code and the Act respecting free industrial zones have contributed to the creation of new jobs.

4. The Committee notes with interest the detailed information on the action taken as a result of the assistance received from ILO technical cooperation projects in various fields (development of crafts, vocational training and further training, the promotion of young entrepreneurs, the vocational rehabilitation of the disabled, programme of labour-intensive works, project for a programme for the vocational reintegration of redundant workers within the context of the reform of public enterprises). The Committee welcomes these activities, which contribute to a better knowledge and application of the Convention, and it would be grateful if the Government would continue to supply information on the progress of the current programmes (Part V of the report form).

5. The Committee notes with interest the Government's policies in the field of education. Within the context of the programme to strengthen the education sector (CRESED), two higher institutes of technology have been established on an experimental basis and a project on training and technical education is being prepared with the support of the World Bank. With reference to the final comments contained in its General Survey of 1991 on the instruments relating to the development of human resources, the Committee emphasizes the contribution made by vocational training and guidance to attaining the objectives of the Convention, particularly within the framework of an overall strategy to combat problems related to structural adjustment. It would be grateful if the Government would continue to supply information on the measures that have been adopted to coordinate education and training policies with prospective employment opportunities.

6. Article 3. The Government indicates that professional groups of employers and workers are represented on special bodies such as the National Institute for the Promotion of Training (INPF), the National Workers' Education Centre and on inter-enterprise health organizations. Representatives of the professions participated in consultations prior to the adoption of legislation respecting the Code of Investments and the industrial free zones. Please supply further information on activities in the field of employment that have been developed as a result of consultations with the representatives of the persons affected, and particularly with representatives of workers employed in the rural and informal sectors.

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

The Committee notes with interest the encouraging information contained in the Government's report. It hopes that the Government will continue to supply regularly full reports on the application of the Convention. Furthermore, it would be grateful if the Government would supply information on the following points:

1. The Government states in its report that the growth of employment in the formal sector was very slow during the period 1986-88. The objective established by the 1986-90 Plan (the creation of 17,500 jobs per year over the 1984-90 period) has not been achieved, and the sector only recorded the creation of 1,350 jobs per year. However, the informal sector continues to employ the great majority of the active population and to take up most of the new jobseekers, with an annual average creation of jobs of around 117,000. The Committee notes that, among the "essential objectives" of the current phase of the Government's adjustment programme, it is planned to achieve a rate of economic growth that is higher than the demographic growth, to restructure the industrial sector, to promote small and medium enterprises, to improve the quality of education and to promote a social policy for the most underprivileged groups. In this connection, within the framework of the social aspects of adjustment, the "project for social activities and support for economic management" (PASAGE) was prepared in 1989. The Committee refers to Article 1, paragraph 1, of the Convention, which provides that each Member that has ratified the Convention shall declare and pursue "as a major goal" an active policy designed to promote full, productive and freely chosen employment. It trusts that the orientations of the structural adjustment programme will not conflict with the pursual of the objective of promoting full employment, as set out in the Convention, and that the Government will be in a position to supply information on the impact of the measures that have been taken within the framework of the structural adjustment programme on the situation, level and trends of employment, both on the aggregate and as they affect particular categories of workers such as women, young persons, older workers and disabled workers.

2. Article 2. The Committee notes with interest the results of the measures taken to improve information on employment. It notes the assistance received from the Office and from other international organisations. It hopes that surveys, studies and especially the establishment of a database on employment will assist the Government to "decide on and keep under review, within the framework of a co-ordinated economic and social policy", the measures to be adopted for attaining the objectives specified in Article 1 of the Convention. Please forward extracts of reports, studies and enquiries that are available and related to economic social policy measures on employment (Part VI of the report form).

3. Please supply information on the extent to which the new Investment Code and the Act respecting free industrial zones have contributed to the creation of new jobs.

4. The Committee notes with interest the detailed information on the action taken as a result of the assistance received from ILO technical co-operation projects in various fields (development of crafts, vocational training and further training, the promotion of young entrepreneurs, the vocational rehabilitation of the disabled, programme of labour-intensive works, project for a programme for the vocational reintegration of redundant workers within the context of the reform of public enterprises). The Committee welcomes these activities, which contribute to a better knowledge and application of the Convention, and it would be grateful if the Government would continue to supply information on the progress of the current programmes (Part V of the report form).

5. The Committee notes with interest the Government's policies in the field of education. Within the context of the programme to strengthen the education sector (CRESED), two higher institutes of technology have been established on an experimental basis and a project on training and technical education is being prepared with the support of the World Bank. With reference to the final comments contained in its General Survey of 1991 on the instruments relating to the development of human resources, the Committee emphasises the contribution made by vocational training and guidance to attaining the objectives of the Convention, particularly within the framework of an overall strategy to combat problems related to structural adjustment. It would be grateful if the Government would continue to supply information on the measures that have been adopted to co-ordinate education and training policies with prospective employment opportunities.

6. Article 3. The Government indicates that professional groups of employers and workers are represented on special bodies such as the National Institute for the Promotion of Training (INPF), the National Workers' Education Centre and on inter-enterprise health organisations. Representatives of the professions participated in consultations prior to the adoption of legislation respecting the Code of Investments and the industrial free zones. Please supply further information on activities in the field of employment that have been developed as a result of consultations with the representatives of the persons affected, and particularly with representatives of workers employed in the rural and informal sectors.

Direct Request (CEACR) - adopted 1990, published 77th ILC session (1990)

The Committee refers to its observation and hopes that the next report will contain full information on the matters raised in its previous direct request, which read as follows:

The Committee refers to its observation and to information available to the Office. The Committee notes that the 1986-90 Development Plan established three major objectives: food self-sufficiency, increased exports, and an improved standard of living for the population. Among the economic policies set out in order to achieve these objectives, the Committee notes: (a) a slowing down in State recruitment reducing the growth in the actual number of State officials to 2 per cent annually as from 1987; and (b) the promotion of highly labour-intensive activities, particularly in the sectors of small and medium industry in construction and road building. In addition, one of the targets of social policies is to obtain efficiency in teaching through the training of teachers, the increasing of necessary teaching materials, and the establishment of adequate vocational training for the needs of the country.

The Committee hopes that a detailed report will be supplied for the Committee at its next session, and that the report will contain full information on these new policies and, more generally, on the implementation of the objectives of the Convention, with reference to the questions contained in the report form. Please also supply information on the following points which were mentioned in the previous request:

1. Please indicate the extent to which the targets set forth in Act No. 81-036 of 16 December 1981, which outlines the major objectives of the Second Plan (1982-87), have been attained.

2. The Committee noted that, in accordance with the provisions of Act No. 81-036, measures were taken to improve methods of assessing and selecting investments in the public and private sectors. Please supply fuller information concerning these measures and indicate the type of investment projects selected and the extent to which they have created new jobs.

3. The Committee noted that the mechanisms for the collection and analysis of statistical data on employment trends were unsatisfactory, and that the ten decentralised services of the Directorate of Employment and Manpower only covered urban centres. The Committee would be grateful to be kept informed of any new provisions adopted in the field of data collection.

4. Please describe the effect on the employment market of the project carried out in collaboration with the Office (MAG/82/005), concerning the development of Madagascan craftwork.

5. The Committee notes that project MAG/85/011, to support the organisation responsible for further training and vocational training, and project MAG/85/001, concerning the functional and vocational rehabilitation of the disabled, are currently being carried out. In the next report please supply information concerning the progress of these programmes and of any other assistance projects received by the Government within the framework of the World Employment Programme and other ILO technical co-operation projects (point V of the report form).

6. Please supply details concerning the measures taken to regulate the intake of students into university within the framework of the co-ordination of education and training policies with employment prospects.

7. Article 3 of the Convention. The Committee noted that the Decree to have been issued under section 37 of Act No. 77-002 had not been enacted. Please describe the consultations held with representatives of employers' and workers' organisations and other persons concerned (such as rural populations or those in the informal sector) with regard to employment policy.

Observation (CEACR) - adopted 1990, published 77th ILC session (1990)

The Committee notes with regret that for the sixth year in succession the Government's report has not been received. In 1984, it made a direct request raising various issues concerning the application of the Convention. It notes that Madagascar is receiving technical assistance from the ILO in the promotion of employment, notably with a view to encouraging labour-intensive works and in the field of vocational training. The Committee hopes the Government will supply a full report for examination at its next session.