GB.271/6 - Governing Body

ILO is a specialized agency of the United Nations

GB.271/6 271st Session Geneva, March 1998

SIXTH ITEM ON THE AGENDA

Report and Conclusions of the Twelfth
Asian Regional Meeting

(Bangkok, 9-11 December 1997)

1. The Twelfth Asian Regional Meeting of the ILO was held in Bangkok, Thailand, from 9 to 11 December 1997.

2. The Meeting was attended by 212 delegates and advisers from 36 countries. These included 118 Government representatives, including 25 ministers, 36 Employer representatives and 58 Worker representatives. The Meeting was also attended by representatives of 11 intergovernmental and 9 non-governmental international organizations, and a liberation movement.

3. In accordance with the decision taken by the Governing Body at its 264th Session (November 1995), the Meeting had a single agenda item concerning ILO activities in the region.⁽¹⁾

4. The Conference unanimously elected as its Chairman Mr. Veerendra Kumar, Minister of Labour of India, and as its Vice-Chairmen Mr. Saleh Al-Khassawneh (Government delegate, Jordan), Mr. Bryan Noakes (Employer, Australia), and Mr. Sukesada Ito (Worker, Japan). Prior to the opening of the discussion in plenary, the Meeting heard addresses by the Secretary-General and by Mr. Veerendra Kumar. The Deputy Secretary-General replied to the plenary discussions at the close of the Meeting.

5. In his opening statement, the Secretary-General stressed that it was essential for the Organization to have the direction of the region's programmes and activities established during the present Meeting. While the preceding period of exceptionally high rates of economic growth had been accompanied by a reduction of poverty, strong employment growth and increasing real wages, the sudden onset of an economic crisis, if not quelled speedily, was likely to have a strong negative impact on employment and the welfare of workers. The social consequences of a sharp increase in unemployment could be catastrophic because of the weakness of existing systems of social protection in much of Asia. It would, therefore, be advisable to consider how social and labour policies could address these problems without relenting in the ongoing combat against forced and child labour. Full respect for freedom of association and the right to bargain collectively was an important bulwark against an excessive rise in inequality and a deterioration in labour standards, which called for a strong labour movement fully empowered to defend workers' interests through collective bargaining. Unfolding developments in Asia and other regions highlighted how important it was for the ILO to review and adapt its standard-setting activity to the new context of a globalized economy. The campaign to ratify core ILO labour standards had enjoyed considerable success so far. The question had arisen, however, of the means whereby those core rights could be applied until the universal ratification of the corresponding Conventions had been achieved in its entirety. One means could be the adoption of a solemn Declaration concerning fundamental principles and rights and its appropriate follow-up. At its 270th Session (November 1997), the Governing Body had decided to place on the agenda of the 86th Session (1998) of the International Labour Conference an additional item relating to the consideration of a possible ILO Declaration of principles concerning fundamental rights and its appropriate follow-up, and had expressed broad support for a process of consultation on a possible solemn Declaration to be pursued actively. The Secretary-General emphasized that the Office was ready to help ensure that the process of consultation took into account the views of ILO constituents from the various regions and groups. Finally, he referred to the region's broad desire for the provision of technical cooperation: the Office was ready to step up its activities within the framework of the Active Partnership Policy, aimed at the provision of rapid, high-quality advice and assistance; and it had strengthened its services through the multidisciplinary teams. The Asian Regional Meeting would be of great importance to ensure the continued relevance and usefulness of ILO action in a changing world.

6. Taking the Chair, Mr. Veerendra Kumar drew attention to information technology, trade liberalization, privatization and free global markets, which gave rise to perceptible changes in the nature of work, work organization, working procedures and the working environment. Anxieties and concerns were widespread due to high unemployment, debt and the progressive marginalization of the poor through falling real wages. There was jobless and rootless growth. Growing inequality in the distribution of income and wealth had become part and parcel of the process of globalization. The recently concluded trade negotiations had facilitated the flow of capital, technology and foreign direct investment, but had not facilitated the free movement of labour. The treatment of migrant workers needed to be coordinated and properly addressed from a humane angle. In the wake of the changes affecting the world of work, the State and the market together should endeavour to foster a climate of development-friendly industrial peace and harmony characterized by faster and peaceful creation of wealth and its equitable sharing by all sections of society. Workers' participation in management, from the shop-floor to the board level, stock options, profit-sharing and profitability, faster and judicious settlements of disputes, the prevention and adjudication of industrial disputes, and strengthening the process of enforcement of labour laws through reorientation and sensitization of the labour law enforcement machinery should be some of the broad features of this joint initiative of the State and the market to give a new shape to industrial relations policy. Furthermore, countries needed to concern themselves in a major way with skill formation and the upgrading of largely unskilled or semi-skilled workers so as to facilitate their entry to and absorption by the market. Countries equally had to ponder over the plight and predicament of retrenched workers, and of the implications of contractualization, casualization and the informalization of employment. The Meeting should reflect on realities in the social, economic and cultural environment of the region and the need to develop policies, programmes and strategies consistent with these realities. It was evident that, despite the creation of the World Trade Organization, a neo-protectionist trade policy emerging in several parts of the world now threatened to reduce the comparative advantages flowing from low labour costs. The ILO should promote labour standards in accordance with its Constitution and regard them as benchmarks for development, fully recognizing the difficulties inherent in their application and implementation for developing countries.

Discussion of the Report of the Director-General

7. Speaking on behalf of the Employers' group, Mr. Suzuki stated that many Asian countries now faced a financial crisis which had resulted in a slow-down in economic growth, increased unemployment and underemployment, and larger fiscal deficits. Countries in the region should strive for "excellent country" status, which required an optimum balance between economic policies concerned with economic growth, employment creation, stable prices and balance of payments. In addition, suitable social security and education and training policies were necessary. "Excellent country" status demanded transparency in policy formulation and the active involvement of employers' and workers' organizations. Effective workplace practices based on core values of trust, harmony and cooperation were important.

8. Speaking on behalf of the Workers' group, Mr. Ito highlighted the need for investment in human resources in the globalizing economy. Workers should be provided with education and training suited to the levels of economic and technical development of their countries if social exclusion was to be avoided. While human resource development took time and was costly, it was essential in the long term if poverty was to be eliminated. He pointed to the reluctance of countries to ratify the relevant safety and health Conventions and poor employer awareness of such matters. The establishment of safety and health committees at enterprise level could promote awareness of the need for measures to promote occupational safety and health. Turning to fundamental ILO Conventions, he noted the belief entertained by some Asian leaders that international conventions were rooted in Western culture, but urged that ILO core standards should be observed everywhere. He called on ILO constituents to promote their ratification in order to assure basic human rights, eliminate discrimination and promote the equitable distribution of the benefits of economic development.

9. The following is a summary of the essential points made during the plenary discussion and the subsequent exchange of views on the points for discussion suggested in the Report of the Director-General. The appendix contains the Conclusions adopted by the Meeting.

Recent economic developments and employment

10. A number of governments provided information on the economic, social, legislative and institutional achievements of their countries, highlighting the progress made over the years and pointing out the persistence of certain problems. Fears were expressed by several Government and Employer and Worker representatives that the currency and stock market crises which had afflicted most South-East and East Asian countries would increase unemployment and poverty, stretch their insufficient social protection systems and put a question mark over the recent trend towards the liberalization of trade and financial flows. However, there was a widespread conviction that, provided the necessary measures were taken to facilitate adjustments to changing conditions, Asia would continue to enjoy high rates of economic growth.

11. While the region had been successful in translating economic growth into employment, many speakers expressed concern that the benefits of economic growth had not been fairly shared. Employment promotion remained a high priority. Rural areas required particular attention and some participants emphasized labour-intensive rural development as a means of enabling rural populations to participate in the economic development process at the grass-roots level.

12. The structure of employment was said to be undergoing dramatic change. The downsizing of the public sector in transition economies in particular had highlighted the importance of the non-state sector and the informal sector in creating employment. Employers' delegates emphasized the role of the private sector in promoting employment, and urged that the involvement of employers' organizations in the process be encouraged.

13. Employment opportunities for disabled workers could be facilitated through tax concessions, appropriate workplace adaptations and other support measures. The success of these measures in securing employment for disabled jobseekers was an illustration of how appropriate policy support could promote the employment of disadvantaged groups in general.

14. Some speakers expressed concern that foreign investment in countries in the region did not necessarily lead to an increase in employment opportunities, particularly where high technology-intensive operations were involved.

15. Many delegates attached importance to the need for regional multilateral collaboration on employment issues, given the interdependence of the labour markets in different countries of the region. The ILO's role in promoting such collaboration was emphasized. Exchanges of experience with employment generation would help countries learn from one another and overcome the problems they faced.

16. Some speakers were concerned that, through the impact of globalization on international trade and labour relations, industrialized countries would increase their advantage over developing countries. There was also the feeling that, in the absence of standards, globalization would lead to the erosion of workers' rights and working conditions. For this reason several delegates called for the regulation of the global market through adherence to international labour standards, so that the adverse effects of globalization on workers' rights could be mitigated, social justice promoted and maintained, and economic development linked to social progress. By contrast, others emphasized the need for greater deregulation and greater support for private initiatives, so that employment could be promoted and sustained and the market slow-down arising from the current financial crisis arrested.

17. Systematic training and retraining at enterprise level supported by skill development funds were suggested as a way of addressing the job insecurity resulting from globalization and liberalization. Increased efforts to unionize workers would provide a means of additional protection in the face of deregulation.

18. Several speakers contrasted the free flow of goods and services with the continued restrictions on the international movement of labour, and called for a more liberal approach on migration.

Poverty

19. Many speakers highlighted the magnitude of poverty in the region and the need to distinguish between urban and rural poverty issues. Structural reform programmes, although resulting in higher macroeconomic growth, had exacerbated the problems of poverty and unemployment, and resulted in greater suffering for the poor and unemployed.

20. Delegates stressed that economic growth had not eliminated poverty and that direct policy measures were required if impoverished groups were to benefit. Some speakers referred to the need to find an appropriate balance between growth and equity considerations to ensure that the fruits of economic growth helped alleviate poverty. Speakers indicated that the current economic and financial crisis had negative implications for employment and poverty, but also created opportunities to formulate innovative social and economic policies for sustained and equitable development in the longer term.

21. Speakers suggested a range of policy initiatives to alleviate poverty, including improved economic planning and more investment in human resource development at both national and enterprise levels. Greater cooperation between governments and the social partners, respect for international labour standards, and increased competitiveness were regarded as important in addressing poverty. Stress was also placed on employment promotion through the creation of a favourable environment for investment. Many delegates stressed the need to generate economic growth and productive employment as the most important strategy for combating poverty, with growth objectives requiring the support of the three partners.

22. The ILO's technical cooperation activities in the region on poverty alleviation, improved livelihood and employment promotion were greatly appreciated, but delegates stressed the need for more assistance. Many speakers urged the ILO to make poverty alleviation the main focus of its activities in Asia and the Pacific, and to play a facilitating role in encouraging increased cooperation between countries in the region to promote employment and eliminate poverty.

Human resources development

23. Many speakers stressed the need for increased emphasis on investment in human resource development, which was seen as one of the more important policies for growth in the region, particularly in the present economic climate. It was proposed that the Meeting should recommend the closer integration of social and economic policies.

24. A general commitment was expressed to the continued public provision of education and training, although it was suggested that these systems had to improve both their quality and their relevance to the needs of the labour market. The view was also expressed that in the long term the training of nationals was more beneficial to countries than reliance on the use of foreign skilled workers. Universal access to primary education was seen as important in its own right, and in particular as the basis for further training. It was acknowledged, however, that this had not yet been achieved in many countries. In addition, it was felt that the highest priority should be given to human resource development policies designed to meet the needs of the most vulnerable groups, who were those most likely to be affected by the economic downturn in the region. Equal access to education and training opportunities for women were seen as particularly important.

25. Several delegates expressed concern about the potential negative impact of globalization. It was suggested that human resource policies should be developed to offset these effects as well as those of new technology, because unskilled workers suffered more as a result of these factors. Many participants also stressed the need for greater emphasis on the training of workers. Skills were seen as allowing workers greater independence in their choice of employment, while at the same time offering a degree of protection in tight labour markets: competition between countries should be on the basis of the quality of a country's skilled workers rather than wage levels. The importance of the participation of workers' and employers' organizations in the development of national human resource development policies and programmes was seen as being particularly important in matching skill development as closely as possible to the needs of the labour market. It was further stressed that the participation of the social partners was essential if member countries' competitive advantage was to be enhanced. Attention was drawn to the important role that employers played as the main source of continuing training for workers. The Workers' delegate of Singapore outlined an interesting initiative of the Singapore National Trades Union Congress, supported by the Government, to establish its Skills Redevelopment Programme. A key thrust of the programme was to provide skills training for workers at risk, such as older workers, low-skilled workers, and those who were or may become redundant. A number of speakers, in particular those from transition countries, highlighted the difficulties faced in reforming their training systems to cope with the problem of surplus workers while at the same time attempting to deal with the need for skilled workers in the emerging high-technology industries. Retraining was identified as being particularly important with the phased reduction of state-owned enterprises in several countries. A common theme was the need for a highly flexible and adaptable workforce to meet the challenges of new technology and increased competition due to the effects of globalization. The need for a closer linkage between education and training systems and the needs of the workplace underpinned many of the countries' presentations on human resource development.

26. Many participants reported that countries were constrained in their efforts to expand productivity and promote economic growth due to their weak infrastructure and facilities for human resource development. It was suggested that ILO technical assistance should be expanded in labour-related fields, and specifically in human resource development. An additional measure proposed was the sharing of resources and training facilities between member countries.

Industrial relations and tripartism

27. Speakers observed that the region continued to be characterized by the relative weakness of its employers' and workers' organizations. Many speakers called attention to the need to strengthen collective organization and collective bargaining for two reasons. First, while globalization had greatly expanded employment in the region, the gains had been accompanied by widening inequality and rising employment insecurity. Secondly, the recent economic downturn which had affected many countries in the region had posed the new challenges of job losses and inadequate employment and income protection. Several speakers noted that sustaining economic growth in an increasingly open world economy where domestic and foreign competition was intensifying, required social stability. Sound industrial relations and strong employers' and workers' organizations contributed to such stability.

28. The spread of democracy created an opportunity for building and strengthening tripartite relations: some speakers saw tripartism not only as the expression of the democratic right of participation in civil society, but as a tool both for reinforcing that right and for obtaining social consensus. Tripartism aided transparency in political decision-making: it was a means of institutionalizing the resolution of conflicts that might arise in a climate of slower growth and job loss, and facilitating understanding and acceptance of the requirements of structural adjustment. Several speakers felt that tripartism must now address a broader agenda than labour issues alone: policy coordination and consistency between different ministries was sought. The representative of the Government of Australia noted that, since the labour market was influenced by policy in various areas (such as macroeconomic policy, the industrial relations climate, skills, work and business incentives), the success of trade unions and employers' organizations in influencing policy depended on how broad a view they were capable of taking. Their own educational efforts had to be strengthened. Governments had the main role to play in encouraging tripartism. The ILO could assist the tripartite process through the dissemination of best practices, raising policy issues, or, indeed, as in Thailand, providing direct support to enhance tripartite relations.

29. It was widely recognized that there could be no tripartism without strong organizations of workers and employers. Several speakers highlighted the obstacles facing trade unions which, in many countries in the region, continued to experience barriers in law and practice to full freedom of association, collective organization, and collective bargaining. Some countries had sought to improve the climate for collective organization through amendments in their labour legislation. In other countries, however, the trend in law and practice placed increasing emphasis on the individual employment relationship and on direct, labour-management relations at the enterprise level. Widespread labour-market change, downsizing, and the growth of various forms of employment contract were also impediments to the organization of workers.

30. Several speakers pointed out that if trade unions and employers' organizations were to remain relevant and enlarge their membership, they had to improve the quality of their services and increase their appeal to existing and potential members.

31. There were also new needs to address, and new roles for the industrial relations actors to play. Speakers underscored the need for trade unions to become full partners in development strategies to create jobs, to build bridges to the informal sector, to encourage skill development, and to enhance the objective of improving enterprise competitiveness. These were in addition to more traditional roles such as safeguarding the protection of working people, for example, in the field of occupational safety and health. The enterprise level was perceived as the key focus of industrial relations: trade unions had a role to play in improving the quality of labour-management relations at the workplace. A regional dimension to Asian industrial relations could also be a possibility. This, however, would require an employers' organization at a corresponding level, which currently did not exist.

Workers' protection

32. Various speakers pointed to the poor record of Asian countries in occupational safety and health. Improvements could be achieved through better safety training, more effective inspection, the establishment of occupational safety and health committees in the workplace, and a more positive attitude to the ratification of ILO Conventions on the subject. There was also a call for an increase in ILO technical cooperation to enable governments to provide better guidance to employers. Given the close link between safety in the workplace and a healthy environment, these issues were of vital significance not only for workers but for the community as a whole. It was emphasized that safety and health was an area in which governments, employers and workers had a common interest; however, since governments and employers often cut corners in pursuit of short-term economic gain, more must be done to promote awareness of the concept that safety pays.

33. The ILO's efforts to eliminate child labour were widely commended and support was expressed for extending the coverage of the IPEC programme. A number of speakers stressed the close link between poverty and child labour: this issue could not be tackled in isolation from this wider problem, and income-generating activities should be an integral part of the IPEC programme. Failure to ensure that children received an education was in turn identified as a major cause of poverty. While a number of Government delegates announced that their countries had eliminated child labour, the problem was reported to be growing in others. In addressing the issue, several speakers stressed the need for economic growth to proceed hand in hand with protective measures and in particular with efforts to eliminate the most intolerable forms of child labour. Various delegates announced that their countries had recently ratified, or were in the process of ratifying, the Minimum Age Convention, 1973 (No. 138).

34. The scope and coverage of workers' protection gave rise to concern on a number of counts: the exclusion of workers in export processing zones, the disproportionate representation of women in groups not covered by labour legislation, the poor implementation of labour laws in certain countries, and the need to develop social protection for private sector workers in the economies in transition. The inadequacy of social protection became evident with the widespread retrenchment in countries which until recently had been registering strong employment growth. Deep concern was expressed about proposals that the State withdraw from the provision of social security: workers' organizations were opposed to the privatization of social security and defended the principles of solidarity and collective societal responsibility. The ILO had an important role to play in building and strengthening social security systems in the region, by advising on efficient administration, on the design of effective and financially viable schemes and on the extension of coverage to the rural and informal sectors.

35. Several speakers mentioned the economic benefits deriving from the international migration of workers -- for their home countries, for the countries of employment and for the workers themselves. This phenomenon had strengthened the ties between countries, yet there was still a lack of formal agreements between them and some dissatisfaction with the treatment of migrant workers.

International labour standards

36. The fact that the second day of the Meeting coincided with the 50th anniversary of the adoption of the Universal Declaration of Human Rights was noted by several speakers. Many referred to recent or pending ratifications of ILO Conventions, particularly of fundamental standards. Several speakers questioned the relevance to Asia's developing economies of certain existing or future Conventions, notably on contract labour, and insisted on greater flexibility in their design or application to take account of different levels of economic development, distinct cultures and systems. By contrast, a number of Worker representatives felt that there was often a gap between government pronouncements on labour standards and realities. Fundamental workers' rights were violated in a considerable number of countries and on board ships. Worker representatives appealed for the ratification and application of the ILO's core standards: the Organization's supervisory machinery should be strengthened to redress justified grievances.

37. Reference was made to deliberations in the ILO and the World Trade Organization on the social dimensions of international trade, and to recent interventions by the International Monetary Fund (IMF) in Asian countries. A number of Government, Employer and Worker representatives welcomed the fact that the ILO was now in the forefront of this international discussion. There were also Government representatives who spoke out against "social clauses" and the "labelling" of export goods. Employer representatives emphasized their strong opposition to any link between international labour standards and trade. Most speakers called on the ILO to help their economies to develop more rapidly to enable them to reach higher levels of social welfare quickly.

38. Reference was made to the Governing Body's decision of November 1997 to place on the agenda of the 1998 International Labour Conference an item relating to the consideration of a possible Declaration on principles concerning fundamental rights and its appropriate follow-up. Several Government and Employer speakers indicated their support for such a Declaration. Others voiced concern that political or legal obligations might flow from such a Declaration or from its follow-up mechanism, especially if this were to create an indirect link between international labour standards and trade. Many speakers insisted on the principle that ILO Members were only bound by commitments that they had accepted voluntarily.

Technical cooperation

39. Speakers from all subregions of Asia and from the Organization's three constituents commended the ILO for its technical cooperation activities and expressed the wish for more or better assistance in its various forms and in close consultation with governments, employers' and workers' organizations. The Active Partnership Policy (APP) in general and the establishment of multidisciplinary teams (MDTs) in particular were credited with notable achievements. But the exchange of relevant information and the sharing of best practices between countries and regions were seen as still underdeveloped. It was unfortunate and unacceptable that the APP and the MDTs were constrained by stagnant RBTC resources and declining extra-budgetary funds, notably in the case of UNDP. The ongoing evaluation of the APP by a Governing Body Working Party suggested that it was also hampered by procedural and other constraints that should be removed.

40. A number of speakers commented favourably on the ILO's enhanced relevance, effectiveness and efficiency, but noted that there was room for further improvement. The Government of the Islamic Republic of Iran requested the re-opening of the ILO Office in Teheran, the closure of which had inhibited technical cooperation activities. There was a widespread desire for a greater role to be played by the Regional Office for Asia and the Pacific, and for closer links between the Regional Office and constituents at the country level. The Regional Office for Asia and the Pacific, area offices and MDTs should be viewed as channels, not for the delivery of a "pre-packaged" message from ILO headquarters, but for recording and transmitting to headquarters the needs expressed by constituents. Lastly, there was a call for the region to be given a greater say in the affairs of the ILO.

* * *

41. The Governing Body may wish to request the Director-General --

(a) to draw the attention of the governments of member States in Asia and the Pacific and, through them, that of the national employers' and workers' organizations, to the conclusions concerning ILO activities in the region;

(b) to bear the conclusions in mind in executing ongoing programmes and in preparing future programme and budget proposals;

(i) to the governments of all member States and, through them, to the national employers' and workers' organizations;

(ii) to the international organizations concerned.

Geneva, 16 January 1998.

Appendix

Conclusions of the Twelfth Asian Regional Meeting

(Bangkok, 9-11 December 1997)

1. Asia is a vast, diverse and dynamic region, which encompasses the large majority of the world's population and which has a major role in the world economy. The ILO has an essential contribution to make to the economic and social development of Asia, and should vigorously pursue its opportunities to do so. ILO action in Asia should take into account the wide diversity of economic, social and cultural conditions that are found in the region.

2. Despite economic progress, two-thirds of the world's poor live in Asia. While some countries in the region have experienced a prolonged period of exceptionally high rates of economic growth resulting in reduced poverty, strong employment growth and increased real wages, serious unemployment and underemployment problems afflict many Asian countries.

3. The current financial crisis facing some countries in Asia has focused attention on problems of employment and poverty and has highlighted the importance of sound macroeconomic policies, good governance and transparency in financial markets. A strong ILO response is required to minimize the adverse effects of the crisis by giving technical cooperation and assistance. Immediate steps should focus on the training and redeployment of displaced workers and the protection of women, migrants and other groups which may be especially adversely affected. Employment should be promoted through sound enterprise development strategies, investment in human resources and a business environment which is conducive to sustained enterprise competitiveness in a rapidly changing global economy.

4. Tripartite discussion at the national level will assist in developing the framework for an appropriate response to the crisis. ILO offices and multidisciplinary advisory teams (MDTs) should make every effort to promote and support such discussions. The Employment Policy Convention, 1964 (No. 122) can be a firm basis for action in the field of employment, and its ratification should be encouraged on a priority basis. The standards now being developed on small enterprise development are also highly relevant. Ministries of labour and employment, in cooperation with ministries of rinance as well as with organizations of employers and workers, should be supported in their efforts to deal with both the economic and social impacts of the crisis, with special attention to influencing policy and mobilizing support of the International Monetary Fund, the World Bank and the Asian Development Bank.

5. The ILO should organize, as a matter of priority, a regional tripartite meeting on economic and social responses to the financial crisis. Preparations for the meeting should include an analysis of the impact on both the quantity and the quality of employment, and should cover means of tripartite influence on the major international financial institutions, carried out in cooperation with the institutions.

6. Poverty alleviation remains a major challenge for many Asian countries. Unemployment, underemployment and low returns to labour lead to poverty. The Asian experience suggests that the pace of poverty alleviation depends on the employment-intensity of growth. Macroeconomic policies therefore need to ensure that growth generates employment. National anti-poverty strategies, established in consultation with the social partners, should be an important feature of overall economic policies.

7. It is also important to ensure that when additional employment is generated, it is adequately remunerated and carries appropriate social protection. Considering that a large proportion of the poor in many countries in the region are in rural areas, special attention should be given to expanding rural employment opportunities, particularly through labour-intensive rural infrastructure development programmes so as to reduce pressures for migration to urban areas. The provisions of the Rural Workers' Organizations Convention, 1975 (No. 141) are of relevance in this regard.

8. New employment opportunities will largely depend on private enterprises, particularly small and medium-sized enterprises. It is important to help entrepreneurs to meet the challenges of globalization and competition through encouraging productivity improvement and training programmes to enhance managerial effectiveness. Such assistance should promote better access to technology, skills and infrastructure and stronger linkages between informal and formal sectors.

9. Labour migration is often associated with a number of undesirable features such as clandestine and illegal migration, unsatisfactory conditions of work and lack of protection for migrant workers. Policies are needed in both sending and receiving countries to deal effectively with the regulation of labour flows and protection of the rights of migrant workers.

10. Increased labour market flexibility should be accompanied by measures of protection and support such as effective employment services, a framework for skilling and reskilling, and appropriate social assistance.

11. Human resources development is a significant strategy for promoting economic growth in Asian countries. The labour market will need to be monitored closely in order to identify emerging skill requirements and to assess education, training and retraining needs. In many Asian countries, a large number of educated and uneducated unemployed coexist with a scarcity of workers with specific skills required by the labour market. The main focus should therefore be on enhancing the employability of workers, taking account of industry and enterprise needs.

12. In order to increase and improve the opportunities for acquiring occupational skills related to the introduction and adoption of new technology, governments and organizations of employers and workers should work together to develop education and training policies and improve all forms of vocational training.

13. Problems persist in the region in the application of the seven fundamental Conventions. There is a continuing need to respect fundamental rights. There has been progress in Asia as regards the ratification of core standards in response to the campaign launched by the Director-General in 1995 to achieve universal ratification of the seven fundamental Conventions. The campaign should continue and encourage each government to consider, together with workers' and employers' organizations, further possibilities for ratification.

14. Different views and concerns were expressed on the issue of a link between trade and investment and the observance of labour standards. These views and concerns are reflected in the report of the Meeting.

15. The decision of the Governing Body to place on the agenda of the 1998 International Labour Conference an additional item relating to the consideration of a possible ILO Declaration of principles concerning fundamental rights and its appropriate follow-up should enable full discussion of this important issue.

16. Sound industrial relations and workplace cooperation are important for improved enterprise performance and competitive advantage. Freedom of association and the right to collective bargaining are essential principles in industrial relations. The ratification and application of the Freedom of Association and Protection of the Right to Organise Convention, 1948 (No. 87) and the Right to Organise and Collective Bargaining Convention, 1949 (No. 98), should be promoted in this regard.

17. Multinational enterprises should play a leading role in the dissemination of best practice in industrial relations, in accordance with the ILO Tripartite Declaration on Multinational Enterprises and Social Policy.

18. Tripartite consultation remains an important element in successfully tackling the challenges of economic and social problems. The effectiveness of tripartite institutions depends on sound institutional arrangements and on the strength of the social partners.

19. It is particularly important to strengthen both workers' and employers' organizations so as to enable them to play fully their important and autonomous role together with governments. Governments have a major role to play in establishing minimum legal standards, in particular where bipartite arrangements are weak, and in fostering procedures whereby workers and employers can solve their own disputes. Ratification of the Tripartite Consultation (International Labour Standards) Convention, 1976 (No. 144) should have a higher priority, not least as a means to encourage tripartite machinery. Tripartite subregional and regional exchanges of views on labour and social issues also can strengthen tripartism while providing balanced guidance on policy questions.

20. An active commitment to tripartite cooperation, transparent policy formulation and effective implementation to achieve the objectives of workers' protection is essential not only during periods of growth but also, especially, in times of crisis, when rapid adjustment is expected of workers.

21. A large number of workers in Asia are killed, injured or suffer illness at work each year. Employers need to take steps, in cooperation with workers and their organizations, to improve performance in relation to occupational safety and health, while governments should facilitate these efforts, including through ensuring appropriate legislation and effective inspection. Particular consideration needs to be given to the potential for ratification of the Occupational Safety and Health Convention, 1981 (No. 155) by countries of the region.

22. There is an urgent need for effective action to achieve a balance between economic development and the achievement of environmental sustainability. Such action must be carefully designed and implemented so that there is no serious impact on employment opportunities and the potential for sustainable levels of economic growth. The ILO has an important role to play in the area of the environment to ensure that workers and employers are made aware of the consequences of their actions and what constitutes best practice.

23. Adequate systems of social protection in the region have economic as well as social benefits. The challenges facing the countries undergoing transition to a market economy, as well as those contending with new economic uncertainty, are especially acute. Efforts should be made to develop and wherever possible extend mechanisms for basic social protection to those sectors of the workforce that are currently unprotected.

24. Despite progress in some countries, Asia still has the largest population of child labour in the world and some of the most intolerable forms of child labour are practised in the region. Poverty remains one of the most important root causes of the problem and therefore needs to receive priority attention from the ILO. However, firm political commitment from all countries, together with the development of national policies and time-bound programmes of action, where they do not yet exist, are necessary to move towards the elimination of child labour. Countries should take appropriate action to remove children from the most intolerable forms of child labour and introduce compulsory and universal basic education where this has not yet been done.

25. Recent world summits and conferences, especially the Copenhagen Social Summit and the Beijing Conference on Women, have reaffirmed the ILO's pre-eminent role in promoting the quality as well as the quantity of employment. This must be followed up with intensive and effective ILO action to help its constituents to formulate and implement policies for full, freely chosen and productive employment.

26. The Active Partnership Policy (APP) and the establishment of MDTs have had a positive impact in Asia. Further measures to enhance implementation include --

strengthening relevance to constituents' needs;
defining clearly the roles, responsibilities and accountability of different organizational levels;
ensuring commitment to outcomes;
strengthening productivity;
ensuring availability of the necessary expertise in the region, including the filling of vacant posts;
further decentralizing ILO action.

Country objectives are a key element of the APP. They need to be prepared and implemented with active tripartite involvement in the member States concerned, to ensure that the different concerns of the ILO's constituents are properly reflected in the ILO's programme of work.

27. The ILO must be a truly active partner in helping countries to meet their priority needs. ILO assistance should be targeted especially at the least developed countries and the most vulnerable groups of workers, taking account of the large numbers in poverty who are outside formal employment. Employment promotion measures should include enterprise development, particularly in small and medium-sized enterprises, strengthened labour market information systems, effective employment services and human resources development. The ILO should strengthen its assistance to countries in implementing ratified ILO Conventions or considering ratification; special efforts should be made to address problems in relation to the core Conventions. The ILO should assist organizations of employers and workers in the exchange of experience and mutual support, with particular attention to the development of networks at regional level, the exchange of information on best practice, and the development or strengthening of regional and subregional organizations.

28. Renewed efforts should be devoted to expansion of the ILO's technical cooperation programme in Asia, with full tripartite participation in the design, implementation and evaluation of projects. Action on child labour, and specifically the ILO's International Programme on the Elimination of Child Labour, could be a model for concerted ILO action in relation to other concerns, notably women, occupational safety and health and small enterprise promotion. The problems of migrant workers and workers in export processing zones should also be addressed. New projects should concentrate on issues for which the ILO's tripartite structure and international labour standards give it a distinct comparative advantage, and should help to develop national capacities permitting ratification of standards as well as strengthening the capacities of employers' and workers' organizations. Governments and employers' and workers' organizations are prepared to work with donors on the development of convincing proposals and on high-quality implementation. The ILO's modest regular budget technical cooperation resources should be used to support core mandate activities, to develop and promote extra-budgetary technical cooperation and to strengthen ILO constituents.

29. ILO technical cooperation activities in favour of the Palestinian Authority and the Palestinian social partners have been of great value in promoting economic and social progress. It is of particular importance that they are maintained and intensified so as to improve the conditions of Palestinian workers and employers.

30. Discrimination on the basis of race, colour, sex, religion, political opinion, national extraction or social origin must be tackled decisively by governments, employers and workers alike. The current financial crisis should not be used as an excuse for discrimination. Special attention should be paid to the danger of discrimination against the most vulnerable groups of workers, and particularly those facing multiple grounds of discrimination. The ILO should continue its active promotion of the ratification and implementation of the Discrimination (Employment and Occupation) Convention, 1958 (No. 111) and expand its efforts in education to combat discrimination.

31. Urgent action is needed to assist ILO constituents in Asia in promoting the economic empowerment and social advancement of women. In addition, equality of opportunity and treatment for women workers should be promoted on the basis of relevant ILO standards. These efforts should include special attention to the problems faced by the disproportionately large number of women who are found among the most vulnerable and least protected groups of workers.

32. The work carried out by the ILO's International Programme on the Elimination of Child Labour should be supported and strengthened. Active involvement of employers' and workers' organizations is essential in the struggle against child labour. The Minimum Age Convention, 1973 (No. 138) should be widely ratified and the ILO should provide technical assistance and advice to assist ratification and application. A new ILO Convention which is being developed on the most intolerable forms of child labour should be a major contribution to further positive action.

33. Tripartite discussion at regional level is essential to the development of the ILO's programme, and with due regard to the cost implications, future Asian regional meetings should offer a longer period of discussion and full services to each of the three groups. Advance circulation of the views of ILO constituents can help to organize the work of the meeting more effectively. Between regional meetings, there should be means for tripartite input to the regional programme. This could take the form of tripartite meetings, advisory panels or tripartite evaluations. The Governing Body's Working Party on the Evaluation of the Active Partnership Policy provides an interesting example of a means of more direct programme guidance from the ILO's constituents.

34. The Twelfth Asian Regional Meeting has provided an opportunity for the ILO's constituents to discuss issues of special interest to Asia and to consider the effectiveness of ILO action in the region. The Meeting has demonstrated the importance of the ILO's commitment to field activities, and the relevance of regional and national-level action. The work of the ILO in the region requires reinforcement in ways described in these Conclusions, and adequate resources should be allocated for this purpose.

1. GB.264/PFA/9/3, GB.264/PFA/R.3 and GB.264/PFA/R.3(Add.).

Updated by VC. Approved by NdW. Last update: 26 January 2000.