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

Employment Policy Convention, 1964 (No. 122) - Türkiye (Ratification: 1977)

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

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

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

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

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

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

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

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