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

Employment Policy Convention, 1964 (No. 122) - Rwanda (Ratification: 2010)

Article 1 of the Convention. Implementation of an active employment policy. In its previous comments, the Committee requested the Government to provide information on developments with respect to the implementation of the National Employment Policy. The Government indicates in its report that the National Employment Policy (NEP), 2007, was closely followed by the formulation of action plans for women and youth, two groups disproportionately affected by the problem of unemployment. The implementation of the 2007 NEP was followed by different programmes articulated under the Second Economic Development and Poverty Reduction Strategy (EDPRS2), including the National Employment Programme, to serve the following objectives: (i) to create sufficient jobs that are adequately remunerative and sustainable across the economy; (ii) to equip the workforce with vital skills for increased productivity that are needed in the private sector; and (iii) to provide a national framework for coordinating all employment-related initiatives and activities in the public and private sectors and civil society. A number of employment promotion initiatives were implemented during the reporting period under the National Employment Programme’s Action Plan 2014–15 in the areas of: skills development; entrepreneurship and business development; labour market interventions aimed at supporting the Public Works and Financial Services Scheme; and upgrading the current labour market information system (LMIS). The Government indicates that the 2007 NEP is currently being reviewed with the support of the ILO in order to align it with the objectives of the EDPRS2 which, among other things, calls for the creation of 200,000 off-farm jobs per year. With respect to the activities of the National Employment Agency, the Government indicates that the Kigali Employment Service Centre (KESC) was established to provide employment services, including matching jobseekers to prospective employers. Out of the first 714 jobseekers using the KESC, 320 jobseekers found employment and 55 obtained internships. The Committee requests the Government to continue to provide information on the measures taken to review and implement the National Employment Policy, and to provide a copy of the revised policy once it is adopted. The Committee further requests the Government to provide detailed information, including statistics, on progress made towards achieving the objectives set out in the National Employment Policy. It also requests the Government to provide further information on the activities of the National Employment Agency and the Kigali Employment Service Centre on the matters covered by the Convention, including on targeted measures aimed at promoting the employment of women.

Article 2. Collection and analysis of statistics. The Government indicates that the national unemployment rate in 2012 was 3.4 per cent, adding that unemployment is an urban phenomenon, with an unemployment rate in urban areas of 7.7 per cent in 2012, more than twice as high as the national unemployment rate and three times higher than the unemployment rate in rural areas (2.6 per cent). The unemployment rate for women in urban areas nationwide was more than twice that of men. The Committee notes the Government’s statement that unemployment is severe among young persons in the 18–35 age group, with 8.7 per cent unemployment in urban areas (reaching 12.7 per cent unemployment among young women). The Government indicates that, according to data for 2013–14, the unemployment rate for young persons with upper secondary level education was 9 per cent, reaching 13.5 per cent for university graduates. The Committee notes with interest that a diagnostic assessment of the LMIS was carried out and a roadmap developed, with the aim of upgrading the current system. Methodology is also being developed for undertaking a Labour Force Survey, including the design of analytical indicators, the creation of a representative sample for the survey and capacity building for LMIS teams. The Committee requests the Government to continue to provide updated information on the situation, level and trends of employment, unemployment and underemployment, disaggregated by age, areas of residence (urban and rural areas) and sex. It also requests the Government to provide information on progress made in relation to the collection and compilation of statistics through a Labour Force Survey, including information on the methodology developed for this purpose.

Coordination of education and training policies with employment. The Government indicates that the Workforce Development Authority carried out technical vocational education and training (TVET) activities, including the development of 33 competence-based curricula and training of 500 trainers. The Government adds that 30 TVET schools were built during the 2010–14 period and an additional 11 centres are under construction. The Committee notes that the number of students enrolled in TVET schools has increased from 51,773 in 2010 to 93,034 in 2014. The Committee also notes that the Government, in collaboration with the World Bank, initiated a Skills Development Fund (SDF), which provides grants to organizations (TVET providers, associations, cooperatives and companies) in all provinces of Rwanda. The Committee requests the Government to continue to provide information on the activities carried out by the Workforce Development Authority and their results in terms of coordination of education and vocational training measures with prospective employment opportunities. The Government is also requested to provide information on the impact of the various training and income-generating activities and funding programmes in Rwanda, including data, disaggregated by age and sex, on the number of women and men who have benefited from these programmes. The Committee also requests the Government to communicate additional information on the beneficiaries of the Skills Development Fund and employment-related results achieved.

Youth employment. The Committee notes the measures taken during the reporting period to promote youth employment. In this regard, the Government indicates that the National Employment Programme, introduced in 2014, supported 6,316 youth- and women-led businesses through access to financial products, including credit guarantees, grants, loans and equity, generating 22,632 jobs. With respect to employability and skills development, in one year of the National Employment Programme’s implementation, 7,219 young people were trained in short-term vocational training programmes and industrial-based training (where youth obtain on-the-job training). Moreover, a rehabilitation centre was established for youth street vendors to equip them with entrepreneurship and technical skills. After graduation they are helped to form cooperatives and provided with start-up toolkits to begin operating in Integrated Craft Production Centres (ICPCs). The Committee notes the information provided on the establishment of an innovation fund in the information, communications and technology (ICT) sector which aims to support youth projects. The Committee requests the Government to continue to provide information on the impact of the measures taken to tackle youth unemployment and to promote the long-term integration of young persons in the labour market, including through the establishment of cooperatives. It also requests the Government to provide information on targeted measures aimed at promoting the employment of young women as well as on the impact of these measures.

Informal economy. The Committee notes the detailed information provided by the Government on measures taken to facilitate the transition of workers from the informal to the formal economy, including the establishment of proximity business development advisory services, Community Processing Centres (CPCs) and ICPCs. The establishment of ICPCs was born out of the need to absorb the large numbers of underemployed youth, including young high school and university graduates, into the productive labour force by providing them with upgraded skills. The Government indicates that support is also being provided to disadvantaged groups, including person with disabilities, to acquire hands-on skills and obtain start-up equipment for self-employment. In the 2014–15 period, 874 people with disabilities benefitted from these services, which helped them to operate in the formal economy. The Committee requests the Government to continue to provide detailed information, including statistics, on the impact of the programmes and measures implemented to facilitate the transition of workers from the informal to the formal economy. In this respect, the Government may consider it useful to consult the Transition from the Informal to the Transition from the Informal to the Formal Economy Recommendation, 2015 (No. 204).

Article 3. Consultation with the social partners. The Committee notes the Government’s indication that the National Labour Council (NLC) is responsible for providing legislative and policy advice on labour matters and playing a role in the settlement of labour disputes. In addition, the NLC is responsible for: giving advice on bills and draft regulations concerning labour and social security; assisting in the application of laws and regulations; and identifying shortcomings in the field of labour legislation and to propose amendments. The NLC was consulted during the review of employment policies and programmes within the framework of the development and implementation of EDPRS2. The Government indicates that the development of the National Employment Programme was an outcome of stakeholders’ concerted efforts. The Committee requests the Government to provide information on the consultations held with the social partners, including within the National Labour Council, on the formulation, implementation and review of an active employment policy. It also requests the Government to provide information on the consultations held with the representatives of persons affected by the employment measures to be taken, such as those working in rural areas, women, young persons, persons with disabilities, and those working in the informal economy.