Direct Request (CEACR) - adopted 2018, published 108th ILC session (2019)

Employment Policy Convention, 1964 (No. 122) - China - Hong Kong Special Administrative Region (Ratification: 1997)

Articles 1 and 2 of the Convention. Employment trends and implementation of an active employment policy. The Committee notes the Government’s detailed report, including comprehensive statistics on employment and unemployment, disaggregated by sector, age and sex. It also notes the information provided on the role of non-governmental organizations in the provision of employment support services. The Government reports that the objectives of its economic policies are to consolidate the Hong Kong Special Administrative Region (HKSAR) pillar industries (trading and logistics, tourism, financial services and business and professional services), while nurturing emerging industries and those in which HKSAR has a comparative advantage, as well as exploring new areas for economic growth. The Government indicates that, while economic growth stagnated from 2014 to 2016, the labour market has remained largely stable, with overall unemployment rates between 3.3 and 3.4 per cent in 2014 and 2016. In the first quarter of 2017, the overall unemployment rate was 3.2 per cent (3.5 per cent for men and 2.8 per cent for women). The Government reports that the general rate of underemployment remained stable (1.6 per cent in 2014, 1.4 per cent in 2015 and 2016 and 1.2 per cent in the first quarter of 2017). Between the fourth quarter of 2014 and the first quarter of 2017, the number of employed persons increased slightly, from 3,772,600 to 3,822,400 in the first quarter of 2017. The Government attributes this increase in part to the introduction of the Statutory Minimum Wage in May 2011, as well as to pay rises introduced in 2013 and 2015, which encouraged persons to enter or return to the labour market. The Committee notes with interest the diverse range of active labour market measures implemented during the reporting period − including the Work Incentive Transport Subsidy Scheme, which helps low income workers reduce their costs in traveling to and from work, encouraging them to secure or stay in employment, the Talent-Wise Employment Charter and Inclusive Organizations Recruitment Scheme, as well as measures to facilitate access to the labour market for workers from outside the HKSAR. The Committee notes that the Low-income Working Family Allowance (LIFA) Scheme, has helped reduce the financial burdens of low-income working families, aiming to encourage self-reliance through employment. The Government indicates that, from May 2016 to May 2017, 55,522 applications for the allowance were received and amounts totalling 635 million Hong Kong dollars (HK) were approved. In addition, the Committee welcomes the Government’s continued focus on fostering lifelong learning and enhancing employability through pre-employment and in-service programmes that serve up to 250,000 students each year. The Committee requests the Government to continue to provide information, including statistical data disaggregated by sex and age, in relation to employment trends in all sectors of the economy. The Committee further requests the Government to provide information on the impact of the active labour market policies and programmes implemented, including those relevant to the integration of foreign workers into the local labour market. It also requests the Government to continue providing updated information on the measures implemented to promote life-long training and enhance employability, including updated information on the manner and extent to which the social partners and other concerned actors participate in the formulation, implementation, monitoring and review of employment policies and programmes, including vocational education and training programmes.

Employment services. The Committee notes the Government’s indication that the Labour Department (LD) received 3,987,362 job vacancies and secured a total of 452,160 placements during the reporting period, representing an increase of 16.3 per cent and a decline of 3.9 per cent respectively over the corresponding period 2011–14. The Committee also notes the LD’s use of synergies between its programmes, observing that, for example, since September 2014, the LD has been implementing the Employment Services Ambassador Programme for Ethnic Minorities, in which trainees of the Youth Employment and Training Programme (YETP) who can speak ethnic minority languages are employed as Employment Services Ambassadors at LD job centres or industry-based recruitment centres. As of May 2017, the LD had hired 94 trainees under the programme, which enhances its employment services to ethnic minority jobseekers, while simultaneously enhancing the employability of the young YETP graduates. The Committee invites the Government to continue providing information on the programmes offered by the employment services and their outcomes.

Young persons. The Committee notes that, during the reporting period, the overall unemployment rates of persons aged 15 to 19 and 20 to 29 years were significantly higher than the general unemployment rate. In 2014, unemployment was 11.8 per cent (14.5 per cent for men and 9.2 per cent for women) for persons in the 15 to 19 age bracket and 5.3 per cent (6.1 per cent for men and 4.7 per cent for women) for persons in the 20 to 29 age bracket. The Committee observes that these rates have remained stable, noting that, as of the first quarter of 2017, the overall unemployment rate for persons aged 15 to 19 was 11.7 per cent (13.1 per cent for men and 10.4 per cent for women) and 5.4 per cent for persons aged 20 to 29 years (6.6 per cent for men and 4.4 per cent for women). The Government reports that specific programmes have been implemented in 2014 and 2015, in collaboration with employers, with the objective of easing the transition of young persons from school to work. The YETP provides training and employment support to young school leavers aged 15 to 24 years with basic education or without degrees, and matches employers facing labour shortages with young jobseekers. The Committee also notes the Action S5 programme launched in 2010, provided on the job training opportunities to 466 young persons with low levels of education, emotional or behavioral needs or learning difficulties. The Action S5 programme ended in 2016 and was succeeded by the Career Kick-Start programme in 2017. The Government also refers to the Non-Means-Loan Schemes for tertiary and continuing education students, for which the amount of HK$1.58 billion was approved until 31 May 2017, as well as the Task Force on the Promotion of Vocational Education which made 27 recommendations as part of a three-pronged strategy. The Committee requests the Government to provide information on the results of the measures and programmes implemented to promote youth employment, especially in regard to young persons with special needs and in follow-up to the recommendation of the Task Force on Promotion of Vocational Education.

Other groups vulnerable to decent work deficits. The Committee notes the Labour Directorate’s multifaceted approach, which is implemented in collaboration with NGOs and aims to promote the employment of persons with disabilities. Under this approach, the Directorate provides a range of support services, ranging from specific counselling offers via sheltered workplaces, subsidized employment and specific on-the-job training for young persons with disabilities. The Government also reports on the provision of training courses for ethnic minorities, offered in six ethnic minority languages. Additional measures target other groups in vulnerable situations, such as ex-drug abusers, convicts, new arrivals to the HKSAR, as well as the continued provision of specific services for persons receiving social security benefits, for which 5,100 places in training courses were reserved between 2017 and 2018. The Committee requests the Government to continue to provide detailed information, including disaggregated statistical information, on measures taken to address the employment needs of groups vulnerable to decent work deficits as well as on the impact of such measures in achieving the objectives of the Convention.