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

Employment Policy Convention, 1964 (No. 122) - Zambia (Ratification: 1979)

Articles 1 and 2 of the Convention. Active employment policy and poverty reduction strategy. In its previous comments, the Committee requested the Government to provide information on the impact of the different plans implemented in order to achieve full, productive and freely chosen employment, as well as information on the impact of the activities related to employment promotion carried out under the Zambia Decent Work Country Programme (ZDWCP). The Government reports on some of the major achievements of the ZDWCP, which include: preparation of the draft revised National Employment and Labour Market Policy, which is currently pending at the Cabinet approval stage; adoption of amendments to the National Pension Scheme Authority (NAPSA) and the Employment Act, to change the retirement age and prohibit the casualization of labour, respectively; the launch of the youth employment policy and action plan by the President; the preparation of a report on green jobs in the building industry; and increased awareness of workers’ rights among employers, particularly in the formal sector. The Government adds that the full implementation of the ZDWCP was hampered by challenges that included inadequate budgetary and technical resources, weak inter- and intra-institutional coordination and collaboration, weak monitoring and evaluation systems, and a weakened national economy. The Committee reiterates its request that the Government provide detailed information on the impact of the different plans implemented with the aim of achieving full, productive and freely chosen employment in Zambia. It also reiterates its request that the Government provide information on the impact of the activities relevant to the promotion of employment taken in the framework of the ZDWCP. In addition, noting the Government’s description of the challenges encountered in implementing the Decent Work Country Programme, the Committee invites the Government to indicate the manner in which these challenges are being addressed, with a view to enhancing results achieved under the Programme.

Labour market information. The Committee welcomes the detailed statistics derived from the 2017 Labour Force Survey (LFS) and supplied by the Government in response to its previous comments. The Government reports that in 2017, the economically active population of Zambia was estimated at 5,049,059 persons: 2,759,098 men (55 per cent) and 2,289,961 women (45 per cent). The Committee notes that three-quarters of employed persons – 75.9 per cent – were in the informal economy, while 24.1 per cent were in formal employment. It further notes that, according to the 2017 LFS results, the overall unemployment rate reached 41.2 per cent in 2017, a sharp increase compared with the 7.9 per cent unemployment rate of 2012 indicated in the Government’s 2015 report. The Government adds that unemployment rates are significantly higher among women (48.8 per cent) compared with men (34.8 per cent). The Committee further notes disparities in employment between urban and rural areas. In 2017, urban areas had a significantly higher unemployment rate than rural areas (50.8 per cent compared to 32.2 per cent, respectively). Regional disparities are also significant, ranging from the highest unemployment rate (67.4 per cent) in Western province to the lowest unemployment rate in Lusaka Province (29.1 per cent). The Committee requests the Government to continue to communicate updated statistical data, disaggregated by age, sex and region, as well as other relevant data concerning the size and distribution of the labour force, the extent of unemployment and underemployment in the country, as well as the size and distribution of the informal economy. The Committee further requests the Government to provide information on measures taken or envisaged to address the disparities in levels of employment among the provinces as well as between rural and urban areas. The Committee further requests the Government to provide detailed information on active labour market measures taken or envisaged to promote women’s access to the labour market, particularly to employment in the formal sector.

Sectoral development strategies. The Committee once again requests the Government to provide information on the impact of the measures taken to promote productive employment and improve the quantity and quality of employment opportunities in the rural, manufacturing, mining and other growth sectors. It also reiterates its previous request that the Government provide information on the involvement of representatives of persons working in the sectors in the development and implementation of sectoral policies and strategies.

Impact of HIV and AIDS workplace wellness policies. The Committee welcomes the information provided by the Government on the development and implementation of HIV and AIDS workplace wellness policies and their impact on employment generation. The Government reports that 1,956 labour inspections were conducted in Zambia in 2017. The inspections concerned 30,000 employees and showed that many of the enterprises inspected had an HIV workplace policy or programme in place that championed HIV and AIDS wellness. The Committee notes with interest that the inspections have shown a reduction in incidents of HIV-related employment discrimination. The Committee considers that such policies, particularly where they are aligned with the principles of the HIV and AIDS Recommendation, 2010 (No. 200), can effectively address non-discrimination, voluntary HIV testing, safe working environment, awareness and sensitization, and access to treatment. The Committee invites the Government to continue to provide information regarding the impact of HIV workplace policies and their contribution to employee well-being.

Education and vocational training. Youth employment. The Committee notes the Government’s indication that, according to the 2017 LFS, the unemployment rate among young persons stood at 48.6 per cent as of 2017, with higher rates of youth unemployment recorded in urban areas (56.8 per cent) than in rural areas (40.9 per cent). In its previous comments, the Committee requested the Government to supply disaggregated data on the number of young persons who had obtained lasting employment following their participation in training programmes. It further requested the Government to provide updated information on the measures taken, in consultation with the social partners, to enhance the education and training system with the aim of ensuring that education and training courses meet the demand on the labour market for skills in the various economic sectors. The Government reports that information on the number of young persons who obtained lasting employment following their participation in training programmes is not yet available, as the study intended to provide this information was not carried out due to resource limitations. The Committee notes the information supplied by the Government regarding the establishment in 2005 of the Technical Education, Vocational and Entrepreneurship Training Authority (TEVETA), which is tasked with the responsibility of developing a system of technical education, vocational and entrepreneurship training designed to satisfy the requirements of the labour market. The Government indicates that the new curricula developed has led to an increase in new skills, but that challenges remain in its implementation, including lack of infrastructure, machinery and equipment. According to the report, 11,364 young persons were enrolled in such training programmes in 2018. The Committee requests the Government to provide detailed information, including disaggregated statistical data, on the nature and extent of the activities undertaken by TEVETA and on their impact. It further requests the Government to continue to provide updated information on the measures taken, in consultation with the social partners and representatives of groups affected by such measures, to update and enhance the vocational education, guidance and training system in order to ensure that education and training courses are designed and delivered to meet the demand on the labour market for skills in the various economic sectors.

Promotion of micro, small and medium-sized enterprises. The Government reports that the Ministry of Commerce Trade and Industry (MCTI) has identified a number of business constraints and challenges which affect the ability of micro-, small and medium-sized enterprises (MSMEs) to develop their potential for economic development, equitable wealth distribution and poverty alleviation. These obstacles include: limited access to markets, lack of appropriate technology, machinery and equipment, as well as suitable business financing solutions and inadequate infrastructure, such as roads and telecommunication facilities. Additional limitations encountered by the MSME sector include limited technical and management skills, operating premises that are inadequate and unsuitable to facilitate enterprise growth, inadequate regulatory systems and excessive competition from the unregulated importation of cheap products. In response to these challenges, the Government developed an MSME Development Policy in consultation with stakeholders, which provides guidance on all activities and development efforts related to MSMEs. The MCTI, through the Zambia Development Agency, has developed programmes aimed at supporting the development of small and medium-sized enterprises (SMEs), focusing on three pillars: capacity, access and operating environments. MSME registration with the Zambia Development Agency guarantees access to programme support services. The Committee welcomes the information provided by the Government regarding the Skills Development and Entrepreneurship Project – Support to Women and Youth (SDEP–SWY), a project jointly financed by the African Development Bank and the Government, which supports job creation, gender equality and poverty reduction among women and youth through promoting skills development and entrepreneurship. The Committee requests the Government to continue to provide updated and detailed information on measures taken to support the establishment of MSMEs and on their results in terms of generating employment, including for specific groups, such as women and young persons. It further requests the Government to provide information on the content and impact of the MSME Development Policy, particularly information on measures taken to promote and support entrepreneurship among women, young persons and other groups in situations of vulnerability.