Employment Policy Convention, 1964 (No. 122) - Belgium (Ratification: 1969)

Direct Request (CEACR) - adopted 2022, published 111st ILC session (2023)

Article 1(2) of the Convention. Implementation of an active employment policy. Labour market trends. The Committee takes note of the information provided both by the Government and by the regions on the serious social and economic repercussions of the COVID-19 pandemic on the Belgian labour market. It notes the measures adopted by the Government to reduce the effects of the pandemic, including the temporary “Corona” unemployment regime, introduced for force majeure reasons, and the organization of teleworking. The Government reports on the pre-pandemic labour market indicators, which show positive trends in almost all areas, in the three regions and in all age groups. In this regard, the Committee notes with interest that the employment rate for women underwent the greatest change, with a narrowing of the employment rates between men and women, and an unemployment rate for women that was slightly lower than that for men. The Committee notes, moreover, that several measures were taken before the pandemic to boost employment and stimulate the labour market. These include the “Jobsdeal”, a panoply of 28 measures to promote employment, as well as the promulgation of two laws on social and fiscal matters (respectively, the Act of 7 April 2019 and the Act of 23 March 2019, amending the 1992 Income Tax Code). With regard to immigrant workers, the Government indicates that the Federal Public Service for Employment, Labour and Social Dialogue and the Centre for Equal Opportunities and Opposition to Racism (UNIA) have developed a continuous socio-economic monitoring system of the situation of persons on the labour market, the latest report of which, from 2019, shows that despite a slight improvement in the situation, the origin of immigrant workers continues to be one of the obstacles to the socio-occupational integration of foreign nationals. These obstacles were amplified during the health crisis, especially for young, unskilled immigrants. In this regard, the Committee notes the Eurostat statistical data from 2020 on employment rates for persons aged 20 to 64 years, disaggregated by nationality and region. It particularly notes that the employment rate for third-country nationals (from outside the EU27) was lower (40.1 per cent for Belgium in 2020) than for Belgian nationals (71.5 per cent) or for EU27 nationals (70.2 per cent). Regarding the long-term unemployed, the Government indicates that the 2019 positive trends were disrupted by the COVID-19 crisis in 2020. It adds that certain categories of workers, such as young persons, non-European immigrants and low-skilled individuals were the hardest hit by the crisis and that, since March 2020, the number of unemployed jobseekers has increased. Accordingly, the Committee notes that the unemployment rate (for those aged 15 to 64 years) increased from 5.4 per cent in 2019 to 6.6 per cent in March 2021, and the employment rate (for those aged 20 to 64 years) dropped from 70.5 per cent in 2019 to 68.5 per cent in 2021. The Government states that, despite a certain stability, the fundamental “classic” challenges which confront the Belgian labour market are still present and, in certain cases, have in fact increased. The Committee notes that major measures have been taken in the Walloon Region, the Flemish Region and the German-speaking Community to stimulate the labour market and boost employment. In this regard, the Committee notes the reform of the Assistance to Promote Employment (APE) programme (Aide à la Promotion de l’Emploi) by the Walloon Regional Government, which entered into force on 1 January 2022. In respect of cooperation with the social partners, the Government indicates that an annual conference on employment is going to be organized with the federated entities, the social partners and other interested parties, to draw up and assess specific action plans with the goal of increasing the employment rate to 80 per cent by 2030. The Committee requests the Government to continue to provide detailed and updated information, including statistical data, disaggregated by sex, age, economic sector and region, on the situation of the labour market, detailing the levels of employment, unemployment and underemployment. The Government is also requested to provide information on all response and recovery measures, taken in consultation with the social partners, and on the manner in which the measures taken have contributed to reducing the negative effect of the pandemic, especially in terms of opportunities for full, productive, freely chosen and sustainable employment, especially for the long-term unemployed and for migrant workers.

Youth employment. The Government reports the impact of COVID-19 on youth employment. It indicates that youth unemployment has risen again in the wake of the pandemic, after having fallen for several years. The Committee notes that the employment rate in Belgium for young people under the age of 25 years, which rose from 2018 (25 per cent) to 2019 (26.6 per cent), fell to 24.1 in 2020. The Committee notes, however, that the youth employment rate in the Walloon Region remained unchanged (19.1 per cent) between 2019 and 2020. The Government indicates that the precariousness of jobs held by young people has been accentuated, mainly because of their over-representation in the sectors most affected by the health crisis (catering, arts, entertainment and recreational activities). The Committee notes that, with the exception of the Walloon Region, the unemployment rate of young people under the age of 25 years in Belgium increased to 15.3 per cent in 2020. The Government indicates that the percentage of young people aged 18 to 24 years who have not graduated from upper secondary education and are no longer in education or training has been declining for several years. In 2020, the rate was 8.1 per cent, the lowest percentage in the last 20 years (9.8 per cent in the Walloon Region, 9.7 per cent in the Brussels-Capital Region and 6.7 per cent in the Flemish Region). The Committee notes in this regard that the NEET (not in employment, education or training) rate, which the Europe 2020 strategy aims to reduce to 8.2 per cent for young people aged 15 to 24 years, was 9.2 per cent in 2020 (7.3 per cent in the Flemish Region, 11.3 per cent in the Brussels-Capital Region and 11.7 per cent in the Walloon Region). With respect to employment promotion, the Government reports on the measures that have been taken to promote youth employment. These include the Starter Job Agreement, which consists of a work contract concluded as part of a back-to-work programme or a career transition programme between a young person and a public or private employer, and the Youth Guarantee proposed by the European Commission to combat youth unemployment in Europe, which from October 2020 commits European Union countries to guaranteeing every young person under 30 years of age employment, continuing education, an apprenticeship or a traineeship within four months of becoming unemployed or leaving education. The Government also reports on a number of schemes and programmes at the regional level to promote youth employment. In this regard, the Committee notes, in particular, the implementation of the employment schemes werkinleving voor jongeren, WIJ! (work experience programme for young people) and Dual Learning for young people in the Flemish Region, measures to promote youth employment, such as Aktif and EPU (Einstiegpraktikum (internship for transitioning into work)) in the German-speaking Community, and the programmes Impulsion – 25 ans (Drive to 25), Youth employment in the non-profit sector, the Youth Guarantee and the Starter Job Agreement, in the Walloon Region. It also notes that, in 2019, the Walloon Regional Government subsidized 375 Starter Job Agreement jobs (50.54 per cent of which were for women and 49.46 per cent for men) in 16 sectors of economic activity. The Committee requests the Government to continue to provide detailed and updated information on the impact of the measures taken to combat youth unemployment, particularly in the context of the post-pandemic recovery, as well as information, including statistics disaggregated by age and sex, on young people’s access to sustainable employment, including young people with disabilities, young immigrants and young people without educational qualifications or training. The Government is also requested to provide information on consultations with youth representatives at the federal and regional levels, including representatives of young immigrants and other vulnerable groups.

Education and training policies. The Government reports that the three Communities (French, Flemish and German-speaking) are pursuing large-scale reforms to improve educational performance. These reforms include improved curricula, a thorough review of teacher training (the Flemish Region), language measures and pathways for linguistic integration (the Flemish Region), measures to make the teaching profession more attractive, as well as greater job security for new teachers, new performance targets and a roadmap for compulsory schooling in the French Community, and the implementation of a “Gesamtvision” (overarching vision) in the German-speaking Community. The Government also indicates that, to improve the inclusiveness of education, the compulsory schooling age has been lowered and efforts have been pursued to offer education that is more adapted to the specific needs of pupils, in particular by relying more on dual forms of training. The Government also reports on specific training measures taken at regional level, notably in the German-speaking Community (training for jobseekers, individual training in enterprises and technical and vocational training), and in the Walloon Region, where the shortage of skilled labour is linked to the profile of candidates not meeting the requirements of enterprises. In this regard, the Government indicates that, as part of the fight against labour shortages, a memorandum of understanding was concluded in August 2018 between the sectors of economic activity and the training funds in the Walloon Region. This agreement is broken down into three robust measures: an optimized training and insertion plan, the introduction of a financial incentive (€350) for training in occupations with a shortage of workers, and the action to “crackdown on shortages”. The Committee notes that, as part of the action to “crackdown on shortages”, the Forem market analysis service for employment and training and its partners offer more than 150 courses for job seekers, with a view to combatting workforce issues in 125 critical functions (including 75 occupations experiencing shortages) identified in the Walloon Region. It also notes that as of the end of December 2020, Forem and the skills centres had received 79 requests for “crackdown on shortages” training. The Committee requests the Government to continue to provide detailed information on the impact of the reforms of the education system and on any measures taken or envisaged to ensure the coordination of education and vocational training policies with employment policies, and in particular to indicate how specific training opportunities are coordinated with the demand for skills and competencies in the labour market. The Government is also requested to provide information on any measures taken or envisaged to encourage groups of workers in vulnerable situations, such as migrant workers, workers with disabilities and older workers, and to optimize their professional skills.

Older workers. The Government indicates that as part of the Europe 2020 strategy, Belgium had set a target of 50 per cent employment among those aged 55 to 64 years. In this respect, measures have been taken to delay the effective retirement age and encourage the retention of workers. The Government also indicates that over the past 10 years, the employment rate of those over 55 years of age has been steadily increasing. The Committee notes that the target set under the Europe 2020 strategy was reached for the first time in 2018 and continued in 2020, despite the health crisis, with an employment rate of 53.3 per cent among people aged 55 to 64 years (55.7 per cent in Flanders, 48.8 per cent in Wallonia and 52.9 per cent in Brussels). The Committee notes that specific measures are being taken in the federated entities in favour of older workers. It also notes that in 2020 the gap between the employment rate of those aged 55 to 59 years (70.6 per cent) and that of those aged 60 to 64 years (34.3 per cent) remained significant. The Committee requests the Government to continue to provide information on the nature, scope and impact of active employment measures taken to reduce unemployment and increase the level of employment of older workers. It also requests the Government to provide information on specific measures taken or envisaged to address the needs of particular categories of older workers, such as workers aged 60 to 64 years.

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

Article 1(2) of the Convention. Implementation of an active employment policy. Labour market trends. The Committee notes with interest the statistics provided by the Government showing the positive trends in the Belgian labour market. The Government indicates in its report that employment rose by 1.3 per cent in 2016 and will increase again by 1.1 per cent in 2017, representing the net creation of 59,000 and 51,000 jobs, respectively. The Government adds that over the whole period 2017–20 the total number of jobs created was 257,000. It is also estimated that the number of unemployed will fall by 58,000 over the whole of the period 2016–17. The harmonized unemployment rate is forecast to fall from 8.5 per cent in 2015 to 7.6 per cent in 2017. The Government indicates that the factors contributing to this trend include the tax reforms (tax shift) and measures to help jobseekers through unemployment allowances. It is also due to the reduction of taxes on labour and wage moderation, which have improved the competitiveness of Belgian enterprises in terms of labour costs. In this regard, the Committee notes the adoption of the Act of 19 March 2017 amending the Act of 27 July 1996 on employment promotion and preventive measures to safeguard competitiveness, which are intended to ensure the external competitiveness of the Belgian economy. This Act introduces the possibility of the preventive adaptation of trends in wage costs to the expected trends in wage costs of its principal trading partners. The Act also contains provisions covering, among other matters, half-time early pensions, the recruitment plan to promote the hiring of jobseekers, part-time work, temporary work and the reduction of hours of work. The Government also refers to the measures adopted by the regions and communities in the context of the implementation of the Recommendation of 2016 of the Council of the European Union on the integration of the long-term unemployed into the labour market (2016/C 67/01), including the establishment of a financial incentive for employers hiring the long-term unemployed in Flanders and the strengthening of collaboration between the public employment services and local social services (CPAS) to offer them an individual plan of action in Wallonia. Measures to be developed in collaboration with the social partners are also envisaged to deal with cases of significant enterprise restructuring. The Government also recalls that, in the context of the Sixth Reform of the State, certain elements of the employment policy, such as controls of the availability of the unemployed and the policy focusing on target groups have been transferred to the regions and the German-speaking community. In this context, the Committee notes the new measures implemented by the Flemish authorities, the Walloon Region and the German-speaking community for the sustainable labour market integration of target groups, namely medium- and long-term jobseekers, young persons and immigrant workers. The Committee requests the Government to continue providing updated information on the active employment measures adopted and implemented, and on cooperation with the social partners in this respect, as well as on the impact of these measures in promoting opportunities for full, productive and sustainable employment. It also requests the Government to provide information on the impact of the new Act on employment promotion and preventive measures to safeguard competitiveness. It further requests the Government to indicate the results of the measures taken by the regions and communities for medium- and long-term jobseekers and immigrant workers.

Youth employment. In reply to the Committee’s previous comments, the Government provides information on the measures adopted in the various regions and communities within the framework of the European Union Youth Employment Initiative and Youth Guarantee. In Wallonia, new forms of assistance have been introduced for jobseekers under 25 years of age without work experience, including an integration contract for those who have been unemployed for over 18 months and a work allowance for three years for those with low or medium-level skills. In Flanders, employers who hire a young person under 25 years of age with low or medium-level skills may, for eight quarters, apply for a reduction of employers’ contributions of €1,150 and 1,000 a quarter, respectively. In the German-speaking community, young jobseekers have benefited from individualized action plans and various types of vocational training. With reference to the Brussels-Capital Region, the Government refers to the implementation of a youth guarantee in close collaboration with the social partners. With regard to youth employment trends, the Government indicates that the youth employment rate has fallen in the three regions, which may be explained by the prolongation of the period of inactivity among young persons under 25 years of age, and particularly longer periods of studies. The Committee also notes that, according to Eurostat data, the youth unemployment rate fell from 20.2 per cent in March 2016 to 18.2 per cent in March 2017. The Committee requests the Government to continue providing information, including statistics disaggregated by sex and age, on the impact of the measures adopted, in consultation with the social partners, to promote the sustainable employment of young persons.

Education and training policies. The Government recalls that, following the Sixth Reform of the State, education is the competence of the communities, while training is a community and regional responsibility. The Government indicates that the skills acquired do not always match labour market needs and that significant reforms were therefore introduced in 2016 in education and training, in close collaboration with the social partners, and particularly within the framework of the Pact for Employment and Training in Wallonia and Strategy 2025 in the Brussels-Capital Region. The Government adds that the communities have continued the development of dual training, particularly through the strengthening of the underlying structures, the increase in the number of internships available and the reduction in differences of status. The Committee also notes that the three regions are currently developing skills recognition measures, the validation of formal and informal learning, the promotion of further training opportunities and the certification of technical and vocational training. The Committee requests the Government to continue providing detailed information on the impact of the programmes and measures adopted in the fields of education and training and their links with future employment opportunities.

Older workers. The Government indicates that, in the framework of the Europe 2020 strategy, Belgium has undertaken to achieve by 2020 an employment rate of 50 per cent among persons between the ages of 55 and 64 years. The Committee notes that, according to the Labour Force Survey (EFT) of the General Directorate of Statistics of the Federal Public Service (SPF) for the Economy, the employment rate of persons over 55 years of age has continued to increase in recent years (from 34.5 per cent to 45.5 per cent). The Government indicates that these trends can be explained by legislative changes, the aging of the active population and the impact of the economic situation on the employment of older workers. The Government refers to a whole series of reforms that are being undertaken by the regions, such as the reduction of social contributions for the target group of older workers in all regions, the provision of an activation allowance for thirty months to jobseekers who have been unemployed for 12 months (the Brussels-Capital Region) and an employment bonus for employers who recruit workers over 50 years of age (the German-speaking community). The Committee requests the Government to continue providing information, including statistics disaggregated by sex, age and region, on the impact of the active labour market measures targeting older workers.

Direct Request (CEACR) - adopted 2014, published 104th ILC session (2015)

Further to its 2012 direct request, the Committee notes the Government’s report and the additional information provided by the National Labour Council (CNT), which was closely involved with the recovery strategy launched by the Government and which issued several opinions on employment policy.

Article 1 of the Convention. Implementation of an active employment policy. Labour market trends. The Committee notes the labour market measures implemented by the Government, particularly those aimed at shifting taxes away from labour, in order to promote economic recovery, stimulate growth and support business competitiveness. These measures were accompanied by increases in several categories of excise duty; the adoption of measures to increase tax efficiency; the reinforcement of degressivity in unemployment benefits; and the renewal of a cooperation agreement between the federal Government, regions and communities to ensure active support and follow-up for jobseekers. According to data from the Directorate-General of Statistics and Economic Information (DGSIE), in the second quarter of 2014, the unemployment rate rose to 8.3 per cent (1.3 percentage points higher than in the second quarter of 2013). In 2013, a total of 416,352 individuals were unemployed. The Committee also notes the projections made by the Federal Planning Bureau, based on further reductions in social security contributions and increased wage subsidies, in addition to the observation that, in 2013, the labour market had not yet benefited from the economic upturn seen in the second quarter of the year. The Committee invites the Government to provide an up-to-date analysis of its labour market policy objectives, the measures taken in response to the results achieved, and an evaluation of the practical effects on employment of the reduction in wage costs.

Article 1(2). Labour market policies. The Government indicates that within the framework of the sixth reform of the State, certain aspects of employment policy such as the monitoring of jobseeker availability, policy geared to target groups and placement will be transferred to the regions and communities. The Committee also notes the measures implemented by the Flemish Government, the Walloon region and the German-speaking community, in terms of the lasting integration of target groups (namely medium- and long-term jobseekers, young persons and immigrant workers) into the labour market. The Committee invites the Government to provide information as a basis for examining the impact of the measures adopted by the regional and community authorities in terms of the lasting integration of the target groups into the labour market.

Youth employment. The Committee notes that Belgium joined the European Union Youth Employment Initiative and that a Youth Guarantee Implementation Plan was submitted to the European Commission in December 2013. The Committee also notes that according to data from the DGSIE, in the second quarter of 2014, the unemployment rate for 15–24 year olds rose to 23.4 per cent. The Government indicates that an internship system was introduced by the federal authorities in 2013. Moreover, a reduction in wage costs amounting to €1,000 per month for 36 months is planned for the hiring of low-skilled young persons under 30 years of age who have been unemployed for six months. As regards the follow up of young jobseekers, the National Reform Programme 2014 refers to the commitment of the regions to provide an individual action plan by the fourth month of unemployment at the latest. In Flanders, young persons receive job offers as from the first month of unemployment. Furthermore, the employment service strives to offer all young people at least one type of assistance within four months. In Wallonia, young jobseekers can benefit, as from the seventh month of registration, from a new integration and vocational training scheme involving a three- to six-month internship with an employer. The German speaking community has developed an integrated path for young jobseekers, based on an integration agreement which must be signed before the end of the fourth month of unemployment, and which focuses specifically on young persons who are furthest away from the labour market. The Committee invites the Government to continue providing up-to-date information on youth employment trends, as well as an evaluation of the measures implemented with a view to minimizing the impact of unemployment on young persons and to promoting their lasting integration into the labour market.

Education and training policy. With regard to the dual training system, the CNT indicates that it issued a series of opinions on the recovery strategy introduced by the Government. The CNT insists on the fact that the Government should implement a high-quality competence-building instrument that ensures an optimal transition to the labour market for young persons and to ensure that the different systems are consistent and transparent. Moreover, the National Reform Programme 2014 reflects the initiatives implemented and demonstrates that, in terms of the transfer of competencies to be introduced on 1 July, it will be necessary to increase consistency between labour market policy and training policy. The Committee further notes that the three regions are developing an integrated training framework in the context of the European Qualifications Framework. The Committee invites the Government to continue providing up-to-date information on the measures adopted to coordinate education and training policies with employment, indicating their impact in terms of the long-term integration into the labour market of the most vulnerable categories of workers.

Older workers. Between 2012 and 2013, the rate of employment for persons aged over 55 years increased from 39.5 per cent to 41.7 per cent. The Government attributes this rise to previously adopted measures. The Committee also takes note of the reforms that were gradually implemented in 2014, particularly those concerning amendments to the conditions for early retirement and the increase of the minimum age for entitlement to unemployment benefits with company allowance (for struggling enterprises). The Government also refers to the measures introduced by the regional authorities in order to promote the employment of older workers, such as employment grants and awareness-raising measures implemented by the German-speaking community and the Flemish Government. The CNT mentions the conclusion of a collective labour agreement (CCT No. 104) relating to the implementation of a plan for the hiring of older workers in enterprises aimed at maintaining or increasing the number of older workers in employment. The Committee invites the Government to continue supplying detailed information on the situation, level and trends of employment for older workers, and to indicate the results achieved by the measures intended to increase their level of employment.

Direct Request (CEACR) - adopted 2012, published 102nd ILC session (2013)

Articles 1 and 2 of the Convention. Labour market trends and active employment policy. The Committee notes the information provided by the Government in reply to the points raised in its 2010 direct request. The data included in the report received in November 2011 show that the average number of unemployed jobseekers receiving benefits remained stable in 2009 and 2010, resulting in a slight decrease in the unemployed in 2011 (the national average was 463,945 unemployed in 2009, 469,629 unemployed in 2010 and, according to the available data, the number of unemployed was 435,723 in June 2011). The unemployment rate also fell slightly over the period under consideration (9.3 per cent in 2009 and 2010, falling to 7.6 per cent in June 2011). In the sectors affected by the recession, temporary unemployment measures for wage-earners contributed to preserving employment in around 43,300 permanent jobs (according to the OECD data provided by the Government). The Government refers to the reform of the unemployment benefit system intended to shorten waiting periods, the provision of more rapid support for jobseekers, the raising of the age (from 50 to 52 years) up to which jobseekers are subject to the follow-up procedure and a longer and more specific support procedure for jobseekers who are not immediately able to be integrated into the labour market. In the national reform programme submitted in April 2011, the Government identified the obstacles to the achievement of the employment objectives in the areas of labour costs, training and skills, the participation of certain target groups in the labour market and action to combat discrimination in employment. The Committee invites the Government to include in its next report an analysis of its labour market policy objectives and the measures taken, based on the results achieved. It hopes that the report will contain indications of the measures intended to raise the employment level of persons aged over 55 years and an evaluation of the effect on employment of the reduction of elements influencing labour costs. Please indicate the manner in which the reforms of the unemployment benefit system have contributed effectively to promoting the return to work of jobseekers.

Youth employment. The Government refers in its report to the subsidies introduced at the federal level to reduce wage costs for employers of “very young workers” (young persons recruited before their 19th birthday), young unemployed persons under 26 years of age without a secondary education diploma and low-wage workers (from 19 to 29 years of age). Over 34,000 young persons are reported to have found employment as a result of this measure up to January 2011. According to the data available to the ILO, the unemployment rate of young persons rose to 22.4 per cent in 2010 (around 96,000 young persons were unemployed, including 53,000 men and 43,000 women), while around 103,000 young persons were affected by unemployment in August 2011, with a fall in the number of men to 50,000 and an increase to 49,000 in the number of unemployed women. The Committee invites the Government to provide updated information on the employment trends for youth, as well as an evaluation of the active policy measures implemented with a view to minimizing the impact of unemployment on young persons and promoting their lasting integration into the labour market.

Article 1(2). Labour market policies. The report contains an overview of the employment initiatives taken by the Flemish Government and replies to the questions raised in the previous direct request. The Flemish Government calls for the development of an integrated vision of the labour market based on the strengthening of labour market activation policy, a reinforcement of skills and the stimulation of labour demand. Further to its recovery plan (“rebuilding confidence”), adopted in November 2008, the Flemish Government, in collaboration with the social partners, adopted the Employment and Investment Plan (WIP) in 2010. The Committee notes the measures intended to develop centres of excellence in collaboration with training institutions and strategic sectors. The Committee also notes the detailed information contained in the contribution provided by the Walloon region on the various measures to intervene in the labour market. The Walloon government expresses its intention of improving the system of assistance measures for employment promotion which have resulted in the employment of some 54,665 persons and concerned around 5,300 employers (according to the data available in June 2010). The vocational transition programme contributed to the return to employment in 2010 of around 5,800 workers with 700 employers. Individual support for jobseekers and the strengthening of the effectiveness of the public employment and training service are among the priorities of the Walloon government to improve the employment situation. The Committee also notes the principal future opportunities and the possibilities for specific action proposed by the German-speaking community to modernize employment policy instruments. In dialogue with the social partners, the placement of jobseekers has been improved through a reform of the Employment Office. A plan of action has been developed to improve the harmonization of employment and training measures. The Committee invites the Government to include indications in its next report to enable it to examine the impact in terms of the lasting integration on the labour market of the target groups through the measures adopted by the regional authorities for medium and long-term jobseekers, youth and immigrant workers.

Education and training policy. The Committee notes that, under the terms of the National Reform Plan of April 2011, the objective of investing 1.9 per cent of the wage mass of enterprises in the training of workers was not achieved. In 2009, enterprises devoted 1.59 per cent of their wage mass to worker training. Only 6.8 per cent of workers participated in training during a four-week reference period. In its previous direct request, the Committee observed that the social partners had been invited to prepare an analysis of the further training system and to make recommendations on the subject. The Committee once again invites the Government to provide updated information on the measures adopted to coordinate education and training policies with employment, and on their impact in terms of the long-term integration into the labour market of the most vulnerable categories of workers.

Direct Request (CEACR) - adopted 2010, published 100th ILC session (2011)

Labour market trends and active employment policy. The Committee notes the information provided by the Government in its report supplied in October 2009, in reply to the 2008 direct request, and the attached documentation. The Committee notes the Belgian National Reform Programme 2008–10, which includes among its priorities: the implementation of a global employment strategy and the strengthening of a strategy for the activation of jobseekers; and the continuation of a policy based on the reduction of the fiscal and parafiscal burden and the encouragement of entrepreneurship. According to the estimates of the National Employment Office, the number of jobseekers at the national level rose from 403,845 in 2008 to 434,120 in 2009. The Government indicates that unemployment reached a rate of 8.1 per cent in April 2009 although, under the impact of the global financial crisis, it could rise to 9.4 per cent in 2010. The Committee notes that regional disparities remain significant, with the unemployment rate being 17.2 per cent in Brussels, 10.5 per cent in Wallonia and 4.4 per cent in Flanders. According to the estimates of the Federal Planning Bureau, the employment rate in 2012 will be 69 per cent in Flanders, 59 per cent in Wallonia and 58 per cent in Brussels. In this respect, the Government indicates that the regional employment services have strengthened their collaboration with a view to reducing these regional disparities through, among other measures, the automatic exchange of information on job vacancies and training, bonuses for inter-regional mobility and linguistic bonuses. The Committee notes that, in the context of the crisis, the measures adopted have focused on maintaining employment, supporting and recycling those who have lost their jobs as a result of economic difficulties. The measures adopted include a federal action plan for SMEs and a plan for the active accompaniment and follow-up of the unemployed, covering unemployed persons under 50 years of age in receipt of benefits, combined with supervision of compliance with the criteria governing unemployment allowances. The Committee notes that, in view of the economic crisis and the need to rebuild confidence, an exceptional interoccupational agreement 2009–10 has been concluded between the social partners with a view to negotiations at the sectoral and enterprise levels. In addition to strengthening the purchasing power of workers, these agreements have also established employment measures, such as the simplification of recruitment plans, particularly for target groups, and the reduction of social contributions. The Committee also notes the contribution provided by the Flemish Government on the implementation of the Convention. The Flemish Government indicates that, due to the economic crisis, unemployment is rising steeply and that between June 2007 and June 2009 the number of unemployed jobseekers rose from 168,000 to 195,000. It adds that, with a view to addressing the crisis, in November 2008 it adopted a recovery plan (Rétablir la confiance/Herstel het vertrouwen) containing measures for vulnerable groups and, in particular, those who have been victims of restructuring. The Committee refers to its General Survey 2010 on employment instruments in which it emphasized that the employment Conventions and Recommendations taken together provide a framework which contributes to realize the human right to work and education for all, confronting and mitigating the effects of the global economic crisis and ensuring continuing and genuine tripartite consultations (General Survey, op. cit., paragraph 788). In this respect, the Committee hopes to be able to examine, in the next report, information on the effectiveness of the measures adopted to combat regional disparities and long-term unemployment. It also invites the Government to indicate the effect of the measures taken in the context of the National Reform Programme for the young unemployed and to maintain employment in sectors severely affected by the economic recession or by enterprise closures.

Article 1(2) of the Convention. Labour market policies. In reply to the 2008 direct request, the Government provided information on the integration of immigrants into the labour market, elderly workers and youth employment policies.

Integration of immigrants into the labour market. The Government indicates that since 2005 it has established a process of “labelling” enterprises which adopt a personnel management policy which favours diversity at the workplace. It adds that the project for intercultural exchanges has been undertaken in the framework of the integration of immigrants into the labour market with a view to developing solutions, proposals and recommendations for the promotion of an intercultural society. The Committee invites the Government to provide information on the results achieved as a result of the implementation of measures for foreign workers, such as the “labelling process”. Please indicate whether additional measures have been taken to overcome obstacles to the vocational integration of immigrants and to improve their situation in the labour market.

Older workers. According to estimates by the Employment Office, the number of jobseekers over 50 years of age rose from 94,395 in 2008 to 101,140 in 2009. In its contribution, the Flemish Government reports the implementation of measures to promote the integration of elderly workers, such as the agreement “All together for the 50+” (Ensemble sur la brèche pour les 50+/Samen op de bres voor 50+), establishing a new model for persons over the age of 50 and the 50+ employment bonus. The Committee invites the Government to continue providing information on the measures adopted to facilitate the integration of older workers and, particularly, those who have been affected by restructuring.

Youth employment. The Government indicates that youth unemployment is a very important problem, with an unemployment rate for 15–25-year-olds which reached 6.4 per cent in 2008, and that there is a very high risk of being dragged into long-term unemployment, particularly for the least skilled young persons. The Government reports several measures to remedy the problems of the transition between education and the labour market, including the establishment of the “first job” system, an apprenticeship contract and a system for the reduction of social contributions for employers. Intensive personalized support for young low- and medium-skilled jobseekers has also been introduced in Flanders and Wallonia. In its contribution, the Flemish Government indicates that it has implemented a youth employment plan intended to help them quickly obtain work in appropriate jobs in response to demand. The Decree of 10 July 2008 respecting the learning and employment system is targeted at young persons in alternate training and work experience programmes and lays the basis for full-time recruitment, in both its apprenticeship and employment components. The Committee notes the initiative by the Flemish Government “Skills agenda 2010”, the objective of which is to take action to link education and the world of work, particularly through work experience for students. The Committee hopes that the next report will contain data on the impact of the measures adopted, at both the national and regional levels, to combat youth unemployment, with particular reference to young persons leaving the school system without qualifications.

Education and training policy. According to the National Reform Programme 2008–10, measures to develop the supply of training are a response to the crisis. The development of skills related to trades has continued in various branches of teaching and vocational training. For example, in 2008, specialized centres of the employment services trained 101,359 persons in Wallonia (jobseekers, workers and students). The Committee observes the indication in the National Reform Programme that, although progress has been made in raising awareness of the importance of lifelong learning, and that substantial means have been allocated by enterprises, individuals and the public authorities, there is no overall training strategy in Belgium. The social partners were invited to develop a diagnosis of the further training system and to make recommendations on this subject. The Committee invites the Government to indicate in its next report whether the diagnosis of the further training system has been undertaken and the recommendations made by the social partners in this respect. The Committee also invites the Government to provide information on the measures adopted to coordinate education and training policies with employment, and their impact in terms of the long-term integration into the labour market of the most vulnerable categories of workers.

Direct Request (CEACR) - adopted 2008, published 98th ILC session (2009)

1. Article 1, paragraph 1, of the Convention. Labour market trends and active employment policy. The Committee notes the detailed information contained in the Government’s report for the period ending 31 May 2007, and the full documentation attached. It further notes the contribution of the Brussels-Capital Region and the Flemish Government to the implementation of the Convention. It notes that there are still significant labour market disparities between, and even within, regions with the employment rate in Flanders being 65 per cent in 2006, while it was only 56.1 per cent in Wallonia and 54.3 in Brussels. The employment rate rose from 61 per cent in 2006 to 61.5 per cent in 2007, but still remains lower than the European Union average, which is 64.4 per cent. The Federal Public Service for Employment, Labour and Social Dialogue considers that, despite this rise, the goal of 70 per cent by 2010, which Belgium set in the context of the European Employment Strategy, would appear to be particularly difficult to achieve. The cooperation agreement concluded in 2005 has made it possible to increase collaboration between the employment services of the regions and communities, principally through the mutual systematic exchange of job vacancies. It is planned to strengthen this systematic exchange of vacancies. The Committee, however, notes that the Higher Employment Council indicates in its report for 2007 that, in view of the significance of regional differences, further measures are required to stimulate mobility and that the mutual transmission of vacancies between regional employment services must be accompanied by a strengthening of collaboration between regional services in relation to training and the placement of jobseekers. The Committee invites the responsible authorities to specify in the next report the results achieved in facilitating balanced regional development of the labour market and the specific activities undertaken to promote full employment in underprivileged regions.

2. Article 1, paragraph 2. Employment market policies. The Committee notes that in Belgium the standardized OECD unemployment rate fell from 8.4 per cent in 2005 to 7.5 per cent in 2007, and that the employment rate for women has increased to 54 per cent in 2006. The recent fall in unemployment attributed, among other factors, to the scheme for the activation of attitudes to jobseeking introduced in 2006, has principally benefited Flanders and younger workers. The employment rate of young persons, nevertheless, remains relatively low and the obstacles to their vocational integration most frequently referred to are the inadequacy of their level of training or the mismatch between training and the needs of enterprises and the lack of professional experience. The Committee notes that this fall in unemployment does not, however, apply to older workers or the long-term unemployed. The employment rate of workers between the ages of 55 and 64 years was 32 per cent in 2006 (36.9 per cent in Brussels, 31.4 per cent in Flanders and 31.9 per cent in Wallonia), or 11 per cent lower than the European Union average (43.5 per cent), which is still well under the objective of 50 per cent set for 2010. The employment rate of foreigners is lower than that of the native population, with the gap being around 3 per cent for nationals of the European Union, but exceeding 27 per cent for persons originating from countries outside the European Union. The Committee notes that, according to the 2007 report of the Higher Employment Council, proactive measures are necessary to improve the integration of categories which are currently under-represented on the labour market, including the conclusion of diversity plans. The Committee notes that in the inter-occupational agreement “for an innovative economy and for employment” for 2007–08, concluded on 2 February 2007, the social partners call upon all sectors and all enterprises, in dialogue between employers and workers, to conclude agreements and take measures to facilitate greater diversity at the workplace, contributing among other objectives to strengthening the participation of workers with disabilities, persons with low educational levels and older workers in the labour market, and promoting equality of opportunity for women and men. The Committee requests the Government to provide specific information in its next report on the results achieved by the measures implemented to promote lasting employment for vulnerable categories of workers, such as women, young persons, older workers, ethnic minorities and workers with disabilities.

3. Education and training policies. The Committee notes the emphasis placed by the Higher Employment Council in its 2007 report on the importance of training as a determining factor in accessing employment and that it is, therefore, essential for enterprises to pursue and intensify their efforts in the field of vocational training. The Committee notes the measures adopted, particularly at the regional level, to encourage training for young persons and jobseekers, and the implementation of a system for the certification of acquired skills with a view to improving the matching of education and further training. In the inter-occupational agreement of 2 February 2007, the social partners confirmed their previous commitments in the field of training, and invited the sectors to give effect to them during the next cycle of sectoral bargaining. The Committee requests the Government to continue providing information on the results achieved in terms of labour market integration through the measures implemented in the context of education and training policies.

4. Article 2(a). Collection and analysis of employment data. The Committee notes that the Higher Employment Council in its 2007 report indicates that an overall view of the supply and demand of labour is necessary to carry out a precise evaluation of the labour market situation and that it hopes that the regional employment services and private actors in vocational integration will collaborate for the adoption of a common methodology with a view to the compilation in the near future of reliable statistics on the real number of vacancies in each region and throughout the country. The Committee requests the Government to provide information on the measures adopted at both the federal and the regional levels for the compilation and analysis of statistical data on employment as a basis for decisions relating to employment policy measures.

5. Article 2(a). General economic policies. In reply to the 2006 direct request, the Government refers to measures intended to promote the social economy (and particularly the system of service cheques for local jobs and services). The Committee hopes that the next report will contain other information on the measures established by the authorities responsible for promoting productive employment “within the framework of a coordinated economic and social policy”, with an indication of the results achieved through these measures.

6. Article 3. Participation of the social partners in the formulation and application of policies. In reply to the 2006 direct request, the Government indicates that, despite difficulties relating to concerted action, the joint statement of 27 March 2006 for “a more competitive economy for employment” and the inter-occupational agreement 2007–08 “for an innovative economy and for employment”, concluded on 2 February 2007, show that constructive inter-occupational dialogue remains possible. The Committee notes that, following the consensus achieved in the inter-occupational agreement of 2 February 2007, sectoral bargaining is under way. It notes the Government’s indication that this aspect of the contribution of the social partners to employment policy would appear to be essential, particularly to take into account the specific characteristics of the various branches, and at the enterprise level particularly in relation to further training, work organization, the reconciliation of work and private life, worker mobility and flexibility. The Committee would welcome receiving information and data on the results achieved, and on the problems encountered and lessons to be learned from the experience of the social partners concerning the implementation of the provisions of the Convention.

Direct Request (CEACR) - adopted 2006, published 96th ILC session (2007)

1. Labour market trends and active employment policy. The Committee notes the detailed information contained in the Government’s report for the period ending 31 May 2005, and the full documentation attached. It notes the slight increase in the employment rate (rising from 59.6 per cent in 2003 to 60.3 per cent in 2004), which remains low relative to the European average of 63.3 per cent, and the objective of 70 per cent by 2010 established by Belgium in the framework of the European Employment Strategy (EES). The Committee notes that the National Plan of Action for Employment (PAN) of September 2004 identified raising employment rates as one of its priorities and that the Government is committed to promoting the creation of 200,000 jobs by 2007 through measures to make employment more beneficial for workers and less burdensome for employers. Furthermore, the planned rise in economic growth up to 2 per cent should result in stabilization, or even a very slight increase in the employment rate of between 0.1 and 0.2 points, and a greater increase in the years to come. The Committee also notes the measures adopted by the Flemish and Walloon communities to increase employment. It hopes that the next report will contain information on the results achieved by these programmes at both the federal and regional levels as part of an active policy intended to promote full, productive and freely chosen employment (Article 1, paragraph 1, of the Convention).

2. Global and sectoral development policies. The Committee has noted the significant disparities on the Belgian labour market between and even within regions, with the employment rate in Flanders being 64 per cent in 2004, compared with 55.5 per cent in Wallonia and 55.4 per cent in Brussels. It notes that measures have been adopted to strengthen cooperation between regional employment services, and that the Higher Employment Council noted with satisfaction in 2005 that the various regional and community authorities had renewed and updated the cooperation agreement concerning the interregional mobility of jobseekers, which should contribute to developing the interregional exchange of job vacancies and strengthening cooperation in training activities. The Committee hopes that the next report will contain information on the results achieved by the measures adopted to achieve balanced regional development.

3. Employment market policies. The Committee notes that the standardized OECD unemployment rate stabilized at 7.9 per cent in 2003-04, although it rose slightly for women (increasing from 8.9 per cent in 2003 to 9.5 per cent in 2004). Youth unemployment, which is particularly high in Brussels (35.1 per cent in 2003) and in Wallonia (31.8 per cent in 2003), especially among low-skilled young persons, remains considerably higher than the general unemployment rate (20 per cent of the population between the ages of 15 and 24 years in 2004), and in this connection the “first job agreement” has been simplified to promote the hiring of young persons under 26 years of age. In reply to its direct request of 2004, the Government’s report enumerates the various measures adopted to raise the employment level of older workers, as their low employment rate, despite a rise of 4.9 points between 2001 and 2004, remains a matter of concern (30 per cent of the population aged 55-64 years in 2004, compared with 41 per cent at the European level). The Committee notes that, with a view to increasing the participation of older workers in the labour market, the minimum age for coverage by the unemployment system, which gives entitlement to unemployment benefit without the obligation to seek employment, was raised to 55 years in 2002 and 58 years in July 2004. The Committee also notes that, according to the economic study of Belgium undertaken by the OECD in 2005, it is not only indispensable to raise the employment rate of young persons and older workers, but also that of ethnic minorities, whose employment rate is half that of native Belgians, while their unemployment rate is three times as high. It notes that, in the context of the National Employment Conference of 2003, the various partners formulated plans of action intended to increase the participation of under-represented groups on the labour market, such as persons of foreign origin and persons with disabilities, through the establishment of awareness-raising campaigns and the intensification of controls to enforce compliance with the non-discrimination legislation. The Committee requests the Government to provide information on the measures adopted to promote the employment of vulnerable categories of workers, such as women, young persons, older workers, ethnic minorities and workers with disabilities, and on the results achieved in terms of lasting integration into the labour market (Article 1, paragraph 2).

4. Education and training policies. In reply to its 2004 direct request, the Government’s report indicates that, with a view to reducing long-term unemployment (unemployed for over one year), which rose once again in 2004 (49.6 per cent compared with 46.3 per cent in 2003), a new cooperation agreement has been signed between the federal State, the regions and communities establishing a new procedure to follow up the unemployed, which entered into force on 1 July 2004 and makes accompanying measures compulsory for the unemployed. The regions and communities will ensure that a new start is offered progressively to all young jobseekers before they have been unemployed for six months, and to all unemployed persons over 25 years of age before they complete 12 months of unemployment. In parallel, an examination has commenced of the cases of beneficiaries of unemployment allowances to ascertain that they are complying with the obligation to be seeking employment. The examination of the cases of all beneficiaries under 50 years of age should be completed during the course of 2007 and an assessment will be made of the findings. The Government’s report emphasizes the need to implement a policy of lifelong learning and refers in this respect to the latest interoccupational agreement of the social partners which envisages devoting 1.9 per cent of their wage mass to training with the objective of one worker out of two participating in training each year by 2010. It also refers to the action taken by the regions and communities to increase the supply of training and to develop a system for the certification of acquired skills, so that their value on the labour market can be recognized more effectively. The Committee requests the Government to continue providing information on the measures adopted in the context of education and training policies, and on their impact in terms of integration into the labour market.

5. General economic policies. The Committee notes the measures envisaged to promote the social economy, with the objective of the creation of 12,000 additional jobs for the social integration of workers from target groups over a period of four years. It also notes the conclusion by the Federal State and the regions in 2005 of a new cooperation agreement on the plural economy with a view to pursuing efforts in this respect and promoting the development of the social economy and the social responsibility of enterprises. The Committee requests the Government to keep it informed of the results achieved by these measures and to continue providing information on the manner in which the measures adopted for the promotion of employment lie within the framework of a “coordinated economic and social policy” (Article 2(a)).

6. Participation of the social partners in the formulation and application of policies. The Government’s report indicates that many of the challenges in the field of employment go beyond the fields of competence of the various authorities and require a common approach in which the social partners are also associated. In this respect, it adds that a substantive debate is currently being held with the social partners on the issue of the final stages of working life. The Committee notes that discussions with the social partners are also envisaged with a view to developing an overall strategy on active ageing and that a new interoccupational agreement is expected for the period 2005-06. It requests the Government to continue providing information on the manner in which the representatives of the persons affected are consulted in relation to employment policies (Article 3).

Direct Request (CEACR) - adopted 2004, published 93rd ILC session (2005)

1. The Committee notes the Government’s reports for the period ending May 2003. It has also had access to the national plan of action for employment of September 2004. The Committee notes that the period has been marked by an increase in unemployment, with an OECD standardized unemployment rate increasing from 6.7 per cent in 2001 to 7.3 per cent in 2002 and to 8.1 per cent in 2003. The unemployment rate of young persons below 25 years of age has increased significantly, from 14.3 per cent in 2001 to 20.1 per cent in 2003, while the share of long-term unemployment has decreased from 51.7 per cent of all unemployed in 2001 to 46.3 per cent in 2003.

2. Labour market policies. In order to enable an assessment of the effect given to the Convention, the Committee requests the Government to endeavour to submit a more focused presentation in which the principal labour market policy objectives and measures taken are analysed in light of the impact they may have had. The Government is also requested to submit information on measures taken to increase the employment rate of older persons over 55 years of age. Please submit all available evaluations of results obtained through the use of incentives designed to boost employment by reducing the non-wage labour costs. Please clarify how the unemployment benefits policy contributes to promoting the re-entry into employment of the beneficiaries. Please describe the measures taken to favour lifelong learning both of the unemployed and the employed.

3. General economic policies. The Committee also wishes to reiterate its interest in information on how measures taken to promote employment operate within a "framework of a coordinated economic and social policy" (Article 2, paragraph (a), of the Convention). It would appreciate it if the Government could indicate how the key elements of monetary and fiscal policies contribute to the employment objectives.

Direct Request (CEACR) - adopted 2001, published 90th ILC session (2002)

The Committee notes the information provided in the Government’s report and the supplementary information provided by the Walloon Region, as well as the draft law on the development of domestic services to promote employment.

1. Articles 1 and 2 of the Convention. The Government states that the economy grew by more than expected during the reporting period, particularly during the second half of 1999. Growth was due primarily to business investment, exports, and household spending. The number of employed people increased by 46,000 during 1998, 49,000 during 1999 and 51,000 during 2000. The participation rate for women increased from 41.2 per cent in 1990 to 44.4 per cent in 1998; but for men it decreased from 61.9 per cent to 59.9 per cent during the same period. Part-time work as a percentage of total employment for women grew from 20 per cent to 32 per cent in the decade to 1998. The number of long-term unemployed also has gone down. In the Walloon Region, the number of employed people increased by 23,200 from 1996 to 1998, and the number of unemployed decreased by 4,300. Three-quarters of the new jobs created were in the private sector.

2. The Government states that it is moving from passive to active labour market measures. The Government indicates that linking unemployment benefits to active measures has resulted in the creation of 11,800 posts, mainly in health and domestic services (house cleaning, childcare, etc.), and it has expanded its active programmes. The Government also aims to increase the participation rate of older workers, through raising the minimum age for retirement for a full pension to 58 and making part-time work more attractive. To stimulate labour demand, it is reducing social contributions of employers. The Government aims to increase access to independent professions with independent internships and assistance in setting up a business. It is encouraging the voluntary establishment of a four-day working week, within the capacity of the enterprise and without prejudice to the salary of the worker. The Committee requests that the Government send any information it may have on the numbers and types of workers availing themselves of this four-day working week option. The Committee notes this information and would appreciate being kept informed of the impact of these measures on employment promotion. Please also continue to provide information on how employment policies and programmes are kept under review within a coordinated framework of economic and social policy.

Observation (CEACR) - adopted 1999, published 88th ILC session (2000)

The Committee notes the detailed information contained in the Government's report for the period ending May 1998. The Government states that the employment rate has increased from 54.7 per cent in 1990 to around 57 per cent in 1997, mainly due to an increase in employment of women in part-time work. It explains that the rate remains below the European average because the post-secondary education rate remains above the average, and the retirement age is lower. The participation rate was 58.6 per cent in 1990 but has increased to 62.8 per cent in 1996, again mainly due to the increase in women entering the workforce. Although this is below the European average, the Government points out that the growth rate is above average. As of 1996, 15.4 per cent of workers were self-employed, and 14.7 per cent were in part-time employment in 1997. The unemployment rate decreased slightly from 10 per cent in 1994 to 9.2 per cent in 1997. According to Eurostat, unemployment was at 9 per cent as of May 1999.

The Committee notes both the areas of improvement and those where problems linger, particularly concerning long-term and youth unemployment, and notes the various programmes, both federal and community-level, aimed at solving the problems. It would appreciate being kept informed of the Government's progress in tackling these issues. It also notes the detailed information supplied by the Government on the manner in which the policies are reviewed within a framework of coordinated economic and social policy, as requested in Articles 1 and 2 of the Convention, and would appreciate it if the Government would continue to do so.

The Committee notes that, according to the OECD country report for Belgium, women comprise over 80 per cent of part-time workers, and approximately 25 per cent of women work part time involuntarily. The Committee would appreciate receiving further information on the Government's policy pertaining to part-time work in general, and measures taken to ensure that such work is accepted voluntarily, as requested in the report form under Article 1 of the Convention pertaining to underemployment.

Observation (CEACR) - adopted 1997, published 86th ILC session (1998)

1. The Committee took note of the Government's report for the period ending June 1996. The data provided by the Government, which confirm those published by the OECD, demonstrate the persistent nature of a worrying employment situation owing to the continuing high level of unemployment and the characteristics of its distribution. The modest increase in employment growth in 1995 and 1996 was not sufficient to compensate for the previous reduction and, despite the slight improvement in the situation of the active population, the unemployment rate was still 12.4 per cent in 1996. Regional disparities were maintained with the unemployment rate remaining stable in Wallonia, while in Flanders, where the situation was already more favourable, it decreased. Although they continue to occupy an ever-decreasing share of the active population, young people under the age of 25 continue to be subject to an unemployment rate of over 20 per cent. Long-term unemployment represents more than 60 per cent of all unemployment, and this proportion is among the highest in western Europe.

2. In its report, the Government explains the main policies incorporated in the multi-year employment plan adopted in October 1995, which relate to the reduction in labour costs in order to promote the employment of least skilled workers, the incentive to distribute the jobs available by extending entitlement to a career break and the encouragement of part-time work, a new mechanism for the labour market integration of young people and the search for new sources of employment in the non-commercial services sector. The Committee also notes the provisions of the Inter-Professional Agreement relating to the promotion of the recruitment of young people or the long-term unemployed and to pre-retirement schemes. With reference to its previous observation, the Committee hopes that the Government's next report will contain an initial assessment allowing the effectiveness of the different programmes implemented to be evaluated. In addition, the Committee notes the importance assumed by measures designed to redistribute existing employment or to encourage early retirement from the labour market, in a context where activity rates are already relatively low. The Committee invites the Government to specify the manner in which it envisages the development of such measures in relation to the fundamental aims of the Convention. Finally, the Committee would be grateful if the Government would provide more detailed information on its education and training policy with a view to making workers more employable.

3. The Committee notes that the Government refers, without providing any details, to other aspects of the economic and social policies affecting employment policy, such as the review of the Act relating to competitiveness, entry into European monetary union or the financing of social security. With reference to the requests which it has made in each of its observations over many years, the Committee trusts that in its next report the Government will provide the information required in the report form on the manner in which the main policies are pursued, and in particular monetary and budgetary policies, contribute, "within the framework of a coordinated economic and social policy", to the promotion of full, productive and freely chosen employment, in accordance with Articles 1 and 2 of the Convention. Explanations by the Government of the different aspects of employment policy, as it is defined in the Convention, would be all the more useful since the labour market policy measures which it describes do not in themselves appear to have enabled it to make significant progress in the fight against unemployment.

Observation (CEACR) - adopted 1995, published 83rd ILC session (1996)

1. The Committee notes the Government's report for the period ending June 1994. The Government indicates in the report that the economic recession in 1993 resulted in a heavy decline in employment and a new rise in the unemployment rate, which reached 11.9 per cent in 1993 and 12.6 per cent in 1994. However, it states that the recovery of growth should lead to a flattening out of the unemployment rate, which would appear to be confirmed by the most recent OECD estimates, which point to an unemployment rate of 12.4 per cent in 1995. Among the structural characteristics of unemployment, which the Government considers still to be a matter of concern, the Committee notes the substantial rise in the unemployment rate for young persons, the persistence of broad regional disparities and the continued substantial rise in long-term unemployment. Another picture of the labour market situation is given by the estimate of a broad definition of unemployment (including the persons covered by special programmes) which the OECD considers to be around one-quarter of the active population.

2. As in its previous reports, the Government describes in detail all the labour market policy measures implemented to encourage employers to offer new jobs through measures to reduce social contributions for the recruitment of a first employee, a young person or a worker affected by long-term unemployment; to encourage withdrawals from the labour market through an early pensions scheme; and to achieve a better balance between the supply and demand for labour by promoting a redistribution of work negotiated at the enterprise level and through career breaks. The Committee would be grateful if the Government would supplement this information by an evaluation of each of these measures in order to make it possible to assess their impact on the employment of the persons affected, as well as on the overall employment situation. The Committee also notes that the 1978 Act respecting contracts of employment has been amended to authorize on a temporary basis the conclusion of consecutive fixed-term contracts. It requests the Government to indicate the measures which have been taken or are envisaged to ensure that this measure has the effect of creating new jobs, rather than making existing jobs more precarious. More generally, it would be grateful if the Government would indicate, in the light of recent experience, whether the implementation of the various measures to eliminate or reduce a number of rigidities on the labour market has made it possible to increase the employment potential of growth.

3. The Government also refers to the conclusion of the inter-occupational agreement for 1993-94, which provides that the social partners have to take into account in their negotiations the effects of wage costs on competitiveness and employment. It also describes the major strategies of the overall plan for employment, competitiveness and the social security adopted in November 1993, which is designed to encourage the distribution of work, promote employment for young persons and reduce the cost of labour. The Government considers that the high cost of labour is a barrier to employment and that this barrier can be reduced through the financing of social security, by making it more favourable to employment generation. The Government's description of the various measures which have been adopted or are envisaged sheds light on the link that it is seeking to establish between labour market reform, the reform of the social security system and employment policy. The Committee notes that these questions were covered by standards adopted in 1988 (the Employment Promotion and Protection Against Unemployment Convention (No. 168) and Recommendation (No. 176)) which may, where appropriate, be a source of inspiration for the formulation of policies in these fields.

4. With reference to its previous observations, the Committee once again requests the Government to provide the information required by the report form on the measures adopted in fields such as monetary and budgetary policies. It would be grateful if the Government would indicate the manner in which it endeavours to ensure that their impact on employment is taken into account and that employment policy measures are decided upon and kept under review within the framework of a "coordinated economic and social policy", with a view to achieving the objectives set out in Article 1 of the Convention. The Committee notes that the Government considers it imperative to pursue an active employment policy which makes it possible to attain the objective of full employment in so far as possible. This policy should be the means of implementing the constitutional obligation newly introduced into statutory law by the adoption of the Act of 31 January 1994 to amend the Constitution, which now includes "the right to work and to the free choice of professional activity within the framework of a general employment policy" among the "economic, social and cultural rights" which form part of the right of every person to "lead a life worthy of human dignity".

Observation (CEACR) - adopted 1994, published 81st ILC session (1994)

1. The Committee notes the Government's documented report for the period ending June 1992. In its report, the Government states that, in a situation which is characterized by lower economic growth, the employment situation has deteriorated rapidly. Despite a very slight increase in the active population, the unemployment rate, which was 9.7 per cent in 1990, rose to 10.3 per cent in 1991. The rise was more rapid in 1992, and it reached 11.7 per cent in July 1992. The Government had hoped to be able to stabilize unemployment in 1993, but supplied additional information in January 1994 to confirm the acceleration in the rise in the number of jobseekers (the unemployment rate rose to 12.2 per cent in June 1993). Furthermore, the characteristics governing the distribution of unemployment in the various regions and categories of the population which the Committee had noted in its previous comments have persisted. In particular, the proportion of long-term unemployment is especially significant. According to the Government, nearly 50 per cent of the unemployed have been without employment for more than two years.

2. The Government states in its report that it is less the level than the structure of unemployment which is a matter of concern, and that particular attention is being paid to training and reintegrating the long-term unemployed. With reference to the conclusion in November 1990 of the inter-occupational agreement for the period 1991-92, it notes that the parties to the agreement stated that they were in favour of overall measures to combat unemployment, rather than isolated activities for specific categories. In the framework of this agreement, the concept of high-risk categories was extended and training and employment measures took the form of both new initiatives and the renewal of the measures taken under the previous inter-occupational agreement.

3. In this respect, the report gives a detailed and updated description of each of the measures adopted to increase job offers and decrease the demand for employment, to which the Government referred in its previous reports. The Committee would have preferred this description to be supplemented, in addition to the provision of gross data on the number of beneficiaries, by an evaluation of the overall and lasting effect of these measures on employment and it believes that it can discern a trend for a decline in the number of beneficiaries of measures to find work for the unemployed (including vocational integration courses for young persons and measures known as "the third work circuit"), as well as an increase in the number of beneficiaries of incentives to withdraw temporarily from the labour market (career breaks). It would be grateful if the Government would indicate whether these trends are a result of a modification in the measures adopted in the context of its labour market policy. The Committee notes the importance of measures which have the effect of decreasing the demand for jobs, in a context in which activity rates are already relatively low and, more generally, the emphasis which is placed on social measures for the unemployed, in a context in which maintaining the level of competitiveness of the economy appears to be vital.

4. The Committee notes that by placing emphasis on describing the measures adopted in the context of labour market policies, the Government's report does not permit a full evaluation to be made of the effect given to the Convention. It recalls in this respect that the scope of an "active" employment policy in the sense set out in the Convention goes beyond the adoption of measures to seek a balance between the supply of jobs and demand on the labour market, and that it has to be pursued "as a major goal", "within the framework of a coordinated economic and social policy". With reference in particular to the questions contained in the report form, the Committee would be grateful if the Government would state in its next report the manner in which the principal measures taken in fields such as fiscal and monetary policies, prices, incomes and wages policies, and measures related to social security, contribute to the pursuance of the objective of "full, productive and freely chosen employment".

Observation (CEACR) - adopted 1992, published 79th ILC session (1992)

1. The Committee has taken note of the Government's two successive reports dealing with the period ending June 1990 and of the attached documentation. As usual the Government has supplied an exhaustive collection of information dealing with various aspects of its economic policy and in particular with employment policy measures.

2. The Committee notes that the trend towards an improvement in the general employment situation to which it drew attention in its previous comments was confirmed in the course of the period under review. The high growth rate of economic activity made it possible for employment to grow steadily and for the unemployment rate to continue to decline; according to the OECD standardised rates, the unemployment rate was 7.9 per cent in 1990. The Committee notes in particular the significant reduction in the unemployment rate among young people. It nevertheless observes that serious structural problems persist. There are still substantial regional disparities in the situation and trends of employment and unemployment: the decrease in unemployment essentially benefits Flanders, where the unemployment rate is half that in Wallonia. Long-term unemployment continues to account for nearly two-thirds of total unemployment and affects older workers, women and the least-skilled in particular. The decline in unemployment among men is greater than that in unemployment among women, which is tending to increase in relative terms. Furthermore the combination, in a context of growing economic activity, of a decline in unemployment and a heavy increase in the number of unfilled job vacancies is a sign of imbalance between the structures of supply and demand on the labour market.

3. The Government gives details in its report of the various measures designed to bring the labour market into balance, paying particular attention to the problem of structural unemployment. In essentials those measures aim, in the first place, to increase the supply of employment, especially for the benefit of young people and the long-term unemployed, through programmes of financial incentives for recruitment or temporary assignment to tasks in the public interest; in the second place they aim to reduce the demand for employment by reducing the length of economically active life through a system of early retirement, by encouraging flexible working time, by promoting leaves of absence; or again by increasing the duration of compulsory schooling.

4. The Committee notes that the social partners, in adopting the inter-occupational agreement for the period 1989-90, agreed to give priority, in making allocations from the Employment Fund, to the training and integration of young people and jobseekers who experienced particular difficulty in fitting into the labour market. It observes, however, that, according to the Government, special employment programmes (unemployed persons put to work, special setting for work, third work circuit, traineeships for young people) have made only a limited contribution to the reduction of unemployment, which is mainly due to the combined effects of improving economic activity and declining population trends. With reference to measures which affect the flexibility of labour, the Government states that it is impossible to give a precise picture of their effect on employment and that they have probably made it possible to divide up the available jobs among a greater number of workers but at the risk of a proliferation of precarious situations. The Committee notes further that the reduction in unemployment has been secured at the cost of keeping employment rates relatively low. It would be grateful if the Government would indicate in its next report whether the population trends and the attendant risks of manpower shortages are not likely, in the long run, to call into question programmes encouraging withdrawal from the labour market.

5. With reference to its previous observation, the Committee hopes that the Government will be in a position to supply in its next report a summary of the available information on the effect produced on employment by the various measures of economic and social policy and labour market policy described.

Observation (CEACR) - adopted 1989, published 76th ILC session (1989)

The Committee notes the Government's two reports on the application of the Convention and the reply to its previous observation.

The very detailed information which they contain covers a range of specific measures taken to mitigate the effects on the labour market of the programme of economic recovery put into effect since 1982.

Referring to its previous comments, the Committee notes in particular the extension by law for 1987 and 1988 of the so-called "5-3-3" agreements as well as the complementary "Employment Promotion" agreement. The 5-3-3 agreements provide for a 5 per cent reduction of working time with a 3 per cent compensatory recruitment of labour, employers being entitled to retain the product of the wage moderation which averages out at 3 per cent of the payroll. The "Employment Promotion" agreement invites enterprises to take new measures to promote employment (for example, recruitment of apprentices, part-time work, and career interruption) at a cost of up to 1.5 per cent of their total wage bill. Non-observance by employers of the obligations set out in the two types of agreement is sanctioned by the payment of a percentage of the wage bill into the Employment Fund.

The Committee also notes a new agreement to promote employment that has been in force since 1986, namely the inter-occupational agreement of 7 November 1986, which is a model agreement for the period 1987-88, marks the return to the principle of free joint negotiation, and is concerned principally with employment promotion, in particular for young people. It provides for the use of 0.5 per cent of the total payroll for this purpose. It also contains specific provisions for the reduction of working time, and other measures concerning problems of labour market flexibility. The Committee further notes that the Government, in its recommendations for the 1989-90 inter-occupational agreement, requests the social partners to continue their efforts in the area of employment creation and considers that the improvement in purchasing power of wage earners should involve an element of solidarity with the unemployed.

The many and continued efforts made in co-operation with the social partners, as called for by Article 3 of the Convention, bear witness to the Government's determination to implement an active employment policy. The Government states, in its report, that employment promotion should be the ultimate policy objective, and that competitivity and stability are indispensable to attaining that objective. In the absence of available or appropriate data to evaluate the general employment policy, the Committee notes that the trend towards a certain improvement in the labour market situation has been observed during the period 1986-88. Total employment continued to increase in 1986 and 1987 (although at a slower rate) and this growth can be attributed entirely to the private sector: employment has ceased to grow in the public sector with the implementation of economy measures since 1982. Unemployment shows a slight decrease while remaining at a high level. The Committee noted in its previous observation that the rate of unemployment was 12.4 per cent for the second quarter of 1986. Currently, the rate is approximately 11 per cent of the economically active population for the period 1986-88, the improvement being particularly marked among young people. On the other hand, long-term unemployment has continued to deteriorate. According to the latest edition of "Employment Perspectives" (OECD, September 1988), the incidence of long-term unemployment, that is the proportion of the unemployed who had been out of work for longer than 12 months, amounted to 70 per cent in 1987. Another cause for concern is the profound change in the type and structure of employment which the Government indicates has been the price to pay for the progress made since 1983: the "explosion" in part-time work (which has become the main source of employment creation); the appearance of precarious forms of employment and of so-called "peripheral" forms of employment, the increasing difficulty of finding the divisions between employment, unemployment and inactivity.

The Committee hopes that, in accordance with Article 2, the Government will continue to endeavour to decide on and keep under review, within the framework of a co-ordinated economic and social policy, the measures to be adopted for attaining the objectives of the Convention as set out in Article 1. It would be grateful if the Government would continue to supply information on any developments relating to the questions and concerns referred to above and if, when the appropriate data and analyses are available, it would supply a summary report on the impact on employment of economic and social policy measures (Part VI of the report form).