Employment Policy Convention, 1964 (No. 122) - Philippines (Ratification: 1976)

Direct Request (CEACR) - adopted 2024, published 113rd ILC session (2025)

Articles 1 and 2 of the Convention. Implementation of an active employment policy. Employment trends. The Committee notes the policies designed to promote full, productive and freely chosen employment adopted by the Government. The Government indicates that the Philippine Development Plan (PDP) 2017–2022 has as a primary goal the laying down of the foundations for inclusive growth, a high trust and resilient society, and a globally competitive global knowledge economy. The Government also indicates that it adopted the Philippine Decent Work Country Programme for 2020-2024, which focuses on three priorities: (i) productive, remunerative, freely chosen, green and sustainable work and employment; (ii) improved labour market governance, which ensures respect for all rights at work, including fundamental principles, and rights at work, international labour standards and human rights; and (iii) equitable social protection that is available and accessible to all. The Government adds that the direction of job creation and decent work is expected to be enhanced through the formulation of the new PDP for 2023–28. In addition, the Government indicates that the Department of Labour and Employment (DOLE) has announced plans to adopt a new national labour and employment plan, using the 2020–24 Decent Work Country Programme as a springboard document. The Government refers to the different legislation and administrative measures, including: (i) the Labour Code, Book I (Pre-employment), which incorporates the principles of Article I of the Convention and regulates the recruitment and placement of workers, and are implemented by DOLE through Department Order No. 216, series of 2020 (Rules and Regulations Governing Recruitment and Placement of Industry Workers by Private Recruitment Agencies for Local Employment), and through Department Order No. 217, series of 2020 (Rules and Regulations Governing Recruitment and Placement of Domestic Workers by Private Employment Agencies for Local Employment); (ii) Republic Act No. 10869 (2016), institutionalising the JobStart program to provide job search assistance, training and placement for the unemployed, especially young jobseekers and implemented by DOLE through Department Order No. 179, series of 2017; and (iii) Republic Act No. 8,981, or the Professional Regulation Commission (PRC) Modernization Act of 2000, which regulates the exercise of the professions through licensure examination and development and implementation of professional standards of service and practice that are internationally recognised. The Government further indicates that the 2023–28 PDP eight-point socio-economic agenda includes the following: (a) protect purchasing power and mitigate socioeconomic scarring by ensuring food security, reducing transport and logistics costs, and reducing energy costs to families; (b) reduce vulnerability and mitigate scarring from the COVID-19 pandemic by tackling health, strengthening social protections, and addressing learning losses; (c) create more jobs by promoting trade and investments, improving infrastructure, and achieving energy security; (d) create quality jobs by increasing employability, encouraging research and development and innovation, enhancing digital economy; (e) create green jobs by pursuing green economy and establishing liveable and sustainable communities. Moreover, the Committee notes the key labour market trends presented by the Government. The Government indicates that as of June 2022, the total working age population was estimated at 76.540 million and of this, 46.59 million were employed. The Labour Force Participation Rate (LFPR) in June 2022 was higher among men (76.3 per cent) than women (53.2 per cent) and the employment rate for men was 94.6 per cent compared to 93.1 per cent for women. The Youth LFPR in June 2022 was at 35.9 per cent, employment at 88.2 per cent and underemployment at 11.80 per cent. The Committee notes that the April 2023 World Bank Poverty & Equity Brief on Philippines highlights the continuous recovery in the labour market from the pandemic and that the unemployment rate dropped by 1.8 percentage points from 6.0 to 4.2 in November 2022 compared to June 2022, which was coupled with an increase in labour force participation and a reduction in underemployment, which dropped 14 percentage points between November 2021 and 2022. The Committee takes due note of the comprehensive information provided by the Government which demonstrates the existence of an integrated policy vision to build strong employment policies and guide the country towards sustainable social and economic development. By aligning employment policy goals with those of other major national strategies, integrated policies help optimize the use of resources, reducing duplication and ensuring that efforts are complementary and enhancing the synergy and effectiveness of interventions. The Committee requests the Government to continue to provide information on the impact and effectiveness of its employment policy measures in terms of productive job creation. It also requests the Government to include information on the progress made concerning implementing programmes designed to generate employment as well as in tackling high rates of unemployment and underemployment, vulnerable employment, in-work poverty related to low earning capacity and limited access to regular, productive jobs.

Labour market services. The Government indicates the DOLE is continuously improving the country’s official job-matching portal (www.philjobnet.gov.ph) to match labour supply and demand. DOLE also maintains the PESO Employment Information System (PEIS), used in localities to facilitate employment services. The Government explains that public employment services, including job facilitation and job skills matching, do not yet include data collection related explicitly to structural change, and that various government agencies have their specific programs and measures to meet the needs of particular categories of workers, such as women, young people, older workers and disabled workers. The Government adds that among those are programs and measures administered by DOLE in partnership with local government units, the Technical Education Skills and Development Authority (TESDA) and other government agencies, including the following: the DOLE Integrated Livelihood Program (DILP), the Emergency Employment Programs (DILEEP) and the DILEEP for Senior Citizens and Persons with Disabilities. The Committee takes note of this information and wishes to stress that having various Government agencies run their own programs and measures to meet the needs of particular categories of workers, such as women, young people, older workers and disabled workers presents more disadvantages than advantages, including in terms of cost-effectiveness, duplication and coherence. The Committee requests the Government to continue to provide updated information, including statistical data on measures adopted or envisaged with respect to labour market services and on the practical effects of these measures in the labour market.

Education and training. The Government recalls that TESDA is the primary agency that implements technical and vocational training policies. TESDA has four training modalities: school-based, centre-based, enterprise-based and community-based. These are being done with TESDA’s infrastructure in place — 57 TESDA-administered schools, 60 training centres, enterprise-based training through the Dual Tech System (DTS)/apprenticeship and community-based training in coordination with local government units (LGU’s). The Government adds that TESDA is responsible for developing the National Technical Education and Skills and Development Plan (NTESDP) and that for the technical and vocational education and training (TVET) graduates/alumni, TESDA has Job Linkaging and Networking Services (JoLiNS). The Government explains that the World Cafe of Opportunities (WCO) is a ‘‘one-stop-shop” wherein national government agencies, private companies, technical institutions, and financing institutions converge strategically to offer employment, training, and financing opportunities and facilitate higher job-skill matching. In its previous comments, the Committee requested the Government to provide information on the Technical Education and Skills Development Committees (TESDCs) activities. In the absence of the information requested previously, the Committee reiterates its request to the Government to provide information on the activities of the TESDCs. It also requests the Government to continue to provide information on the impact of the TVET programmes on graduates’ employability. It also requests the Government to provide updated information on the policies adopted or envisaged with regard to vocational training, retraining and further training and to measures to co-ordinate education and training policies with prospective employment opportunities.

Youth employment. In its last comments, the Committee requested the Government to provide information on the impact of the youth employment programmes adopted by indicating how the beneficiaries of such programmes have transitioned into lasting employment. Noting that the report is silent on this point, the Committee reiterates its request to the Government to provide information on the impact of the youth employment programmes adopted, by indicating how the beneficiaries of such programmes have transitioned into lasting employment.

Employment of women. The Committee notes that, in its concluding observations of 14 November 2024, the UN Committee on the Elimination of Discrimination against Women (CEDAW) expressed its concern on different aspects related to the employment of women, including: (a) women’s concentration in lower-paid jobs in the informal economy, where they are exposed to exploitation and occupational health and safety hazards and excluded from social security coverage, and the lack of progress made towards the adoption of the Magna Carta of Workers in the Informal Economy; (b) the large number of women engaged in unpaid care work; (c) the limited enforcement of the principle of equal pay for work of equal value and the significant gender pay gap in the State party; (d) that women’s participation in trade unions is declining, owing to discrimination and harassment of union members; (e) the absence of independent confidential complaint mechanisms for women who are victims of sexual harassment and underreporting by women of sexual harassment and the lack of effective labour inspections (document CEDAW/C/PHL/CO/9, paragraphs 41 and 42). The Committee requests the Government to provide updated detailed information on the impact of the measures adopted or envisaged to pursue an active policy designed to promote full, productive and freely chosen employment for women and combat gender discrimination.

Child labour. The Committee notes that, in its concluding observations of 26 October 2022, the UN Committee on the Rights of the Child (CRC), while noting the Philippine Programme against Child Labour, expressed its concern about the very high number of children subjected to child labour, including in hazardous conditions, and about the acceptance of child labour by children and their parents (document CRC/C/PHL/CO/5-6, paragraph 38). The Committee also refers to its 2023 comments under the Minimum Age Convention, 1973 (No.138), where it recalled that a high number of children involved in child labour were found in the informal economy and requested the Government to take the necessary measures to strengthen the capacity and expand the reach of the labour inspectorate services to better monitor children working in the informal economy and on their own account. The Committee also refers to its 2023 comments under the Worst Forms of Child Labour Convention, 1999 (No. 182) asking the Government to provide information on several aspects related to the protection of children from various forms of exploitation and forced labour, including statistics on violations and penalties in cases of child trafficking, the use of the Council for the Welfare of Children (CWC) database to prevent the involvement of children in armed conflicts, efforts to rehabilitate children who are victims of commercial sexual exploitation, measures to prevent children from being involved in drug trafficking, and actions to protect and rehabilitate child domestic workers. In view of the above, the Committee requests the Government to provide detailed information on how the national employment policy is used to combat child labour and upholding the principle of freedom of choice of employment.

Migrant Workers. The Committee notes that, in its concluding observations of 23 May 2023, the UN Committee on the Protection of the Rights of All Migrant Workers and Members of Their Families (CMW), while noting with satisfaction that the Government has strengthened its national legal framework relevant to migrant workers, expressed concerns: (i) on the persistence of gender disparities in labour market participation, and in the wide gender pay gap given the predominance of women in low-level and low-paid jobs, and is a driver of women’s migration for work; (ii) on labour exploitation and other forms of ill-treatment affecting overseas Filipino migrant workers, and disproportionately, by women domestic migrant workers; and (iii) that the Government does not have oversight over seasonal worker agreements concluded between local governments in the Philippines with their counterparts in destination countries (document CMW/C/PHL/CO/3, paragraphs 27, 31, and 46). Referring to its 2022 comments on the application of the Migrant Workers (Supplementary Provisions) Convention, 1975 (No. 143) and the Migration for Employment Convention (Revised), 1949 (No. 97),the Committee requests the Government to provide updated detailed information on the impact of the measures adopted or envisaged to ensure that the interplay between employment and migration policies is designed in such a way as to address domestic labour market challenges while maximizing the benefits of international migration for economic development and upholding the principles of full, productive and freely chosen employment as well as the rights of migrant workers.

Article 3. Consultation with the social partners. In its previous comments, the Committee requested the Government to provide information on consultations held with the social partners on formulating and implementing a national employment policy. The Government recalls that the main tripartite consultative body is the National Tripartite Industrial Peace Council (NTIPC) and that, under the NTIPC, there are regional TIPCs and several industry tripartite councils (ITCs). The Government states that the NTIPC has been consistently used in development planning and that the existing 2020–2024 Philippine Decent Work Country Programme was formulated and adopted through this mechanism. The Committee requests the Government to provide further information on consultations held with the social partners on the formulation and implementation of the current employment policies.

Direct Request (CEACR) - adopted 2015, published 105th ILC session (2016)

Articles 1 and 2 of the Convention. Implementation of an active employment policy. Employment trends. The Government refers in its report to the April 2015 labour force survey (LFS) showing that the number of employed persons increased by 495,000 to reach 39.15 million, which is an increase of 1.3 per cent over the April 2014 LFS figures of 38.66 million. In April 2015, unemployment decreased to 6.4 per cent from 7 per cent in April 2014, with the number of unemployed persons recorded at 2.681 million compared to 2.924 million the previous year. Underemployment also decreased from 18.2 per cent in April 2014 to 17.8 per cent in April 2015, or from 7.02 million to 6.98 million people. Women’s participation in the labour force slightly decreased from 51.3 per cent in April 2014 to 51 per cent in April 2015. In reply to previous comments, the Committee notes the detailed progress reports for the years 2011–2013 provided by the Government on the implementation of the Philippine Labor and Employment Plan 2011–16. It notes in this regard that the third progress report showed that 1,505,972 job applicants placed through Public Employment Services Offices (4,480,763) and private recruitment and placement agencies (25,209). Referring to the implementation of the Convergent Community-Based Employment Program (CBEP), the Government indicates that from 2011–14, the CBEP benefited 8,603,993 disadvantaged persons, including disaster victims, across the country in terms of short-term jobs. The Committee notes with interest that a significant rise was noted in 2012 with 2,324,311 (up by 87 per cent) from 1,238,225 jobs created in 2011. The jobs created slowed down in 2013 with 1,987,337, but rose again in 2014 with 3,054,120 jobs created. Of the total short-term CBEP jobs, 3,528,577 jobs were generated by infrastructure projects of the Government, while 5,075,416 jobs were created by 74 non infrastructure projects and programmes of 21 government agencies. The Committee requests the Government to continue to provide information on the impact and effectiveness of its employment policy measures in terms of productive job creation. Please also continue to include information on the progress made with respect to the implementation of programmes designed to generate employment.

Education and training. In reply to previous comments, the Government indicates that, in order to ensure that the outputs of technical and vocational education and training (TVET) programmes are in line with labour market requirements, the Technical Education and Skills Development Committees (TESDCs) undertake various activities, including the review of TVET policies as applied at the local, regional and provincial levels and provide recommendations. The Committee notes with interest that the employment rate of TVET graduates rose from 60.9 per cent in 2011 to 65.3 per cent in 2013, signifying improvement in the employability of TVET graduates. The Committee requests the Government to provide information on the activities of the TESDCs. Please also continue to provide information on the impact of the TVET programmes on graduates’ employability.

Youth employment. The Government refers to the results of the April 2015 LFS showing that the number of unemployed persons aged 15 24 years old decreased to 1.350 million (14.9 per cent) from 1.457 million (15.7 per cent) in April 2014. The unemployed youth rate in the April 2013 LFS was 16.8 per cent. The Committee notes the various programmes addressing the problem of youth unemployment, such as the Special Program for Employment of Students (SPES); the Youth Entrepreneurship Program; the Government Internship Program; and the JobStart Program, a Department of Labor and Employment, Asian Development Bank and Government of Canada joint programme. The Committee further notes that the SPES aims to assist poor students and not-in-school youth who intend to pursue their education by providing income or augmenting their means through employment. It also provides valuable work experience bridging an individual from school to employment. The total number of SPES student beneficiaries was measured at 691,333 for the period 2010–14. The Government indicates that the increase in beneficiaries may be attributed to the annual increase in the amount of budget allocated for the SPES which is consistent with the Philippines’ commitment of investing on human resource, especially the youth. The objective of the JobStart Program (formerly MyFirstJob Program) is to pilot approaches to enhance the employability of at-risk youth to improve their integration into productive employment. Jobstarters will be given technical training of not more than three months and three months internship wherein they would also receive a stipend amounting to 75 per cent of the prevailing regional minimum wage. It is estimated that the hiring rate of a jobstarter will not fall below 80 per cent upon completion of the program. The Government indicates that a bill has already been drafted to institutionalize the implementation of the program. The Committee requests the Government to continue to provide information on the impact of the youth employment programmes adopted, by indicating how the beneficiaries of such programmes have transitioned into lasting employment.

Article 3. Consultation with the social partners. The Government recalls that the National Tripartite Industrial Peace Council is a consultative and advisory mechanism which functions primarily as a body where the social partners – workers, employers and government – discuss relevant policy issues on labour and employment. The Committee notes the various matters discussed in 2013–14, including rules and regulations on working conditions of seafarers and legislative measures concerning apprenticeship programmes and training of apprentices. The Committee requests the Government to provide further information on consultations held with the social partners on the formulation and implementation of employment policies.

Direct Request (CEACR) - adopted 2013, published 103rd ILC session (2014)

Employment trends. The Committee notes that the country’s labour force reached 40 million people in 2011, increasing by over 1 million new jobs when compared to 2010. Underemployment also rose in 2011 by 401,000 people to reach 7.163 million. The number of unemployed people in 2011 declined by 45,000 to 2.814 million, overall figures dominated by young workers (aged 15–24 years) as they comprised 1.417 million of the total number of unemployed persons. The unemployment rate decreased to 7 per cent in 2011 from 7.4 per cent in 2010, and unemployment was measured at 6.8 per cent in October 2012. The target with respect to the unemployment rate in the Philippine Development Plan (PDP) ranges from 6.8 to 7.2 per cent. According to the Bureau of Labor and Employment Statistics’ LabStat update of December 2012, the labour force participation rate fell from 66.3 per cent in October 2011, to 63.9 per cent in October 2012. Such a reduction in the labour force had not occurred since January 2008. The contraction was due in part to a large reduction in the working youth population (15–24 years old) and a reduction in participation rates was observed in almost all regions of the country. Furthermore, the Government indicates in its report that the Department of Labor and Employment has developed client-specific labour market information materials to provide timely and accurate signals on jobs and skills in demand and shortages that are readily accessible to the public and made available on government agency websites. The Committee invites the Government to continue to provide relevant data and trends of the labour market, disaggregated by sector, age, gender, in particular for vulnerable groups such as young persons (Articles 1(2) and 2(a)) of the Convention.

Youth employment. The Committee notes the information provided by the Government in reply to the previous observation with respect to the continuing measures to meet the employment needs of young persons. As of February 2012, a total of 16,285 young persons benefited from the Youth Education–Youth Employability (YE–YE) project and 916 of them graduated from college. The Joint Programme on Youth Employment and Migration is being implemented in support to the Government’s vision of a productive and competitive youth. The joint programme aims to achieve the following outcomes over a period of three years: improved policy coherence and implementation on youth employment and migration programmes through full stakeholder participation; and increased access to decent work for poor young women and men. The Committee further notes that the Special Program for Employment of Students (SPES), a work-bridging programme that enables poor students aged 15–25 to pursue education by working for a specified number of days, has assisted 1,687,931 student beneficiaries since 1993. The Committee invites the Government to continue to report on measures taken to meet the needs of young persons and to indicate how beneficiaries of the different programmes implemented have found lasting employment.

Coordination of training policies with employment opportunities. The Government indicates that the Technical Education and Skills Development Authority (TESDA) has been undertaking public–private partnerships in different forms such as the establishment of Technical Education and Skills Development Committees (TESDCs) which are multisectoral bodies created at the regional, provincial, district and local levels to coordinate and monitor the delivery of all skills development activities by the public and private sectors. TESDA conducts regular industry dialogue and consultations to establish and strengthen industry collaboration and linkages and provides a forum that will identify specific skills requirements needed. The Government further indicates that, in 2011, graduates of technical and vocational education and training (TVET) programmes accounted for 1,332,751 out of the 1,572,131 enrollees. The results of the 2011 impact evaluation study of TVET graduates showed an employment rate of 60.9 per cent within six months after completion of the training programme. The Committee invites the Government to provide in its next report information on the results achieved by the TESDCs in coordinating and monitoring the matching of skills and labour market needs.

Observation (CEACR) - adopted 2013, published 103rd ILC session (2014)

Articles 1 and 2 of the Convention. Implementation of an active employment policy. In reply to the 2011 observation, the Government reported in August 2012 that the Worktrep Entrepreneurial Program benefited 100,206 workers in the informal economy in 2008 to establish sustainable businesses, 98,379 in 2009, 76,025 in 2010 and 94,597 in 2011. A Community-Based Employment Program (CBEP) was launched in 2011 which targeted the generation of jobs for infrastructure and non-infrastructure government projects. The CBEP covered 29 implementing agencies and generated 573,445 jobs. The Government reports that the Department of Labor and Employment of the Philippines made representations to participate in the planning process of the Philippine Development Plan (PDP) 2011–16 in order to ensure that employment concerns are mainstreamed as priorities in major government strategies. The Committee notes with interest that the result was an integration of employment concerns and priorities in almost all parts of the plan, primarily macroeconomic policy, industry and service competitiveness strategy, infrastructure development and social development. The PDP estimates the creation of 6 million jobs from 2011 to 2016. The Committee invites the Government to provide in its next report detailed information regarding the progress made with respect to the implementation of the Philippine Labor and Employment Plan 2011–16 and the other programmes designed to generate employment. Please also provide information on the efforts made to improve the employment situation for workers in the informal economy and the results achieved in terms of designing targeted programmes and incentives for the promotion of sustainable job creation for those working in the informal economy.

Article 3. Participation of social partners in the formulation and application of policies. The Government reports that Administrative Order No. 21 of October 2011 provides for the election of 14 basic sector representatives to partner with government agencies in drafting policies affecting them. The basic sectors include workers in the formal sector and migrant workers, workers in the informal economy, farmers and landless rural workers, indigenous peoples, women, youth and students, and persons with disabilities. It further reports that the Department of Labor and Employment initiated the formulation of the Philippine Labor and Employment Plan 2011–16 to complement the PDP with more specific strategies, through a consultative process that involved workers, employers, non-government organizations, migrant associations, women’s associations, youth groups and social and economic development lecturers and professors. The Committee previously noted that the task force on the Private Employment Agencies Convention, 1997 (No. 181), was created to benchmark areas for improving regulatory measures affecting private employment agencies. The Government indicated that one of the objectives of this task force is to identify the potential areas of partnership between private recruitment and placement agencies and public employment services and establish mutual cooperation, assistance and collaboration between them in facilitating local employment opportunities. In its General Survey of 2010, the Committee highlighted that the employment services are part of the necessary institutions for the achievement of full employment. In conjunction with the Convention and the Employment Service Convention, 1948 (No. 88), Convention No. 181 forms a necessary building block for employment growth (see General Survey concerning employment instruments, 2010, paragraphs 785–790). The Committee invites the Government to provide examples of questions addressed and decisions reached on employment policy through tripartite bodies. It also invites the Government to include in its next report information on the involvement of the social partners concerning the measures taken to build institutions for the realization of full employment.

The Committee is raising other points, including employment trends, youth employment and skills, in a request addressed directly to the Government.

Observation (CEACR) - adopted 2011, published 101st ILC session (2012)

Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Committee notes the Government’s report received in September 2010 including replies to the 2009 observation. The Government indicates that the Worktrep Entrepreneurial Program continues to benefit the workers in the informal sector to have sustainable business enterprises. The Committee also notes that evaluation studies will be undertaken as to the impact of programme assistance to the workers in the informal sector. The Government indicates that the Philippine Labor and Employment Plan (LEP) for the period 2011–16 was adopted and focused on inclusive growth through decent and productive work. The LEP provides the strategic directions for the Medium-Term Development Plan (2010–16) by communicating the Philippine vision for labour and employment and showing the intended direction and emphasis over the next five years. The Government is currently strengthening its commitment to addressing the employment issues by preparing a Philippine Labor and Employment Agenda 2011–16. The Committee invites the Government to provide in its next report detailed information regarding the impact of the Worktrep Entrepreneurial Program on assisting workers in the informal sector to enter into sustainable business enterprises. It also invites the Government to indicate how the major employment promotion strategies articulated in the Medium-Term Development Plan (2010–16) are executed and whether special difficulties are encountered in attaining the employment objectives of the strategies announced. Please also provide information on the implementation of the Labor and Employment Agenda 2011–16 objectives within a framework of a coordinated economic and social policy (Article 2(a)).

Employment trends. The Committee notes that employment increased by around 6,879 million persons from 2001 to 2010; from 29,156 million to 36,035 million persons. Employment moved towards the services sector (74 per cent of total employment generated) and away from the industrial sector (10 per cent) and agriculture, forestry and fishing sectors (16.1 per cent). The LEP indicates that by 2010, 51.8 per cent of the employed during the year were in the services sector and the share of agriculture, forestry and fishing sector stood at 33.2 per cent, while the industrial sector was at 15 per cent. The Committee notes that with the economic recovery in 2010, the domestic economy posted a rebound, growing by 7.3 per cent, due to a firm recovery in manufacturing. Merchandises exports and service based industries bolstered by strong consumption and sustained inflow of remittances. The LEP also indicates that over the 2001–10 period, the growth trend in labour productivity has been generally increasing, except during the 2008–09 crisis years. Nevertheless, labour productivity, on average, grew annually by 1.6 per cent with the highest growths posted in 2007 (4.1 per cent) and 2010 (4.4 per cent). The Committee notes that a large proportion of the employed is made up of the self-employed and unpaid family workers, and the volatility in employment can be traced in large part to the effect of weather disturbances which had a negative impact on agricultural employment. The Committee further notes that employment growth is barely catching up with population growth. The LEP also suggests that unemployment is prevalent in areas where the agriculture sector continues to play a dominant role. Unemployment rates had little changes from 2005 to 2010, following a small decline between 2006 and 2007 (-0.7 percentage point), unemployment rates remained constant in 2008 (7.4 per cent), 2009 (7.5 per cent) and in 2010 (7.4 per cent). The Committee invites the Government to include in its next report an analysis of the labour market trends, including data on the active population, employment, unemployment and underemployment, disaggregated by sector, age, gender, in particular for vulnerable categories of workers mentioned in this observation.

Youth employment. The Committee notes that unemployment is largely concentrated among young workers (aged 15–24 years) which in 2010 represented 51.1 per cent of the total number of persons unemployed. It further notes that the Government has implemented the Youth Education–Youth Employability (YE–YE) project to respond to the urgent need to create more opportunities for the youth to study and enhance their employability. The Government indicates that the YE–YE project was implemented through the Department of Labor and Employment and that three programmes are partners of the YE–YE project: the Jollibee Foods Corporation (JFC), the Youth Employment and Migration (YEM), and the Special Program for Employment of the Students (SPES). The Committee invites the Government to continue to report on measures taken to meet the needs of young persons and to indicate how beneficiaries of the different programmes implemented have found lasting employment.

Coordination of training policies with employment opportunities. The Government indicates that the Technical Education and Skills Development Authority (TESDA) facilitates the employment of the Technical Vocational Education and Training (TVET) system graduates through the SEEK-FIND-TRAIN-VERIFY-EMPLOY proactive job-skills matching approach – this approach aims to provide for increased wages and/or self-employment for TVET graduates – by equipping the Filipinos with the skills needed in the labour force. The Government also indicates that, in 2009, graduates of TVET regular programs accounted for 1,903,793 out of the 1,982,435 enrolees. The Committee notes that some programmes such as the Youth Profiling for Starring Career (YP4SC), the TESDA Blue-Desk Jobs Bridging (BJB), and the Private Education Student Financial Assistance (PESFA), link training to employment opportunities. The Government indicates that there is no available information, disaggregated by gender and age, concerning education, training and lifelong learning. The Committee invites the Government to provide information in its next report on how the human resources development policies are coordinated with employment policies and on how the Government is strengthening the coordination between vocational institutions. It also welcomes information on how the local authorities and social partners participate in the design and implementation of training policies and programmes, and relevant data on the impact of the training programmes implemented in terms of the integration of its beneficiaries into lasting employment.

Article 3. Participation of social partners in the formulation and application of policies. The Committee notes that the Department of Labor and Employment (DOLE) collected inputs from many stakeholders through discussions at the Tripartite Industrial Peace Council (TIPC), and dialogue with worker’s and employer’s groups and other stakeholders to prepare the LEP. The Committee also notes with interest that the Task Force on Private Employment Agencies Convention, 1997 (No. 181), was created to benchmark areas for improving regulatory measures affecting private employment agencies. The Government indicates that one of the objectives of this Task Force is to identify the potential areas of partnership between private recruitment and placement agencies and public employment service and establish a mutual cooperation, assistance and collaboration between them in facilitating local employment opportunities. In its General Survey of 2010 concerning employment instruments, the Committee highlighted that the employment services are part of the necessary institutions for the achievement of full employment. In conjunction with Convention No. 122 and the Employment Service Convention, 1948 (No. 88), Convention No. 181 forms a necessary building block for employment growth (see General Survey, op. cit., paragraphs 785–790). The Committee invites the Government to include in its next report on Convention No. 122 information on the new measures taken to build institutions for the realization of full employment. It further invites the Government to include information regarding the involvement of representatives of the rural sector and the informal economy in the formulation and implementation of the employment policy.

Observation (CEACR) - adopted 2009, published 99th ILC session (2010)

Articles 1 and 2 of the Convention. Employment trends and active labour market measures. The Committee notes the Government’s detailed report received in August 2008, including its replies to the 2007 observation. The Committee also notes the replies provided by the Government to the questionnaire for the General Survey on employment in May 2009. The Government reports that it is concerned by the trend of employment lagging behind economic growth. Over the period 2004–07, the gross domestic product grew at an average annual rate of above 6 per cent. However, average annual growth in employment grew at only 2.6 per cent. The service sector grew by 4.1 per cent and continues to account for the majority of employment, while growth in the combined agriculture, fishery and forestry sectors was marginal. The Government reports that the quality of employment improved, as reflected by the rise in wage and salary employment to 5 per cent, the increase in full-time employment to 4.7 per cent, and the decline in the rate of underemployment, from 22.6 per cent to 20.1 per cent. The Government also reports that underemployment remains a more serious problem than unemployment, and that it affects one in every five Filipinos, cutting across age and gender. The rate of unemployment decreased from 8 per cent in 2006 to 7.3 per cent in 2007. The Committee notes that underemployment is more prevalent in less developed regions, where the agricultural and self-employment sectors dominate. The rate of unemployment in urbanized areas and among young workers remains higher than the other categories of workers. The Government reports that it has established the Worktrep Entrepreneurship Program (Unlad Kabuhayan Program Laban sa Kahirapan) to assist marginalized self-employed workers in the informal sector who wish to expand or make their small livelihood undertakings grow into feasible and sustainable business enterprises. The Committee notes that the Government has also established the Magna Carta for Small Enterprises, which aims to promote, support, strengthen and encourage the growth and development of micro-, small and medium enterprises engaged in industry and agro-business and/or services, whether single proprietorship, cooperative, partnership or cooperation. The Committee welcomes the Government’s analysis of the labour market, including level and trends of employment and underemployment. The Committee asks the Government to provide further information on how its policy measures are implemented within a framework of a coordinated economic and social policy (Article 2(a)). As requested in the previous observation, please specify how the four major employment promotion strategies: employment generation, preservation, enhancement and facilitation that were articulated in the Medium-Term Development Plan (2004–10) have been executed and whether special difficulties have been encountered in attaining the objectives of the strategies announced. The Committee also invites the Government to specify in its next report the impact of the Worktrep Entrepreneurial Program on assisting workers in the informal sector to enter into sustainable business enterprises.

Youth employment. The Government reports that, in 2007, it established the Philippine Program for Youth to align youth-related programmes with other youth-related goals and strategies of the Department of Labor and Employment (DOLE). The Government also reports that it envisions Filipino youth to be productive and competitive workers by 2010. The Working Youth Centre (WYC) has been re-engineered to respond more effectively to new challenges and needs of the working youth. The WYC has facilitated the organization of 2,048 working clubs, with 56,860 members. In 2008, the Youth Entrepreneurship Support projects, subsumed under the WYC programme, were developed and implemented to provide entrepreneurial opportunities to graduates and would-be graduates of agricultural-related and technical-vocational students who could not be absorbed by wage employment. The Government also reports that it implemented the Youth Education–Youth Employability (YE–YE) project to respond to the urgent need to create more opportunities for the youth to study and to enhance their employability. The Committee invites the Government to continue providing information on the measures the Government has taken to provide employment to young workers entering the labour market.

Coordination of training policies with employment opportunities. The Government reports that the Technical Education and Skills Development Authority (TESDA) manages the Technical Vocational Education and Training (TVET) in the country. The Government also reports that one of its TVET policies is the SEEK-FIND-TRAIN paradigm, which aims to: (i) seek business opportunities and jobs through domestic and international labour market intelligence; (ii) find suitable persons for the jobs; and (iii) train the right persons for the available jobs using quality standards developed in consultation with the industry. The Committee notes that the Government has implemented the National Technical Education and Skills Development Plan (NTESDP), 2005–09, which targets: (i) improved access to and equity in TVET; (ii) improved assessment and certification; and (iii) enhanced employability of TVET graduates. The Committee also notes the Pangulong Gloria Scholarships, launched in 2009, which expanded the coverage of the previous Pangulong Gloria Macapagal-Arroyo Training for Work Scholarship Program. The Government reports that these scholarships will provide free training, training support funds and free competency assessment to support job creation and job preservation. The programme objectives are to: (i) produce a pool of qualified and globally competent workers who are ready to take a job; (ii) develop skills and competencies of the unemployed and underemployed; and (iii) empower the public and private training providers in expanding their absorptive capacities and to enable them to offer programmes for various qualifications including higher levels of technology. The Committee would be grateful if the Government would continue to provide information on the vocational training and programmes executed by the TESDA, and asks the Government to indicate in its next report the measures taken to adopt a training strategy. The Committee would also appreciate receiving information, disaggregated by gender and age, concerning education, training and lifelong learning.

Article 3. Participation of social partners in the formulation and application of policies. The Committee notes that with respect to local government, private recruitment and placement agencies are licensed to operate by the DOLE regional office. The Government reports that, during the process of amending the rules and regulations governing private recruitment and placement agencies for local employment, a series of formal consultations with workers’ organizations, recruitment agencies, concerned non-governmental organizations and relevant government agencies took place to ensure that practical changes in the rules were properly deliberated. The Committee notes that policy recommendations affecting labour and employment are subjected to consultation with the Tripartite Industrial Peace Council (TIPC), which is composed of representatives of employers’ organizations, workers’ groups and government organizations. The Committee asks the Government to further elaborate in its next report on the role that the social partners have had in establishing new conditions to promote cooperation between the DOLE and private employment agencies. Please also include information on the policy recommendations made on the matters covered by the Convention within the TIPC and how representatives of workers of the rural sector and in the informal economy were involved in the formulation and implementation of the employment measures.

Observation (CEACR) - adopted 2007, published 97th ILC session (2008)

1. In reply to the previous observation, the Committee notes the information provided in the Government’s report for the period ending in August 2006.

2. Coordination of employment policy with poverty reduction. The Committee notes that the Government has adopted a unified policy framework to promote decent and productive employment as a means to alleviate poverty in the country and that this policy has been articulated in the Medium-Term Philippine Development Plan (2004–10). The Government also stated its aim to generate around 6–10 million jobs. The Committee asks the Government to provide further information on how the policy measures included in the Development Plan are implemented within a framework of a coordinated economic and social policy (Article 2(a) of the Convention). Please specify how the four major employment promotion strategies: employment generation, preservation, enhancement and facilitation are being executed and whether special difficulties have been encountered in attaining the objectives of the strategies announced. It further asks the Government to provide information on how the targeted economic growth will produce decent quality jobs, considering the magnitude of the informal economy in the country. 

3. According to the Bureau of Labor and Employment Statistics of the Department of Labor and Employment, the annual employment growth for 2006 was placed at 2 per cent (648,000 individuals), wage and salary employment rose by 2.9 per cent (474,000 individuals), unpaid family workers by 3.7 per cent (144,000 individuals) and self-employment by 0.2 per cent (29,000 individuals). In 2006, the number of part-time employees grew by 6.3 per cent (735,000 individuals) while the number of full-time employees decreased slightly (0.6 per cent or 131,000 individuals). One of the weaknesses of the labour market is the rise in underemployment in recent years. From 17.6 per cent in 2004, the underemployment rate rose sharply by 3.4 percentage points to reach 21 per cent in 2005. In 2006, it reached a level of 22.7 per cent. Underemployment increased by 682,000 to 7,467,000 individuals. Youth continued to account for the bulk of the unemployed (49.1 per cent). Their unemployment rate at 17.6 per cent was more than twice the national figure. The Committee asks the Government to keep it informed on the impact of the measures taken to provide lasting employment to young workers under the age of 26 years and first-time employment seekers. It would appreciate receiving in the next report updated information on the labour situation, level and trends of employment, unemployment, underemployment and developments in the labour market.

4. Coordination of training policies with employment opportunities. The Committee notes that the Department of Labor and Employment conducted in March 2006 a national manpower summit to identify the required skills and competencies in order to overcome structural unemployment. The Committee asks for further information regarding the follow-up action taken after the summit to ensure that the targeted job generation will be achieved. Please also provide information on the measures taken to coordinate education and training policies with prospective employment opportunities.

5. Article 3. Participation of social partners in the formulation and application of policies. The Committee notes the development of the Decent Work National Plan of Action within the four basic principles of decent work which identified areas of consensus to pursue a common agenda, realign and harmonize areas of employment generation opportunities, elimination of poverty and social protection. The Committee asks the Government to further elaborate in its next report the role that the social partners have had, in particular their role in developing and implementing the Decent Work Agenda concerning employment promotion policies and measures. It also requests information regarding the involvement of representatives of workers of the rural sector and the informal economy in the formulation and implementation of the employment measures.

Observation (CEACR) - adopted 2005, published 95th ILC session (2006)

1. Coordination of employment policy with poverty reduction. The Committee takes note of the Government’s report received in September 2004 and observes that one of the main achievements accomplished in recent years has been an overall reduction in the incidence of poverty, from 45.4 per cent in 1991 to 30.4 per cent in 2003. Also, overall employment increased by 3.6 per cent between 2003 and 2004, both in the service and industrial sectors. However, such growth in employment was outpaced by a greater increase in the size of the labour force, which resulted in a higher estimated unemployment rate of 13.7 per cent in 2004. The statistics provided by the Government also show that there was a slump in agricultural employment and an increase in the underemployment rate, despite a higher estimated real GDP growth rate in 2004. Furthermore, there is a high rate of youth unemployment, as well as notable unemployment amongst the better educated, and a significant share of unemployed persons who did not look for work because they believed that no work was available. In this regard, the Committee would appreciate receiving further information about the extent to which economic growth translates into better labour market outcomes and poverty reduction, and what may constitute the underlying structural factors that determine labour market outcomes in different regions and sectors. In this respect, the Committee asks the Government to continue to provide detailed information on the measures taken to ensure that employment, as a key element of poverty reduction, is at the heart of macroeconomic and social policies. It would also appreciate receiving information on how measures taken to promote employment operate within a "framework of a coordinated economic and social policy" (Article 2(a) of the Convention).

2. Participation of the social partners in the formulation and application of policies (Article 3). Regarding consultations with representatives of employers, workers and other groups, such as rural and informal sector workers, the Government indicates that, while it is true that representation in tripartite bodies comes from the formal sector, there exist national councils which cover the needs of the majority of the labour force, i.e. young workers, small and medium-sized enterprise workers and informal sector workers. One such body giving representation to informal sector workers in tripartite bodies is the National Anti-Poverty Commission (NAPC). The Government indicates that during the NAPC’s meeting of July 2004, several directives putting forth the interests of informal sector workers were issued. The Committee takes note of this information and asks the Government to keep providing information on the manner in which consultations are held with representatives of employers, workers and other groups, such as those in the rural sector and in the informal economy, and on the outcome of these consultations.

3. ILO technical assistance (Part V of the report form). The Government indicates that the Department of Labor and Employment, in cooperation with the ILO’s Subregional Office in Manila and the sectoral representatives from the workers and employers, are currently working on the Second Country Programme on Decent Work. The Committee requests the Government to provide details, as well as results achieved, following the implementation of this Programme, and to continue to submit information on the technical cooperation or advisory activities of the ILO concerning employment promotion and actions taken as a result thereof.

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

The Committee notes the detailed information contained in the Government’s report for the period ending August 2002 as its reply in response to its 2001 direct request.

1. Articles 1 and 2 of the Convention. The Government indicates that during the period in question despite the difficult economic conditions the employment situation in the Philippines did not deteriorate significantly. In the Government’s opinion, the recovery in the agricultural sector favoured an increase in employment, as did the expansion in the trade sector. It considers that the trends in the rate of unemployment reflect a decreasing rate of underemployment and growth in the country’s labour force. The most recent labour force figures published by the Government show that in July 2003 the unemployment rate was estimated at 12.7 per cent whereas the previous year it was recorded at 11.2 per cent. The unemployment rate for males (11.7 per cent) was lower than that of females (14.3 per cent). The Committee would appreciate continuing to receive detailed disaggregated data on labour market trends.

2. The Government states that the promotion of full, productive and freely chosen employment has been pursued through the introduction of new legislation, under the Public Employment Service Office (PESO) Act of 1999 (Republic Act No. 8759), which has sought to strengthen and expand the existing employment facilitation service machinery at all levels. The Committee wishes to remain informed of further developments in this respect and on the measures taken to expand the operations of the public employment service and their impact on the labour market. Please also state whether special difficulties have been encountered in attaining the objectives of the PESO Act and how far these difficulties have been overcome.

3. Article 3. The Government indicates tripartism is a declared policy of the State and that social dialogue is widely practised in the Philippines. As regards individual groups of workers, the Government indicates that young people and the disabled are represented in the national councils responsible for addressing the matters pertaining to the training and employment of these groups. Additionally, the social partners have been consulted in the implementation of the youth employment programme labelled "Kabataan 2000". The concern remains, however, that because union density is low in the Philippines and due to the fact that the proportion of workers employed in large industries only constitute about 1 per cent of the total labour force and that it is mainly the representatives of these workers who take part in consultations, the views of other groups of workers such as those working in small and medium-sized enterprises or workers of the informal economy remain less accessible. The Committee asks that the Government keep it informed of activities in this respect and would appreciate receiving further details on the manner in which consultations are held with representatives of employers, workers and other groups, such as rural and informal sector workers, and on the outcome of these consultations.

4. Part V of the report form. In reply to the Committee’s previous comments the Government has submitted the publication "Action Program for Decent Work: Philippines" which describes the overall framework in which ILO assistance for promoting decent work in the Philippines is provided. The Government considers that poverty remains the country’s most serious development challenge and that poverty reduction requires the adoption and consistent implementation of appropriate policies and programmes that promote full, decent and productive employment of workers. The Committee would appreciate receiving, in the Government’s next report, further details on the implementation of this action programme, which is of a nature to facilitate the application of the Convention.

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

1. Articles 1 and 2 of the Convention. In reply to previous comments, the Government in its report describes the various youth employment programmes. These include the youth work programme (KABATAAN) with approximately 2.5 million participants between 1993-99; the Special Program for the Employment of Students (SPES) with approximately 113,000 participants in 1999; the Work Appreciation Program (WAP) with 2,315 placements last year, and the Displaced Workers’ Program in which about 50,000 workers have been provided assistance, and 4,500 provided training, up to 1999. The Government also states that it has established a public employment service office in every province, key city or other strategic area. The Committee requests that the Government continue to supply information on these and other measures taken to promote employment for young people.

2. The Committee notes that rapid import liberalization had resulted in a decline in the quantity and quality of jobs, and that casual and temporary work are increasing. The Government is reviewing the impact of globalization on the quantity and quality of employment, and the Congressional Labor Commission is preparing a concept paper to guide possible revisions of the labour market regulatory framework. The Committee would appreciate receiving further information on the outcome of these efforts to promote employment.

3. The Committee notes that GDP growth has been below forecast, at  0.5 per cent in 1998 and 3.2 per cent in 1999. Job growth has slowed while the labour force continues to grow by about 1 million entrants per year. The Committee notes that, pursuant to its five-year plan for 1999-2004, the Government has established a multi-sectoral Comprehensive Employment Plan (CEP) to generate employment at local levels. The CEP largely targets vulnerable groups and displaced workers, and is monitored by the Tripartite Industrial Peace Council. Please continue to provide information on whether the jobs created through the CEP are productive, sustainable and of sufficient number.

4. Lastly, the Committee notes with interest that the Government has endorsed the Philippines as an ILO Decent Work Pilot Project, which will include a comprehensive Country Employment Policy Review. It looks forward to receiving further information on the findings of these studies.

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

The Committee notes the information contained in the Government's report for the period ending December 1998. According to the Government, the employment growth rate was 5.9 per cent in 1996 but slowed to 1.9 per cent in 1997 and 0.0 per cent in 1998, due to the effects of the Asian financial crisis and El Niño. Nonetheless, despite these shocks, unemployment decreased substantially from 13.3 per cent in 1997 to 8.9 per cent in 1998. However, youth unemployment remains high at over half of all unemployed. The Committee would appreciate receiving more information on the programmes targeted at further reducing youth unemployment. It also notes that self-employment has continuously risen in recent years, and would appreciate receiving further information on the nature of work of the self-employed and the number registered as self-employed. And the Committee asks for information on long-term unemployment, as requested in the report form under Article 1 of the Convention, pertaining to trends in employment and unemployment.

The Government states that the Department of Labour and Employment (DOLE) has created a package of interventions for workers displaced as a consequence of El Niño and the financial crisis. The Committee would appreciate receiving details on the various measures and their results.

The Committee notes the Government's description of the various levels in which tripartite consultation on employment policy takes place, in accordance with the provisions of Article 3. It would appreciate being kept informed of the outcomes of these consultations and their results in future reports.

Direct Request (CEACR) - adopted 1998, published 87th ILC session (1999)

The Committee notes that the Government's report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

1. The Committee notes the Government's report and the information it contains in reply to its previous request. It notes the Government's analysis distinguishing between employment problems in the national capital region, which has the highest unemployment rates, and the rest of the country, where there is a high rate of underemployment amounting to over 30 per cent in many regions. The Committee notes with interest that the rapid growth in economic activity has begun to be reflected, during the period, by sustained growth of employment in the industry and services sectors and that the quality of jobs offered has improved. It notes that according to the January 1997 Labour Force Survey, the unemployment rate amounted to 7.7 per cent (as against 9.5 per cent in 1994), while the rate of underemployment remains stable at around 21 per cent. The Committee also notes that these changes in employment and unemployment have occurred in a context of significant progression in levels of activity. It requests the Government to continue to provide the fullest possible information on the level and trends in the active population, employment, underemployment and unemployment, at both global and regional levels, by sector of activity, by sex, by age and by level of skills.

2. With reference to its previous direct request concerning implementation of the action programmes adopted by the National Employment Summit held in September 1995, the Committee notes that an Inter-Agency Oversight Committee responsible for the monitoring of implementation of its core programmes was due to produce its assessment report by September 1996. It requests the Government to attach to its next report a copy of the assessment report and to indicate whether the representatives of the persons affected, within the meaning of Article 3 of the Convention, participate in assessing the employment promotion programmes. Recalling that pursuant to Article 2, the measures to be adopted for attaining the employment objectives of the Convention must be decided on and kept under review "within the framework of a coordinated economic and social policy", the Committee also requests the Government to supply detailed information on the noted or expected impact on employment of the Medium-term Philippine Development Plan (1993-1998) in spheres such as investment policy and infrastructure development, trade policy and regional development policy. In addition, please indicate whether difficulty has been encountered in achieving the National Employment Plan objective of creating 1.3 million jobs a year and indicate to what extent these difficulties have been surmounted.

3. The Committee notes the information relating to the occupational training programmes to be established under the Industry Capability Building Programme (ICBP). It has been informed, moreover, of the establishment of a technical education and skills development authority (TESDA) responsible for ensuring the coordination of the various occupational training activities. In this respect, the Committee draws the Government's attention to the relevant provisions of the instruments adopted in 1975 on the development of human resources, to which it might wish to refer in formulating an education and training policy, in coordination with employment prospects. It requests the Government to continue to provide detailed information on progress made in this field.

4. Finally, the Committee noted in its previous comment that the ILO was associated with the National Employment Summit and that its support was requested for the follow-up and recalls its interest in receiving any information on ILO advisory or technical cooperation activities in the field of employment. It trusts the Government will not fail to supply in its future reports the information required on this subject (Part V of the report form).

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

1. The Committee notes the Government's report and the information it contains in reply to its previous request. It notes the Government's analysis distinguishing between employment problems in the national capital region, which has the highest unemployment rates, and the rest of the country, where there is a high rate of underemployment amounting to over 30 per cent in many regions. The Committee notes with interest that the rapid growth in economic activity has begun to be reflected, during the period, by sustained growth of employment in the industry and services sectors and that the quality of jobs offered has improved. It notes that according to the January 1997 Labour Force Survey, the unemployment rate amounted to 7.7 per cent (as against 9.5 per cent in 1994), while the rate of underemployment remains stable at around 21 per cent. The Committee also notes that these changes in employment and unemployment have occurred in a context of significant progression in levels of activity. It requests the Government to continue to provide the fullest possible information on the level and trends in the active population, employment, underemployment and unemployment, at both global and regional levels, by sector of activity, by sex, by age and by level of skills.

2. With reference to its previous direct request concerning implementation of the action programmes adopted by the National Employment Summit held in September 1995, the Committee notes that an Inter-Agency Oversight Committee responsible for the monitoring of implementation of its core programmes was due to produce its assessment report by September 1996. It requests the Government to attach to its next report a copy of the assessment report and to indicate whether the representatives of the persons affected, within the meaning of Article 3 of the Convention, participate in assessing the employment promotion programmes. Recalling that pursuant to Article 2, the measures to be adopted for attaining the employment objectives of the Convention must be decided on and kept under review "within the framework of a coordinated economic and social policy", the Committee also requests the Government to supply detailed information on the noted or expected impact on employment of the Medium-term Philippine Development Plan (1993-1998) in spheres such as investment policy and infrastructure development, trade policy and regional development policy. In addition, please indicate whether difficulty has been encountered in achieving the National Employment Plan objective of creating 1.3 million jobs a year and indicate to what extent these difficulties have been surmounted.

3. The Committee notes the information relating to the occupational training programmes to be established under the Industry Capability Building Programme (ICBP). It has been informed, moreover, of the establishment of a technical education and skills development authority (TESDA) responsible for ensuring the coordination of the various occupational training activities. In this respect, the Committee draws the Government's attention to the relevant provisions of the instruments adopted in 1975 on the development of human resources, to which it might wish to refer in formulating an education and training policy, in coordination with employment prospects. It requests the Government to continue to provide detailed information on progress made in this field.

4. Finally, the Committee noted in its previous comment that the ILO was associated with the National Employment Summit and that its support was requested for the follow-up and recalls its interest in receiving any information on ILO advisory or technical cooperation activities in the field of employment. It trusts the Government will not fail to supply in its future reports the information required on this subject (Part V of the report form).

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

1. The Committee notes the Government's report for the period ending June 1994 and the information contained in reply to its previous request. Referring also to the data on labour and employment published by the Bureau of Labor and Employment Statistics, the Committee notes a very low growth in employment during the first two years of implementation of the medium-term National Development Plan (1993-98). The unemployment rate was around 9.3 per cent in 1993 and rose to 9.5 per cent in 1994, while the average underemployment rate for the same years was 21.7 per cent and 21.4 per cent respectively. The Committee notes that these statistics show large seasonal variations in activity rates and unemployment, and that the unemployment rate is nearly double the national average in the region of the national capital, where underemployment is less prevalent. It notes that the sustained growth of the economy during the period has not resulted in a fall in the rates of unemployment and underemployment, even though the stated fundamental objective of the Government's strategy is the attainment of "growth with employment". The Committee would be grateful to receive information on the reasons underlying these developments.

2. The Committee notes that for the Government the principal objectives of its National Employment Plan are the reduction of unemployment and underemployment, the shift of employment from agriculture to industry, including an increase in productive employment in rural areas, the improvement of productivity and income levels, as well as the creation of employment in the formal sector of the economy rather than the informal sector. The Committee has also been informed of the holding in September 1995 of a National Employment Summit in which the social partners participated and with which the ILO was associated. It notes with interest that the objective of the high-level Summit was to seek the agreement of all the parties concerned on the adoption of a Comprehensive Employment Strategy Programme and to secure their support for its implementation over the following three years. Precise programmes of action were agreed upon by the Government and the social partners as a result of this Summit for: the promotion of employment and productivity in the agricultural sector, the promotion of exports, the development of small and medium-sized enterprises, the training of workers and the improvement of industrial relations in the industrial and services sectors, the improvement of productivity and terms and conditions of employment in the public sector, the assurance of better quality jobs for emigrants and the provision of effective reintegration programmes on their return. The Committee also notes that ILO support has been requested for the follow-up to the recommendations made by the Summit and to achieve the employment objectives set out in the medium-term Development Plan (1993-98). The Committee requests the Government to supply detailed information in its next report on the implementation of each of the action programmes adopted by the Summit and on the evaluation of their impact on employment, and particularly on the achievement of the objectives of the National Employment Plan, which aims to create 1.3 million jobs per year.

3. The Committee notes the implementation with support from the World Bank of the Industry Capability Building Programme (ICBP), which aims to improve skills in expanding areas of the economy with a view to promoting greater competitiveness. The Committee notes that this programme should reach out to half of the workers concerned. Please supply information on the results achieved through this programme and, more generally, on any new measure adopted to reinforce entry training and further training in coordination with employment prospects.

4. With reference to its previous comments, the Committee once again requests the Government to indicate how the representatives of persons working in the rural sector and the informal sector are associated in the consultations on employment policy required by Article 3 of the Convention.

5. The Committee notes the information supplied on migration policy in reply to its previous comments. It notes with interest that the Government has taken into account the suggestions contained in this respect in the Employment Policy (Supplementary Provisions) Recommendation, 1984 (No. 169), and that it is seriously examining the possibility of ratifying several international Conventions respecting migrant workers. Please continue to provide information on any developments in this respect, including the impact of migration on the labour market situation.

6. Finally, the Committee notes with interest the adoption, following the ILO interdepartmental project on structural adjustment, of the Social Action Plan embodying a new Structural Adjustment Programme, signed in January 1994 by the social partners. It would be grateful if the Government would supply information on the measures adopted and their impact in relation to the objectives of the Convention. It also requests the Government to continue supplying information on the action taken as a result of the various ILO technical cooperation projects which are under preparation or being implemented in the field of employment (Part V of the report form).

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

The Committee notes the Government's report for the period ending June 1992 and the information which it contains in reply to its previous direct request. According to the data available in the ILO, the unemployment rate has increased in comparison to the previous period and was around 10 per cent during the period in question, with over half of unemployed persons being under 25 years of age. Although declining, underemployment appears to affect around 22 per cent of the active population. The Committee hopes that the next report will, as in the past, contain statistics on the level and trends of employment, unemployment and underemployment throughout the country and in the various regions, by sector of the economy, sex and age. It also requests the Government to specify the employment objectives of the development plan for the years 1993-1998. Furthermore, the Committee would be grateful if the Government would supply additional information on the following points:

1. The Committee notes with interest the information concerning the agrarian reform and the number of beneficiaries of transfers of land ownership, as well as the measures taken to promote investment in rural areas. It also notes that the policy to use labour-intensive techniques to carry out infrastructural works should be maintained under the 1993-1998 plan. Please continue to supply detailed information on the various measures taken to promote rural employment, with an indication of the number of new jobs created as a result.

2. The Government refers in its report to workers in small and medium-sized enterprises who have received training subsidized by the National Manpower and Youth Council (NMYC). It also states that the NMYC endeavours to plan the development of training according to the needs of enterprises. In view of the existing mismatch between the supply and demand for skills on the labour market, the Committee would be grateful if the Government would supply further details on the plans and programmes undertaken by the NMYC. With reference to its previous request, it also requests the Government to describe the measures which have been taken or are envisaged to adapt initial training systems more closely to prospective employment opportunities.

3. The Committee notes, from information supplied by the technical departments of the ILO, the significant level of migratory flows among workers. It would be grateful if the Government would supply the information which is available on the effects of migrations on the balance of the labour market, as well as on the policy adopted in this respect as it relates to the employment policy pursued under the terms of the Convention. In this respect, it draws the Government's attention to the relevance of the suggestions contained in Part X "International migration and employment" of Recommendation No. 169 respecting employment policy (the objectives of the policies which should be adopted, the measures which should be taken, for example, to facilitate the voluntary return of nationals who have skills which are difficult to find on the labour market, as well as to ensure the exercise of trade union rights and to prevent abuses in recruitment relating to the exploitation of migrant workers).

4. With regard to the effect given to Article 3 of the Convention, the Government refers to several bodies on which the social partners are represented, although it is not clear whether the formulation of employment policies as set out in the Convention forms part of their functions. The Committee recalls in this respect that the representatives of the persons affected, and in particular representatives of employers and workers, should be consulted both for the formulation of employment policies and their implementation. It also emphasizes that, in view of their significance in the active population, it would be appropriate for the representatives of the rural and informal sectors to be associated in consultations on employment policies. The Committee would be grateful if the Government would supply full information on the procedures adopted in order to hold the consultations required by this important provision of the Convention.

5. The Committee notes with interest the information concerning the various ILO technical cooperation projects which are being implemented. It requests the Government to continue supplying such information, with an indication of the action taken as a result of these projects (Part V of the report form).

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

The Committee has noted with interest the Government's report for the period ending June 1990 and the information it supplies in response to the Committee's previous direct request. It notes that the unemployment rate was reduced in 1989 to 9.2 per cent, a level slightly higher than the intermediate target of 9 per cent fixed for this year under the Medium-Term Development Plan for 1987-92. The Government states that it is still concerned at the persistence of a high rate of underemployment, which was estimated at about 32 per cent in 1989. Among the difficulties encountered in reaching the employment targets of the Plan, the Government mentions problems of peace and order in some parts of the country, which impair the restoration of investors' confidence; the net transfer of resources in external debt servicing; and the persistence of a high rate of growth in the population and the labour force. Further to its previous comments, the Committee would be grateful if the Government would supply in its next report additional information on the following points:

1. The Committee notes the information concerning the measures taken in pursuit of the rural employment development and promotion strategy. It would be grateful if the Government would supply any available assessment of the effect of those measures on employment. Please specify the results achieved in applying Executive Order No. 336 of September 1988, which requires the use of labour-based methods in public infrastructure projects. The Government states that it is encouraging the redeployment of urban economic activities in rural areas. Please describe the measures taken to that end and the results achieved.

2. The Committee notes the information given concerning measures to promote training, particularly in small and medium enterprises. Please specify the scope of those measures, in particular as to the number of persons receiving training. More generally, noting the existing mismatch of skills supply and demand, the Committee would be grateful if the Government would describe the measures taken or contemplated with a view to coordinating the output of the education and training systems with forecasts of the economy's labour requirements.

3. Please specify the competence of each of the tripartite bodies mentioned in the report. Please describe the practical procedures for consultation with representatives of the persons affected - who may include, in addition to representatives of employers and workers, representatives of other sectors of the economically active population such as persons working in the rural and the informal sector - concerning employment policies in accordance with Article 3 of the Convention.

4. The Committee has been informed of the execution of several ILO technical cooperation projects dealing among other things with employment promotion, the development of cooperatives in rural areas or training for self-employment. It would be grateful if the Government would indicate the action taken as a result of the assistance and advice received under ILO technical cooperation projects and any factors which may have prevented or delayed such action (Part V of the report form).

Direct Request (CEACR) - adopted 1990, published 77th ILC session (1990)

With reference to its previous direct request, the Committee has noted with interest the information provided in the Government's reports received in November 1987, in December 1988 and in October 1989. A document entitled "Development Challenges, Goals, Strategies and Policies", which describes the Medium-Term Philippine Development Plan covering 1987 to 1992, was attached to the latest report.

The Committee notes that the Medium-Term Development Plan includes the "generation of more productive employment" among the four principal national development goals. The Plan also sets the targets of creating more than one million additional jobs each year and of reducing the unemployment rate from 10.6 per cent to 4.9 per cent, and the rate of visible underemployment from 33 per cent to 23.7 per cent within the Plan period. The Government's report of 1987 describes strategies concerning employment to be adopted so as to attain the development objectives under the said Plan. In the short term, a Community Employment and Development Program (CEDP) was launched in 1986, aiming at increasing incomes, especially in the rural areas. In the medium term, emphasis is put on an employment-oriented, rural-based development strategy and on the leading role of the agricultural and rural sectors in the development process. Among the obstacles to the realisation of the goals of the Plan are an external constraint, namely the high level of the external debt, with its greater impact on the poor and the supply of basic services, and the demographic factor, namely the high rate of population growth.

Regarding regulation of wages, the Committee has noted the adoption of the Republic Act No. 6640 providing for an increase in daily wages paid in the public or government sector and in the statutory minimum wage rates in the private sector. The Government also refers to the integration of the Cost-of-Living Allowance into the basic pay of workers.

The Committee has also noted the indication in the Government's reports of its efforts towards tripartite consultation in policy-making, aiming in particular at the decentralisation of tripartism and greater labour and management participation in decision-making at industry and regional level. In this connection, the Committee notes the amendment of articles 211 and 275 of the Labour Code of the Philippines by the Republic Act No. 6715 of 2 March 1989.

The Committee looks forward to receiving further information, especially as to the implementation of the Medium-Term Development Plan and the measures taken thereunder aiming at the generation of more productive employment as well as the updating of the Plan. Please include practical information on the effects of relevant policies and programmes such as statistical data (point VI of the report form). The Committee would be particularly grateful for information on the following points:

Article 1 of the Convention

(1)The extent to which employment objectives included in the updated Medium-Term Development Plan have been or are being attained, the special difficulties encountered and how far they have been overcome.

(2)Measures taken under the employment-oriented, rural-based development strategy such as public investment programmes supportive of employment in the rural area, and the removal of policy biases against the agricultural and rural sectors.

(3)Relationship between employment policy objectives and other economic and social objectives, with particular reference to structural adjustment measures and fiscal and monetary policies.

(4)Regulation of wages, prices and incomes, with particular reference to effects of the integration of the Cost-of-Living Allowance into the basic pay of workers.

(5)Measures to co-ordinate education and training policies with prospective employment opportunities, particularly in view of promoting the employability of graduates of the school system and of the blue-collar workers.

(6)Population and emigration policy measures and their impact on the labour supply and employment.

Article 2

(7)The procedures adopted to ensure that the effects on employment of measures taken to promote economic development or other economic and social objectives receive due consideration, at both the planning and the implementation stages.

Article 3

(8)The nature and the degree of the consultations now taking place with employers' and workers' representatives in the government bodies as well as at industry or rural levels.