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

Labour Inspection Convention, 1947 (No. 81) - Qatar (Ratification: 1976)

Technical cooperation. Following its previous comments, the Committee notes the information provided in the report of the Government concerning the implementation of phase two of the technical cooperation programme between the Government and the International Labour Organization (ILO) (2021–23), including its second pillar, which concerns the enforcement of labour law and access to justice. The Committee also notes the Government’s indication that additional training support has been provided to labour inspectors, including in the field of occupational safety and health (OSH). Regarding the implementation of the labour inspection policy adopted by the Ministry of Labour in 2019, the Government refers to training provided to labour inspectors on different issues in the period 2019–21, including on accident investigation and OSH in construction, and on systems and methods adopted by other countries. The Committee requests the Government to provide further information on the outcomes achieved through the implementation of the labour inspection policy, outside of training. The Committee also requests the Government to provide information on the activities undertaken during the third phase of the technical cooperation programme (2024–28) and regarding their impact on the labour inspection system.

Articles 3, 12 and 16 of the Convention. Sufficient number of labour inspections and coverage of workplaces. Following its previous comments on the high frequency of wage protection violations detected compared to labour and OSH violations, the Committee notes the Government’s indication that the Wage Protection System (WPS), an electronic monitoring system, plays a pivotal role in detecting violations and imposing penalties on establishments that are in arrears in the payment of wages. The Government indicates that establishments are checked and monitored through the WPS and that non-compliant establishments are inspected, with legal measures taken against them. Conversely, according to the Government, the reason for the low detection rate in labour and OSH inspections could be that a large proportion of establishments are abiding by the provisions of the Labour Code and its executive orders. Regarding the WPS, the Committee notes that, according to the progress report of November 2023 on the technical cooperation programme, the WPS detects cases of non-payment of wages or payments falling below the minimum wage, but cannot yet detect whether wages paid are less than those specified by employment contracts. Regarding the activities of the strategic unit of the labour inspectorate, the Committee also notes the Government’s indication that the strategic plan for labour inspectors focuses on data collection and analysis and that the main activities of the unit relate to various forms of qualification and training for labour inspectors. The Government also indicates that the functions of the strategic unit have been transferred since 2021 to the Planning and Quality Department in cooperation with the Labour Inspection Department, to develop inspection plans, objectives and programmes.

The Committee notes the information provided by the Government regarding statistics on labour inspection visits. The Committee observes that, according to the annual labour inspection report of 2022, 39,216 field inspection visits have been conducted in December 2022, with 7,467 resulting in the detection of violations, 4,794 in the giving of advice and guidance, and 26,955 in findings of compliance. However, the Committee notes with concern that, according to the Government, all inspections are undertaken with prior notice. The Committee recalls in this respect that, in accordance with Article 12, labour inspectors provided with proper credentials shall be empowered to enter freely and without previous notice at any hour of the day or night any workplace liable to inspection. The Committee requests the Government to take the necessary measures toensure that, in law and in practice,labour inspectors provided with proper credentials shall be empowered to enter freely and without previous notice at any hour of the day or night any workplace liable to inspection. It requests the Government to indicate the measures taken in this regard. The Committee also requests the Government to provide further information on the labour inspection plans, objectives and programmes developed by the Planning and Quality Department and their impact on the effectiveness and efficiency of labour inspection. The Committee requests the Government to indicate the measures taken to ensure that labour inspection visits on wage issues also cover workplaces falling outside the coverage of the WPS.

Articles 5(a), 17, 18 and 21(e). Effective cooperation between the labour inspectorate and the justice system, legal proceedings and effective enforcement of adequate penalties. Following its previous comments on measures taken to strengthen the effectiveness of enforcement mechanisms, the Committee notes the indication of the Government that a specialist team has been formed within the Labour Inspection Department to follow-up more accurately on the rulings issued, which would make it easier to know the outcome of cases referred to the judiciary. In this respect, the Committee observes that the annual labour inspection report of 2022 does not appear to contain information on the outcomes of cases referred to the courts, including penalties imposed or appeals. In the absence of information on this issue, the Committee requests the Government to continue to take all necessary measures to promote effective collaboration between the labour inspectorate and the justice system and to provide specific information on measures taken in this regard. The Committee once again requests the Government to provide specific information on the implementation of the Memorandum of Understanding on information-sharing between the Ministry of Administrative Development, Labour and Social Affairs and the Supreme Judicial Council, and on the outcome of cases referred to the judiciary by labour inspectors through infringement reports.

Articles 5(a), 9 and 13. Labour inspection in the area of OSH. Following its previous comments, the Committee notes the statistics in the annual labour inspection report of 2022, indicating that 850 non-fatal occupational accidents and 63 fatal occupational accidents have been recorded in 2022. The annual labour inspection report of 2022 also indicates that a total of 19,630 inspection visits were conducted in the area of OSH, resulting in 5,559 violations identified with measures imposed. The Committee also notes that, according to the Government, 245 reports and closure decisions have been issued between 1 January and 31 August 2023 pursuant to section 100 of the Labour Law, which provides for the authority of inspectors to prepare an urgent report, to be referred to the Minister, for closure of a workplace until the hazard is removed.

Regarding the legislation on heat stress, the Committee notes the information provided on measures taken by the Government, including awareness-raising and the issuance of Ministerial Resolution No. 17 of 2021 concerning the requisite precautions for protecting workers from the dangers of heat stress. The Government indicates that pursuant to this Ministerial Resolution, worksites are inspected and shut down in accordance with the Ministerial Decree on heat stress and working hours, if violations are found. In this regard, the progress report of November 2023 on the technical cooperation programme indicates that a targeted inspection campaign, focusing on construction worksites, the agricultural sector, delivery companies and the industrial sector, led to 504 worksites being shut down for non-compliance with the legislation, in the summer of 2023, up from 463 for summer 2022. Regarding the construction sector, the Committee further notes the Government’s indication that this sector continues to see the greatest number of work-related accidents and that joint inspections are carried out with the Building and Wood Workers International. The Government also provides statistics on the number of inspections conducted between 1 January and 31 August 2023 in workers’ accommodation, resulting in 1,205 found to be compliant with legislation, three bans, four reports, 750 warnings and 316 cases of advice and guidance. The Committee requests the Government to continue to take measures tostrengthen the capacity of labour inspectors with respect to the enforcement of OSH legislation, particularly in the construction sector, and to provide information on the impact of such measures. The Committee also requests the Government to continue to provide statistics on the number of occupational accidents, disaggregated by sector, and the number of OSH infringements found during inspection visits. In addition, the Committee requests the Government to continue to provide detailed information on: (i) the number of cases where labour inspectors shut down worksites for violations, in accordance with the Ministerial Decree on heat stress and working hours, and on the number of cases where remedial measures have been taken; and (ii) the number of joint inspections undertaken with the Building and Wood Workers International and their impact on OSH in the construction sector.

Articles 7 and 10. Recruitment and training of labour inspectors and the effective discharge of their duties. Following its previous comments, the Committee notes that, according to the annual labour inspection report of 2022, a total of 239 inspectors were employed in the Labour Inspection Department in 2022, including 153 field inspectors, compared to a total of 255 inspectors in 2019. The Committee also notes the information provided by the Government on the different forms of training received by labour inspectors, including regular training on the implementation of the Labour Law, forced labour, human trafficking, and investigation of occupational accidents and also qualifying training courses for new inspectors. The Committee requests the Government to pursue its efforts to ensure that the number of labour inspectors is sufficient to secure the effective discharge of their duties, and that they are adequately trained for the performance of their duties. The Committee once again requests the Government to indicate the measures taken to ensure the recruitment of labour inspectors and of interpreters able to speak the languages of migrant workers, and to indicate the different languages for which the interpreters provide assistance.

The Committee is raising other matters in a request addressed directly to the Government.