Major Programme 250. Field Programmes in Africa

Summary of 1998-99 proposals and comparison with previous biennium (including funds from other sources)

250.1. There remains a great diversity in the situations of African countries, many of which are still experiencing conditions of crisis or armed conflict, while others are economically relatively strong, and even occupy an important position in certain sectors of world trade. At the same time, the disparities within countries, such as inequalities in access to education, training, employment, production factors, health care and social protection systems, are increasing. At a time of increased globalization and the development of major economic blocs, Africa’s overall position in the world economy remains modest. Its marginalization is illustrated by its low rate of economic growth and the decline in formal employment, its small share of global trade and its dependence on foreign investment and aid. However, real progress can be discerned in the gradual democratization of political and social life and the return to economic growth. The dismantling of apartheid in South Africa, the emergence of multipartite political systems and freedom of association, and the development of a free and independent press, are all signs of progress towards greater democracy and broader participation by the population in the decision-making process. The process of economic liberalization and the increasing importance of private enterprise are also indications of major changes in African development strategies. Finally, after a period of crisis and the implementation of structural adjustment programmes, several signs of recovery are perceptible, even though the economic growth achieved in recent years has still been lower than the rate of demographic growth.

250.2. Despite their diversity, the inherent similarities of their problems and the need for regional integration mean that African countries endeavour wherever possible to adopt common solutions, exchange experiences and develop South-South cooperation. Regional and subregional organizations and political and economic blocs provide a framework for reflection and collaboration in support of the measures taken at the national and local levels. The promotion of employment, the private sector, training, social protection and democracy are common priorities on which these institutions can focus with a view to harmonizing their strategies and seeking the assistance of international partners. With a view to reducing their employment problems, African countries are seeking to adopt measures to promote the development of efficient and profitable enterprises capable of maximizing productive employment. Other priorities will be to resolve current deficiencies in education and vocational training systems, and to adapt the principle of social solidarity to the new social and political context by the establishment of expanded social protection schemes covering those who are most in need. Moreover, although democracy is being consolidated in many countries, more still needs to be done to promote the active participation of the social partners in decision-making and social dialogue.

Priorities and objectives

250.3. The priority objectives for ILO assistance have been identified in a process of consultation with the tripartite partners. The ILO’s priorities in the region are also based on the conclusions of the World Summit for Social Development, the Fourth World Conference on Women, the International Conference on Population and Development (1994), the Nineteenth Ordinary Session of the Organization of African Unity Labour Commission (1996).

250.4. The priorities for the region during the biennium 1998-99 are: the reduction of poverty through the promotion of employment; the protection of workers; and the promotion of democracy through social dialogue and participation. The objective of the major programme is the strengthened capacity of constituents to design and implement policies and programmes that have a significant impact in terms of promoting employment, protecting workers and improving social dialogue. The achievement of this objective will also require the consolidation of national information, planning and programming systems in African member States.

250.5. The regional programme will be implemented in a context of active partnership with the ILO’s constituents. It will also include activities to follow up the conclusions and resolutions of the ILO’s African Regional Meeting to be held in 1999. Technical assistance will be provided by the six multidisciplinary advisory teams located in Africa, with support from the headquarters technical departments and area offices. Donor agencies are especially concerned to support action to combat poverty and promote democracy. The implementation by the United Nations of the Special Initiative for Africa and the ILO/UNDP “Jobs for Africa” programme will provide opportunities for further action in these fields.

Combating poverty through employment promotion

Integration of employment issues into economic policies and programmes

250.6. While economic and financial adjustment programmes are beginning to have a perceptible impact on economic growth and the balance of payments, they pay little attention to social and employment issues. It is for this reason that although economic indicators are more encouraging than in the past, unemployment and underemployment rates are still high, the population in many countries is growing more rapidly than GDP per capita and poverty is increasing. Governments and the social partners, concerned with this worsening situation of poverty as well as with their poor economic performance are requesting ILO assistance to help them take social and employment issues into account in their economic policies and programmes.

250.7. The objective in this programme area is the strengthened capacity of national institutions and officials to integrate poverty reduction measures and employment promotion issues into economic policies and investment programmes. The expected results are the formulation and implementation in several countries in the region of social and economic policies that have a positive impact on job creation for all categories of the population.

250.8. Support will be provided in the framework of country action plans and will include advisory services, technical assistance and training seminars for national administrations and employers’ and workers’ organizations to strengthen their capacity to participate in the design and implementation of employment policies that are integrated into economic policies. As a follow-up to the Social Summit, based on the results of the “Jobs for Africa” programme, assistance will be provided each year to a number of countries to undertake an overall analysis of their employment policies. A review of national investment programmes will be carried out with a view to maximizing their employment creation potential. Subregional training seminars will be organized, in collaboration with the subregional organizations concerned, on the methodology of this type of analysis. Assistance will also be provided at the national level for the implementation of follow-up mechanisms to assess the extent to which such policies improve the employment situation and ensure equality of opportunity and treatment for the various categories of the population. At the end of the biennium, the ILO biennial meeting of employment planners in Africa will evaluate the employment policy analyses that have been undertaken and the methods and tools used to assess the employment creation potential of investment programmes.

Employment and enterprise promotion

250.9. Economic difficulties and structural adjustment programmes have resulted in a contraction of employment in the public and private sectors and an increase in the number of unemployed persons. Most of the active population therefore work in traditional agricultural activities and in the urban informal sector, where their situation is characterized by underemployment, precarity and low incomes. The progressive return to growth and the need to improve the social situation has caused governments and the social partners to include the promotion of the private sector among their priorities. However, obstacles to the emergence and development of new enterprises exist at the institutional and regulatory levels, in their access to finance and in the capacity of entrepreneurs to implement their projects.

250.10. The objective in this respect is the strengthened capacity of national institutions and officials to design and implement enterprise promotion programmes that have a positive impact on economic growth and maximize the employment creation and income-generation potential of enterprises. The expected results are the implementation of employment generation programmes in rural and urban areas for the various categories of the population based on the development of micro, small and medium-sized enterprises and cooperatives.

250.11. Technical advisory services provided will seek to develop productive activities that have the highest employment potential, provide income for a larger number of people and are most likely to be viable in the rural and urban sectors (especially through small and medium-sized enterprises, micro-enterprises and the informal sector, cooperative enterprises) and labour-intensive activities that generate income, particularly in the context of local development projects. The advisory services will also aim to promote equal opportunities, particularly for young persons, women and persons with disabilities. In collaboration with other development partners, assistance will be provided on request for the design and implementation of an institutional and regulatory environment conducive to the development of enterprises and cooperatives. In collaboration with public and private business support and training institutions, training activities will be organized for entrepreneurs in the context of national action plans, using the expertise and teaching materials developed in regional technical programmes such as ACOPAM and Improve Your Business (IYB). Information and training activities will also be used to strengthen national capacities for the use of labour-intensive methods and local resources in the sectors most concerned. Technical cooperation among developing countries will be encouraged and technical assistance provided to networks of enterprise development organizations.

Promotion of training systems and programmes

250.12. National training systems in most African countries are not responding adequately to the needs of the economy. Moreover, their cost to the State is high. Although principally serving the modern sector, which only provides limited employment, these systems encounter difficulties in adapting to its rapidly changing skill needs. Most workers have a low educational level and acquire their training on the job, sometimes through traditional apprenticeship schemes. The urgent need to improve the productivity of enterprises, offer young persons more skills and provide workers with better opportunities for full employment is leading governments and the social partners, as well as donors, to seek the assistance of the ILO to design training systems adapted to needs and compatible with the available resources.

250.13. The objective in this programme area is the strengthened capacity of government services and employers’ and workers’ organizations to collaborate in the design and implementation of training policies and systems capable of adapting to the needs for skills, managed on a tripartite basis and financed by both the State and enterprises. The expected result is the establishment in a number of countries of initial and advanced training systems and the implementation of programmes to improve the skills of workers, raise productivity and increase the quality of production.

250.14. Advisory services will be provided to the tripartite constituents and national seminars will be organized to promote collaboration between the social partners for the development of training policies that are adapted to needs and integrated into economic and employment policies. The support provided will concentrate on the legal framework of training, its financing, tripartite management and planning. Technical advisory services will be provided to support institutions and training activities for trainers and private training operators. In these activities, emphasis will be placed on equality of opportunity for school-leavers, women, persons made redundant from the public service, demobilized combatants, persons with disabilities, migrant workers and long-term refugees. Technical cooperation between countries will be encouraged. The ILO will cooperate closely with UNESCO to ensure coherence between education and vocational training policies and systems.

Protection of workers

Improving working conditions, environment and the health and safety of workers

250.15. Most countries are becoming increasingly aware of the need for the sustainable use of natural resources, the prevention of pollution and the assurance of a healthy working environment for workers and quality products for consumers. However, working conditions in Africa are often harsh and workers’ health and safety is badly protected in the sectors where most of the population work, namely agriculture, the informal sector and domestic service. Migrant workers, women and children are among those subject to the most unsafe working conditions and environment. However, many occupational accidents and diseases that could be prevented through better information and protection still occur in the modern sector. Governments and employers’ and workers’ organizations are increasingly aware of this problem and of the need to seek solutions to reduce its social cost.

250.16. The objective in this field is the strengthened capacity of national administrations and the social partners to establish mechanisms to monitor working conditions, protect the health and safety of workers and collaborate in the management of the working environment. The expected results are a significant reduction in occupational accidents and diseases and an improvement in the health of workers, as a result of the participation of enterprises in prevention measures against major health risks, including AIDS. Systems for the management and control of working conditions and environment in the informal sector and in some sensitive sectors of industry and agriculture will have been tested and established in a number of countries.

250.17. Support will continue to be provided, in collaboration with WHO and national training and research institutions, for the improvement of national legislation, the strengthening of control mechanisms, the establishment of health and safety committees in enterprises, the training of health personnel and the reinforcement of the capacities of occupational health services in the fields of prevention, health care and the monitoring of workers’ health and safety. In collaboration with the Joint United Nations Programme on HIV/AIDS, the support provided will take the form of advisory services, tripartite seminars and training activities for the various partners involved in combating AIDS at the workplace. These activities will concentrate on prevention, reintegration of HIV-infected persons, adapting jobs and hours of work and combating discrimination. In collaboration with national researchers, studies will be undertaken in several countries on working conditions and on the health and safety of workers in the informal sector, agriculture, mines and the building and infrastructure sector. In particular, an examination will be made of the consequences of precarious work situations and an unsafe and unhealthy working environment on productivity and their cost for the community. Subregional seminars will be organized to draw conclusions from this work and develop action plans. Information will be disseminated on the management of the working environment, study tours will be organized and support will be provided for the establishment of appropriate institutions in member States.

The strengthening and extension of social protection

250.18. In many African countries, traditional social security systems suffer from managerial problems and sometimes from serious financial crises. Moreover, they protect only a small proportion of the active population against a limited number of risks. Traditional or more recent forms of solidarity and insurance have been developed and partially compensate for the failings of the official system at a local level, for particular categories of persons or on an individual basis. However, these initiatives are isolated and their organization and management do not always provide the necessary guarantees. Following the Eighth African Regional Conference in 1994, the ILO undertook to take action at two levels, namely the rehabilitation and reform of social security regimes, and the design and establishment of broader social protection measures. The priority needs expressed by member States confirm these orientations.

250.19. The objective in this respect is the strengthened capacity of social security institutions and their tripartite administrative bodies to adopt the necessary reforms and manage social security schemes effectively, particularly in countries where the financial situation of the schemes is most precarious. A related objective is the identification and development of broader social protection systems and the improved capacity of national institutions to establish such systems.

250.20. Audits will be carried out and advisory services provided upon request to assist in social security reforms, taking into account the adjustment programmes that are being implemented in the countries concerned. Training activities will be organized to strengthen the capacity of the tripartite partners in the management and supervision of social protection schemes. Building on the work carried out in the biennium 1996-97 to establish and test extended social protection schemes in some countries, evaluations will be carried out in collaboration with the national counterpart institutions of these projects. Further support will be provided for the design, testing and implementation of models and methods of organization and management for social protection schemes. A technical consultation will be organized with development partners and training seminars will be held for those responsible at the national and local levels for social protection. These activities will also be integrated into technical cooperation projects covering cooperatives, the development of groups of producers and artisans and the promotion of mutual savings and credit schemes.

Protection of human rights, social dialogue and international labour standards

Promotion of human rights and labour standards

250.21. Discrimination on grounds of age, race, ethnic origin, national extraction and religious or political belief, as well as on other grounds such as physical disability and HIV infection, continues to prevent certain categories of the population from achieving equal access to training, employment, factors of production (particularly land) and financing. Moreover, certain forms of forced labour persist. These problems are exacerbated in countries afflicted by armed conflict. The integration into national law of international labour standards on basic workers’ rights, and particularly their application, still gives rise to problems. Only three out of 53 African countries have ratified all seven of the ILO’s basic Conventions, while 15 other countries have ratified six of them. The tripartite constituents, and particularly workers’ organizations, frequently call upon the ILO to assist them in the defence of basic workers’ rights and the design and implementation of national measures to ensure their application.

250.22. The objective in this respect is the strengthened capacity of national partners to apply basic workers’ rights in practice, work towards the abolition of all forms of forced labour, guarantee equality of opportunity in training and employment and combat the existing economic and social discrimination. It is intended that by the end of the biennium, several countries will have incorporated into their law and practice the provisions of international labour standards containing basic rights.

250.23. Advisory services and assistance will be provided to African countries for the formulation of national policies and legislation with a view to the ratification and implementation of the ILO’s basic human rights instruments. In the case of migrant workers and persons affected by HIV, information and training activities will be carried out in support of action by employers’ and workers’ organizations in the countries concerned with a view to eliminating all forms of discrimination in employment, conditions of work and remuneration.

Elimination of child labour

250.24. The exploitation of child workers, particularly in agriculture, the informal sector and domestic service, and even as combatants, combined with the insufficient protection available to them under certain forms of apprenticeship, remain major problems in many African countries. The deterioration of the economic situation, social conflicts and population movements have made poverty worse in rural and urban areas and have weakened social and family links. Child labour is related to all of these factors and often takes the form of a deviation of traditional practices. However, with the exception of the most serious forms of exploitation, which everyone agrees should be brought an end, the progress towards the elimination of child labour remains limited in most African countries.

250.25. The objective in this respect is the mobilization of the social partners and the strengthening of their capacities to work towards the abolition of child labour. Real progress is expected, starting with the elimination of the most hazardous forms of child labour. National studies will therefore be carried out in collaboration with constituents in order to identify the most unacceptable forms of the exploitation of children, and seminars will be organized to examine the results of these studies and formulate the appropriate strategies. With the assistance of the IPEC programme, and in collaboration with the national and international partners concerned, and particularly UNICEF, national information, awareness-raising and training programmes will be organized and implemented for the elimination of child labour, and particularly its most hazardous forms. Support will be provided to the social partners, NGOs and national associations involved in these programmes.

Promotion of social dialogue and participation

250.26. The democratization process that is taking place in most African countries, combined with the trend towards decentralization and the increasingly important role played by private entrepreneurs, places new responsibilities on the social partners. Tripartite concertation is required for the preparation and implementation of decisions in the economic and social fields at both the national and local levels. However, national authorities and administrations are reluctant to give up their former prerogatives. Violations of the principle of freedom of association still occur in some countries in the region and the social partners still do not have the necessary skills to participate effectively in decision-making bodies, particularly in institutions such as social security funds, training institutions, social funds, local communities and cooperatives. The need for improved capacity to intervene in decision-making processes and in the design of economic and social programmes is often mentioned by representatives of the social partners.

250.27. The objective in this respect is the strengthened capacity of the social partners to take part in social dialogue and contribute to the resolution of economic and social problems at the national, sectoral and local levels. The expected result, in countries where this has been identified as a priority, is the improved operation of tripartite consultation machinery, the effective participation of the social partners in the implementation of economic and social policies and programmes, and in the management of institutions concerned with social protection and vocational training institutions.

250.28. Assistance will be provided to help countries to create a legislative framework that protects freedom of association and the right to organize, as well as to improve the operation of tripartite consultation machinery. Training will be organized for employers’ and workers’ organizations to develop their expertise on important economic and social policy issues and support will be provided for training activities of this type undertaken by international and regional employers’ and workers’ organizations. Current technical cooperation projects in fields such as cooperatives, training, social funds and social protection systems also provide a channel for information and training activities for the social partners responsible for their management. These activities will be supplemented by the organization of subregional tripartite seminars and study tours to promote exchanges of experience on tripartite management. Training in the practical implementation of tripartism will also be provided to labour administration officials through the African Regional Labour Administration Centre (ARLAC) and the African Regional Centre for Labour Administration (CRADAT).

Strengthening of information, planning and programming systems

250.29. ILO constituents in the region need better labour information systems and programme management capacities in all the priority fields of ILO activities in Africa. These needs apply to both administrations and the social partners, since a sound analysis of information is required for the success of negotiations and participative management. They are also vital for the implementation of ILO programmes and the national execution of technical cooperation projects.

250.30. The objective in this respect is the improved competence of the ILO’s partners in all the countries in which it undertakes activities to collect, process and use statistical, economic and labour information for the purposes of analysis, planning and management. By the end of the biennium, these partners will have gained greater skill and autonomy in the planning, management and evaluation of their programmes.

250.31. Advisory services and support will be designed to promote an optimal use of information by national institutions, including ILO documentation and technical reference materials, and to develop the methods and skills of national officials responsible for employment planning, labour market information systems, data collection and the statistical analysis of social and labour issues. Training activities and technical support will also be provided for the strengthening of labour market information systems, as well as for the establishment and development of employment and training observatories. Assistance will be provided for the development of courses on labour market information in statistical training schools in the region. Training activities will also be organized on statistics and actuarial analyses for the staff of social security schemes and on statistics of accidents and diseases and data on the health of workers for the staff of health-care institutions. National and regional institutions and employers’ and workers’ organizations will be assisted in the development of training programmes responding to the needs of the social partners and training will be provided for personnel managers in enterprises on methods of analysing the impact on productivity of remuneration systems, job classification systems, working hours, the working environment, safety and diseases such as AIDS.

Support from headquarters

250.32. The support from headquarters will consist, in the first place, of studies and research carried out in collaboration with the field structure on the social and economic situation in Africa and the impact on employment of economic and social policies, national programmes, the organization and practices of enterprises and technological developments. Substantial support will also be required from headquarters and the Turin Centre in the formulation of methodologies and tools, training materials and information products in English, French and Portuguese. Headquarters will continue to play an important role in providing, in cooperation with the field units, technical advisory services to constituents, in relaying programme proposals to international development partners, and particularly donors, and in guiding the field structure on how and where to seek financing. Headquarters will also play an important role in the evaluation of the activities carried out and in staff training. The training programmes and activities of the Turin Centre and the International Institute for Labour Studies will provide valuable support for the regional programme.

Resources

250.33. The regular budget resources for this major programme amount to some $39.6 million. There is a slight decrese of some $220,000 in real terms compared with 1996-97 biennium which mainly results from a decrease in mission resources partly offset by an increase of some $100,000 in RBTC field projects funds. Furthermore, extra-budgetary funds including SPPD and STS facilities will be made available for the development and implementation of the field programmes in Africa. These programmes will be organized, managed and monitored under the supervision of the Regional Office, by a network of 12 area offices and six multidisciplinary advisory teams.

250.1. Regional management

250.34. Provision is made under this programme for the general management and coordination of all the activities carried out under the major programme, the Assistant Director-General in charge of ILO activities in the region, secretarial support and travel.

250.2. Regional technical programmes

250.35. Provision is made under this programme for six multidisciplinary advisory teams based in Abidjan, Addis Ababa, Cairo, Dakar, Harare and Yaoundé. The location, coverage and composition of the teams will be kept under review taking into account current priorities and consultations with the concerned countries. The teams will work in close collaboration with the ILO offices in the region for the identification of country objectives and priorities. They will also formulate programmes, provide advisory services to constituents and support technical cooperation activities.

West Africa Multidisciplinary Advisory Team

250.36. The team is located in Abidjan and covers the following seven countries: Benin, Burkina Faso, Côte d’Ivoire, Ghana, Niger, Nigeria and Togo. It provides technical support to the Inter-African Centre for the Development of Vocational Training (CIADFOR) in Abidjan and maintains technical relations with subregional organizations such as the West African Economic and Monetary Union (UEMOA) and the “Conseil de l’Entente”. The team is composed of seven technical advisers.

East Africa Multidisciplinary Advisory Team

250.37. The team is located in Addis Ababa and covers the following 11 countries: Comoros, Djibouti, Ethiopia, Eritrea, Kenya, Madagascar, Mauritius, Seychelles, Somalia, United Republic of Tanzania and Uganda. The team maintains technical relations with the Secretariat of the Organization of African Unity and the United Nations Economic Commission for Africa. The team is composed of ten technical advisers.

North Africa Multidisciplinary Advisory Team

250.38. The team is located in Cairo and covers the following six countries: Algeria, Egypt, Libyan Arab Jamahiriya, Morocco, Sudan and Tunisia. It is responsible for maintaining technical relations with the League of Arab States and the Arab Labour Organization. The team works closely with the Regional Office for Arab States. The team is composed of six technical advisers.

Sahelian Africa Multidisciplinary Advisory Team

250.39. The team is located in Dakar and covers the following nine countries: Cape Verde, Gambia, Guinea, Guinea-Bissau, Liberia, Mali, Mauritania, Senegal and Sierra Leone. It maintains technical relations with subregional organizations, such as the Permanent Interstate Committee for Drought Control in the Sahel. The team is composed of seven technical advisers.

Southern Africa Multidisciplinary Advisory Team

250.40. The team is located in Harare and covers the following nine countries: Botswana, Lesotho, Malawi, Mozambique, Namibia, South Africa, Swaziland, Zambia and Zimbabwe. It provides technical support to the African Regional Labour Administration Centre (ARLAC) based in Harare, as well as advisory services to subregional organizations such as the Southern Africa Development Community (SADC) and the Preferential Trade Area for Eastern and Southern African States (PTA). The team is composed of nine technical advisers.

Central Africa Multidisciplinary Advisory Team

250.41. The team is located in Yaoundé and covers the following eleven countries: Angola, Burundi, Cameroon, Central African Republic, Chad, Congo, Equatorial Guinea, Gabon, Rwanda, Sao Tomé and Principe and Zaire. It also provides technical support to the African Regional Centre for Labour Administration (CRADAT) in Yaoundé. The team is composed of seven technical advisers.

Technical cooperation

250.42. RBTC credits for field projects in Africa will be used to respond to requests for technical assistance from governments and employers’ and workers’ organizations in the region. These resources will be used to finance activities set out in the action plans developed on the basis of country objectives. They will also cover activities with regional and subregional organizations, meetings with development partners and donors on priority subjects of common interest, the dissemination of information on the results and experience of regional and subregional activities and the development of technical cooperation between member States in the region. The technical cooperation programme financed from extra-budgetary sources will focus on projects in the fields of: employment promotion, enterprise and cooperative development, vocational training and rehabilitation, social protection, working conditions and occupational safety and health, the elimination of child labour, the participation of women in development, labour administration and industrial relations, employers’ and workers’ activities, employment information and labour statistics. In line with the policies of the international donor community and the development needs and priorities of member States, technical cooperation activities will continue to be carried out in the framework of national, subregional or regional programmes and will emphasize the enhancement of capacities at the national level. Particular importance will be given to the exchange of experience through technical cooperation between countries in the region.

250.3. Relations, service and support

250.43. Provision is made under this programme for the Deputy Regional Director and for the personnel, financial and administrative functions of the Regional Office, including supervision and administrative support for ILO offices in the region. This programme also covers the regional programming unit, computer support and documentation services. Resources are also included for an annual meeting of directors of ILO offices and multidisciplinary advisory teams in the region.

250.44. Provision is also made for the maintenance of relations with: the ILO’s tripartite constituents at the regional level; the Organization of African Unity, and in particular its tripartite Labour Commission; the United Nations Economic Commission for Africa and the other specialized agencies of the United Nations system in the region; and intergovernmental and non-governmental organizations.

250.4. Network of offices

250.45. Provision is made under this programme for area offices in Abidjan, Addis Ababa, Algiers, Antananarivo, Cairo, Dakar, Dar-es-Salaam, Kinshasa, Lagos, Lusaka, Pretoria and Yaoundé. The location and geographical coverage of these offices will be kept under review taking into account the changing country needs in the region.

International Labour Organization (ILO): Contact us | Site map |

Copyright and Permissions 1996-2009 International Labour Organization (ILO) - Disclaimer