Major Programme 265. Field Programmes in Arab States
Summary of 1998-99 proposals and comparison with previous biennium (including funds from other sources)
| PROGRAMME | TITLE | WORK-YEARS/MONTHS |
U.S.DOLLARS |
|||
| PROFESSIONAL | GENERAL SERVICE | STAFF COSTS | OTHER COSTS | TOTAL RESOURCES | ||
| 265.01 | REGIONAL MANAGEMENT | 2/00 | 3/00 | 568,972 | 53,796 | 622,768 |
| 265.02 | REGIONAL TECHNICAL PROGRAMMES | 19/01 | 9/00 | 3,010,669 | 1,634,000 | 4,644,669 |
| 265.03 | RELATIONS, SERVICE AND SUPPORT | 8/00 | 32/00 | 2,066,656 | 651,660 | 2,718,316 |
| 1998-99 TOTALS | ||||||
| REGULAR BUDGET | 29/01 | 44/00 | 5,646,297 | 2,339,456 | 7,985,753 | |
| OTHER SOURCES | 0/04 | - | 49,444 | 17,504 | 66,948 | |
| 1996-97 TOTALS | ||||||
| REGULAR BUDGET | 29/01 | 44/00 | 6,353,936 | 2,144,570 | 8,498,506 | |
| OTHER SOURCES | - | - | - | 16,896 | 16,896 | |
265.1. The economic and social situation of the countries of the region is characterized by considerable differences, with many countries enjoying the relative calm and stability that is conducive to social peace, dialogue and development, while others continue to suffer from social tension, civil war and regional conflict. In particular, the low-income countries in the region confront widespread poverty and unemployment, whereas others benefit from relatively high export revenues. Moreover, the slowdown in economic growth in many countries, and in some cases the onset of recession, has resulted in the generation of fewer employment opportunities at a time when the structural demand for labour is changing. In a context of high rates of population and labour force growth, educational and training systems have not adapted to the changing skill requirements of the labour market and of economic modernization. Moreover, the economic reforms and structural adjustment programmes that are being implemented in many countries have led to a rise in poverty, open unemployment and underemployment, as well as to lower levels of social protection and a greater wastage of human potential. To deal with these problems adequately, Ministries of Labour and other concerned government agencies need to improve their technical capacities in the fields of labour market information, employment services, issues relating to migrant workers, labour policies and legislation, labour inspection, vocational guidance and training.
265.2. However, several encouraging trends have emerged as a result of the modernization of the economies of the region, together with social and institutional change and the movement towards peace. In particular, there has been an increase in the labour force participation of women, particularly in the professional categories, the services sector and some types of industrial employment, although in other sectors, many women workers are not recorded in the official statistics. Increased job opportunities for women, greater awareness of their rights and equality of opportunity and treatment remain major issues in the region.
265.3. Despite certain progress in the region in terms of the democratization of society, action is still required in some countries for the establishment of effective social dialogue between governments and the representatives of employers and workers through viable tripartite mechanisms. The establishment and development of strong and representative organizations of workers and employers also remain essential for balanced economic development and social justice.
Priorities and objectives
265.4. The country objective reviews so far completed in the countries of the region emphasize the continuing relevance and importance of the principal objective of the major programme, namely enhancing the institutional and policy framework for employment creation and poverty alleviation, social protection and the promotion of democracy. In the activities carried out to achieve this objective, emphasis will be given to the promotion of international labour standards, democracy and human rights, which relate to all the major programme’s fields of activity. These activities will also be designed to strengthen the capacities of decision-makers and the social partners to extend social protection, establish closer linkages between training issues and employment policies, promote equal opportunities for women and strengthen policies and measures for the rehabilitation of persons with disabilities. The work of the major programme will be planned and implemented in a context of dialogue with the ILO’s constituents in the region. It will also be carried out in collaboration with international and regional agencies and in the light of the conclusions, resolutions and recommendations of regional and international meetings, including the World Summit for Social Development, the Fourth World Conference on Women and the Arab Labour Conference.
265.5. Priority will be given to assisting the countries and territories directly concerned in the peace process in the region, such as Gaza, the West Bank and Jordan, with a view to maximizing the economic and social benefits of the process. The ILO’s contribution in this respect will continue to concentrate on capacity-building activities for officials responsible for labour and social policies and for the representatives of employers and workers. The ILO will continue to show flexibility in responding to evolving situations and needs in the subregion.
Poverty alleviation and employment promotion
Developing employment policies and programmes
265.6. Slower rates of economic growth, combined with rapid population growth and the impact of economic liberalization and structural adjustment programmes have resulted in the persistence of high rates of unemployment and underemployment in many countries in the region. As a result, poverty is becoming more widespread in an increasing number of countries and the income gap between the various categories of the population is also widening. In this context, policy-makers in the region need to develop their capacity to design and implement innovative economic and social policies, based on the analysis of reliable labour market data, with a view to generating the type of growth that leads to economic recovery, the alleviation of unemployment and poverty and the optimum utilization of human resources.
265.7. Although women workers encounter constraints and obstacles that have their roots in tradition, a renewed reading of the regional culture and a thorough analysis of developmental needs are opening the door for strong statements and initiatives that underline the importance of women as principal partners in development through their work. The main constraints in this respect include the lack of adequate technical and managerial training for women, their limited access to self-employment and wage-employment in small enterprises and to positions of responsibility. Moreover, many women workers are not reflected in official statistics, which do not adequately cover women’s productive work in the non-market economy. To facilitate the integration of women into the world of work, it is therefore essential to develop gender-sensitive labour market information.
265.8. The objective in this programme area is the enhanced capacity of constituents to contribute to long-term sustainable growth through the design and implementation of policies and strategies to create employment, monitor developments on the labour market, eradicate poverty and identify the support needed by vulnerable categories of the population. Of equal concern in this respect is the objective of expanding wage-employment opportunities for women and their further integration into the broader development process in accordance with international labour standards. Special attention will also be paid to the issues of youth employment, rural employment and migrant workers.
265.9. These objectives will be pursued through the organization of specialized training, particularly for the officials responsible for policy-making, the provision of advisory services and support for regional and national projects and activities. To support and guide this work, comprehensive employment policy reviews will be carried out in four countries. The technical support provided to governments and the social partners in this respect will concentrate on the creation of an institutional and macroeconomic environment that promotes productive employment in the formal and informal sectors. Guidelines and manuals will be prepared for decision-makers and government officials and training seminars and workshops will be organized for employers’ and workers’ representatives on employment policies and strategies.
Human resources development
265.10. Countries in the region have been experiencing difficulties in updating and revising their training systems in response to the changing needs of the labour market. The uneven management of training institutions, the shortage of qualified trainers and experts and a lack of proper curricula and training materials are common obstacles to the effective deployment of the workforce. The problem is sometimes compounded by the limited coordination between the ministries responsible for education, training and human resources development. There is therefore an urgent need to strengthen national capacities to provide a coordinated policy response to the continuously changing needs.
265.11. The objective in this programme area is the enhanced capacity of policy-makers in the region to formulate and implement coherent and effective human resources development policies and develop new approaches to the organization, management and institutionalization of vocational training systems that are capable of linking both education and skills training to the needs of rapidly changing labour markets. In addition to the provision of advisory services, technical backstopping and the dissemination of information, training manuals will be published and training activities organized at the regional and national levels aimed at establishing life-long training and training flexibility as basic concepts. An important objective in this respect will be the achievement of a better linkage between training and labour market needs in the private and informal sectors through skill programmes that include training for self-employment and small business creation. In these activities, emphasis will be placed on empowering women workers through training in managerial, planning and evaluation skills, and the integration of persons with disabilities and other underprivileged categories of the population into skill training systems with a view to their vocational integration. An underlying element in making training provision more responsive to the needs of markets and the population is to increase the role of employers’ and workers’ organizations in the planning, monitoring, financing and evaluation of training.
Promoting employment through small enterprise development
265.12. Self-employment and micro and small enterprises (SMEs) are becoming the major source of income and employment opportunities in the region. However, SMEs face constraints to their development at several levels, including limited access to credit, inadequate technological and marketing skills and limited managerial capacity. There is a lack of clear and comprehensive policies for the sector, while the institutional framework for the provision of assistance and support to SMEs is often fragile. Providers of services in the fields of credit, marketing, training and technology tend to favour medium and large enterprises. Although income-generating activities for women are widely encouraged in the Arab countries, women also tend to face the constraints described above.
265.13. The objective in this programme area is the enhanced capacity of the tripartite constituents to design and implement policies and programmes that promote the creation of small enterprises. Advisory services and support will be provided for technical cooperation programmes delivering a range of practical, needs-based services to artisans and small enterprises, such as consultancy, business management training using the “Improve Your Business” (IYB) training package, the establishment of credit facilities and local and international business linkages. Training programmes for small contractors will be organized and assistance will be provided in the assessment of the institutional and legal framework in which small enterprises have to operate.
Capacity-building of labour administrations
265.14. In spite of the substantial efforts that have been made in recent years at the national and regional levels to improve the efficiency of labour administration systems, they still do not have adequate capacities to respond to the major challenges facing the countries in the region with regard to employment promotion, the modernization of labour markets, the development of human resources and the improvement of working and living conditions. To fulfil their important role in social and economic development, Ministries of Labour in the region need to improve their capacity to provide effective services in the fields of labour inspection, employment services, working conditions and social protection, and to strengthen their research and labour market information capabilities.
265.15. The objective in this respect is the improved capacity of Ministries of Labour in countries in the region to play a more active role. This objective will be pursued through the provision of advisory services, support for technical cooperation projects and other types of technical assistance and institution-building activities. Training will also be an important component of these activities, supported by the development of training materials and the collection and dissemination of information concerning the relevant international labour standards. In order to develop a more participative approach to the work of labour administrations, particularly through the involvement of the social partners, emphasis will be placed in these activities on the establishment of appropriate tripartite mechanisms for social dialogue and tripartite consultation on social and labour issues and the improvement of the consultative capacities of labour administration systems to enable them to respond to rapidly changing needs in technical fields.
Rehabilitation services for persons with disabilities
265.16. Social unrest and military conflicts have contributed significantly to the growing problem of disability in several countries in the region. In most of these countries, the limited services available are unable to meet the rising demand for vocational rehabilitation services. Although more organizations for persons with disabilities have been established in recent years and are becoming more active role in influencing policy-makers with a view to promoting the rights of persons with disabilities, the majority of the services provided still need to adopt more modern and effective approaches to rehabilitation designed to promote the mainstream integration of persons with disabilities.
265.17. The objective in this respect is the improved knowledge and expertise of policy-makers and officials working in this field to develop comprehensive vocational rehabilitation policies and operate integrated community-based vocational rehabilitation services for the reintegration and rehabilitation of persons with disabilities, including ex-combatants and ex-detainees. The principal means of action used to meet this objective will include advisory services, support for technical cooperation projects and training activities that promote and support effective strategies to enhance self-employment and wage employment for people with disabilities, particularly through the provision of integrated vocational rehabilitation services, including vocational training, employment services and activities to raise awareness of the rights of persons with disabilities. It is expected that these activities will help to increase the awareness and receptiveness of policy-makers and local communities to the importance of community-based vocational rehabilitation programmes. Another expected outcome of these activities is the creation of a better policy environment and integrated programmes for the social and economic reintegration of ex-combatants and ex-detainees in the region.
Promotion of democracy, human rights and social dialogue
265.18. In recent years, the concepts of democracy and political liberalization have become central to political debate within and outside the region. Further progress in the democratization of society requires wider acceptance of basic ILO principles on workers’ rights, equality and social justice and the more widespread ratification of the relevant Conventions. In this context, tripartite cooperation in economic and social policy-making has an important role to play in forging democratic societies in the region that are productive and respect the principles of social justice.
265.19. The general objective in this programme area is the more widespread application and ratification of the ILO’s Conventions on basic workers’ rights and the reinforcement of the capacity of the social partners to engage in social dialogue on a regular basis with a view to understanding and coping with the changing situation and defending their respective interests. In this context, particular emphasis will be placed on the promotion of the basic international labour standards and their improved application through the provision of information and advisory services. With a view to promoting social dialogue, it is of particular importance for governments, employers and workers to combine forces in order to identify the difficulties hindering their consultation and cooperation processes and to adopt practical measures to increase their effectiveness. The ILO will therefore work closely with its constituents for the further consolidation of the march towards democracy in the region and the achievement of greater respect for human rights.
Strengthening workers’ organizations
265.20. Despite its long history in some countries, the trade union movement in the region continues to suffer from a number of serious constraints, compounded by newly emerging challenges. Workers and their organizations are generally absent from economic and social debate as a result of the lack of viable tripartite structures and mechanisms, as well as the necessary capacity to participate effectively in social dialogue. In certain countries, workers have still not obtained full recognition in law and practice of the basic principles of freedom of association, the right to organize and collective bargaining, with a view to establishing representative organizations to serve as vehicles for their involvement in the social and economic development of their countries. In other countries, trade unions need to redefine their roles and functions to adapt to the new needs emerging as a result of deregulation, structural and technological changes, the changing structure of the labour market and the increased number of women workers. They therefore require leaders with the knowledge and skills necessary to enable them to formulate long-term strategies for the development of workers’ organizations and the promotion of workers’ rights.
265.21. The objective in this programme area is the development of trade union leaders and officials with the necessary capacities and knowledge to play an active role in the establishment of independent, democratic and representative workers’ organizations capable of: promoting trade union rights, including the right to organize and collective bargaining, and the observance of international labour standards; raising awareness of equality and gender issues; and promoting better conditions of work. The assistance provided to achieve this objective will include technical advisory and consultancy services, needs assessment missions, research and support for the design and implementation of projects. Meetings and seminars will be organized at the national, subregional and regional levels, and training courses will be provided for trade union leaders and instructors with a view to strengthening the structure and management of workers’ organizations, improving the technical knowledge and negotiating skills of trade union officials and enhancing workers’ education capacities. These activities will be supplemented by the administration of fellowships for trade union leaders and the provision of support for the preparation, adaptation, translation and dissemination of workers’ education manuals, guides and other relevant training materials. Throughout this work, emphasis will be placed on ensuring a more equitable and efficient participation of women in trade unions.
Improving the capacities of employers’ organizations
265.22. The overall objective of employers’ organizations is to be active and constructive partners in the development of democracy, economic stability, the labour market and an operating environment for enterprises that enables them to achieve the social and economic objectives set out in national development plans. However, the nature of trade, production, employment and work is changing dramatically in response to the globalization of markets and increased competition. In this context, in order to enhance their sustainability and credibility in their respective countries, employers’ organizations need to re-examine their policies, role and responsibilities with a view to the delivery of valuable services to their member enterprises.
265.23. The objective in this field is the strengthened capacity of employers’ organizations to establish a permanent position in national tripartite mechanisms, develop their credibility with their members and contribute to reducing social pressures. The assistance afforded to employers’ organizations to achieve this objective will include the organization of training activities, such as seminars, workshops and conferences, and the provision of advisory services and support for technical cooperation activities. In these activities, importance will be attached to establishing information networks and communication programmes in individual employers’ organizations and to providing opportunities for less developed organizations in the region to benefit from the experience and technical knowledge of more developed associations.
Working conditions and social protection
Extension of social protection
265.24. Although social security schemes are well-established in the majority of countries in the region and provide benefits covering a wide range of contingencies, large categories of the population remain outside their legal or practical scope and are essentially unprotected. These include migrant workers, agricultural workers, domestic servants, informal sector workers and non-nationals. The limited scope of the schemes is often compounded by poor compliance with systems which, in terms of their structure, coverage and operations, remain substantially unchanged since their inception. Most schemes give priority to income maintenance benefits in the event of the temporary or permanent interruption of employment, although in the light of the increased cost of health care, many countries in the region are considering the introduction of compulsory health and old-age insurance. Nevertheless, many countries lack the institutional and policy-making capacity to address these issues effectively.
265.25. The objective in this respect is the strengthened capacity of government officials and employers’ and workers’ organizations to develop social protection schemes that meet national needs and to improve the management and administration of existing schemes, with a view to the provision of better benefits and the extension of coverage to categories of the population that are currently excluded. Specialized training will be organized for the government officials concerned, as well as for employers’ and workers’ organizations. Advisory services will be provided on the legal, administrative and actuarial aspects of social security systems, particularly with a view to extending their coverage, improving their management and developing social safety nets. These activities will be designed to contribute to the extension of special protection to self-employed workers, persons with disabilities, migrant workers and agricultural and informal sector workers, and to improve the benefits provided.
Promotion of occupational safety and health
265.26. The growing recognition in the region of the importance of sound occupational safety and health policies for the attainment of higher productivity, the reduction of work-related diseases and accidents and the protection of the environment has resulted in increasing demands by constituents in the region for ILO assistance in this field. The objective in this programme area is therefore the strengthened capacity of national officials and the social partners to improve safety at work through the revision of safety and health regulations, their improved application and the design and implementation of occupational safety and health policies.
265.27. Activities in this field will build on the technical cooperation activities that have been implemented in a number of countries, leading to the revision of safety and health regulations, the development of operational safety and health monitoring laboratories and the establishment of a sustainable training programme for occupational safety and health representatives. The assistance provided to the tripartite constituents will continue to include training activities for occupational safety and health personnel, assistance in the upgrading of legislation and activities to strengthen the capacity of labour inspectors to fulfil their inspection function. Emphasis in this work will be placed on chemical safety, the prevention of major industrial accidents and institutional development. In collaboration with the Occupational Health and Safety Institute of the Arab Labour Organization, support will be provided for inter-ministerial coordination with a view to harmonizing occupational safety and health policies at the regional level. Collaborative efforts will also be intensified to involve all Arab States in the development of occupational safety and health activities.
Special programme in support of the Palestinian Authority and employers’ and workers’ organizations
265.28. The country objectives and consultations with the parties concerned point to the overwhelming importance of poverty alleviation and employment promotion in Gaza and the West Bank. Although Palestinian workers have some access to employment in Israel and other countries in the region, solutions have to be sought primarily through economic development and the expansion of employment opportunities. Support is needed by the Palestinian Authority and by employers’ and workers’ organizations to develop effective approaches to these problems and for the development of a democratic society in which due regard is given to human rights and workers’ welfare. With a view to consolidating peace through the economic and social advancement of the Palestinian people, the ILO objective in this field is the enhanced capacities of the Palestinian Authority and employers’ and workers’ organizations to address the pressing economic and social needs in Gaza and the West Bank.
265.29. In the light of developments in the region in recent years, the ILO has provided considerable assistance to Gaza and the West Bank, including training activities, technical advisory services, and the provision of equipment in the fields of labour administration, labour statistics, labour legislation, vocational rehabilitation, employment promotion, small enterprise development, rehabilitation of ex-detainees and capacity-building of employers’ and workers’ organizations. ILO action will continue to focus on capacity-building through fellowships, seminars and workshops, supplemented by the provision of technical advisory services and equipment. The ILO’s financial resources will be used as seed money with a view to obtaining extra-budgetary funding through the identification and formulation of technical assistance programmes. As a result of these activities, it is expected that the Palestinian Authority will have acquired the equipment, facilities and trained staff required to monitor the labour market and to strengthen its institutional framework, policies and systems in the fields of training, labour administration, employment services, labour legislation, occupational safety and health, the start-up and development of small enterprises, and the rehabilitation and reintegration of disadvantaged groups of the population, and particularly ex-detainees and persons with disabilities. It is also expected that by the end of the biennium the employers’ and workers’ organizations will have also acquired the equipment, facilities and expertise required for undertaking their priority activities.
Support from headquarters
265.30. The technical support required by this major programme from headquarters will include the provision of expertise in specific fields in which it is lacking in the region. It will also include the provision of technical advice and, whenever necessary, the dissemination of information on trends and experiences in other regions. In particular, technical inputs from headquarters will be needed for SPPD and STS activities, as well as for ad hoc and advisory missions. In view of the priority issues described above and the expertise available in the Arab States Multidisciplinary Advisory Team, support from headquarters will be required, in particular, in the fields of social security, occupational safety and health, labour legislation, labour statistics, cooperatives and the elimination of child labour.
Resources
265.31. The regular budget resources for this major programme amount to some $8 million. This corresponds to an increase of some $9,600 in real terms compared with 1996-97 biennium, which results from an increase of some $88,000 in RBTC resources offset by a reduced provision for non-staff costs. In addition, Programme Support Income, as well as SPPD and STS facilities, may increase during the biennium 1998-99. Other extra-budgetary resources will be used for the development of technical cooperation activities in the region.
265.1. Regional management
265.32. Provision is made under this programme for the management and coordination of all the activities of the major programme, which continues to be the focal point for relations with regional and subregional Arab institutions. Provision is also made for the Assistant Director-General responsible for ILO activities in the region, travel and secretarial assistance.
265.2. Regional technical programmes
Arab States Multidisciplinary Advisory Team
265.33. The Arab States Multidisciplinary Advisory Team is located in Beirut, Lebanon, and has the following geographical coverage: Bahrain, Iraq, Jordan, Kuwait, Lebanon, Oman, Qatar, Saudi Arabia, Syrian Arab Republic, United Arab Emirates, Yemen and the West Bank and Gaza. The team is composed of nine technical advisers in the fields of: employment and manpower planning, international labour standards, labour administration, small enterprise and management development, vocational training, vocational rehabilitation, employers’ activities, workers’ activities and women workers’ questions. One team member, with the necessary general service support, is based in Kuwait. Provision is made for ad hoc advisory services in technical fields not directly covered by the team.
265.34. With respect to technical cooperation, emphasis will continue to be placed on responding to the needs of constituents and establishing a close relationship with development partners, including donor institutions and regional and subregional organizations. In particular, programmes of joint activities will continue to be formulated and implemented in cooperation with the Arab Labour Organization (ALO), the Economic and Social Commission for Western Asia (ESCWA), the Executive Bureau of the Council of Ministers of Labour and Social Affairs in the Gulf Cooperation Council States, the International Confederation of Arab Trade Unions (ICATU), the General Union of Chambers of Commerce, Industry and Agriculture in the Arab Countries, the Arab Council for Childhood and Development (ACCD), the Center of Arab Women for Training and Research and the Arab Gulf Programme for United Nations Development Organizations (AGFUND). Technical cooperation activities in the region mainly concern projects in the fields of vocational training, vocational rehabilitation, employment promotion, small enterprise development and cooperative development. The team will support a major technical cooperation programme, expected to be financed from extra-budgetary resources, designed to strengthen the development capacity of the Palestinian Authority.
265.3. Relations, service and support
265.35. Provision is made under this programme for administrative support for the planning, coordination, implementation and follow-up of ILO activities in the region; the financial management of the regional programme; the monitoring of economic developments in the region; and the dissemination of information on ILO activities. This work is carried out in close consultation with the Arab States Multidisciplinary Advisory Team. Provision is also made for the maintenance of relations with regional institutions. The programme’s activities in the field of public information and documentation will continue to include relations with the media in the region and the translation of ILO publications into Arabic, with a view to promoting knowledge of the ILO and its activities. Negotiations are in progress with the Government of Kuwait concerning the possible establishment of an office of an ILO representative in that country.