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INTERNATIONAL LABOUR ORGANIZATION |
Sectoral Activities Programme |
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INTERNATIONAL LABOUR ORGANIZATION |
Sectoral Activities Programme |
64. Reference is made in other sections of this Report to the status of women teachers generally. However, the Joint Committee particularly notes the content of a report, published in 1995, dealing with the status of women teachers in technical education and training in Benin, Cote d'Ivoire, Mali and Senegal. This report records the adverse impact of structural adjustment plans, the small number of women teachers in vocational and technical institutions (concentrated in certain areas perceived to be "female" disciplines), weak participation of women in teacher trade unions and reduced possibilities to redress imbalances affecting women teachers due to the decline of teacher status, salaries and conditions in the context of economic restraints and adjustment measures.
65. That report was followed by the organisation of national workshops in each of the countries concerned, which resulted in recommendations and proposed follow-up actions to redress these problems. The Joint Committee observes that the problems reported follow an all too familiar a pattern in many countries (to which separate reference is made in this Report) and is gratified to note the establishment of national working groups in each of the four countries to evolve strategies for remedial action. The Joint Committee believes that it is essential that national working groups established to address problems of the above type involve governments working in conjunction with NGOs. It commends such initiatives and will seek to follow up practical outcomes in due course.
66. The Joint Committee noted with satisfaction the very considerable activity which had been generated since 1994 by both UNESCO and the ILO to promote knowledge of the provisions of the ILO/UNESCO Recommendation. Specific initiatives included:
- steps taken to revise and upgrade the publication "The Status of Teachers (1984)", a draft of which was placed before the Joint Committee for review and comment;
- the planning of work towards publication of an attractive brochure, to be circulated in a range of languages, drawing attention to the purpose of the Recommendation and its provisions;
- the production and distribution in co-operation with regional bodies, of officially authorised versions of the Recommendation in the Hindi, Portuguese and Russian languages;
- the initiation of steps leading to similar publications in Afrikaans and other major languages spoken in South Africa;
- the taking of a wide variety of steps to catalyse the integration of relevant aspects of the Recommendation into all aspects of education and training; the development of more comprehensive briefing programmes on education and teachers for ILO and UNESCO officials and their constituents, including both hard copy and electronic formats;
- the development of a variety of partnership-building and communication strategies involving international teachers' organisations and inter-governmental bodies involved with education and teachers;
- the highly successful promotion of World Teachers Day;
- the organisation of joint regional UNESCO/ILO workshops, seminars and symposia on the status of teachers, with action-oriented foci to promote and implement the provisions of the Recommendation in national contexts;
- the catalysing of close collaboration between UNESCO, the IBE, the ILO and teachers' organisations in preparation for, and conduct of, major international activities such as the ICE, JMEP and other significant events and the active involvement of CEART members in such events, particularly in regions in which they live.
67. The importance of this volume of promotional activity must not be under-estimated. The Joint Committee strongly recommends a continuance of the strategies referred to in its 1994 Report (on a tripartite basis wherever appropriate) in as many of the relevant areas as resource constraints permit, bearing in mind the priorities set out below in its proposals for future action.
68. The Joint Committee received a report concerning the planning of the 1997 World Teachers' Day, the theme of which is "Teachers in Difficult Situations". The Joint Committee agrees that such a theme is timely and supports the concept advanced in the report that such a day ought to be seen as the commencement of a year-long consideration of this theme. The Joint Committee recommends that future arrangements as regards World Teachers' Day be based also upon a thematic approach.
69. The Joint Committee welcomes the collaboration with the major international teachers' organisations in obtaining information relevant to its mandate - a continuation of cooperation initiated in 1991 and 1994. Contributions from both Education International and the World Confederation of Teachers have constituted valuable additions for study in conjunction with the materials from government and other sources listed in Annex 1.
Allegations received from teachers' organisations on non-observance of the ILO/UNESCO Recommendation
70. Nine communications were received from teachers' organisations since the last Session which related to the application of the Recommendation. Of these, six were deemed properly receivable in whole or in part according to the procedures of the Joint Committee, and three were deemed to be non-receivable according to the procedures.
71. A summary of these communications is set out below. A more detailed summary of the communications and observations by the teachers' organisations and by the respective Governments for allegations deemed receivable, and draft texts of the findings, conclusions and recommendations proposed by the Joint Committee in each case, are contained in Annex 2 to this document.
Non receivable allegations
72. The Primary Teachers' Union of Djibouti (SEP) addressed a letter dated 7 August 1995 to members of Parliament, a representative of the President of the Republic and trade unions of Djibouti, with copies to other national figures and international organisations, including the ILO. The letter alleged that negotiations had failed on the means to effectively apply agreements with the Ministry of National Education concerning teachers. Furthermore, it was alleged that Ministry officials had undertaken arbitrary actions in violation of the agreements, including large-scale dismissals of substitute teachers and transfers of teachers, which negated the status of SEP as an educational partner. The communication was considered non-receivable as an allegation as it was not addressed to the CEART, to the ILO or to UNESCO. Since the secretariat considered this to be a matter for national-level action, no further action was taken and no additional communication or information concerning Djibouti was received by the secretariat.
73. The Committee for the Defence of Foreign Language Lecturers addressed an undated letter, received on 5 January 1996, to the Director-General of the ILO concerning alleged discrimination in salaries and working conditions of non-national university teachers in Italy. The communication was considered non-receivable since it dealt with university teachers who are not included in the scope of the ILO/UNESCO Recommendation. The complainants were informed of this, and of alternative complaints procedures of the ILO and UNESCO.
74. The Education and Science Employees Union of the Russian Federation addressed a letter dated 3 February 1997 to the Director-General of UNESCO concerning allegations of non- payment of teachers' salaries by national and local authorities in the Russian Federation. The letter cited the large amount of unpaid salaries as evidence of the Government's failure to respect the Recommendation and as the basis for the fifth strike of its kind at national level within the past year. At its 268th Session (March 1997), the Governing Body of the ILO examined a representation filed by International Education (EI) and Education and Science Employees Union of the Russian Federation (ESEUR) alleging the non-application of the Convention on the protection of wages (No. 95). A tripartite committee has been established to examine the allegations concerning non-payments or delay in payment of teachers' wages.
Receivable allegations
75. The six new allegations received since 1994 raise a wide spectrum of issues in terms of the ILO/UNESCO Recommendation, including recruitment and employment of unqualified teachers to meet alleged shortages (Senegal), increased workload (Czech Republic), teachers' salaries (Bolivia), retirement/pensions (Haiti), non-respect of the Recommendation's guiding principles and teachers' professional rights and responsibilities (Federal Republic of Yugoslavia - Serbia and Montenegro) and failure to fund pay increases recommended by the competent body (United Kingdom). In most cases, teachers' organisations also complained of a failure by governments to consult them in the conception and implementation of proposed changes.
76. The allegations were carefully examined by the Joint Committee, whose report on the substance of the allegation, findings and recommendations to the competent bodies of the ILO and UNESCO is set out in Annex 2 to this report.
Review of further developments in allegations examined in 1994
77. The Joint Committee had requested information from the governments and teachers' organisations on further developments in respect of three allegations examined at the Sixth Ordinary Session in 1994 (Albania, Colombia, and Ethiopia). The information provided was examined and the Joint Committee's analysis, findings and recommendations to the competent bodies of the ILO and UNESCO are set out in Annex 2 to this report.
78. In the report of its Sixth Ordinary Session the Joint Committee observed that, under its existing mandate and working methods, there was frequently an inordinate delay between the time an allegation is received and its ultimate examination. It was concerned that any such delay militated against the efficacy of, and external confidence in, the allegations procedure.
79. Accordingly, it proposed a new working method designed to lead to a greater efficacy in responding to allegations when they are received. That working method was approved by the Governing Body of the ILO and the Executive Board of UNESCO.
80. The new method has promoted a more efficient and in some cases more rapid initial examination of, and response to, allegations when they are received. However, substantial difficulties still remain in producing a final response to allegations in a timely manner, and thereby assisting complainants in the resolution of reported problems, since the Joint Committee meets only once every three years. As a result, the organisations of teachers seeking the assistance of ILO and UNESCO in the resolution of what are often quite acute difficulties are apt to become disenchanted with the process currently in place.
81. In the circumstances the Joint Committee proposes the following further modified working methods:
(l) that, upon receipt, allegations be initially examined and processed in the manner described in paragraph 30 of the Report of the Sixth Ordinary Meeting (1994), those procedures being facilitated by use of such means of communication as are the most rapid and appropriate to the circumstances;
(2) that, in the event that the final draft of a report on an allegation which has been received since the end of the last Session is prepared more than one year prior to the next scheduled meeting of the full Joint Committee, the working party of the Joint Committee be authorised to transmit that report, as the report of the Joint Committee, for consideration by the Governing Body of the ILO and the Executive Board of UNESCO, provided that it has been approved by the Joint Committee;
(3) that a document containing simple explanatory guidelines concerning the revised work methods and the submission of allegations be prepared by UNESCO and the ILO and widely distributed to relevant bodies;
(4) that where appropriate, information related to its consideration of allegations be sought from sources which are available in accordance with its mandate.
82. It is the view of the Joint Committee that such a procedure will result in a much more effective process and engender significant confidence in it. It accordingly seeks approval to that additional variation in its working methods.
83. The Joint Committee notes with satisfaction the proposal for the adoption by the General Conference of UNESCO of the above document and the expressed wish of the ILO Governing Body that the present mandate of the Joint Committee be extended to include a monitoring of the instrument, if it is adopted. In the event that the competent bodies accept the proposal, the Joint Committee would welcome the suggested extension of its mandate as being a natural, logical and economic addition to its present role. The Joint Committee does, however, observe that the provision of adequate resources to facilitate any approved method of monitoring will be essential. It also suggests that, from the outset, steps be taken to establish a protocol for collecting and publishing appropriate statistical indicators relevant to Higher Education Teaching Personnel so as to provide a sound basis for the monitoring function.
84. The Joint Committee notes with concern that limitations on resources to monitor, promote and apply the ILO/UNESCO Recommendation have not permitted certain of its recommended strategies to be implemented to date. It is conscious of the fact that there are likely to be continuing resource limitations which will, in the immediate future, necessarily restrict the nature and number of initiatives which can be undertaken to monitor, promote knowledge of the Recommendation and take steps towards its implementation by member States.
85. It therefore proposes that the following steps be taken by the ILO and UNESCO:
(a) that the work already commenced in the redrafting of the publication "The Status of Teachers" be continued as a high priority task, together with the brochure referred to in paragraph 104(a) of the Report of the Sixth Ordinary Meeting, with a view to their wide circulation as soon as is possible. The Joint Committee urged that the revision to the commentaries on the Status of Teachers take account of the principles of plain language;
(b) that a world-wide Web site on the Internet be created to provide information on the ILO/UNESCO Recommendation;
(c) that continuing steps be taken by the ILO and UNESCO to integrate and emphasise relevant aspects of the Recommendation (in particular, section V) in all activities related to education and training. In the period since the Sixth Ordinary Meeting that has been done with notable success. It is important that this type of strategy be continued;
(d) that, apart from these general approaches, resources available during the period between the present meeting and the Seventh Ordinary Session, be concentrated on the preparation of a high profile thematic report on the Status of Teachers, which might profitably follow on, as a joint ILO/UNESCO project, from the World Education Report commissioned by UNESCO. In light of its previous concerns, the Joint Committee suggests that the first report focus on forward-looking procedures and structures which encourage participation of teachers and teachers' organisations in educational reform decisions by the most appropriate means with regard to issues - consultation, negotiation and collective bargaining - and at the various levels of educational systems - central, local and school;
(e) the inclusion on the agenda of a future ILO education sectoral meeting of the theme of lifelong learning, with the focus on the role of teachers and educational personnel;
(f) where feasible, continuation and extension to other countries of previous work in two critical areas: (1) augmenting initial and continuing education and competency levels of teachers; and (2) on the increasingly severe challenge to maintenance of experienced teachers in the profession - stress and burnout - by means of a scientifically grounded stress audit and organisational/systemic responses to reduce and/or manage stress in teaching in both developed and developing countries.
86. The Joint Committee has for some time been concerned with the continuing dearth of comprehensive and reliable statistical data available to it for the purpose of examining the effectiveness of the ILO/UNESCO Recommendation and the levels of adherence to its provisions. Accordingly, at its request, the ILO and UNESCO jointly commissioned a report on teacher indicators available internationally. An integrated report on this topic was prepared by Peter Williams, a UNESCO consultant, and former head of the Education Department of the Commonwealth Secretariat. The report included substantive inputs from UNESCO and ILO statistical and education sector specialists. Additional reports on specific topics were prepared by ILO-commissioned consultants. The Joint Committee commends this valuable investigation for detailed study by governments and teachers' organisations.
87. The Joint Committee shares the report's surprise that so little attention has been given to teachers, whose role in education is so crucial and whose potential contribution to economic and community development is so central, given the current concerns with competitiveness, costs, efficiency and like considerations. The report notes some recent co-operative endeavours involving UNESCO, OECD and EUROSTAT, although these fall somewhat short of producing data which will facilitate comprehensive, meaningful comparisons of what is occurring with regard to vital aspects of the education systems of member countries. The Joint Committee agrees with the proposals for action made in the report. Its proposals for future action reflect its view that work in this area should be accorded high priority.
88. Accordingly, as a critical research basis for this evolving analysis of teachers' status, the Joint Committee recommends that the ILO and UNESCO launch the initial phase of a long-term international project on teacher indicators based on the findings and recommendations of the international feasibility study presented at its 1997 Session. The programme should associate international governmental and non-governmental organisations, national technical cooperation agencies as appropriate, and at a national level, governments, teachers' organisations and other education stakeholders in the design and implementation of an indicators project. It should be stressed to the ILO and UNESCO Member States that the development of such indicators will facilitate better policy, planning, management and support to teaching professionals, and that it is in their own interests to participate in this type of activity. The Joint Committee urges that such efforts be linked to broader programmes designed to strengthen the statistical capacity of Member States. For example, these efforts should be linked to initiatives such as the projected UNESCO International Institute for Statistics. It may well be that some of this information can be gathered by means of revised ILO and UNESCO annual statistical collections, whilst the remainder will need to be collected by other less frequent, specific surveys at about five years intervals. The Joint Committee suggests that the international teachers' organizations be requested to assist in working with Governments to secure an adequate level of response to any specific surveys. It would be helpful if some attempt could be made to make some comparative examinations of data on a regional basis. The Joint Committee recommends that the initial focus of a project should be directed to the following aspects:
- pre-appointment qualifications for teachers;
- further education opportunities for teachers;
- gender distribution of teachers by categories at both classroom
level and by promotion position including school principals (head teachers) and
deputy principals (deputy head teachers);
- the numbers of part-time teachers expressed directly or in full-time
equivalents (FTEs);
- hours of work for teachers, including non-student contact commitments;
- class sizes;
- teachers' remuneration.
89. Against the background of the foregoing recommended activity, the Joint Committee proposes the agenda set out in Annex 3 to this report for its Seventh Ordinary Session.
