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International Labour Organization PROGRAMME AND BUDGET FOR THE BIENNIUM 2020–21 International Labour Office Geneva
ISBN 978-92-2-0318508 (print) ISBN 978-92-2-0318515 (Web pdf) First edition 2020 The designations employed in ILO publications, which are in conformity with United Nations practice, and the presentation of material therein do not imply the expression of any opinion whatsoever on the part of the International Labour Office concerning the legal status of any country, area or territory or of its authorities, or concerning the delimitation of its frontiers. Reference to names of firms and commercial products and processes does not imply their endorsement by the International Labour Office, and any failure to mention a particular firm, commercial product or process is not a sign of disapproval. ILO publications and digital products can be obtained through major booksellers and digital distribution platforms, or ordered directly from ilo@turpin-distribution.com. For more information, visit our website: www.ilo.org/publns or contact ilopubs@ilo.org. Formatted by TTE: reference P&B-2020–21[PROGR-200128-1]-En.docx Printed by the International Labour Office, Geneva, Switzerland
Preface Preface The programme proposals for 2020–21 that continuity, too. The roles of tripartism and of I now have the honour to present come as the international labour standards remain central to last step in the exceptional process agreed by all areas of activity; there has been no let-up in the Governing Body in this, the ILO’s Centenary the search for efficiency, quality and year. The idea has been to provide the accountability; and the commitment to the maximum opportunity for the ILO’s constituents delivery of the 2030 Agenda for Sustainable to set the direction of the ILO’s activities in the Development in the reformed UN system years ahead on the basis of the outcome of the remains as strong as ever. It is also true that Centenary Initiative on the Future of Work, what is proposed for the next two years can only which culminated with the adoption of a be the first steps of longer-term action by the Declaration by the International Labour ILO to respond to the ambitions of the Conference in June. Centenary Declaration. There is a widely held view among At the same time, the Office will be constituents that the ILO’s Centenary has given preparing proposals aimed at promoting greater the Organization high visibility, strong political coherence within the multilateral system, as support and increased momentum, which leave called for in the resolution on the Centenary it well equipped to confront the opportunities and Declaration. Other issues highlighted in that challenges of transformational change at work. resolution, namely, proposals for including safe But it remains for the Organization to capitalize and healthy working conditions in the ILO’s on these favourable circumstances, and the framework of fundamental principles and rights adoption and implementation of a programme of at work, and the democratization of the work that addresses the key issues thrown up by functioning and composition of the governing our intensive debate on the future of work is the bodies of the ILO, are being dealt with at the first, crucial step. current session and at the 338th Session of the Governing Body respectively. This is why the proposals before the Governing Body take the Centenary Declaration It has been enormously encouraging over for the Future of Work as their essential point of the past months for the ILO to have received reference. These proposals provide a focused such strong recognition of the importance and approach to addressing the processes of relevance of its mandate and activities. We have change that are shaping the future of work so been told to hold fast to our historic mandate for that they move decisively in the direction of social justice and to apply it creatively and social justice and generate opportunities for effectively to the key issues of the moment. The decent work for all. proposals that are presented are designed to do just that, and I commend them to the Governing There is much that is new in these Body for adoption. proposals, as compared with the programmes of past biennia, but there are elements of Guy Ryder Director-General iii
Contents Contents Page Preface .................................................................................................................................. iii Abbreviations ....................................................................................................................... vii Adoption of the budget for 2020–21 .................................................................................. ix Explanatory note.................................................................................................................. xi The Director-General’s response to the Governing Body’s discussion ........................ xiii 335th Session (March 2019) ......................................................................................... xiii 337th Session (October–November 2019) .................................................................... xvii Executive overview.............................................................................................................. 1 Policy outcomes .................................................................................................................. 11 Outcome 1: Strong tripartite constituents and influential and inclusive social dialogue.................................................................................................................. 11 Outcome 2: International labour standards and authoritative and effective supervision ............................................................................................................. 16 Outcome 3: Economic, social and environmental transitions for full, productive and freely chosen employment and decent work for all ............................................ 19 Outcome 4: Sustainable enterprises as generators of employment and promoters of innovation and decent work ............................................................... 24 Outcome 5: Skills and lifelong learning to facilitate access to and transitions in the labour market ................................................................................................ 28 Outcome 6: Gender equality and equal opportunities and treatment for all in the world of work................................................................................................. 32 Outcome 7: Adequate and effective protection at work for all ................................ 37 Outcome 8: Comprehensive and sustainable social protection for all .................... 43 An overview of regional contexts ...................................................................................... 49 Africa ............................................................................................................................ 49 Arab States ................................................................................................................... 50 Asia and the Pacific ...................................................................................................... 50 Europe and Central Asia ............................................................................................... 51 Latin America and the Caribbean .................................................................................. 51 Research, statistics and capacity development ............................................................... 53 Research and statistics ................................................................................................. 53 Overarching strategies............................................................................................ 53 Priority areas .......................................................................................................... 53 Knowledge support and dissemination mechanisms ............................................... 54 Capacity development in partnership with the Turin Centre........................................... 55 v
Programme and Budget for the biennium 2020–21 Page Enabling outcomes ............................................................................................................. 57 Outcome A: Authoritative knowledge and high-impact partnerships for promoting decent work ...................................................................................... 57 Outcome B: Effective and efficient governance of the Organization ...................... 60 Outcome C: Efficient support services and effective use of ILO resources ............ 61 Appendices I. Results framework for 2020–21 ...................................................................................... 65 II. Summary of relationships between the SDG targets and the outcomes of the programme of work for 2020–21 ........................................................................... 78 Information annexes 1. Operational budget ......................................................................................................... 83 2. Summary of regular budget technical cooperation resources ......................................... 86 vi
Abbreviations Abbreviations EBMOs employer and business membership organizations DWCP Decent Work Country Programme EESE Enabling Environment for Sustainable Enterprises GCC Gulf Cooperation Council ILOSTAT ILO database on labour statistics IPSAS International Public Sector Accounting Standards IRIS Integrated Resource Information System IT information technology OECD Organisation for Economic Co-operation and Development OSH occupational safety and health RBSA Regular Budget Supplementary Account RBTC Regular Budget Technical Cooperation SDG Sustainable Development Goal SMEs small and medium-sized enterprises UN United Nations UNFCCC United Nations Framework Convention on Climate Change UNICEF United Nations Children’s Fund WHO World Health Organization vii
Adoption of the budget for 2020–21 Adoption of the budget for 2020–21 The General Conference of the Swiss francs, shall be allocated among International Labour Organization at its member States in accordance with the scale 108th Session (10–21 June 2019) adopted by of contributions recommended by the 328 votes in favour, with 9 votes against and Finance Committee of Government 1 abstention, the following resolution, submitted Representatives; by the Finance Committee of Government (b) requests the Director-General to present for Representatives: examination and adoption by the Governing (a) in virtue of the Financial Regulations, adopts Body at its 337th Session (October– for the 77th financial period, ending November 2019) complementary information 31 December 2021, the budget of pertaining to the results framework expenditure for the International Labour comprising outcomes, indicators, baselines Organization amounting to US$790,640,000 and targets for the biennium, reflecting the and the budget of income amounting to relevant outcomes of the 108th Session US$790,640,000 which, at the budget rate of (June 2019) of the International Labour exchange of CHF1.00 to the US dollar, Conference. amounts to CHF790,640,000, and resolves The following table shows the budget as that the budget of income, denominated in adopted by the Conference: Expenditure Income 2018–19 2020–21 2018–19 2020–21 budget estimates budget estimates US$ US$ US$ CHF US$ CHF Part I Ordinary budget 779 816 986 774 238 406 Contributions 784 120 000 760 596 400 790 640 000 790 640 000 from member States Part II Unforeseen expenditure 875 000 875 000 Part III Working Capital Fund – – Part IV Institutional investments 3 428 014 15 526 594 and extraordinary items Total budget 784 120 000 790 640 000 784 120 000 760 596 400 790 640 000 790 640 000 ix
Explanatory note Explanatory note At its 335th Session (March 2019), the programme of work and results framework for Governing Body considered the Director- 2020–21, which is guided by the ILO Centenary General’s Programme and Budget proposals for Declaration for the Future of Work adopted by 2020–21. Following the Governing Body’s the International Labour Conference in June debate, a revised set of budget proposals was 2019. presented by the Director-General, which the This document includes the programme of Governing Body approved, pending the work and results framework for 2020–21 submission of the final programme proposals at approved by the Governing Body in October– its subsequent session, reflecting the relevant November 2019. It incorporates specific outcomes of the 108th Session (June 2019) of changes to the budget resulting from the the International Labour Conference. discussion of the proposals in the Governing At its 337th Session (October–November Body in March 2019, and as adopted by the 2019), the Governing Body approved the International Labour Conference. xi
The Director-General’s response to the Governing Body’s discussion The Director-General’s response to the Governing Body’s discussion 335th Session (March 2019) For the first time in the period I have served with great attention to what you had to say to us. as Director-General, it is my task to reply to the As a consequence, I will focus my reply on the debate that took place last week on my five areas of institutional investment that I Programme and Budget proposals for 2020–21, originally proposed – totalling US$31.7 million – by presenting to you, as I do now, a revision to and how they may be adjusted now in the light the real level of those proposals. of careful consideration of your comments with a view to finding consensus on a programme and It is worth recalling at the outset that on the budget which this Governing Body can previous three occasions that it engaged in this recommend to the Centenary Conference in exercise, the Governing Body was in a position June. to adopt the original proposals without any revision to the level of the budget, which was Before turning to those matters, let us also consistently set at the level of zero real growth. remember that the modified procedure for the adoption of the programme and budget means This experience demonstrates two things. that it will still remain for decisions to be made The first is that the Office has consistently on substantive programme content next shown realism and restraint in the programme November in the light of the outcome of the and budget proposals it has made. It has shown Future of Work Centenary Initiative agreed at real consideration for the financial the Conference. In the programme and budget circumstances of its member States, has not debate last week you gave us some guidance in made any attempt to seek increases in the that regard, including on the extent and balance volume of programme activities by simply asking of continuity and change to be expected, while them for a greater financial effort, and has discussion on several other items on our agenda understood that if it wants to do more for its foreshadowed, without prejudging, a number of constituents – and we do – then it must be specific issues which we will no doubt return to through funding generated by efficiency savings in November. We have been able to respect fully and the mobilization of extrabudgetary our obligations under the Financial Regulations resources. And this, of course, goes hand in while addressing the questions before us in a hand with our duty and commitment to give coherent and meaningful way; which is to say more value for money – to use the resources that we have made this modified procedure work that you put at our disposal to the very best as intended. effect. This said, a considerable amount of work The second is that the departure from the remains before us from here until November and practice of the last six years, with the inclusion it will need to be accomplished under great of a series of institutional investments that would pressure of time. Close consultation with mean an increase in the real budget, is not the constituents will be a key to its successful result of any abandonment of this approach of completion and I want to assure the Governing budgetary rigour, nor of any random initiative in Body that the Office is fully committed to it. the face of admittedly growing demands – and That applies equally to the full elaboration opportunities – facing the Organization. Rather, of the improved results framework which the it is a considered and rational response to Governing Body has expressed support for and circumstances facing the Organization and offered important guidance on. You have which demand of it, unavoidably, a number of stressed the need for a full and balanced actions which are required to sustain its approach to the ILO’s four strategic objectives, operational capacities at a prudent and the importance of integrating the ILO’s acceptable level. contribution to delivering the 2030 Agenda for These were the issues which stood at the Sustainable Development, and alignment with heart of our debate last week, and we listened the ILO’s Strategic Plan for 2018–21 and the xiii
Programme and Budget for the biennium 2020–21 2008 ILO Declaration on Social Justice for a Fair us to prioritize further the expenditures proposed Globalization. My colleagues will initiate and we have done so, so that what is left consultations with constituents as soon as corresponds only to the most critical needs of possible after this Governing Body session, with the next biennium. a view to publication of a final draft of a new Concretely, I now propose to postpone results framework in September. investment in the items on electronic records Let me then turn to the question of management, and on mobile device institutional investments that were contained in management, which are set out in detail in my original proposals. Last Monday I said in my paragraphs 174–179 right at the end of the presentation that these investments were programme and budget proposals. Additionally, I required, “to meet pressing organizational needs now propose to defer replacement of the ILO which, if unattended, would significantly damage intranet. Taken together, this would represent a vital operational capacities”. I have to reiterate reduction of US$5.3 million in the originally that reality at the same time as I must proposed investment. But the Governing Body acknowledge the difficulties expressed by many should be aware that it also represents a clear Governments in assuming the financial burden constraint on the operational efficiency of the of these investments as put to them. My clear Office; we will have to maintain paper-based reading of our debates was that while the need storage; knowledge sharing will be hindered; for investments in the five areas concerned was staff remote access to ILO systems will be well understood, there was a strong body of limited; intranet software will be unsupported by opinion that these investments should be the end of the biennium, multiple formats of stripped back to their minimum essentials and intranet will persist and delivery of the Office where possible made over a longer period of communications plan will be jeopardized. time, and that the Office needed to revisit the Furthermore, some Business Process Review means of their financing, with a particular view to recommendations will not be able to be acted an increased effort by it to reprioritize spending upon. within existing regular budget levels. The third issue is security where an It is on this basis that I now present the investment of US$10 million was proposed in following adjustments to the proposed the coming biennium as the first phase of a institutional investments. They are reflected in a US$25 million programme to ensure full document which will be made available to you compliance with United Nations Minimum along with the text of this statement in the official Operating Security Standards. Many of you, languages, immediately after the conclusion of while recognizing the obligation to assure my remarks. adequate security of staff, constituents and visitors, questioned whether some aspects of For clarity I will take each area of the proposed enhancement were required and investment individually. whether expenditure at this level was absolutely The first area of investment is in respect of necessary, and urged the Office to explore less the Building and Accommodation Fund where an costly options. increase of US$3.8 million was proposed in We have done that – and indeed the order to meet the terms of the strategy agreed Governing Body has also begun a separate by the Governing Body in 2011 to make an debate on these very matters in the context of annual provision of 1 per cent of the insurance the renovation of this building. The upshot is that value of the ILO-owned buildings for their future there are essentially two options before us. refurbishment and renovation. While this Either the “two ring” approach, involving provision is in line with industry best practice I securing the full perimeter of the ILO’s grounds am constrained to propose that the increase as well as the building itself, as I have proposed. originally proposed be halved. That means that Or the “one ring” approach, involving investment instead of moving to the 1 per cent target from in securing only the building itself. There really the current level of approximately 0.5 per cent are no sensible intermediary options. we would arrive at some 0.75 per cent. By so doing, the originally proposed institutional In the light of your deliberations, I see no investment would be reduced by US$1,885,000. option but now to propose measures focused on the latter. That means we will not be able to The second area is information technology meet fully United Nations standards for our – where I had proposed an investment of your – security. But improvements can be US$12.2 million, all of which, I would stress, effected by an investment of US$3.5 million plus would serve to finance the Information funding from existing sources, as detailed in Technology Strategy 2018–21, which the document GB.335/PFA/3, and the establishment Governing Body agreed in 2017. You have told xiv
The Director-General’s response to the Governing Body’s discussion of an access point for visitors located outside the To respond to that call, I now propose that main building. of the remaining US$16.9 million of investments, US$4.6 million be met from within the existing There are two unfortunate side effects of level of the regular budget, corresponding to the this course of action. Firstly, abandonment of the sum needed to cover the specific increased comprehensive option would require a new costs of the United Nations Resident round of negotiations with the host Government Coordinator system. which had offered financial support for it to see what assistance might still be forthcoming from Governments have said clearly and firmly it. And secondly, if at a later stage we were in a that, in line with decisions already taken in New position to implement a more comprehensive York, they are not prepared to meet this security solution, then the investment I am now expenditure through an increase in assessed putting to you would become largely redundant. contributions, and hence through any increase in the ILO’s regular budget. I would recall that, in Fourth, I come to the unforeseen this house, decisions have already been taken expenditure item where I had proposed an whereby the ILO will assume its responsibilities increased allocation to bring the programmed in contributing to the system, and those provision closer to the real levels of such decisions should not be revisited. By its nature, expenditure in recent biennia. I now propose to this item does not offer any option of being leave the proposed allocation at its current level deferred or spread over a longer period of time. of US$875,000 instead of the US$2 million I had Accordingly, I now propose that this item of proposed. The fact is that, in all probability, this expenditure be financed within Part I of the provision will be inadequate – unless of course regular budget, and the proposed institutional the Governing Body exercises greater restraint investment be eliminated. than it has previously in the past. In any case, I do think it incumbent on us all to be much more This would involve: rigorous than we have at the time of incurring ■ the use of US$940,800 previously proposed new items of spending in identifying what the for redeployment towards policy outcomes. implications are for other areas of spending. Nevertheless, I maintain my proposed There are no free lunches. strengthening of the Internal Audit and The overall budgetary consequences of Investigation function by some US$370,000; these revisions are such that the real increase in ■ a further reduction of some 1 per cent in the the budget, including institutional investments, Management item of the Strategic Budget, in would be some US$16.9 million as opposed to addition to the considerable savings already the US$31.7 million originally presented – a made there. My colleagues will be instructed reduction of some US$14.8 million. to identify those further economies, While the revisions are a genuine attempt amounting to US$500,000, without impacting to respond to what we believe the Governing negatively essential oversight and Body would consider an acceptable budget accountability functions; and finally, level, they are above all the result of a strenuous ■ a reduction of US$3.1 million in the funding effort to distinguish those investments that are currently earmarked for policy outcomes, absolutely essential to vital functions of the ILO representing one half of 1 per cent of the and which must be maintained, and those which total of that allocation. In line with the – while impacting significantly the life of our modified procedure we are applying, the Organization – would not, by their absence, be exact content of this reduction will need to life-threatening. be decided in November. The subsequent question is how the In this context, I would additionally recall remaining, essential, investments can be that reference was made last week to the financed. Last week, I recalled the efforts made possibility of applying equitable cost recovery to by the Office over past biennia to redeploy include extrabudgetary-funded activities so as to resources from backroom to frontline services meet some of our investment costs. The Office and to invest in areas relevant to our current is currently reviewing its practices in this respect discussion, and I put it to the Governing Body so as to ensure that such activities do not that this reflected a significant record of effort constitute a financial liability on member States. and achievement; I reiterate that these efforts This is a requirement of our Financial will continue. Your recognition of that record was Regulations and any issue identified will be accompanied by a renewed call on the Office to addressed to guarantee equitable cost sharing. make further efforts at redeployment to meet in Nevertheless, at this time we are not in a part the remaining, critical institutional position to introduce this measure in our budget investment needs. decision-making. xv
Programme and Budget for the biennium 2020–21 These revised proposals which reduce I very much hope that the Governing Body substantially, and to their critical minimum, the will see in these revisions a satisfactory institutional investments to be made in 2020–21, response to last week’s debate and a basis for and which include a further requirement on the consensus on a draft programme and budget of Office to redeploy funds to cover a significant US$804.1 million to be recommended to the proportion of the costs of that investment, would Centenary Session of the International Labour reduce the real budget increase requested of Conference for adoption. Governments to US$12.3 million, equivalent to Thank you. 1.57 per cent. xvi
The Director-General’s response to the Governing Body’s discussion 337th Session (October–November 2019) It is now my task to respond to last week’s The first is that they improperly include debate on the proposals for the ILO’s issues which should not be there at all, simply Programme of Work for 2020–21, as presented because there is no reference to them in the by me in document GB.337/PFA/1/1. That task Centenary Declaration. To quote the Employer is greatly facilitated, Mr President, by your own spokesperson, “The Programme and Budget summary of the discussion last Tuesday, when has no place for issues not referenced in the you noted that there was general support in the Declaration, such as, for example, multinational Governing Body for the proposals. Indeed, the enterprises” (MNEs). And he went on to argue record shows explicitly that all Government that this ran the risk of diluting the focus and the groups and the Workers’ group were ready then value added of what we proposed to do. to support the draft decision, and with it the This point is important, because we are programme of work and the results framework indeed searching for better focus, prioritization presented. and impact, and we see the Declaration as an Nevertheless, there were strong objections instrument for this. But as I said in my from the Employers’ group, both to the content introduction, the proposed programme of work is of that programme and to the manner of its – and, I believe, should be – a judicious preparation, and there were a considerable combination of change and continuity, because number of comments and questions from others there are things that the ILO has always done concerning resource allocations, budgetary and must continue to do. processes and the results framework, and these This search for balance can lead us to all require responses. “conundrums”, to use an expression much used So let me address a number of issues now, last week, and these conundrums can be and then pass the floor, with your permission, challenging. Indeed, having argued on Monday Chair, to my colleagues, Deputy Director- that MNEs had no place in the programme, we General Mr Greg Vines, and the Director of heard the Employers’ group stating, with no less PROGRAM, Mr Mohui Jiang, who will address eloquence, last Thursday precisely what the ILO some of the more specific matters that were should be doing in respect of MNEs. And we raised. have still to get to the question of global supply chains. The point I make here is that when we My first point, and I think it is the essential look a little bit more closely at the issues one, is that the crucial requirement of the involved, these conundrums do not really lend programme for the next two years is that it themselves to hard and fast binary solutions. I faithfully translate and operationalize the content trust, therefore, that the Governing Body will of the Centenary Declaration, the value of which, recognize that what is proposed in respect of I note, is embraced with increased enthusiasm multinational enterprises – which, by the way, by all constituents. are manifesting increasing interest in the work of I think it is recognized by everybody that the ILO – results from a balanced appreciation this operationalization of the Declaration will, of our responsibilities, rather than any inevitably, be the work of more than just one “ideological fascination” which the Employer biennium. But we do need to get off now on the spokesperson attributed to the Office. right foot, and, with the exception that I have The second objection relates to the already referred to, it is clear from last week’s distribution of resources among the different debate that the proposed set of eight policy policy outcomes, because concerns were outcomes provides, to the satisfaction of this expressed that there is too much unevenness Governing Body, that required direction. They between them. But in fact, we have made are recognized as a faithful translation of the particular efforts to invest regular budget Declaration into action. That is what matters, resources in those outcomes at the bottom end above all else, and for this reason, I do not of the resource scale. I mentioned this in respect propose any modification to these eight of outcome 5 on skills and outcome 6 on gender, outcomes, and no additions to them. in my initial introduction. The result of those This requires me to address more precisely efforts is that this programme would represent two objections that were raised in respect of more equity between outcomes than there is them. now or that there has been in the past. Although clearly outcome 1 on strong tripartite xvii
Programme and Budget for the biennium 2020–21 constituents stands ahead of the rest in terms of light on the direction of travel that our resource allocations, I cannot see support for Organization has been pursuing, in fact for transferring resources from it to the benefit of several biennia now. others. I again revert to the point that this Because the programme and budget biennium should be considered the beginning of approval process we have been undertaking this a process, and that resource allocations are year is in fact the latest step in a long journey, likely to evolve accordingly over time. initiated by my predecessor under the guidance When it comes to extrabudgetary and direction of the Governing Body, to have the resources, where greater unevenness still in ILO budget presentation reflect emerging best estimated receipts is evident, I do have to make practice. Strategic budgeting was introduced as the obvious point that the Office is not in a a first step towards full results-based budgeting, position to decide alone the purpose for which and eventually results-based management, funds are made available by our development which is recognized as best practice in the partners. Nevertheless, we will exert our best public sector and is prevalent now across the efforts in resource mobilization to meet funding UN system. shortfalls, and the Governing Body will have the We know we have not got there yet, but we opportunity to return to this when we discuss the have come a long way, and I believe we must ILO development cooperation strategy at our persist. So the many offers from Government next Governing Body meeting. There is, in any members in particular of this Governing Body to case, good reason to hope – and this is a work with us and assist us in further positive point – that the momentum created by improvements are indeed very welcome. Your the Centenary Declaration for emerging priorities comments and advice have been well noted and will help us move forward in these regards. we will soon have the opportunity to advance A further objection which I must address further when we start the programme and was raised, again by the Employers’ group, in budget process for 2022–23 in just a few relation to process rather than substance. It was months. It is encouraging that past progress has said that the preparation of the proposed been recognized regularly, and our assurance to programme was not a consultative process, and you is of our continuing commitment to strive to that its content suffered as a consequence. So meet fully your governance expectations of us. let me place the facts before the Governing It is in this context that the Governing Body Body. – rightly, I think – focuses its review and its Informal consultations were initiated with guidance on strategies and governance matters, the group secretariats on 28 June – one week attributing to the Office its responsibility to after the end of the International Labour implement and to operationalize your strategic Conference – on the possible scope of policy decisions. My colleagues and I do this through outcomes. A round of formal consultations with the allocation of approved strategic budget the three groups followed, from 15 to 17 July. resources to the operational levels of outputs Then, on 1 August, a summary of draft policy and organizational units. Subsequently, our outcomes was sent for comment. Further implementation performance is reported to you informal consultations with the groups on the at the end of each biennium in the programme summary were organized from 2 to 6 August. implementation report. And upon the publication of the proposed I was encouraged to hear many programme of work on 16 September, a further interventions last week which, directly or informal round was organized for 8 October. I indirectly, recognize this appropriate separation am sorry to load all of these dates upon you, but of complementary roles, as well as the the point is that whatever shortcomings the improvements being made. I want to say that I proposals may contain, they are not for want of think that it is important that we continue to consultation. This was an intensive process of respect this separation as the basis of good preparation, with intensive consultation and with governance and accountability. I would like to equal opportunities for all. It was sincerely assure the Governing Body once again that the undertaken and I think it was fruitful. specific guidance and suggestions that have Before moving on to some more specific been offered will help us greatly as we points of substance, allow me to address some implement the proposed programme of work. issues concerning the budgetary process behind The Governing Body will be aware that the the proposed programme, in the light of some of budget adopted by the Conference in June is the comments that were made on the fully consistent with this strategic approach. relationship between the strategic and the Moreover, the new results framework with its operational budgets in particular. Here, perhaps, three tiers of planning with indicators to track some longer-term perspectives can help to cast xviii
The Director-General’s response to the Governing Body’s discussion progress, embodying a theory of change, contributions to the UN resident coordinator constitutes a step change in accountability of the system, and that these activities would remain Office to the constituents. self-standing within whatever new format was to be adopted and that they would not be It responds as well to a whole series of past “mainstreamed”. These assurances were given decisions and guidance: the 2016 Conference and they have been honoured in my proposals. resolution on Advancing Social Justice through Decent Work, for example, and successive Certainly, there is no argument in respect External Auditors’ reports – the Multilateral of resource volume, I think – although the Organisation Performance Assessment Network Employer spokesperson has subsequently (MOPAN) Institutional Assessment Report asked not only that the resources concerned be among them. So it is surely right, is it not, that protected, but that they actually be increased. we press forward along the path that we have But my understanding is that, notwithstanding decided upon, and not take the type of U-turn what is clearly said in output 1.1, it continues to that would take us away from best practice and be felt that its location in the broader outcome 1 back towards some of the shortcomings of the is evidence of a deal broken, and a promise not past. kept. This said, and in order to promote the Frankly, this is puzzling, in the sense that fullest sharing of knowledge, an information note separating output 1.1 as a separate outcome, for has been distributed in the room just now, and it example, would have no material effect that I, or addresses further the link between strategic and indeed the Employers’ group, have been able to operational budgeting. identify. It has been argued that outcome 1 as proposed would create confusion, and if the At this point, Mr Chair, I would like to ask reference there is to ILO staff, then I can provide our Deputy Director-General, Mr Vines, and the the necessary reassurance. It has also been Director of PROGRAM, Mr Jiang, to take the argued that it would relegate the role of floor briefly to respond on some specific points employers’ organizations solely to that of a and questions which were posed by members of partner in social dialogue and nothing more. And the Governing Body last week, and also to yet, that is not at all what is said in output 1.1, introduce the information note. Following that, I nor in outcome 1. Certainly these concerns have will myself make some further comments. With not been echoed by the Workers’ group, which your permission, Sir. might be considered, objectively, to share the [Statements by Mr Vines and Mr Jiang] same interests. Nevertheless, the Workers did Following those very comprehensive highlight one point with regard to outcome 1, explanations, let me move towards a conclusion where they highlighted that language used in outputs 1.2 and 1.4 and an accompanying with just a few more comments on a number of indicator appear to conflate collective bargaining matters concerning some specific policy with social dialogue and other forms of outcomes. workplace cooperation. As my colleague I will start with proposed outcome 1, which Mr Jiang has recognized, it has to be made clear is all about strong tripartite constituents and that collective bargaining should be properly influential and inclusive social dialogue, to which distinguished as a fundamental right, and more resources are allocated than any other, treated accordingly. In similar terms, I would and for good reason, because its critical agree with the Workers that it is the basic importance is, I think, recognized by us all. Here, requirement of labour legislation that it secure the objection, voiced with some force by the full respect of all fundamental principles and Employers, is that putting together outputs for rights at work, and that this purpose cannot be workers and for employers, for labour qualified in any way by other considerations. Let administration and for social dialogue in one me say unequivocally that this is the principle outcome is inappropriate and contrary to that will guide all relevant ILO technical work. undertakings previously given. Finally, let me come back to two major I want to put it to you that neither thematic areas which were the subject of contention actually stands up to reasonable considerable comment, namely skills and examination. During the Conference, and prior lifelong learning, which is taken up in outcome 5, to approval of the 2020–21 budget, or indeed and the issue of productivity, which, while the approval of the Centenary Declaration, the closely linked to outcome 4, has broader Employers did seek assurances from me that implications. employers’ activities would not be adversely On the former, there was strong support for affected by the savings that we were obliged to the establishment of this new outcome across identify in the Policy Portfolio to cover increased xix
Programme and Budget for the biennium 2020–21 the Governing Body, but I did detect some Declaration. Clearly these are not concerns frustration that the level of resources devoted to exclusive to any one group. it, and the levels of ambition in the relevant Having thought a bit about the questions indicators, were not higher. In that regard, let me involved – and I think there are many of them acknowledge the great importance attributed to and that they are complex – I do think it is skills and lifelong learning in the Declaration, necessary for a deeper consideration of the role and the need for the ILO to progressively of the ILO in respect of productivity – what we develop further its activities – quantitatively as should be doing, and what we should not be well as qualitatively – as we go forward. This doing – so that our distinctive role is properly biennium, again, is a beginning. circumscribed and elaborated within the In this regard, let me note the decision parameters of the ILO’s mandate. which the Governing Body has just taken to For this reason, let me give the Governing place a general discussion item on skills and Body early notice that I will devote my own lifelong learning on the agenda of next year’s report, the Director-General’s Report to the next session of the Conference. It seems to me that session of the Conference – one of the few this provides an ideal and early opportunity to things I get to decide by myself – to the issue of move quickly and decisively in the direction that productivity and decent work. I think that by we want. And let us not forget that this will be addressing issues of strategic importance to the followed up in 2021 by the first year of the ILO in a timely manner, these reports have standard-setting item on apprenticeships. These demonstrated their worth in recent years and are important signposts for the way forward, and helped to move the Organization in helpful indicate that the strategic approach to directions. I hope we can keep up this practice Conference agenda-setting is yielding its with the issue of productivity next year at the benefits. Conference. Finally, I have been most attentive, On the basis of these comprehensive Mr President, to what has been said in respect responses – I think you will agree – and the of productivity. The Employers’ group has made clarifications provided, I trust that the Governing clear that this is a “huge priority” for it and has Body will now be in a position to approve the called for a “comprehensive strategy” to address programme of work that has been proposed. it, in the light of what is said in the Centenary Thank you for your attention. xx
Executive overview Executive overview Introduction 1. The ILO’s Programme of Work for 2020–21 is Conference adopted the budget of expenditure anchored in the ILO Centenary Declaration for and the budget of income for the Organization. the Future of Work (Centenary Declaration), 5. The Programme of Work for 2020–21 adopted by the International Labour Conference promotes the human-centred approach to the at its 108th Session (June 2019). It will be future of work set out in the Centenary implemented at a time of transformative change Declaration, which brings together the in the world of work, driven in particular by economic, social and environmental dimensions technological innovations, demographic shifts, of policies for the world of work. With enhanced environmental and climate change, and focus, clear prioritization and greater coherence globalization. The programme responds to the of action, the programme will enable accelerated Centenary Declaration’s call to act with urgency progress towards achieving the four strategic to seize the opportunities and address the objectives of the Decent Work Agenda challenges to shape a fair, inclusive and secure (employment; social protection; social dialogue future of work with full, productive and freely and tripartism; and standards and fundamental chosen employment and decent work for all. principles and rights at work) and advancing the 2. The Centenary Declaration reaffirms the 2030 Agenda for Sustainable Development imperative of social justice that gave birth to the (2030 Agenda). ILO and the conviction that it lies within the 6. The programme is guided by the call of the reach of the governments, employers and Centenary Declaration to all Members to further workers of the world acting together to shape a develop, with ILO support, the human-centred future of work that realizes its founding vision. approach to the future of work by: 3. The Centenary Declaration sets the long-term (a) strengthening the capacities of all people to direction for the ILO as it commences its second benefit from the opportunities of a changing century and, in line with the resolution on the world of work; Centenary Declaration that was adopted by the Conference at the same time, this programme (b) strengthening the institutions of work to for the biennium 2020–21 identifies the priority ensure adequate protection of all workers; areas for immediate ILO action. and 4. The Governing Body, at its 333rd Session (c) promoting sustained, inclusive and (June 2018), 1 approved a modified process sustainable economic growth, full and whereby the Director-General’s Programme and productive employment and decent work for Budget proposals for 2020–21 could be guided all. by the Centenary Declaration. This modified 7. This call for action will shape ILO support for process included the examination by the the efforts to achieve a just transition to a future Governing Body of a preliminary overview of the of work that contributes to sustainable proposals at its 334th Session (October– development, harnessing the potential of November 2018), 2 followed by the endorsement technological progress and productivity growth of the programme level of expenditure and to achieve decent work for all. consideration of the methodology to improve the results framework at its 335th Session (March 8. The programme emphasizes that the ILO will 2019), 3 pending the submission of the final continue to deliver services to governments, results framework at the present session, employers and workers (including through its reflecting the relevant outcomes of the sectoral programme and development 108th Session (June 2019) of the International cooperation), consistent with its mandate and Labour Conference. In June 2019, the based on a thorough understanding of, and attention to, their diverse circumstances, needs, priorities and levels of development. 1 GB.333/PV, para. 112. 2 GB.334/PV, paras 773–809. 9. The programme is fully aligned with the ILO’s 3 GB.335/PV, para. 884. Strategic Plan for 2018–21. Accordingly, the 1
Programme and Budget for the biennium 2020–21 criteria of relevance, impact on people’s lives international agendas are at its fore, together and influence in shaping national and with transparency and accountability. A focused programme for a human-centred approach to the future of work 10. The programme introduces a highly focused essential for achieving each of the seven other and prioritized results framework centred on outcomes. In addition, each policy outcome eight policy outcomes and three enabling includes specific measures to strengthen the outcomes. These outcomes incorporate the technical capacity of the constituents to engage cross-cutting policy drivers and Centenary in all relevant processes, policy development Initiatives reflected separately in previous activities and programmes, within and across programmes and budgets. Together with a more countries. rigorous measurement system, they define the 13. Gender equality and non-discrimination, results the Organization must seek to achieve in international labour standards, social dialogue the biennium. and a just transition towards environmental 11. The eight proposed policy outcomes derive sustainability, which were established as cross- directly from the Centenary Declaration and cutting policy drivers in the ILO’s Strategic Plan focus on the essential elements of a human- for 2018–21, are now fully embedded in the centred approach to the future of work, namely: policy outcomes of the Programme of Work for 2020–21. They are reflected in the outcome (1) strong tripartite constituents and influential strategies and outputs to be delivered in the and inclusive social dialogue; biennium, with accompanying indicators to track (2) international labour standards and progress more effectively. authoritative and effective supervision; 14. The optimal functioning of the ILO, (3) economic, social and environmental necessary for the delivery of the policy transitions for full, productive and freely outcomes, continues to be supported through chosen employment and decent work for all; three enabling outcomes. Outcome A (4) sustainable enterprises as generators of (Authoritative knowledge and high-impact partnerships for promoting decent work) sets a employment and promoters of innovation stronger role for the ILO as a creator, compiler, and decent work; broker and disseminator of knowledge, research (5) skills and lifelong learning to facilitate access findings, statistics and information on decent to and transitions in the labour market; work and as a more influential partner within the (6) gender equality and equal opportunities and multilateral system. Outcomes B (Effective and treatment for all in the world of work; efficient governance of the Organization) and C (Efficient support services and effective use of (7) adequate and effective protection at work for ILO resources) reinforce the ILO’s commitment all; and to innovation, the continued strengthening of its (8) comprehensive and sustainable social governance system and the most effective and protection for all. efficient use of all the resources available to it. They also address the democratization of the 12. Strengthening the institutional capacities of functioning and composition of the ILO the ILO’s tripartite constituents is at the core of governing bodies, as called for in the resolution the programme of work, in accordance with the on the ILO Centenary Declaration, and the ILO’s Governing Body’s decisions of October– ongoing role in and contribution to the United November 2018 4 and March 2019. 5 Nations (UN) reform process. Accordingly, a consolidated policy outcome, with specific outputs focusing on the development of 15. In addition, the programme ensures the the institutional capacity of employers’ and integration of the Centenary Initiatives, which workers’ organizations, is included. Strong, were launched in 2013, into the relevant representative and independent social partners, programme outcomes. The essential role of the effective and adequately resourced labour ILO standards system is prioritized in policy administrations and robust, influential and outcome 2; a just transition to the green inclusive mechanisms of social dialogue are the economy is reflected in all policy outcomes, and bedrock of labour market governance, and are is a particular focus of policy outcomes 3 and 4; the role of enterprises is addressed in depth in 4 policy outcome 4; a transformative agenda for GB.334/PV, para. 809. gender equality is the focus of policy outcome 6; 5 GB.335/PV, para. 381. 2
Executive overview and continuing improvements in the ILO’s plans that have been endorsed by the governance functions are addressed under Governing Body and which remain valid for the enabling outcome B. biennium 2020–21. Table 1 provides an overview of the relationship between these 16. The programme content also embeds the strategies and the programme outcomes. management and policy strategies and action Table 1. Integration of ILO strategies and action plans in the Programme of Work for 2020–21 Date Title Integration in the Programme of Work for 2020–21 November 2015 Follow-up to the resolution concerning efforts to facilitate the transition from Policy outcomes 3, 4 and 7 the informal to the formal economy November 2016 Follow-up to the resolution concerning decent work in global supply chains: Policy outcomes 3, 4 and 7; Revised ILO programme of action 2017–21 enabling outcome A March 2017 Programme of work to give effect to the resolution on Advancing Social All policy and enabling Justice through Decent Work (2017–23) outcomes November 2017 Follow-up to the resolution concerning employment and decent work Policy outcome 3 for peace and resilience Follow-up to the resolution concerning the second recurrent discussion Policy outcome 7 on fundamental principles and rights at work Follow-up to the resolution concerning fair and effective labour migration Policy outcomes 5 and 7 governance Partnership and Policy Coherence Strategy Enabling outcomes A and C Knowledge Strategy 2018–21 Enabling outcome A Information Technology Strategy (2018–21) Enabling outcome C Human Resources Strategy (2018–21): Agility, engagement and efficiency Enabling outcome C March 2018 ILO Action Plan for Gender Equality 2018–21 Policy outcome 6 ILO results-based evaluation strategy (2018–21) Enabling outcome B October 2018 Follow-up to the Strategy for indigenous peoples’ rights for inclusive and Policy outcome 6 sustainable development Follow-up discussion on the voluntary peer-review mechanisms of national Policy outcome 3 employment policies March 2019 ILO-wide strategy for institutional capacity development All policy outcomes; enabling outcome A Revised plan of action on social dialogue and tripartism for the period Policy outcomes 1, 3, 4 and 7 2019–23 to give effect to the conclusions adopted by the International Labour Conference in June 2018 Revisiting the plan of action on labour migration governance in consideration Policy outcome 7 of the Global Compact for Safe, Orderly and Regular Migration Update on the United Nations reform. Office plan of action 2019–20 Enabling outcomes A and C to maximize the opportunities of UN development system reform for the ILO and tripartite constituents Report of the 20th International Conference of Labour Statisticians Policy outcome 2 and enabling outcome A 3
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