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Workmen's Compensation (Accidents) Convention, 1925 (No. 17) - Guinea-Bissau (Ratification: 1977)

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Direct Request (CEACR) - adopted 2021, published 110th ILC session (2022)

Articles 1 and 2 of the Convention. Scope of coverage. (i) Workers in the informal economy. In its previous comments, the Committee hoped that the Government would progress in the implementation of the non-contributory social security scheme in accordance with Act No. 4/2007 through the adoption of new regulations, to enable workers in the informal economy to benefit from compensation in cases of occupational accident or disease. The Committee notes that in its last report on the Workmen’s Compensation (Agriculture) Convention, 1921 (No. 12), the Workmen’s Compensation (Occupational Diseases) Convention, 1925 (No. 18) and the Equality of Treatment (Accident Compensation) Convention, 1925 (No. 19), the Government provides information on the implementation of the voluntary scheme through the entry into force of the Regulations on voluntary contributions to the social security system, pursuant to Decree No. 6 of 2012, which gives the possibility to workers in the informal economy to affiliate themselves with the social security system. The Committee further notes that, according to the Government, the implementation of these provisions has resulted in the extension of the protection provided in case of employment injury to an additional number of workers including, notably, women working in the informal economy.

The Committee requests the Government to provide information on the modalities governing the voluntary affiliation of workers and the financing of benefits pursuant to Decree No. 6 of 2012 and on the measures taken to ensure its effective implementation, together with a copy of the Decree. The Committee further requests the Government to provide statistical information on the number of workers who have registered with the social security system on a voluntary basis. With regard to the protection of workers in the informal economy who are not affiliated against work-related accidents, the Committee hopes that the Government will take the necessary measures to implement the non-contributory social security scheme in accordance with Act No. 4/2007 and requests the Government to keep it informed of progress made in this regard.

(ii) Coverage of domestic workers. With reference to its previous comments on the need to ensure the protection of domestic workers against occupational accidents, the Committee notes with interest that, pursuant to article 21 of Book I and to Section IV of Book II of the new Labour Code, adopted in July 2021, domestic workers are now included in the scope of coverage of the Labour Code. The Committee further notes that the new Labour Code establishes the duty of employers to affiliate their employees with social security (article 49 (2) (e)), to transfer the responsibility for the compensation of employment injuries suffered by their domestic workers to an authorized insurer (article 298 (3)) and to compensate employees for damages suffered as a result of an accident at work or occupational disease, when this responsibility has not been transferred to an insurer (article 49(2)(f)).

The Committee requests the Government to confirm that domestic workers who suffer personal injury due to a work accident, or their dependents, in case of death, will be guaranteed compensation and afforded medical care, by application of the new Labour Code. The Committee also requests the Government to provide information on the means taken for the implementation of article 49 (2) (e) of the new Labour Code with a view to ensuring the effective coverage of domestic workers for work-related injuries.

Article 5. Compensation in the form of a lump sum. In its previous comments, the Committee noted that, in practice, compensation for work-related accidents could be paid wholly as a lump sum, and requested the Government to provide information on the measures taken to ensure that, when compensation for an occupational accident is granted in the form of a lump sum, an authority guarantees the proper utilization of the funds in accordance with Article 5 of the Convention.

The Committee notes the information provided by the Government in its report on the procedure and process for the granting and payment of the lump sum, for which the National Social Security Institute (INSS) is competent. The Committee however notes that, according to the Government, the INSS requires no guarantee of the proper utilization of the lump sum payment.

The Committee requests the Government to take the necessary measures to either ensure that (i) the compensation payable to the injured workers, or to their dependents, where permanent incapacity or death results from the injury, is paid in the form of periodical payments, or, when it is paid as a lump sum, (ii) that it is accompanied by sufficient guarantees for the competent authority to be satisfied that it will be properly utilized, in conformity with Article 5 of the Convention.

The Committee has been informed that, based on the recommendations of the Standards Review Mechanism Tripartite Working Group (SRM Tripartite Working Group), the Governing Body has decided that Member States for which Convention No. 17 is in force should be encouraged to ratify the more recent Employment Injury Benefits Convention, 1964 [Schedule I amended in 1980] (No. 121), or the Social Security (Minimum Standards) Convention, 1952 (No. 102), accepting its Part VI (see GB.328/LILS/2/1). Conventions Nos 121 and 102 reflect the more modern approach to employment injury benefits. The Committee takes note of the information provided by the Government in the regard, and encourages the Government to follow up the Governing Body’s decision at its 328th Session (October–November 2016) approving the recommendations of the SRM Tripartite Working Group and to consider ratifying Conventions Nos 121 or 102 (Part VI) as the most up-to-date instruments in this subject area.

Direct Request (CEACR) - adopted 2020, published 109th ILC session (2021)

The Committee notes with deep concern that the Government’s report has not been received. It expects that the next report will contain full information on the matters raised in its previous comments. The Committee informs the Government that, if it has not supplied replies to the points raised by 1 September 2021, then it may proceed with the examination of the application of the Convention on the basis of the information at its disposal at its next session.

Repetition

The Committee notes the Government’s overall report describing how the social security system gives effect to Conventions Nos 12, 17, 18 and 19 relating to occupational accidents and diseases. The Committee notes that the priorities of the Decent Work Programme 2012–15 of Guinea-Bissau include the strengthening and expansion of the social protection system, particularly for women and workers in the informal economy. The expected results include an increase in the number of persons receiving social benefits, since priority has been afforded to improving governance through assistance for the strategic planning of institutions responsible for social protection, improving the application and monitoring of social security standards as well as training social protection stakeholders. The Committee hopes that these measures for strengthening the social security system will, in particular, provide the means to overcome the difficulties faced by the Government regarding the collection of statistics and the implementation of legislation in practice, especially by enhancing the resources of the labour inspectorate for enforcing the current legislation. The Committee also hopes that the Government will be in a position in its next report to indicate progress achieved in the following areas which have been discussed by the Committee and the Government for a number of years:

– implementation of the non-contributory social security scheme in accordance with Act No. 4/2007 through the adoption of the new regulations mentioned in the Government’s report to enable workers in the informal economy to benefit from protection in cases of occupational accident or disease;

– adoption of the necessary measures, including budgetary measures, to ensure that public servants are covered by the social protection system;

– ensuring effective equality of treatment of agricultural wage earners with other workers in respect of occupational accidents by reforming existing legislation;

– ensuring protection of domestic workers against occupational accidents in accordance with the draft new Labour Code;

– completion of the process for adopting a list of occupational diseases including at least the diseases recognized under the Workmen’s Compensation (Occupational Diseases) Convention, 1925 (No. 18);

– ensuring that when compensation for an occupational accident is granted in the form of a lump sum, an authority guarantees the proper utilization of the funds in accordance with the Workmen’s Compensation (Accidents) Convention, 1925 (No. 17);

– implementing the system of automatic reciprocity laid down by the Equality of Treatment (Accident Compensation) Convention, 1925 (No. 19), for foreign workers of all countries party to the Convention.

In this respect, recalling that the Constitution and national legislation continue to lay down reciprocity as a requirement for equality of treatment between foreign workers employed in Guinea-Bissau and Guinean nationals (article 28 of the Constitution, section 3(1) of Decree No. 4/80 and section 5(1) of Legislative Decree No. 5/86), the Committee points out that this Convention represents a multilateral social security agreement such as those promoted by section 3(1) of Act No. 4/2007 to ensure national reciprocal treatment. This being the case, the Government might consider replacing the phrase “subject to reciprocity” contained in section 3 of Decree No. 4/80 and section 5 of Legislative Decree No. 5/86 by the phrase “subject to the existence of a reciprocity agreement,” on the understanding that Convention No. 19 would be considered such an agreement.

Direct Request (CEACR) - adopted 2019, published 109th ILC session (2021)

The Committee notes with deep concern that the Government’s report has not been received. It expects that the next report will contain full information on the matters raised in its previous comments. The Committee informs the Government that, if it has not supplied replies to the points raised by 1 September 2020, then it may proceed with the examination of the application of the Convention on the basis of the information at its disposal at its next session.

Repetition

The Committee notes the Government’s overall report describing how the social security system gives effect to Conventions Nos 12, 17, 18 and 19 relating to occupational accidents and diseases. The Committee notes that the priorities of the Decent Work Programme 2012–15 of Guinea-Bissau include the strengthening and expansion of the social protection system, particularly for women and workers in the informal economy. The expected results include an increase in the number of persons receiving social benefits, since priority has been afforded to improving governance through assistance for the strategic planning of institutions responsible for social protection, improving the application and monitoring of social security standards as well as training social protection stakeholders. The Committee hopes that these measures for strengthening the social security system will, in particular, provide the means to overcome the difficulties faced by the Government regarding the collection of statistics and the implementation of legislation in practice, especially by enhancing the resources of the labour inspectorate for enforcing the current legislation. The Committee also hopes that the Government will be in a position in its next report to indicate progress achieved in the following areas which have been discussed by the Committee and the Government for a number of years:

– implementation of the non-contributory social security scheme in accordance with Act No. 4/2007 through the adoption of the new regulations mentioned in the Government’s report to enable workers in the informal economy to benefit from protection in cases of occupational accident or disease;

– adoption of the necessary measures, including budgetary measures, to ensure that public servants are covered by the social protection system;

– ensuring effective equality of treatment of agricultural wage earners with other workers in respect of occupational accidents by reforming existing legislation;

– ensuring protection of domestic workers against occupational accidents in accordance with the draft new Labour Code;

– completion of the process for adopting a list of occupational diseases including at least the diseases recognized under the Workmen’s Compensation (Occupational Diseases) Convention, 1925 (No. 18);

– ensuring that when compensation for an occupational accident is granted in the form of a lump sum, an authority guarantees the proper utilization of the funds in accordance with the Workmen’s Compensation (Accidents) Convention, 1925 (No. 17);

– implementing the system of automatic reciprocity laid down by the Equality of Treatment (Accident Compensation) Convention, 1925 (No. 19), for foreign workers of all countries party to the Convention.

In this respect, recalling that the Constitution and national legislation continue to lay down reciprocity as a requirement for equality of treatment between foreign workers employed in Guinea-Bissau and Guinean nationals (article 28 of the Constitution, section 3(1) of Decree No. 4/80 and section 5(1) of Legislative Decree No. 5/86), the Committee points out that this Convention represents a multilateral social security agreement such as those promoted by section 3(1) of Act No. 4/2007 to ensure national reciprocal treatment. This being the case, the Government might consider replacing the phrase “subject to reciprocity” contained in section 3 of Decree No. 4/80 and section 5 of Legislative Decree No. 5/86 by the phrase “subject to the existence of a reciprocity agreement,” on the understanding that Convention No. 19 would be considered such an agreement.

Direct Request (CEACR) - adopted 2018, published 108th ILC session (2019)

The Committee notes with regret that the Government’s report has not been received. It hopes that the next report will contain full information on the matters raised in its previous comments initially made in 2013.

Repetition

The Committee notes the Government’s overall report describing how the social security system gives effect to Conventions Nos 12, 17, 18 and 19 relating to occupational accidents and diseases. The Committee notes that the priorities of the Decent Work Programme 2012–15 of Guinea-Bissau include the strengthening and expansion of the social protection system, particularly for women and workers in the informal economy. The expected results include an increase in the number of persons receiving social benefits, since priority has been afforded to improving governance through assistance for the strategic planning of institutions responsible for social protection, improving the application and monitoring of social security standards as well as training social protection stakeholders. The Committee hopes that these measures for strengthening the social security system will, in particular, provide the means to overcome the difficulties faced by the Government regarding the collection of statistics and the implementation of legislation in practice, especially by enhancing the resources of the labour inspectorate for enforcing the current legislation. The Committee also hopes that the Government will be in a position in its next report to indicate progress achieved in the following areas which have been discussed by the Committee and the Government for a number of years:

– implementation of the non-contributory social security scheme in accordance with Act No. 4/2007 through the adoption of the new regulations mentioned in the Government’s report to enable workers in the informal economy to benefit from protection in cases of occupational accident or disease;

– adoption of the necessary measures, including budgetary measures, to ensure that public servants are covered by the social protection system;

– ensuring effective equality of treatment of agricultural wage earners with other workers in respect of occupational accidents by reforming existing legislation;

– ensuring protection of domestic workers against occupational accidents in accordance with the draft new Labour Code;

– completion of the process for adopting a list of occupational diseases including at least the diseases recognized under the Workmen’s Compensation (Occupational Diseases) Convention, 1925 (No. 18);

– ensuring that when compensation for an occupational accident is granted in the form of a lump sum, an authority guarantees the proper utilization of the funds in accordance with the Workmen’s Compensation (Accidents) Convention, 1925 (No. 17);

– implementing the system of automatic reciprocity laid down by the Equality of Treatment (Accident Compensation) Convention, 1925 (No. 19), for foreign workers of all countries party to the Convention.

In this respect, recalling that the Constitution and national legislation continue to lay down reciprocity as a requirement for equality of treatment between foreign workers employed in Guinea-Bissau and Guinean nationals (article 28 of the Constitution, section 3(1) of Decree No. 4/80 and section 5(1) of Legislative Decree No. 5/86), the Committee points out that this Convention represents a multilateral social security agreement such as those promoted by section 3(1) of Act No. 4/2007 to ensure national reciprocal treatment. This being the case, the Government might consider replacing the phrase “subject to reciprocity” contained in section 3 of Decree No. 4/80 and section 5 of Legislative Decree No. 5/86 by the phrase “subject to the existence of a reciprocity agreement,” on the understanding that Convention No. 19 would be considered such an agreement.

Direct Request (CEACR) - adopted 2013, published 103rd ILC session (2014)

The Committee notes the Government’s overall report describing how the social security system gives effect to Conventions Nos 12, 17, 18 and 19 relating to occupational accidents and diseases. The Committee notes that the priorities of the Decent Work Programme 2012–15 of Guinea-Bissau include the strengthening and expansion of the social protection system, particularly for women and workers in the informal economy. The expected results include an increase in the number of persons receiving social benefits, since priority has been afforded to improving governance through assistance for the strategic planning of institutions responsible for social protection, improving the application and monitoring of social security standards as well as training social protection stakeholders. The Committee hopes that these measures for strengthening the social security system will, in particular, provide the means to overcome the difficulties faced by the Government regarding the collection of statistics and the implementation of legislation in practice, especially by enhancing the resources of the labour inspectorate for enforcing the current legislation. The Committee also hopes that the Government will be in a position in its next report to indicate progress achieved in the following areas which have been discussed by the Committee and the Government for a number of years:

-implementation of the non-contributory social security scheme in accordance with Act No. 4/2007 through the adoption of the new regulations mentioned in the Government’s report to enable workers in the informal economy to benefit from protection in cases of occupational accident or disease;
-adoption of the necessary measures, including budgetary measures, to ensure that public servants are covered by the social protection system;
-ensuring effective equality of treatment of agricultural wage earners with other workers in respect of occupational accidents by reforming existing legislation;
-ensuring protection of domestic workers against occupational accidents in accordance with the draft new Labour Code;
-completion of the process for adopting a list of occupational diseases including at least the diseases recognized under the Workmen’s Compensation (Occupational Diseases) Convention, 1925 (No. 18);
-ensuring that when compensation for an occupational accident is granted in the form of a lump sum, an authority guarantees the proper utilization of the funds in accordance with the Workmen’s Compensation (Accidents) Convention, 1925 (No. 17);
-implementing the system of automatic reciprocity laid down by the Equality of Treatment (Accident Compensation) Convention, 1925 (No. 19), for foreign workers of all countries party to the Convention.

In this respect, recalling that the Constitution and national legislation continue to lay down reciprocity as a requirement for equality of treatment between foreign workers employed in Guinea-Bissau and Guinean nationals (article 28 of the Constitution, section 3(1) of Decree No. 4/80 and section 5(1) of Legislative Decree No. 5/86), the Committee points out that this Convention represents a multilateral social security agreement such as those promoted by section 3(1) of Act No. 4/2007 to ensure national reciprocal treatment. This being the case, the Government might consider replacing the phrase “subject to reciprocity” contained in section 3 of Decree No. 4/80 and section 5 of Legislative Decree No. 5/86 by the phrase “subject to the existence of a reciprocity agreement,” on the understanding that Convention No. 19 would be considered such an agreement.

Observation (CEACR) - adopted 2012, published 102nd ILC session (2013)

The Committee notes that the Government’s report has not been received. It must therefore repeat its previous observation which read as follows:

Repetition
Reporting obligations. The Committee notes the Government’s reports on Conventions Nos 12, 17, 18 and 19, received for the first time since the year 2000, notwithstanding the numerous reminders sent to the Government. It regrets, however, that they still do not reply to most of the questions raised in the comments of 2001 and repeated in 2008, 2009 and 2010. The National Union of Workers of Guinea-Bissau (UNTG) in its observations on the Government’s reports on ratified Conventions, stressed that the Government should step up its efforts to comply with international labour standards and bring its legislation in line with the ILO Conventions. In the UNTG’s opinion, the Government should take all necessary measures to strengthen its technical, material and financial capabilities to enforce the application of the labour standards in the private and public sectors. The Committee hopes that the Government will take these observations into account and will not fail to include the information requested in its next detailed reports on these Conventions due before 1 September 2012. The Government is also reminded to provide detailed information on the practical application of these Conventions as required in Part V of the report forms, particularly on the number and nature of the occupational accidents reported and the amount of benefits paid.
Legal framework of protection against occupational accidents and diseases in Guinea-Bissau. The said legal framework is composed of several laws and decrees, including Decree No. 4/80 on Compulsory Insurance on Occupational Accidents and Diseases (6 February 1980), Regulatory Decree No. 6/80 regulating Decree No. 4/80, Legislative Decree No. 5/86 on Establishment of a Social Protection Regime (29 March 1986), Legislative Decree No. 1/97 on the Replacement of the National Insurance and Social Protection Institute by the National Institute of Social Security (INPS) and GUIBIS-Guinea-Bissau Insurances SÀRL (29 April 1997), and Act No. 4/2007 on the Legal Framework for Social Protection (3 September 2007). Decree No. 4/80 governs compulsory insurance against occupational accidents and diseases providing for the workers’ (and their family members’) right to compensation. It sets the definition of occupational accidents and diseases and rules regarding the exercise of the rights to compensation under the compulsory insurance scheme, and financed through employers’ and workers’ contributions, operated by the INPS. Regulatory Decree No. 6/80 establishes different types of benefits to which a worker suffering an occupational accident or disease is entitled according to the degree of incapacity, and sets forth the rules to determine the base salary upon which compensation is paid. Legislative Decree No. 5/86 repeals the provisions of the Agricultural Code and establishes the basis of the general regime of social security. Legislative Decree No. 1/97 replaces the former National Insurance and Social Protection Institute with the INPS. Lastly, Act No. 4/2007 establishing a Legal Framework for Social Protection for the population of the country, consists of three schemes: Citizenship Social Protection of a non-contributory nature; Mandatory Social Protection, which is a contributory regime covering all wage earners (nationals or foreigners); and a voluntary Complementary Social Security scheme. The Committee would ask the Government to complete the above description of the legal framework existing in the country and providing protection against occupational accidents and diseases, clarifying in particular: (i) whether Act No. 4/2007 has entered into force and been regulated; (ii) whether Decree No. 4/80 and Regulatory Decree No. 6/80 have been repealed by Act No. 4/2007; (iii) the relations between Regulatory Decree No. 5/86 and Act No. 4/2007, with respect to their scope of application, rules regarding foreign workers, benefits and degrees of compensation for incapacity of workers due to occupational accidents and diseases; (iv) proposals for reforming this framework and elaborating new legislation.
Adoption of the list of occupational diseases. The Committee recalls that back in 2000, the Government stated that the INPS, which has competence for workers’ compensation for occupational accidents and diseases, was having difficulty in identifying occupational diseases, and consequently, the Ministry of Public Health had not been able to adopt a list of such diseases. In its 2011 report on Convention No. 18, the Government regretted that Guinea-Bissau has neither enacted a legal regime regulating occupational diseases nor adopted a list of such diseases but reported that a Commission had been established to review the legislation regarding industrial accidents and to draft legislation and establish a list of occupational diseases. While taking due note of these developments, the Committee wishes to remind the Government that by ratifying Convention No. 18 it has made the list of diseases in Schedule to Article 2 of the Convention part of the national legal order. That list was elaborated by the International Labour Conference back in 1925 specifically for the purpose of providing countries, which had no capacity to establish their own lists, with a ready-made compendium of diseases recognized as occupational on the basis of the best international experience available at that time. Since then, the ILO list of occupational diseases has been complemented on several occasions (see Conventions Nos 42 and 121 and Recommendation No. 194) by new diseases the professional origin of which was ascertained by the evolution of scientific knowledge. The diseases listed in Convention No. 18 ratified by Guinea-Bissau therefore constitute the minimum protection to be guaranteed and must be automatically recognized as occupational where contracted in the conditions prescribed in the Schedule by all the national authorities for the purposes of workmen’s compensation. The Committee would like the Government to explain what legal or other reasons prevented it for so long from bringing this list to the attention of the national labour administration, social insurance and judicial authorities in order to ensure the practical implementation of the obligations assumed by the country under Convention No. 18. The Committee again expresses the hope that the Government will take all necessary steps to ensure, through the adoption of the new legislation referred to in its report, that the list of occupational diseases established by the Convention becomes fully operational and legally enforceable in the country for the purpose of workmen’s compensation.
Compensation for occupational accidents and diseases. The Committee notes from the report on Convention No. 17 that, in practice, compensation may be paid wholly as a lump sum. Please indicate what authority is competent to decide that payment shall be made in a lump sum and what guarantees, if any, for the proper utilization of the lump sum it ordinarily requires, in accordance with Article 5 of Convention No. 17. The report also states that public servants are not subject to any legal framework in relation to compensation in case of industrial accidents, but, if a public servant suffers a personal injury due to an industrial accident, he/she receives compensation in the form of a sum of money. The Committee would ask the Government whether any consideration was given to the possibility to include public servants within the legal framework protection against occupational accidents and diseases. Finally the Committee notes that, according to section 17(2) of Decree No. 6/80, where the incapacity is such that the injured person must have the help of another person or special care, the pension may be increased to up to 100 per cent of the basic wage. Please indicate the number of people who are actually receiving such an increased pension.
Application to agricultural wage earners. In its previous reports on Convention No. 12, the Government had indicated that Decrees Nos 4/80 and 6/80 governing compulsory insurance against occupational accidents and diseases applied to agricultural wage earners. In its 2011 report, the Government indicates that, according to section 1(b) of Chapter I of Legislative Decree No. 5/86 only agricultural wage earners whose employers can be identified are mandatorily covered, while independent agricultural wage earners who do not perform their work in a “family regime”, as set out in section 2(2)(d) of Decree No. 4/80 are excluded from coverage. Section 17 of Act No. 4/2007 provides, however, that wage earners in all branches and sectors are to be included in the Mandatory Social Protection System, provided that the employer they work for can be identified, with the exclusion only of domestic workers who are subject to a special regime. The Committee would like the Government to explain what agricultural wage earners are covered by the “family regime” and whether they benefit from the protection given by the legislation cited above. Please explain also the special regime applicable to the domestic workers.
Section 6 et seq. of Decree No. 4/80 set forth a general definition of occupational accidents as well as the definitions related to specific sectors such as agriculture, where according to the Government, occupational accidents are defined as the wrong use of chemical products and protection equipment. The Committee wishes to point out that the principle of equality of treatment of agricultural wage earners implies that they should benefit from the same definition of occupational accidents that is applicable to other workers. The Government should therefore consider harmonizing the different definitions of occupational accidents so that workers in different sectors of activities would benefit from the same protection and compensation.
The Government states that it has no statistics on occupational accidents and diseases because most of agricultural wage earners are not aware of their obligation under Article 20 of Decree No. 4/80 to report the occurrence of any occupational accident or disease to the National Institute of Social Security. The General Labour Inspectorate has neither special knowledge in the field of agricultural work nor financial nor human resources to carry out inspections in this sector. Most occupational accidents and diseases are caused by the fact that agricultural workers do not wear suitable protection equipment in carrying out their tasks. Some companies fail to comply with their obligations under occupational accidents and diseases legislation and some others are not even registered with the INPS. The Committee notes the practical difficulties encountered by the Government in the application of Convention No. 12. It observes that these difficulties will not go away without systemic and vigorous action taken by the Government in cooperation with the social partners to raise awareness of workers and companies of their respective rights and obligations, establish simple and rapid procedures for reporting occupational accidents supported by insurance compensation and labour inspection, promote the use of protection equipment and safer technologies, etc. The Committee asks the Government to step up its efforts to reduce the gap between the agricultural and the industrial sectors with regard to protection against occupational accidents and diseases and to indicate the concrete measures taken in this respect in its next report.
Equality of treatment of foreign workers. In its previous comments concerning Convention No. 19, the Committee pointed out that section 3(1) of Decree No. 4/80 is inconsistent with the Convention in that it lays down reciprocity as a requirement for equality of treatment between foreign workers employed in Guinea-Bissau and national workers. In response, the Government mentions that article 28 of the Constitution forbids any discrimination between foreigners and citizens and that under the current legal order, equality of treatment regarding accident compensation is granted to all workers. In practice, the Government indicates that the General Labour and Social Security Inspectorate did not find any situation amounting to unequal treatment of injured workers, and that no judicial decisions have been rendered evidencing unequal treatment between foreign and national workers.
The Committee also notes that section 17(2) of Act No. 4/2007 provides that workers who suffered injuries as a result of an industrial accident are covered by the mandatory social protection scheme without any condition as to residence in the country, and section 3 requires the Government to foster the conclusion or adherence to international agreements aiming at the reciprocal recognition of equality of treatment of the nationals of the countries concerned. The Committee recalls, in this respect, that Convention No. 19 lays down a system of automatic reciprocity between the 121 ILO member States which have ratified it, and thereby ensures that nationals of all countries party to the Convention, as well as their dependants, benefit from national treatment in respect of workmen’s compensation. It would therefore be more consistent with the Convention and the Act No. 4/2007 for section 3(1) of Decree No. 4/80 to be amended so as to delete the reciprocity requirement. The Committee also requests the Government to indicate whether, pursuant to Article 1(2) of the Convention, any compensation is paid for injured persons or their dependants residing outside the country, and if so, to provide the statistical data confirming these payments.

The Committee hopes that the Government will make every effort to take the necessary action in the near future.

Observation (CEACR) - adopted 2011, published 101st ILC session (2012)

Reporting obligations. The Committee notes the Government’s reports on Conventions Nos 12, 17, 18 and 19, received for the first time since the year 2000, notwithstanding the numerous reminders sent to the Government. It regrets, however, that they still do not reply to most of the questions raised in the comments of 2001 and repeated in 2008, 2009 and 2010. The National Union of Workers of Guinea-Bissau (UNTG) in its observations on the Government’s reports on ratified Conventions, stressed that the Government should step up its efforts to comply with international labour standards and bring its legislation in line with the ILO Conventions. In the UNTG’s opinion, the Government should take all necessary measures to strengthen its technical, material and financial capabilities to enforce the application of the labour standards in the private and public sectors. The Committee hopes that the Government will take these observations into account and will not fail to include the information requested in its next detailed reports on these Conventions due before 1 September 2012. The Government is also reminded to provide detailed information on the practical application of these Conventions as required in Part V of the report forms, particularly on the number and nature of the occupational accidents reported and the amount of benefits paid.

Legal framework of protection against occupational accidents and diseases in Guinea-Bissau. The said legal framework is composed of several laws and decrees, including Decree No. 4/80 on Compulsory Insurance on Occupational Accidents and Diseases (6 February 1980), Regulatory Decree No. 6/80 regulating Decree No. 4/80, Legislative Decree No. 5/86 on Establishment of a Social Protection Regime (29 March 1986), Legislative Decree No. 1/97 on the Replacement of the National Insurance and Social Protection Institute by the National Institute of Social Security (INPS) and GUIBIS-Guinea-Bissau Insurances SÀRL (29 April 1997), and Act No. 4/2007 on the Legal Framework for Social Protection (3 September 2007). Decree No. 4/80 governs compulsory insurance against occupational accidents and diseases providing for the workers’ (and their family members’) right to compensation. It sets the definition of occupational accidents and diseases and rules regarding the exercise of the rights to compensation under the compulsory insurance scheme, and financed through employers’ and workers’ contributions, operated by the INPS. Regulatory Decree No. 6/80 establishes different types of benefits to which a worker suffering an occupational accident or disease is entitled according to the degree of incapacity, and sets forth the rules to determine the base salary upon which compensation is paid. Legislative Decree No. 5/86 repeals the provisions of the Agricultural Code and establishes the basis of the general regime of social security. Legislative Decree No. 1/97 replaces the former National Insurance and Social Protection Institute with the INPS. Lastly, Act No. 4/2007 establishing a Legal Framework for Social Protection for the population of the country, consists of three schemes: Citizenship Social Protection of a non-contributory nature; Mandatory Social Protection, which is a contributory regime covering all wage earners (nationals or foreigners); and a voluntary Complementary Social Security scheme. The Committee would ask the Government to complete the above description of the legal framework existing in the country and providing protection against occupational accidents and diseases, clarifying in particular: (i) whether Act No. 4/2007 has entered into force and been regulated; (ii) whether Decree No. 4/80 and Regulatory Decree No. 6/80 have been repealed by Act No. 4/2007; (iii) the relations between Regulatory Decree No. 5/86 and Act No. 4/2007, with respect to their scope of application, rules regarding foreign workers, benefits and degrees of compensation for incapacity of workers due to occupational accidents and diseases; (iv) proposals for reforming this framework and elaborating new legislation.

Adoption of the list of occupational diseases. The Committee recalls that back in 2000, the Government stated that the INPS, which has competence for workers’ compensation for occupational accidents and diseases, was having difficulty in identifying occupational diseases, and consequently, the Ministry of Public Health had not been able to adopt a list of such diseases. In its 2011 report on Convention No. 18, the Government regretted that Guinea-Bissau has neither enacted a legal regime regulating occupational diseases nor adopted a list of such diseases but reported that a Commission had been established to review the legislation regarding industrial accidents and to draft legislation and establish a list of occupational diseases. While taking due note of these developments, the Committee wishes to remind the Government that by ratifying Convention No. 18 it has made the list of diseases in Schedule to Article 2 of the Convention part of the national legal order. That list was elaborated by the International Labour Conference back in 1925 specifically for the purpose of providing countries, which had no capacity to establish their own lists, with a ready-made compendium of diseases recognized as occupational on the basis of the best international experience available at that time. Since then, the ILO list of occupational diseases has been complemented on several occasions (see Conventions Nos 42 and 121 and Recommendation No. 194) by new diseases the professional origin of which was ascertained by the evolution of scientific knowledge. The diseases listed in Convention No. 18 ratified by Guinea-Bissau therefore constitute the minimum protection to be guaranteed and must be automatically recognized as occupational where contracted in the conditions prescribed in the Schedule by all the national authorities for the purposes of workmen’s compensation. The Committee would like the Government to explain what legal or other reasons prevented it for so long from bringing this list to the attention of the national labour administration, social insurance and judicial authorities in order to ensure the practical implementation of the obligations assumed by the country under Convention No. 18. The Committee again expresses the hope that the Government will take all necessary steps to ensure, through the adoption of the new legislation referred to in its report, that the list of occupational diseases established by the Convention becomes fully operational and legally enforceable in the country for the purpose of workmen’s compensation.

Compensation for occupational accidents and diseases. The Committee notes from the report on Convention No. 17 that, in practice, compensation may be paid wholly as a lump sum. Please indicate what authority is competent to decide that payment shall be made in a lump sum and what guarantees, if any, for the proper utilization of the lump sum it ordinarily requires, in accordance with Article 5 of Convention No. 17. The report also states that public servants are not subject to any legal framework in relation to compensation in case of industrial accidents, but, if a public servant suffers a personal injury due to an industrial accident, he/she receives compensation in the form of a sum of money. The Committee would ask the Government whether any consideration was given to the possibility to include public servants within the legal framework protection against occupational accidents and diseases. Finally the Committee notes that, according to section 17(2) of Decree No. 6/80, where the incapacity is such that the injured person must have the help of another person or special care, the pension may be increased to up to 100 per cent of the basic wage. Please indicate the number of people who are actually receiving such an increased pension.

Application to agricultural wage earners. In its previous reports on Convention No. 12, the Government had indicated that Decrees Nos 4/80 and 6/80 governing compulsory insurance against occupational accidents and diseases applied to agricultural wage earners. In its 2011 report, the Government indicates that, according to section 1(b) of Chapter I of Legislative Decree No. 5/86 only agricultural wage earners whose employers can be identified are mandatorily covered, while independent agricultural wage earners who do not perform their work in a “family regime”, as set out in section 2(2)(d) of Decree No. 4/80 are excluded from coverage. Section 17 of Act No. 4/2007 provides, however, that wage earners in all branches and sectors are to be included in the Mandatory Social Protection System, provided that the employer they work for can be identified, with the exclusion only of domestic workers who are subject to a special regime. The Committee would like the Government to explain what agricultural wage earners are covered by the “family regime” and whether they benefit from the protection given by the legislation cited above. Please explain also the special regime applicable to the domestic workers.

Section 6 et seq. of Decree No. 4/80 set forth a general definition of occupational accidents as well as the definitions related to specific sectors such as agriculture, where according to the Government, occupational accidents are defined as the wrong use of chemical products and protection equipment. The Committee wishes to point out that the principle of equality of treatment of agricultural wage earners implies that they should benefit from the same definition of occupational accidents that is applicable to other workers. The Government should therefore consider harmonizing the different definitions of occupational accidents so that workers in different sectors of activities would benefit from the same protection and compensation.

The Government states that it has no statistics on occupational accidents and diseases because most of agricultural wage earners are not aware of their obligation under Article 20 of Decree No. 4/80 to report the occurrence of any occupational accident or disease to the National Institute of Social Security. The General Labour Inspectorate has neither special knowledge in the field of agricultural work nor financial nor human resources to carry out inspections in this sector. Most occupational accidents and diseases are caused by the fact that agricultural workers do not wear suitable protection equipment in carrying out their tasks. Some companies fail to comply with their obligations under occupational accidents and diseases legislation and some others are not even registered with the INPS. The Committee notes the practical difficulties encountered by the Government in the application of Convention No. 12. It observes that these difficulties will not go away without systemic and vigorous action taken by the Government in cooperation with the social partners to raise awareness of workers and companies of their respective rights and obligations, establish simple and rapid procedures for reporting occupational accidents supported by insurance compensation and labour inspection, promote the use of protection equipment and safer technologies, etc. The Committee asks the Government to step up its efforts to reduce the gap between the agricultural and the industrial sectors with regard to protection against occupational accidents and diseases and to indicate the concrete measures taken in this respect in its next report.

Equality of treatment of foreign workers. In its previous comments concerning Convention No.19, the Committee pointed out that section 3(1) of Decree No. 4/80 is inconsistent with the Convention in that it lays down reciprocity as a requirement for equality of treatment between foreign workers employed in Guinea-Bissau and national workers. In response, the Government mentions that article 28 of the Constitution forbids any discrimination between foreigners and citizens and that under the current legal order, equality of treatment regarding accident compensation is granted to all workers. In practice, the Government indicates that the General Labour and Social Security Inspectorate did not find any situation amounting to unequal treatment of injured workers, and that no judicial decisions have been rendered evidencing unequal treatment between foreign and national workers.

The Committee also notes that section 17(2) of Act No. 4/2007 provides that workers who suffered injuries as a result of an industrial accident are covered by the mandatory social protection scheme without any condition as to residence in the country, and section 3 requires the Government to foster the conclusion or adherence to international agreements aiming at the reciprocal recognition of equality of treatment of the nationals of the countries concerned. The Committee recalls, in this respect, that Convention No. 19 lays down a system of automatic reciprocity between the 121 ILO member States which have ratified it, and thereby ensures that nationals of all countries party to the Convention, as well as their dependants, benefit from national treatment in respect of workmen’s compensation. It would therefore be more consistent with the Convention and the Act No. 4/2007 for section 3(1) of Decree No. 4/80 to be amended so as to delete the reciprocity requirement. The Committee also requests the Government to indicate whether, pursuant to Article 1(2) of the Convention, any compensation is paid for injured persons or their dependants residing outside the country, and if so, to provide the statistical data confirming these payments.

Direct Request (CEACR) - adopted 2010, published 100th ILC session (2011)

The Committee notes with regret that the Government’s report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

Article 5 of the Convention. Compensation in the form of periodical payments. The Committee notes from the information supplied by the Government that, in practice, compensation may be paid wholly as a lump sum. The Committee recalls that, according to this provision of the Convention, compensation payable where an accident results in permanent incapacity shall be paid in the form of periodic payments. The compensation may, however, be wholly or partially paid in a lump sum if the competent authority is satisfied that it will be properly utilized. In these circumstances, the Committee asks the Government to provide information on the authority which is competent to decide that payment shall be made in a lump sum and on the guarantees for the proper utilization of the compensation which are ordinarily required.

Article 7. Constant help of another person. According to section 17(2) of Decree No. 6/80 of 1 January 1980, where the incapacity is such that the injured person must have the help of another person or special care, the pension may be increased to up to 100 per cent of the basic wage. The Committee requests the Government to provide information on the practical effect given to this provision including, if available, information on the number of people who have benefited from the abovementioned provision of Decree No. 6/80.

Lastly, the Committee asks the Government to continue to provide statistical information on the number and nature of the occupational accidents reported. It also requests the Government to provide, if current statistics so allow, more detailed information on all the items set out in Part V of the report form, particularly the costs of benefits in cash and in kind.

Direct Request (CEACR) - adopted 2009, published 99th ILC session (2010)

The Committee notes with regret that the Government’s report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

Direct Request (CEACR) - adopted 2008, published 98th ILC session (2009)

Article 5 of the Convention. The Committee notes from the information supplied by the Government that, in practice, compensation may be paid wholly as a lump sum. The Committee recalls that, according to this provision of the Convention, compensation payable where an accident results in permanent incapacity shall be paid in the form of periodic payments. The compensation may, however, be wholly or partially paid in a lump sum if the competent authority is satisfied that it will be properly utilized. In these circumstances, the Committee asks the Government to provide information on the authority which is competent to decide that payment shall be made in a lump sum and on the guarantees for the proper utilization of the compensation which are ordinarily required.

Article 7. According to section 17(2) of Decree No. 6/80 of 1 January 1980, where the incapacity is such that the injured person must have the help of another person or special care, the pension may be increased to up to 100 per cent of the basic wage. The Committee requests the Government to provide information on the practical effect given to this provision including, if available, information on the number of people who have benefited from the abovementioned provision of Decree No. 6/80.

Direct Request (CEACR) - adopted 2007, published 97th ILC session (2008)

The Committee notes that the Government’s report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

The Committee notes the information supplied by the Government in its last report. It requests the Government to provide further information on the following points.

Direct Request (CEACR) - adopted 2001, published 90th ILC session (2002)

The Committee notes the information supplied by the Government in its last report. It requests the Government to provide further information on the following points.

Lastly, the Committee asks the Government to continue to provide statistical information on the number and nature of the occupational accidents reported. It also requests the Government to provide, if current statistics so allow, more detailed information on all the items set out in Part V of the report form, particularly the costs of benefits in cash and in kind.

Direct Request (CEACR) - adopted 1999, published 88th ILC session (2000)

The Committee notes that the Government's report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

Further to its previous comments, the Committee notes the statistics supplied by the Government pertaining to the number of accidents categorized by professional activity, by disability or death, and working days lost, and by body part injured. The Committee would appreciate receiving further information on the amount of benefits paid in cash and in kind, as requested under point V, paragraphs 2 and 3, of the report form approved by the Governing Body.

Direct Request (CEACR) - adopted 1995, published 82nd ILC session (1995)

The Committee notes with regret that for the second consecutive year, the Government's report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

With reference to its previous comments, the Committee notes that, despite the very advanced stage of the restructuring of the statistical services, the Government does not have statistics available. However, the Government believes that it will be able to supply them in a short time once the department concerned is in a position to provide them. The Committee notes this information and hopes that the Government will soon be in a position to provide, in a future report, the data required under point V of the report form.

Direct Request (CEACR) - adopted 1995, published 83rd ILC session (1996)

Direct Request (CEACR) - adopted 1994, published 81st ILC session (1994)

Direct Request (CEACR) - adopted 1990, published 77th ILC session (1990)

With reference to its previous comments, the Committee notes the information provided by the Government in its report. It also notes that, despite the very advanced stage of the restructuring of the statistical services, the Government does not have statistics available. However, the Government believes that it will be able to supply them in a short time once the department concerned is in a position to provide them. The Committee notes this information and hopes that the Government will soon be in a position to provide, in a future report, the data required under point V of the report form.