Direct Request (CEACR) - adopted 2022, published 111st ILC session (2023)

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

Direct Request (CEACR) - adopted 2014, published 104th ILC session (2015)

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

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

The Committee notes with interest the detailed information provided by the Government in its report covering the period ending in May 2009 and the replies to the 2008 direct request.

Articles 1 and 2 of the Convention. Employment trends. The Government reports that, in 2007, the labour market continued to show encouraging performance and the economy expanded at an above-trend pace. During this year, the unemployment rate dropped to 4 per cent and 3.4 per cent, respectively, in the third and fourth quarters of the year, while the underemployment rate went down to 2.2 per cent and 2.1 per cent in the two quarters, respectively. Total employment also continued to grow strongly in both quarters by 1.7 per cent. These favourable trends continued during the first half of 2008. The unemployment rate further decreased to 3.2 per cent in June and August 2008, the lowest level in the last ten years. Since September 2008, the rapid deterioration in the business environment following the abrupt escalation of the global financial crisis led to weakened demand for labour towards the end of 2008. In 2009, the labour market conditions worsened and unemployment stood at 5.2 per cent in the first quarter. In the first quarter of 2009, total labour force increased by 1.1 per cent, whereas total employment recorded a 0.8 per cent contraction over the preceding year to 3,510,000 workers. The Committee invites the Government to include in its next report information on the impact of the measures mentioned to generate employment. The Committee also requests the Government to continue to provide information on the situation, level and trends in employment and unemployment disaggregated by sector, age and gender.

Measures taken in response to the global crisis. The Committee notes that the Government is tackling the challenges of the global financial crisis and its contagious effects in various economic sectors. The Government reports that it is stepping up its efforts to stabilize the financial system, support enterprises and preserve employment. In 2008, the Task Force on Economic Challenges (TFEC) was established to monitor and assess the impact of the financial crisis on local and global markets, and to provide timely evaluation of its impact on the economy and major industries of the Special Administrative Region of Hong Kong. In December 2008, the Government announced measures to tackle the economic slowdown, including the creation of over 60,000 jobs through expediting infrastructure projects, advancing recruitment of civil servants and creating temporary and other jobs. In total, the measures identified by the TFEC and announced by the Government were expected to create over 122,000 jobs and internship opportunities. The Committee also notes that greater emphasis will be placed on the construction sector and on young workers, the hardest hit from the sectoral and age bracket perspectives. Besides creating jobs directly, the measures will also provide training and job opportunities specifically to those in need, including young people, graduates, women, the middle-aged and people with disabilities. The Committee invites the Government to provide in its next report information on the participation of the social partners in the design and implementation of an active employment policy to overcome the negative effects of the crisis.

Strengthening employment services. The Committee notes that the Labour Department received 1,251,678 job vacancies and achieved a total of 278,566 placements, representing an increase of 29.3 per cent and 15.9 per cent respectively, over the corresponding period in 2005–07. The Committee also notes that the Labour Department organizes large-scale job fairs at different locations within the territory to respond to the recruitment needs of employers and to offer more convenient services to jobseekers. The Labour Department also launched the Work Trial Scheme in June 2005 to enhance the employability of jobseekers who have special difficulties finding employment. As of May 2009, 2,542 jobseekers were placed into work trials. The Committee invites the Government to report on the contribution made by the public employment services in order to achieve full employment.

Youth employment. The Committee notes that the Labour Department is concerned with boosting the employability of young people and is implementing different programmes and services, including setting up One-stop Youth Employment Resource Centres to provide comprehensive support for young people in career development. The Committee also notes that the Employees Retraining Board (ERB) has expanded their target audience and now offers their services to residents aged 15 and above with education at the sub-degree level or below in order to enhance their employability by upgrading their skills and improving their competitiveness. The Committee invites the Government to include information on the impact of the measures taken to respond to the needs of young workers who have difficulties in finding lasting employment.

Vulnerable categories of workers. The Committee notes that the Selective Placement Division (SPD) of the Labour Department provides personalized employment services, including basic skills assessment, vocational guidance and job-matching services to people with disabilities. The SPD also organizes public education and publicity activities to promote community acceptance of people with disabilities and to enhance their employment opportunities. As of May 2009, 5,300 jobseekers with disabilities had participated in the Self-Help Integrated Placement Service, which was launched in 2000 to encourage and to help them be more proactive and independent in their job search. To this end, the service, inter alia, equips them with the necessary knowledge on the job market situation, job search channels and interviewing techniques. The programme made a total of 16,490 self-initiated job applications. The Committee also notes the results of other programmes and services provided by the Social Welfare Department, including the Sheltered Workshops and Integrated Vocational Service, Supported Employment, Small Enterprise Project, the Job Training Programme for People with Disabilities and the On-the-Job Training Programme for Young People with Disabilities. The ERB is also offering a wide range of generic skills training to enhance employability of trainees with disabilities and trainees who recovered from industrial accidents. The Government reports that the Vocational Training Council (VTC), which aims to cater to the specific needs of ethnic minorities, has been organizing various types of vocational education and training courses for them. Further, within the Vocational Development Programme, there is a specific modality of Ethnic Minority Project. The Committee notes that the ERB is providing training courses to assist ethnic minorities in Hong Kong to gain working opportunities through appropriate training and employment services. In 2008 and 2009, the ERB reserved 2,000 training places per year to offer vocational training for ethnic minorities. The Construction Industry Council (CIC) trainee recruitment programmes have also been extended to ethnic minorities. The Labour Department launched the Employment Programme for the Middle-aged to assist the unemployed, aged 40 or above, to secure employment through the provision of a training allowance to encourage employers to hire them. Between 2003 and 2009, the Programme placed 43,952 persons into employment. The Committee invites the Government to continue to provide information on the impact and results regarding access to productive employment for persons with disabilities and ethnic minorities.

Vocational training and education policies. The Committee notes the training programmes within the Manpower Development Scheme operated by the ERB. Until May 2009, over 300 types of courses were offered through the training bodies at over 340 centres. The overall average placement rate for the trainees of the training programmes was around 80 per cent for the reporting period. The Committee notes that the ERB also offered 15 self-employment training courses between June 2007 and December 2008 and that, of the 403 trainees who completed these courses, 160 started their own business, 143 have been preparing for business start-up, 78 were employed while 22 chose to further their studies. The Government reports that the VTC provided some 46,500 study places for its post-secondary 3 and 5 level courses in the 2008–09 academic year. In line with the Government's policy to alleviate poverty and to foster harmony in the community, the VTC will continue to provide vocational education and training programmes to the target groups including the non-engaged youths, ethnic minorities, unemployed adults and people with disabilities and learning difficulties. The Committee also notes that the CIC continues to train young people and displaced workers who wish to join the construction industry at the operative, craftsman, technician and supervisory levels. The CIC is responding to the expected strong demand for skills training as unemployment has started to rise and there are ten infrastructure projects planned in the coming decade. The Committee also notes the training programmes offered by the Clothing Industry Training Authority (CITA) and the Hong Kong Productivity Council, who organized about 1,000 training programmes. Please continue to provide information on the measures taken to encourage workers to participate in training programs so that they strengthen their ability to adapt to changing market demands, increase their employability and entrepreneurship. The Committee also invites the Government to provide information on how training and education policies are coordinated with the employment policy.

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

1. Articles 1 and 2 of the Convention. The Committee notes the detailed information provided by the Government in its report in response to the 2006 direct request. The Committee notes that total employment increased by 2.5 per cent with a total of 3.46 million persons at the end of 2006. The unemployment rate has been progressively decreasing in the last five years and for the first quarter of 2007, unemployment was at 4.3 percent, which is the lowest level in the last eight years. The underemployment rate stood at 2.2 per cent, which implies another moderate decline from previous years. The Committee notes that the Government will continue to assign budget allocations for infrastructure projects over the next few years creating 37,000 job opportunities in the construction sector which has been the sector most drastically affected by unemployment. The Committee requests the Government to continue to supply information on the active employment policies pursued, and results thereof, to ensure the achievements of the aims of the Convention.

2. Measures to meet needs of particular categories of workers. The Committee notes the different measures to improve employability, self discipline and motivation to work of special categories of persons, including young workers aged between 15 and 24. The Government reports that the Social Welfare Department continues to implement the Support for Self-reliance Scheme to assist unemployed persons, including work-focused and sector-specific training, counselling services, job attachment, job matching as well as a one-off return-to-work incentive to help unemployed persons secure and sustain employment. Among the initiatives taken by the national authorities to promote the employability of people with disabilities, the Committee notes that, in October 2005, the Social Welfare Department along with non-governmental organizations launched the Sunnyway Programme to enhance employability of young people aged between 15 and 24 with disabilities or early signs of mental illness. The Government also informs on a small enterprise project by which assistance is provided to non-governmental organizations to create and run small businesses in order to employ people with disabilities. The Committee further notes the initiative to help single parents and childcarers to enhance their capacity for self-help, integrate them into society and achieve self-help through engagement in work. The Committee asks the Government to continue to report on the measures taken to encourage employers to create or offer job opportunities for people with disabilities and to increase employment prospects of young workers. Recalling the Committee’s previous comments, the Committee notes that some atypical forms of employment provides outcomes on workers’ employment opportunities and accommodate preferences and needs of special categories of workers, such as women, young people, people with disabilities and older workers. It asks the Government to continue to inform on the measures taken to ensure that atypical forms of employment do not increase the risk of employment insecurity or limit the possibilities of workers’ professional development. Please also provide in the next report relevant statistics on the employment situation of special categories of workers, including their participation in full- and part-time employment, disaggregated by age and sex, and other data on the situation, level and terms of employment.

3. Vocational training. The Committee notes the efforts of the Vocational Training Council, the Clothing Industry Authority and the Hong Kong Productivity Council to provide training programmes to upgrade knowledge and skills in different business sectors. The Committee asks the Government to continue to report on its vocational training activities, including lifelong learning activities and continuous training, in particular regarding young and older workers, women workers and low-skilled workers.

4. Article 3. Consultation of the social partners. The Committee notes that the Employment Retraining Board (ERB), comprising representatives of employers and workers as well as the Government and other individuals related to vocational training adjusts its strategies and adopts different approaches to meet the employment opportunities of the changing labour market. The Government also indicates that, as a result, a number of traditional occupations have become modernized and professionalized, which has therefore stimulated market demand for services relating to these occupations. The Committee also notes how the ERB has set up over ten Trade Advisory Committees to improve the content of its courses and ensure that training can meet the needs of both employers and trainees. Please continue to inform on the consultations with employers’ and workers’ representatives to improve existing initiatives and execute ones which can respond to swift market changes while enabling workers to develop their fullest potential.

Direct Request (CEACR) - adopted 2006, published 96th ILC session (2007)

In relation with its 2004 direct request, the Committee notes the comprehensive information provided by the Government in its report for the period ending May 2005. The ILO Subregional Office in Bangkok has also brought to the Committee’s attention additional information concerning the application of the Convention.

1. General economic policies. The Committee notes that, over the past decade, the total number of employed persons in the Special Administrative Region has grown by an average of 1.3 per cent per year and that, according to the general household survey conducted by the Census and Statistics Department, there were 3,586,300 people in the labour force in 2005 of whom 3,385,500 were employed and 200,700 were unemployed. Another 98,700 were counted as underemployed. Unemployment rates were lower at higher levels of educational attainment: tertiary (3.2 per cent), upper secondary (5 per cent) and lower secondary or below (8.5 per cent). Teenagers had much higher rates of unemployment (21.9 per cent) than average (5.6 per cent). The Committee notes that, in order to address the specific difficulties faced by these groups, the Government has introduced labour market measures which together with a recovery of the economy, have resulted in a decrease in the youth unemployment rate from 15 per cent in 2003 to 9.2 per cent in February 2005. The Committee asks the Government to continue to provide information on the policies and programmes introduced and their results in placing youth in employment. Please also provide information on the measures taken to stimulate employment opportunities for people with disabilities, including methods of engaging employer involvement and the process of making vocational training more flexible and market responsive for this particular vulnerable category of workers.

2. Implementation of employment policies. The Committee notes that the Government has introduced a number of steps to ease unemployment, among which are the strengthening of the employment services offered by the Labour Department, enhancing vocational training and employee retraining, and promoting continuing education. The Committee understands that in 2005 the unemployment rate averaged 2.8 per cent, down from 3.3 per cent in 2004. The Committee requests the Government to include in its next report information on the measures taken to avoid the risk of developing labour market segmentation, particularly in view of the increase in atypical forms of employment. In the Committee’s view, measures to promote full employment should allow the Government to create an environment that is conducive to the generation of productive and lasting employment in conditions that are socially adequate for all concerned. It asks the Government to report on the manner in which the measures adopted by Government-sponsored programmes are contributing to the generation of productive employment and improving employment security for workers.

3. Prevention of discrimination. The Committee understands that research conducted by the Equal Opportunities Commission points to complaints about discrimination on the basis of sex. The Committee requests the Government to provide information on the progress made in reducing discrimination against women in recruitment and reducing labour market segmentation in order to ensure the fullest possible opportunities for each worker to qualify for and to use her or his skills and endowments in a job for which she or he is well suited, without discrimination (Article 1, paragraph 2, of the Convention).

4. Consultation of representatives of the persons affected. The Committee notes from the Government’s report that consultations regarding employment policies are held with representatives of workers and employers. The Labour Advisory Board, and others, are involved in the formulation of employment and training policies, and include representatives of persons affected, including workers and employers. Please continue to provide information on the way in which consultation with the groups affected through the boards described in the report has been successful in meeting the employment challenges faced by the Special Administrative Region in responding to rapid changes in the global economy (Article 3).

Direct Request (CEACR) - adopted 2004, published 93rd ILC session (2005)

The Committee notes the detailed information provided by the Government in its report for the period ending in May 2003. On the basis also of analyses and statistical information available to the Office and transmitted by specialists in the field, the Committee notes that after reaching 8.3 per cent at the end of June, the unemployment rate declined to 6.9 per cent at the end of 2004, a rate which nevertheless remains high for the administrative region. The Committee notes the active labour market policy measures aimed at meeting the specific needs of certain categories of workers, such as young people, disabled persons and single parents. It notes in particular the measures taken to promote the pursuit of studies by young people and to enhance their employability and their placement in employment, in particular by the implementation of the Juvenile Work Experience and Training Plan which the Government describes in its report on the application of Convention No. 142. Please continue to provide detailed information on the results obtained by these measures. In more general terms, the Committee requests the Government to describe the manner in which education policy and initial and ongoing training policy are coordinated with employment prospects in the context of rapid change in the sectoral distribution of job vacancies.

Direct Request (CEACR) - adopted 2002, published 91st ILC session (2003)

The Committee notes the detailed information provided in the Government’s comprehensive report received in August 2002. It notes that as a result of more extensive corporate downsizing and lay-offs following the economic downturn, labour demand slackened markedly over 2001 and labour supply continued to rise. The seasonally adjusted unemployment rate rose from 4.5 per cent in the first semester of 2001 to 7 per cent in the first quarter of 2002 (affecting some 109,300 workers). The report includes information on the efforts made to tackle unemployment by creating more job opportunities and by enhancing training and retraining so as to improve the employability of the workforce. The Committee would like to continue to receive information on the actions taken by the Labour Department, the Vocational Training Council, the Employees’ Retraining Board - in consultation with the representatives of the persons affected and in particular, representatives of employers’ and workers’ organizations - to promote full, productive and freely chosen employment.

Direct Request (CEACR) - adopted 2000, published 89th ILC session (2001)

Articles 1 and 2 of the Convention.  The Committee notes the information contained in the Government’s detailed report. The Government states that unemployment peaked at 6.3 per cent in 1999, dropping to 5.5 per cent in the first quarter of 2000. Unemployment is highest among youth; underemployment is highest among youth and older workers. The underemployment rate has also decreased recently, from 3.2 per cent in the third quarter of 1999 to 2.8 per cent in the first quarter of 2000.

The various policies used to promote employment include low taxation, promoting entrepreneurship, improved job matching through various education and training programmes, and computerized employment services. The Government has established targeted programmes for women, single parents, youth, older workers and the disabled. The Government has established a Task Force on Employment, comprised of the Financial Secretary, the Secretary for Works, the Secretary of Education and Manpower, the Secretary of Trade and Industry, and worker and employer representatives. The Government aims to create 140,000 jobs in 2000-01.

The Committee notes with interest the policies and programmes established by the Government, and would appreciate continuing to receive information on their impact on employment promotion.

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

The Committee notes the detailed information contained in the Government's first report. The Government indicates that the unemployment rate for 1998 was 3.5 per cent and underemployment was 1.9 per cent, despite recent financial difficulties in the region.

Article 1 of the Convention. The Committee notes that the Government's overall policy is to create full, productive and freely chosen employment. Specific policies to achieve this end include: creating a favourable environment for investment, in part by simplifying the tax structure and lowering rates; improving banking supervision; facilitating industrial and trade activities; providing an adequate infrastructure; and encouraging technology transfers. The Government has established specific programmes for youth, older workers, single parents, new immigrants, and people with disabilities. To facilitate a balance between the types of labour supplied and demanded, the Employment Retraining Board works with the Labour Department to identify areas of training with high labour market demand. The Government has also commissioned a review of the Employment Retraining Service (ERS) in 1996. The three key recommendations from that study were: that the ERS should focus more on retraining workers above the age of 30 with only secondary education, and those employed workers needing basic skills; that the ERS should create integrated, job-intensive training courses to equip retrainees with basic skills; and that training should be provided to new arrivals. The Committee would appreciate being kept informed of the Government's progress in implementing these recommendations.

Article 2. The Government states that coordination of economic and social policy is ensured because the Executive and Legislative Councils decide on all policy and legislative issues for the territory. The Government Secretary is comprised of policy secretaries from all bureaux, including the Financial Secretary who is responsible for fiscal, economic and trade policies. It also created in 1998 a Task Force on Employment, led by the Financial Secretary, which undertook new initiatives such as establishing the Employment Information and Promotion Programme. The Committee notes this information and asks to be kept informed of how the Government ensures that the measures taken to promote economic development or other economic and social objectives receive due consideration, at both the planning and the implementation stages. It would also appreciate more information on how the principal measures of employment policy are decided on and kept under periodical review within the framework of a coordinated economic and social policy.

Observation (CEACR) - adopted 1996, published 85th ILC session (1997)

The Committee notes the Government's report which, as usual, contains comprehensive and detailed information. The Committee notes that there was a slowing down of the growth of employment during the period in question, whilst unemployment rose to a rate of 3.5 per cent at the end of 1995. The Government indicates that having unfilled job vacancies and growing unemployment at the same time shows there is still a mismatch between supply and demand in job skills. The Committee notes that vocational training and the selective management of immigration are the two main instruments for intervening in the labour market. It notes in particular that vocational retraining has been stepped up - with the participation of the tripartite Employees' Retraining Board - and that a study is being conducted of the effectiveness of the employees' retraining schemes. The Committee would be grateful if, in its next report, the Government would provide the results of this review, and describe the effects of these schemes on the promotion of full, productive and freely chosen employment within the meaning of Article 1 of the Convention. More generally, with reference to Article 2 of the Convention, it asks the Government to indicate any new measures taken within the framework of a coordinated economic and social policy in order to combat the growth in unemployment. Please continue also to supply information concerning the consultations held in accordance with Article 3 of the Convention.

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

The Committee notes the full and detailed information provided by the Government in its report for the period ending June 1994. It notes that, with an unemployment rate of 1.9 per cent and an underemployment rate of 1.7 per cent during the first quarter of 1994, the Government considers that the objectives of its policy of promoting full, productive and freely chosen employment are being achieved. The tensions on the labour market are a result of a mismatch between the supply and demand for skills, which the Government intends to remedy, particularly through the measures set out in the Employees' Retraining Ordinance, 1992. The Committee requests the Government to continue supplying information on the training policy pursued in coordination with employment prospects. Noting the information concerning migration provided in reply to its previous request, the Committee requests the Government to supply all available statistical data on this subject.

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

The Committee notes the Government's report for the period ending June 1992 and the enclosed documentation, and expresses its appreciation of their content and detail. It notes that employment dropped slightly in the first quarter of 1992 as compared to the previous period and that the seasonally adjusted unemployment rate, which stood at 1.4 per cent in the first quarter of 1990, reached 2.4 per cent in the first quarter of 1992 (a 0.6 percentage increase as compared to the first quarter of 1991). Although unemployment increased during the period, the Government considers that the objectives of its policy to promote full, productive and freely chosen employment have for the most part been attained, and by and large this seems to be the case.

Referring to the Committee's previous direct request, the Government indicates that in order to prevent sectoral imbalances between labour supply and demand, in June 1992 it introduced a Bill to establish an Employees' Retraining Board to identify particular occupations that have high vacancy rates and to ensure, in cooperation with training bodies, that workers can train for or adapt to such occupations. The Committee would be grateful if the Government would provide a copy of the Bill as soon as it has been enacted, together with information on the activities of the Employees' Retraining Board. It would also be grateful if in its future reports the Government would provide information on worker migration and how it is managed within the framework of the employment policy.

Direct Request (CEACR) - adopted 1992, published 79th ILC session (1992)

The Committee takes note of the Government's report for the period ending June 1990 and the attached documentation. It notes with interest that, according to the Government, the low unemployment rate - an estimated 1.4 per cent in the first quarter of 1990 - is tantamount to a situation of full employment.

The Committee notes the information on the tensions that have emerged in the labour market. Excess labour demand in relation to supply is reflected in the emergence of sectoral shortages of semi-skilled and unskilled labour to which the Government intends to respond with measures to lift certain restrictions on women's working hours, improve remuneration and working conditions so as to encourage new entrants to the labour market, offset the emigration of skilled workers by a greater training effort, and promote automation and increase productivity.

The Committee would be grateful if, in its next report, the Government would describe the measures taken or envisaged to match labour supply and demand on an occupational basis and to make work as productive as possible. It also notes the information on developments in vocational training contained in the report on the application of Convention No. 142 and asks the Government to continue to supply information on measures to coordinate education and training policies with prospective employment opportunities.