Individual Case (CAS) - Discussion: 2023, Publication: 111st ILC session (2023)

Labour Inspection Convention, 1947 (No. 81), (ratification: 1952) - Labour Inspection (Agriculture) Convention, 1969 (No. 129), (ratification: 1981)

Written information provided by the Government

The Government has provided the following written information, as well as the Annual Report on Protection and Supervision in Labour and Social Legislation 2023.

The results of the task forces of the SU.PR.EME. and A.L.T. CAPORALATO! projects from 2020 to 2022 and of the activity against labour exploitation are illustrated in the Annual Report on Protection and Supervision in Labour and Social Legislation 2023. The document in question reports 1,206 non-EU workers without a regular residence permit found at work during inspections. During the inspections, information is provided to migrant workers on their rights, as well as through the delivery of the model adopted by the inter-ministerial decree (Ministry of the Interior, Ministry of Labour and Social Policy and Ministry of Economy and Finance) referred to in article 1, paragraph 3 of Legislative Decree No. 109/2012, also and above all through the support of cultural mediators who explain the role of the Inspectorate and clarify – in a language they can understand – that when a situation of labour exploitation is ascertained, the employer is liable, while the victims can access special protection mechanisms. As stated in the report, within the framework of the action carried out in the implementation of the aforementioned projects, 598 workers were assisted by the International Organization for Migration (IOM), of whom 239 were granted residence permits as victims of labour exploitation and/or are awaiting a favourable opinion by the Public Prosecutor’s Office (there were 3 in 2018).

With specific reference to the request concerning the number of residence permits granted for “special cases”, data from the Ministry of the Interior, updated to June 2022, on residence permits both for reasons of social protection and in case of serious labour exploitation is provided in Tables 1 and 2 below. Updated data is being surveyed. This data will be transmitted as soon as provided by the competent authority. In addition, as part of the projects, multilingual information leaflets (in Italian, English, French, Arabic, Urdu, Pashto, Bengali, Hindi, Punjabi, Chinese and Romanian) have been prepared and distributed, aimed at helping foreign workers present on Italian territory to become aware of their possible situation of exploitation and of the possibilities of reporting and rescue. It should also be noted that, to date, at six territorial inspectorates (specifically Bari, Cuneo, Ferrara-Rovigo, Foggia, L’Aquila and Reggio Calabria), experimental multilingual desks have been activated to receive complaints of irregularity and labour exploitation of foreign citizens and, more generally, to give support and information on their rights. Again, as a result of collaboration with the IOM, the inspection request form, available online on the Inspectorate’s website, has been translated into nine languages (English, French, Romanian, Chinese, Arabic, Bengali, Punjabi, Urdu and Ukrainian).

It is also confirmed that the inspectors ensure adequate protection for migrant workers also from an economic point of view by issuing ascertainment warnings (section 12 of Legislative Decree No.124/2004), under which financial rights are immediately and freely satisfied. In pointing out that in recent years data on the effective use of this tool are increasing overall, it is reiterated that the details of ascertainment warnings, contribution recoveries and financial resources specifically related to workers without residence permits are not available through the survey system in use. As for the time devoted by inspectors to verifying the regularity of migrant workers’ stays, this appears to be entirely marginal. In fact, according to Act No. 286/1998, inspectors who ascertain the employment of migrants without residence permits are required to report this to the police forces, and the latter, not labour inspectors, are responsible for identifying the irregular foreign national and charging that person with the offence of illegal entry and stay in the territory of the State, pursuant to section 10 bis.

[Tables not reproduced: Social protection (article 18 TUI); Serious labour exploitation (article 22 TUI)]

Discussion by the Committee

Chairperson – The last case on our agenda is Italy on the application of the Labour Inspection Convention, 1947 (No. 81), and of Labour Inspection (Agriculture) Convention, 1969 (No. 129). I will now invite the Government representative of Italy to take the floor.

Government representative – We welcome with particular openness this occasion in which Italy can present its strong and concrete commitment to the full implementation of both Conventions Nos 81 and 129. The elements and information that will be presented today and in this room in response to the direct questions that have been addressed to Italy, are already described in the document submitted to the Office on 22 May.

Italy has always been strongly and concretely committed to combating irregular work and labour exploitation. In this way, as you probably know, since 2015 it has set up a national agency dedicated to making more effective and coordinated labour inspections in the country. But on this occasion this afternoon, I would like to inform you that in the framework of the National Recovery and Resilience Plan of December 2022, the Minister of Labour and Social Policies adopted the National Plan to combat undeclared work. It is the first relevant national document in this area. It was prepared by a specific multi-stakeholder technical table, with the participation of researchers and experts on the subject. Before its adoption, the National Plan was also submitted to the social partners.

Through this Plan, which will be implemented in Italy over the period 2023–25, over the next three years, the Government undertakes to carry out concrete and effective action to combat and prevent the phenomenon of undeclared work in all economic sectors. In particular, and this is the first point in response to one of your questions, a relevant aspect of the National Plan concerns the strengthening of the collection and sharing of statistical data in order to better understand the phenomenon of irregular work in all its forms and to plan better activities and more efficiency in inspections. So, we have a specific line of action for collecting statistical data.

The analysis of this phenomenon, based on the currently available information, has highlighted the need to pay particular attention to some critical sectors, such as domestic work and agriculture. Both are sectors where we know we have relevant presence of migrant workers. The National Plan also intends to encourage, through a reorganization of sanctions, a progressive and continuous transition from irregular forms of work to regular and transparent work in the country.

In the framework of our national inspection agency, my colleagues working in the national agency created a specific national portal for information on undeclared work. A new database can be useful for the activities of the national agency. And in April, the Minster of Labour established a national committee to prevent and combat undeclared work, entrusted with the task of coordinating and monitoring the action plan in line with the reform of the National Recovery and Resilience Plan of the European Union (EU). The Committee is chaired by the Minister of Labour and Social Policies and is made up of representatives of the different institutions at the national and regional levels with experts in this field appointed by the Minister, with ten representatives of the social partners.

We have some relevant information that in our opinion can be useful for this discussion. Since 2020, three years ago, the Government has adopted all relevant measures to implement the system of labour inspection. This is the National Strategy to prevent and combat labour exploitation and illegal hiring in the agriculture sector.

This plan implements a national law adopted in 2016: Act No. 199. It represents an important shift towards a more comprehensive and multidimensional approach to labour inspection, and is structured around four strategic pillars: prevention, protection, enforcement and remedies. These four strategic pillars, in our opinion, are in full conformity with both the Conventions that we are discussing today.

In December 2018, the Government established a specific group of experts (Tavolo per il Caporalato), chaired by the Minster of Labour to support the National Strategy in the agricultural sector. The National Strategy addresses action to prevent and combat irregular work in agriculture, with a particular focus on the most vulnerable categories, such as migrant workers in an irregular situation, taking into consideration the specific characteristics of the national territory. The idea is to combine penalties with concrete action for prevention and for the social inclusion for these migrant workers. It is important to underline that this National Action Plan was adopted in line with the specific action of the European Commission and is co-funded by the Structural Reform Support Programme and, as you probably know, the technical support for the National Strategy is provided to the Ministry of Labour by the ILO National Office for Italy.

Another element we think can be relevant to this discussion is that, since 2020, in the framework of the National Strategy, the Ministry of Labour has launched, with the National Labour Inspectorate, specific joint action establishing special task forces to carry out labour inspections with an innovative approach. National labour inspectors are supported by cultural mediators from the IOM. This is an innovative and multi-agency approach. These taskforces were set up with the multidimensional approach and with specific coordination with the local authorities of specific territories. Cooperation between labour inspectors and cultural mediators concerns inspection visits in the workplace, but also during the planning phase and afterwards during the phase of taking care of victims of irregular work.

The activities carried out through this specific approach based on task forces has now been adopted not only in agricultural, but also in other sectors: manufacturing, construction, services and logistics. Another point we want to underline regarding the specific role of labour inspectors is that, in our national system of labour inspection, labour inspection is totally addressed at securing the protection of all workers, including migrant workers, and with specific regard to this group of workers, during inspection they are provided by inspectors with all available information on their rights. Also, through the delivery of special leaflets adopted in Italy, and translated in collaboration with the cultural mediators, in the languages of each of the migrant workers, information is provided on their rights, the responsibilities of the employer and the special protection mechanism to which victims have access on the basis of Italian legislation. So, this is a form of providing support for migrant workers.

We can now offer migrant workers these multilingual leaflets with an information dossier, in 11 different languages, to help migrant workers present in the Italian territory enforce their rights and social inclusion and prevent the risk of exploitation. Also, as a result of the collaboration of cultural mediators from international organizations, the inspection request form dedicated to workers that is available online on the website of the Inspectorate is being translated into nine languages. So, it can be adopted and used more effectively and is accessible to migrant workers.

These activities have been crucial over the past four or five years in building the trust of migrant workers in cultural mediators and labour inspectors. We can observe this phenomenon in our different territories. Especially, with the frequent visits to informal settlements and a regular presence in the area. With a strong relationship with migrants’ associations and with the follow-up of mechanisms with migrant workers and their families. Capitalizing on this positive experience, the national inspectorate has started strengthening territorial offices to be closer to the needs of migrant workers. We now have the experience of six territorial offices in which there are specific help desks as a pilot project. These are multilingual help desks, dedicated to receiving reports of irregularities and of exploitation from migrant workers, and more generally to provide information and support on their rights. The commitment of the Ministry and the Inspectorate is to improve this approach, to have more help desk offices in all of Italy in the near future.

Finally, a point on the role of labour inspectors. Labour inspectors, in communicating the presence of migrant workers to the public security authority, pay specific attention to describe and to emphasize all the useful elements for example, with the collaboration of the victim, in the context of violence, or serious exploitation to support the timely issuance of the special case residence permits for these workers. It is important to recall this, because this approach is moving clearly in the direction of paying full attention to workers. This is clearer in our system. In enforcing the protection of migrant workers in every situation, and in enforcing their rights, both labour and social rights, this is in full respect of both Article 3 of Convention No. 81 and Article 6 of Convention No. 129.

The final point of my intervention relates to special permits. Last week, in our document, we sent you the data collected by the Ministry of the Interior regarding the two types of special permits: for social protection reasons and for serious labour exploitation. Yesterday, we received very up-to-date data that we can send you after this discussion in a new document that can give you more specific updated elements.

Worker members – This is the first occasion on which the Committee has examined the application by Italy of Conventions Nos 81 and 129.

In its comments, the Committee of Experts has raised a series of questions specifically concerning the additional functions entrusted to labour inspectors in relation to immigration. It noted that labour inspectors are required to notify the public security authorities of the presence of any irregular migrant worker, since under Italian legislation unlawful entry and residence on Italian territory continues to be a criminal offence. The Government has provided updated data indicating that in 2022 a total of 1,206 workers without valid residence permits were identified. According to the Government’s report, these workers received information on their rights.

The IOM also provided assistance to 598 migrant workers to gain access to special protection measures. As a consequence, residence permits were issued to 313 migrant workers on grounds of social protection and in special cases of exploitation. Information has also been provided on the experimental multilingual help desks established by six provincial labour inspectorates to receive denunciations of labour irregularities and exploitation of foreign workers and to provide them with support and information.

We note the information provided. However, we express concern at the criminalization of illegal immigration in Italy, its interference in the fulfilment of the primary duties of labour inspectors and its adverse impact on the capacity of foreign workers to assert their rights. We recall that, in accordance with Article 3(2) of Convention No. 81 and Article 6(3) of Convention No. 129, the primary duty of labour inspectors is to protect workers and not to ensure compliance with the Immigration Act.

In the words of the Committee of Experts, workers in an irregular situation may not be prepared to cooperate with the labour inspection services if they fear negative consequences of inspection, such as being fined, losing their job or being expelled from the country. The objective of labour inspection can only be fulfilled if workers are convinced that the primary function of inspection is to ensure compliance with legal provisions relating to conditions of work and the protection of workers. The requirement for labour inspectors to inform the public security authorities of the presence of irregular migrant workers is not therefore in compliance with the requirements of the Conventions. The Government should adopt measures to establish a clear distinction between the activities undertaken by labour inspectors, in accordance with the provisions of the Conventions, and immigration controls, in which labour inspectors should not participate.

With regard to the protection of migrant workers, we regret that this year the Government has abolished residence permits for special cases, as a result of which migrant workers are at even greater risk. We also observe that the two triennial projects, SU.PR.EME and A.L.T CAPORALATO!, intended to combat exploitation and gangmasters in agriculture, are about to come to an end. We regret that the Government has decided to use measures that are limited in time to combat the systematic and extended exploitation of migrant workers in agriculture, in which a significant proportion of migrant workers are engaged, and where subcontracting and phantom cooperatives are commonplace. These abusive practices require a sustained and specific response by the Government, and should be an integral part of the labour inspection strategy drawn up by the Government. We also note that the Government has not provided information on the recovery of wage and social security credits for workers without residence permits, and that it confines itself to indicating that the current information system only allows an overview of the overall figures.

We echo the request by the Committee of Experts for the provision of full statistical information on the role of labour inspectors in informing migrant workers of their labour rights and the enforcement of those rights, including improved data on the recovery of the specific wage and social security credits of foreign workers without residence permits. Moreover, we note that platform work and domestic work, in which many migrant workers are engaged, and in which abuses and violations of workers’ rights are extremely frequent, are not covered by the labour inspection services. We recall that the mandate of the inspection services must cover all workers equally, and all workplaces in all sectors, whether private or public, in rural or urban areas, in the formal or informal economy, with a view to guaranteeing compliance with the legal provisions relating to conditions of work and the protection of workers. The Government must ensure without delay that the scope of labour inspection covers all workers and workplaces, including labour platforms and domestic work.

Finally, we note that the National Labour Inspectorate, established in 2017, absorbed the National Social Security Institute, the National Workers’ Compensation Institute and the inspection departments of the Ministry of Labour and Social Policy. In the 2022 annual labour inspection report, it can be seen that, despite this institutional reform intended to rationalize inspection procedures, labour inspection activities continue to be carried out by the same institutions referred to above, as well as by local health agencies, regional environmental protection agencies and the police. Each of these institutions has a specific area of competence, whether it is occupational safety and health, wages or working time, and covers a specific geographical area. Nevertheless, there remain serious doubts concerning the measures adopted to ensure the necessary cooperation between these various bodies and the coordination of their action. Proof of the lack of coordination is contained in the comment by the Committee of Experts, in which it indicates that the compilation and publication of statistics of employment accidents and cases of occupational disease are not the competence of the central authority, the National Labour Inspectorate, but they are drawn up and published separately by the National Workers’ Compensation Authority Institute. The Committee also requested the Government to provide information on the impact of the recent organizational reform on the activities undertaken by the National Labour Inspectorate, particularly in relation to the coordination of occupational safety and health inspections between the National Labour Inspectorate and local health authorities.

The reports of the Italian trade union confederations also provide examples in which, due to the limitation of their areas of competence, officials of the National Social Security Institute are only able to note a violation in relation to social security contributions, but not the failure to pay workers their wages, even though both are intrinsically interrelated. This is a perverse situation which mainly prejudices workers.

We recall that, under the terms of Article 5 of Convention No. 81 and Article 12 of Convention No. 129, the competent authority shall make appropriate arrangements to promote effective cooperation between the inspection services and other Government services and public or private institutions engaged in similar activities. The Government is therefore under the obligation to take immediate measures to ensure such cooperation and the effective functioning of the labour inspection services.

Employer members – The case under discussion concerns Conventions Nos 81 and 129. These two instruments are tightly linked and form part of the series of international labour standards intended to guarantee protection for workers in the sectors concerned. At the outset, the Employer members stress the importance of States’ compliance with the ILO Conventions they have ratified. Furthermore, the Employer members would like to emphasize the vital importance of labour inspection both for the protection of workers and for a well-functioning economy.

Allow me to turn to some background information on this case: Italy ratified Convention No. 81, which is a priority governance Convention, in 1952. Convention No. 129, which is a priority Convention as well, was ratified by Italy in 1981. We also note that since 2007 the Committee of Experts has issued six observations, the last one in 2022, denoting a failure by the Government to meet the commitments undertaken by ratifying the Conventions. Today, however, is the first time that the case regarding Italy’s compliance with Conventions Nos 81 and 129 has been discussed by the Committee. As to the country situation, it is worth noting that, in July 2020 after the fall of the Government, the President called for general elections in September 2022, which saw a new coalition gaining a majority of seats in Parliament.

Allow me now to turn to the key issues of this case: The Committee of Experts, in its 2022 observations, identified elements of concern with respect to Article 3(1) and (2) of Convention No. 81 and Article 6(1) and (3) of Convention No. 129, regarding additional functions entrusted to labour inspectors. The Employer members take note that the Government indicated in its report that inspection activities have been conducted within the three-year Plan against exploitation in agriculture through two projects financed respectively by the European Commission and the Ministry of Labour and Social Policy. We further note that the Government has indicated that labour inspectors shall communicate the presence of migrant workers in an irregular situation to the public security authority. It should also be noted that, to date, in six territorial inspectorates, multilingual desks have been activated dedicated to receiving complaints of irregularity and labour exploitation of foreign citizens and, more generally, to give support and information on their rights.

Furthermore, according to the written information provided by the Government in May 2022, the results of the task forces of the above-mentioned projects and of the activity against labour exploitation show that 1,206 non-EU workers without a regular residence permit were found at work during inspections. According to the Government, during the inspections, information was provided to migrant workers on their rights and the role of the inspectorate. The Employer members also note the national Legislative Decree, according to which residence permits may be granted to concerned workers in so-called “special cases”, that is for reasons of social protection and in cases of particular exploitation. The granting of such permits is subject to the condition that the migrant worker in an exploitative situation files a complaint and cooperates in the criminal proceedings against the employer. In this regard, according to Government’s information, 230 special residence permits were issued for reasons of social protection and 83 for reasons of serious labour exploitation.

Finally, the Government mentioned that when inspections reveal failure to comply with contractual obligations, therefore creating financial credits for workers, the labour inspectors may ensure the recovery of such credits of the concerned workers. However, the Government also indicated that the current system of collection of statistical data only allows for an overview of the total figures in this regard, without specific reference to workers without a residence permit. In light of the Committee of Experts’ observations and information provided by the Government, the Employer members request the Government, firstly, to continue to provide information on the number of migrant workers in an irregular situation detected by labour inspectors; and secondly, on the role of labour inspectors in informing migrant workers about their labour rights and in enforcing those rights.

We ask the Government to include in this information data on the recovery of wage and social security credits specific to foreign workers without a residence permit; and the number of “special case” residence permits granted as a result of cooperation by those individuals with the inspection services. Finally, in line with the Committee of Experts’ observations, we request the Government to provide information on the resources of the labour inspectorate that are allocated to the task of verifying the legality of the immigration status in practice as a proportion of inspectors’ overall time and resources.

Worker member, Italy – I am speaking on behalf of the three Italian trade union confederations, the Italian General Confederation of Labour (CGIL), the Italian Confederation of Workers’ Trade Unions (CISL), and the Italian Union of Labour (UIL). The Italian trade unions consider both Conventions Nos 81 and 129 prerequisite standards for the respect and implementation of fundamental occupational health and safety rights. As addressed by the Committee of Experts, we would like to stress that defending the independence of public labour inspectors is of utmost importance. In fact, we welcome the withdrawal of the agreement between the National Labour Inspectorate, which I will call INL from now on, and labour consultants, which would have allowed enterprises to be notified before a possible inspection, and enterprises with a certification of compliance issued by labour consultants, obviously for a fee, to be excluded from possible inspections.

This is in the context of a dramatic situation in terms of numbers of inspectors and of the resources at their disposal: an enterprise knows that its chance of being inspected is once in 15 years. We would like to make a few observations on the additional information provided by the Government:

The number of cases of “special protection” reported continues to be dramatically low, and part of these were notified by the trade unions themselves and specific multi-stakeholder projects, and not as a result of national inspections, as one would have expected. Moreover, we want to challenge the following statement by the Government: “inspectors ensure adequate protection for migrant workers also from an economic point of view by issuing ascertainment notices (section 12 Legislative Decree No. 124/2004), under which financial rights are immediately and freely satisfied.”

As we have repeatedly pointed out, the “ascertainment notices” issued by the labour inspectors are an important tool that we hope can be increasingly extended. However, this notice alone does not at all guarantee the recovery of what the ILO and the Committee of Experts have defined as “wage theft” against migrant and non-migrant workers, irregular and otherwise. The INL reform initiated in 2017, which we welcomed as it contributed to strengthening the autonomy of the INL from the Ministry of Labour, still falls short of complying with Articles 4, 5 and 16 of Convention No. 81 and Articles 7, 12 and 21 of Convention No. 129 regarding the coordination of inspection activities by a central authority. Despite the efforts deployed through the SU.PR.EME and A.L.T CAPORALATO! programmes (caporalato is the Italian word for gangmaster) and some good practices of multi-agency inspection and coordination, in the majority of the territories affected by irregular labour and exploitation, the different inspection services (INPS, INAIL, ASL Inspectors, the police, including the carabinieri, guardia di finanza, and so on) act autonomously, without any coordination among themselves and in a disjointed manner. For example, the inspection activities promoted by the INPS (the national social insurance agency), conclude with reports that only concern social security contributions, without capturing the growing phenomenon of “wage theft,” as INPS inspectors do not issue ascertainment warnings to workers found to have been paid below the contractual minimum.

In this context, the Italian unions believe that setting up a “guarantee fund”, which could ensure the enforceability of ascertainment warnings and the payment of the so-called “wage theft” to workers, would contribute to shifting the responsibility for the recovery of the economic value of the warnings from the worker to the INPS, without removing the overall responsibility from employers.

What is more, the SU.PR.EME and A.L.T. CAPORALATO! projects are part of the national anti-caporalato plan prepared by the Ministry of Labour and financed with EU funds. But these are about to end and, in any case, represent an extraordinary activity that cannot guarantee continuity or stability of interventions which, on the contrary, an institutional structure such as the labour inspectorate should ensure.

For this reason, in compliance with point 2.2.7 of the ILO Guidelines on general principles of labour inspection, which indicates that “Labour inspectorates should collaborate with workers’ and employers’ organizations in the design, adoption and review of inspection policies, strategies, or programmes and plans”, the Italian unions think that an institutionalized tripartite body that ensures the regular planning and monitoring of inspections should be established. And the INL should set up an integrated database that collects disaggregated data on the inspections carried out by all the responsible inspection bodies at the local and regional levels.

Section 8 of Italian Act No. 199/2016 against “Caporalato” is not fully implemented. Only 6,000 enterprises are enrolled in the Quality Agricultural Labour Network out of a potential pool of 200,000. The territorial sections are less than half of those planned, are not fully operational and are not participated in homogeneously by all inspection services. In this context, we welcome the multidisciplinary experiment in six provinces, as mentioned now by the Government.

Irregular labour and modern forms of slavery are still widespread in the agricultural sector, as documented by Italian trade unions. The introduction of occasional fixed-term contracts in agriculture fuels exploitation and illegal labour, undermining Act No. 199/2016. This will be further aggravated by the recent re-introduction of payment by vouchers in the agriculture sector for payments up to €15,000 under Decree No. 48/2023. On the ground, we have observed that there has been a significant increase in the number of companies providing signed semi-regular contracts (so-called “grey contracts”) to avoid INL warning notices and sanctions.

Let me also remind the Committee that, in Italy, labour inspectors have to communicate the presence of irregular migrant workers to the public authority and that the illegal entry and stay in the country and the employment of workers without a permit are criminalized by sections 10bis and 22(12) of Legislative Decree No. 286/1998.

As raised several times by the Committee of Experts, it is necessary to avoid the result of the inspection controls being the immediate deportation of workers found in a situation of irregularity. We need to ensure a clear distinction between labour inspection and immigration controls and to strengthen the independence and resources of the former. As long as the irregular status of migrants remains a criminal offence, there will be no full compliance with Convention No. 81. Punitive measures against employers should be accompanied by reward measures in favour of good practices and virtuous employers, who are now prevented from formalizing workers because of the Italian Bossi-Fini law.

At the same time, section 18 of the Consolidated Immigration Act should be amended to ensure that inspections can lead to a safe regularization process for vulnerable migrant workers, in a manner that does not place the entire burden of the regularization process on the shoulders of those who are already exploited, that is the workers.

The gender dimension of exploitation should not be overlooked. Contact with severely exploited people, and especially women, requires outreach work that does not end with one single inspection, but requires the help of cultural mediators. For this, in accordance with ILO Violence and Harassment Convention (No. 190) and Recommendation (No. 206), 2019, national labour inspection services should be further equipped to proactively prevent and report gender-based violence and harassment in the agricultural sector. Inspections are also particularly challenging and ineffective in the context of subcontracting. Strengthening labour inspectors, doing joint work with all those involved in controls is the best answer to bringing more legality to procurement.

Finally, let me address the issue of access to remedies. The recovery of unpaid wages and compensation for damages suffered due to exploitation is a key issue in addressing irregular labour, especially by migrant workers, who otherwise would have no interest in reporting exploitation, as they could only expect negative consequences. Alongside judicial remedies, which generally do not have the confidence of vulnerable workers, the Italian unions believe it is necessary to pursue the path of non-judicial remedies. These are procedures characterized by speed, confidentiality and informality, which can provide positive responses to the pressing needs of workers, especially in relation to unpaid wages. These conciliation mechanisms may involve labour inspectorates, or may be handled jointly by unions and employers, or they may be led by trade unions.

Employer member, Italy – I am honoured to take the floor with a short intervention in my capacity as Employers’ delegate of Italy and on behalf of the Confederation of Italian Industries.

We welcome the opportunity of considering the case of Italy on the application of Conventions Nos 81 and 129 on the system of labour inspection, in particular with regard to functions related to immigration. We believe it is a chance to reflect on the challenges that any country faces when securing the enforcement of the legal provisions on working conditions and the protection of workers who are migrants in an irregular situation. At the same time, we believe it is also an opportunity to show the progress that can be made in this regard, building on the positive steps already taken to address existing weaknesses and gaps. Italy is among the top front-line countries for migrants arriving in Europe and of course illegal immigration represents a huge challenge for our country. In this context, illegal migrants are more vulnerable to becoming victims of abuse and exploitation on the labour market.

We would like to express our firm opposition to any form of abuse or exploitation of migrant workers. It is first of all, of course, a matter of respect for human dignity and fundamental rights. From our perspective, the employment of illegal migrant workers also creates unfair competition for the vast majority of enterprises which respect the law and leads to losses in tax and social security revenues.

Italy has in place an advanced and very detailed legal framework providing protection for migrants that goes well beyond international standards and EU provisions. Moreover, I would like to stress that, in our well-established collective bargaining system, collective agreements address issues that are key to migrant workers, such as training, housing, food needs and leaves. Employers collaborate with the public authorities in line with the Migrant Workers (Supplementary Provisions) Convention, 1975 (No. 143), which recognizes the specific role of the social partners, and they are engaged, often together with the trade unions, in projects to tackle undeclared work and promote the social inclusion of migrants. The aspects relating to inspections and sanctions for illegal employment, also with regard to the more problematic elements highlighted by the Committee of Experts, remain an issue in Italy, but the information provided by the Government today shows that Italy is well aware of the challenges, committed to structurally addressing them and has already taken important steps that go in the right direction. This direction, from our perspective, considering the complexity of the phenomenon of illegal migration, must be towards a broad strategy that could bring together different actors at the public and private levels with their respective responsibilities and tools. We, as employers, stand ready to contribute to further developing this pathway. We would encourage the Committee to take into due account the efforts and progress made by Italy in remaining strongly and concretely committed to the full implementation of Conventions Nos 81 and 129.

Worker member, Spain – There are many issues that arise in the complaint against the Government of Italy that this Committee has very rightly decided that it will examine here, from the lack of resources of many labour inspection services following years of austerity policies and cuts, to the interpretation of some of the functions that the Italian Government has entrusted to the labour inspection services, which go beyond those set out in Article 3 of Convention No. 81 and Article 6 of Convention No. 129.

I will speak about one of the issues already raised by the Italian Worker member: the lack of guarantees of exhaustive and effective inspections in contracting and subcontracting chains in the agricultural and logistics sectors. The contracting and subcontracting to which I am referring are a cover for fraudulent and illegal practices that use false cooperatives and other corporate structures in which the Italian inspection services do not enforce the law, ILO standards or collective agreements. Industrial accidents, many of which are mortal, therefore abound there, along with interminable workdays, insecure employment and wage deductions that are not in compliance with the rules agreed between employers’ and workers’ representatives. It is widely known that in the Emilia Romagna region, ghost cooperatives subcontract labour and manage parts of the production cycle in client companies. Many livestock farms subcontract the logistics to these spurious cooperatives, which in practice fully manage the barns in which the animals are reared. While the workers appear to be members of the cooperative, they are often forced to work under terrible conditions. If cooperatives close as a result of complaints, trade union pressure or supervision, they reappear under a new name and with different members. This is not a one-off, as we can see that in other sectors, such as logistics, there are complex fraudulent hidden tax practices involving invoices for legally inexistent transactions and fictitious contracts, in violation of regulations in the sector. The financial police of Milan and the tax office have identified employment relationships with commissioning enterprises concealed by screen companies, which in turn used coop/eratives (or other forms of shell companies). Huge logistics companies are involved in this labour exploitation of the weakest workers, that is migrants, and the three major Italian trade union confederations have therefore called for protection for the almost 30,000 workers affected, and have offered to work with the judicial authorities. These cases can only be prevented if the inspection services, working in conjunction with the other actors involved in enforcement, succeed in bringing these illegal practices to an end.

Like the perverse labour reforms introduced in 2011 by the conservative Spanish Government, the current Italian legislation allows workers who should by the nature of their work be employees to be forced to form part of a series of pseudo-cooperatives with the sole aim of evading their obligations, paying lower wages and worsening the protection of workers, or in brief of making them precarious, thereby evading the provisions of Article 4 of Convention No. 129. The Italian labour inspectorate cannot, and must not be an institution that focuses on reporting irregular migrant workers. It is right for this Committee to ask the Government to provide information on the time and resources devoted to this function which, as is recalled in Article 3(2) of Convention No. 81, may interfere with the effective discharge of the primary duties of the labour inspectorate, which, I quote, are: “to secure the enforcement of the legal provisions relating to conditions of work and the protection of workers while engaged in their work, such as provisions relating to hours, wages, safety, health and welfare”.

Government member, Algeria– The Algerian delegation would like to thank the Government representative for providing replies to the questions raised by the Committee of Experts on the application of Conventions Nos. 81 and 129.

Italy is party to the international legal instruments on labour inspection and duly fulfils its international obligations in good faith. It should be emphasized that, through their work in providing guidance and information, undertaking inspections and issuing infringement notices, the labour inspection services monitor the failure to give effect to fundamental rights respecting labour relations and conditions, and consequently play an important role in the enforcement of those rights.

My delegation therefore welcomes the relevant information provided by the Government representative in the context of the efforts to ensure effective labour inspection in the agricultural sector, and in particular to identify any failure to meet contractual obligations towards the workers concerned, including migrant workers, and to ensure that workplaces are inspected as frequently and as thoroughly as necessary, particularly in relation to occupational safety and health.

Indeed, the Government representative’s answers describe the major measures taken to regularize the labour situation and working conditions of migrant workers and their related rights.

Moreover, the measures adopted to combat exploitation and illegal labour intermediation in agriculture; capacity-building for inter-provincial labour inspection services, including their personnel; the strengthening of their information systems, and coordination with public health and social security services, and the management of migration flows; and improvements in working methods and investigation techniques, and the prevention of illegal work in this sector in particular, undoubtedly contribute to strengthening protection for all workers, whether regular or irregular, and consequently to enforcing the rights guaranteed in labour law.

All these measures demonstrate Italy’s efforts to give full effect to Conventions Nos 81 and 129.

Finally, my country believes that issues relating to the general improvement of working conditions should be addressed as part of constructive and mutually beneficial dialogue with all actors, including farmers and representative trade union organizations.

In view of the commitments made, the Algerian delegation commends Italy on the results obtained to date and encourages the Government to continue working to strengthen the resources, capacities and prerogatives of the labour inspection services, in line with the national legal system and the international labour instruments in force.

Worker member, Republic of Korea – I would like to emphasize the importance of strengthening inspection capacity and control tools to identify and respond to the situation of exploitation, violence and harassment against workers and gender pay discrimination in agriculture as well as in the domestic sector.

The gender dimension of exploitation cannot be disregarded. We witness the feminization of migration and of poverty as a global phenomenon as more and more women are forced to leave home to support their families. In this situation, agriculture, domestic work, and sex work are the only options available for women, especially migrant women in irregular situations to work in the informal economy even under prohibitive conditions. Women working in irregular situations are vulnerable to the most serious forms of exploitation and abuse.

In Italy, there is a growing feminization of exploitation in the agricultural sector, among workers not only from other EU countries, especially Bulgaria and Romania, but also Italians to a much lesser extent. The tragic case of Paola Clemente, a women worker who died from fatigue while working in the agricultural sector in 2015, painfully reminds us of this. Paola died in the deafening silence of the Apulian countryside. There are more than 40,000 Italian women victimized by the Apulian “caporalato” or illegal forms of labour intermediation, who are facing the same silence. The reality of the exploitation of women workers affects the whole country and other sectors.

The Government of Italy particularly expressed its concern at the dire conditions of workers in the domestic sector and committed to strengthen labour inspection in this area, and this is well noted. I would like to draw the Committee’s attention to the lack of inspection in the sector. Violation and irregularities in the domestic sector continue to be under documented. In 2022, the Italian national inspectorate carried out only 1,055 inspections in the domestic work sector and found irregularities in 49.29 per cent of inspections. However, the number is insignificant considering that there are around one million employers of domestic workers, according to the Italian national social insurance agency. The Government, as one of the first countries that ratified Convention No. 190, should strengthen the National Labour Inspectorate so that it can proactively prevent and report gender-based violence and harassment in the agricultural sector, and this should be extended to domestic work and platform economy work. An alternative approach to tackle this specific area should be developed.

Worker member, Argentina – I should say that the Autonomous Workers’ Confederation of Peru endorses my intervention. I will therefore start by saying that in the case before us we note the efforts made by the Government of Italy, but we consider and reaffirm that these efforts have been totally inadequate.

The work of labour inspectors is fundamental to guarantee compliance with the labour rights set out in international conventions. The dramatic situation experienced by workers, particularly those in agriculture, aggravated by their situation as migrant workers, requires labour inspectors to be provided with Government support, which they are not receiving, both in terms of the current numbers of labour inspectors and the conditions under which they discharge their duties. Labour exploitation and the underground economy are clear and explicit signs of a sick and unlawful production system, which in many cases is allowed to continue, with the situation being further aggravated by organized crime.

It is necessary to emphasize that the violation of human rights is corroborated by the precarious situation of migrant workers, especially those in an irregular situation, and principally women and children who are subjected to child labour. They are very often hidden during inspections by those who exploit their labour and are the most painful face of new forms of modern slavery. For example, we can say that during each summer season, around 7,000 daily migrant workers, both steady and temporary, in the Capitanata region, provide cheap labour, especially for the tomato harvest, which accounts for one third of the total national production. The conditions of work there are dramatic in terms of the figures for exploitation and illegality. Moreover, over and above the sheer size of the harvest, processes for the mechanization of the harvest are very much delayed. The absolute exploitation can be seen not only in the irregularities in the payment of wages and the failure to comply with contractual requirements, but also include the generalized system of gangmasters with a high level of penetration by organized crime throughout the supply chain, which affects all aspects of the organization of work, from recruitment to transport, from accommodation to the payment of days worked, all of which is subject to insufficient controls.

Labour inspectors do not have the resources to discharge their duties effectively, which allows abuses by exploiters. Inspections relating to irregular migrant workers, even when it is found that they are being exploited, do not include any labour controls and no compliance notices are issued. Nor are any charges brought, to our knowledge, in institutions which could offer ‘special protection’, but action is limited to reporting them rapidly with the employer to the judicial authorities so that expulsion orders can be issued.

The shock between discharging the function of labour inspection and the legislation that requires irregularities to be referred to the criminal justice system needs to be changed. The Government’s solution of normalizing the situation through regular contracts has been applied in a very limited manner in view of the great number of cases. In this universe, labour inspectors are totally overwhelmed in relation to giving effect to the broad requirements set out in Article 6 of Convention No. 129, and particularly in paragraphs 1 and 2, as emphasized in the report of the Committee of Experts. Accordingly, in the absence of the reinforcement of their numbers and resources, their work is not giving effect to the objective set out in the Conventions under examination, and this is compounded by the fact that the human rights violations suffered by the many groups of migrants go beyond the wage exploitation and the working conditions from which they suffer on a daily basis.

Accordingly, while the irregular situation of immigrants continues to be a criminal offence, in accordance with sections 10bis, 12 and 22 of Legislative Decree No. 286/98, there cannot be full compliance with Conventions Nos 81 and 129, as the role played by inspectors will be ineffective. The irregular status of migrants must be decriminalized.

Interpretation from Arabic: Worker member, Tunisia – On behalf of the Tunisian General Labour Union, I will speak of the violations of Conventions Nos 81 and 129 by the Government of Italy which affect all foreign nationals arriving in Italy, in addition to the suffering of those who are lucky enough to escape drowning, death, the inhumane practices in camps and forced removal. The situation is therefore growing worse at workplaces.

Convention No. 81, in Article 3, defines the functions of the system of labour inspection as such, which guarantees the enforcement of legal provisions relating to conditions of work, such as those respecting health, work and the employment of young persons, and other issues. Normally, it is necessary to comply with these provisions and labour inspectors have to enforce them. In practice, over 97,000 Tunisian nationals live illegally in Italy, with 21,000 in Sicily, where Tunisian workers are exploited in the health and agriculture sectors. They suffer from inhumane conditions of work and treatment by gangmasters when they have to work in Italy.

When work is irregular, these workers need to have seasonal contracts which are partially renewed and which they must sign again during the course of the year. When these workers go from one enterprise to another, or from one region to another, the working conditions stay the same with unstable forms of employment.

This type of employment prevails everywhere in Italy since, in addition to a limited number of permanent employees, there are tens of thousands of workers whose contracts will soon expire. Among the cases examined in Sicily, there is often one permanent employee for every 40 seasonal workers, and the wages paid are inadequate. This is shown to a significant extent through the failure to publish administrative reports and the penalties, and particularly criminal penalties, imposed by labour inspectors in the event of violations.

As a result, in the case of inspections, the potential penalties do not exceed the minimum level, even though different types of measures should be adopted, as it is an important sector with much precarious work, and many of the wages are below the contractual average, including the minimum wage.

At the same time, in Syracuse, there are 20 labour inspectors for around 7,000 enterprises, meaning that the rate is one inspector for 350 enterprises. For the whole of Sicily, the rate is one inspector for 443 enterprises, or a total of 185 inspectors for some 80,000 enterprises, meaning there is one inspector for every 900 enterprises. That is why it is difficult to ensure compliance by enterprises with the rules and standards of decent work. Indeed, the figures show that there is insufficient dissuasion and insufficient capacity to change the attitudes of enterprises in relation to workers.

The ratification of the two Conventions by Italy encourages others to take the necessary measures through the application of strict national legislation on labour contracts, including provisions on decent working conditions, and the provision and assignment to labour inspectors of the capacity to discharge their functions with transparency, professionalism and impartiality, without any discrimination whatsoever, between local employees and foreign nationals.

We therefore have to improve the situation of workers, particularly in the countries of the South. We need to show solidarity between unions throughout the world so as not to lose the gains made by workers as a result of their important sacrifices, beginning in Chicago in 1886, when dozens of people were killed.

Worker member, United Kingdom of Great Britain and Northern Ireland – We note with concern the similarities between this case of labour inspection in Italy and issues regarding the United Kingdom that the Trades Union Congress (TUC) has raised with the Committee of Experts previously and which were the subject of extensive observations in 2020. We had noted that analysis of Government enforcement agencies shows that bodies tasked with protecting victims of modern slavery are also sharing information on their immigration status. Although in our case we have the concern that this threatens compliance by the United Kingdom with the Forced Labour Convention, 1930 (No. 29), and its 2014 Protocol. We note the interrelated nature of the fundamental principles and rights at work, and that of the bodies tasked with protecting victims, including the work of labour inspectors. Indeed, in the United Kingdom, the Immigration Act of 2016 makes it a legal requirement for information gateways to exist between immigration enforcement and enforcement bodies. We have seen the damage this has caused to the effectiveness of labour inspection.

Our own practical experience, as trade unions supporting garment workers in the exploitation-ridden city of Leicester, emphasizes the seriousness of this corruption of the role of inspectors. Where unions, community groups, NGOs and journalists have found multiple victims of modern slavery and other abuses over a long period of time, government agencies report few serious issues. The workers tell our representatives that this is because they are afraid to speak to the authorities in case their status or in some cases that of their fellow workers is reported to the immigration authorities. Their employers know this, and the most unscrupulous of them will exploit workers’ fear of speaking to inspectors to break labour laws with effective impunity. In short, by combining the duties of labour inspectors with those of immigration inspectors, they cannot effectively do their vital work, and workers suffer as a result. Effective labour inspection is crucial to the realization of fundamental workers’ rights. The obsession with immigration displayed by both of our Governments harms all workers.

And yet in Italy, while inspectors are all required to report on immigration, in other areas they are specifically prevented from intervening. A health and safety inspector who uncovers evidence of wage theft, for example, has no power to intervene. This says everything we need to know about the priorities of the Italian Government. The ILO’s own guidelines recognize the centrality of inspection with a clear inclusive mandate. Its most recent Guidance on general principles of labour inspection emphasizes, in point 1.1.1, that: “The mandate of labour inspection should apply equally to all workers and all workplaces in all sectors […] in the formal and the informal economy”. It also notes in point 1.3.1 that the range of regulatory oversight of labour inspection should include: “any aspect of legislation pertaining to conditions of work and the protection of workers, as defined by national legislation according to Article 27 of Convention No. 81, including […] the informal economy”.

The management of migration must not be prioritized over the realization of the fundamental principles and rights at work and other ILO Conventions. Labour inspectors must be allowed to do their vital work in an environment that gains the trust of workers. Only someone deliberately exploiting or endangering workers should fear inspection. We therefore urge the Government to wholly change this approach and allow inspectors, as Convention No. 81 sets out in Article 3.1(a), to “secure the enforcement of the legal provisions relating to conditions of work and the protection of workers while engaged in their work”.

Observer, International Transport Workers’ Federation (ITF) – In the context of the Committee of Experts’ analysis of Italy’s application of Article 3(1) and (2) of Convention No. 81 concerning the additional functions entrusted to labour inspectors related to immigration, it would be pertinent to consider another segment of the economy where many migrant workers, some of whom are in vulnerable situations, are concentrated, namely the platform or gig economy. While data is hard to come by, the results of the European Trade Union Institute’s internet and platform work survey suggest that around 5 per cent of Italy’s gig workers in logistics are foreign born. It is also understood that migrant agricultural workers in the south of the country often travel north after the harvest season to work in other industries, like tourism, logistics, domestic work and the gig economy.

In October 2021, a tribunal in Milan found a manager of an intermediary private employment agency that procured workers for a large multinational food delivery platform to be guilty of gangmaster offences – the same unconscionable practice that has plagued Italy’s agricultural sector for years. In this case, investigators found that workers were subjected to degrading work conditions and paid €3 per ride, and had their tips confiscated. Prosecutors said the workers were extremely vulnerable migrants and asylum seekers from conflict areas, including Mali, Nigeria, Côte d’Ivoire, Gambia, Pakistan and Bangladesh. The prosecutor found one migrant delivery rider who worked 68 hours over the course of a week to have earned only €179.50. The prosecutor also concluded that some migrants were “punished” with an arbitrary reduction in their compensation if they violated the terms of their agreement.

More widely, following another 2021 investigation conducted jointly by the public prosecutor and a specialized branch of the labour inspectorate, the Comando carabinieri per la tutela del lavoro, four major multinational food delivery platforms were fined a staggering €733 million for health and safety violations and employment status misclassification. Indeed, the platform companies were ordered to hire their 60,000 riders as employees or para-subordinate workers. The action of the public prosecutor in the specialized branch of the labour inspectorate in these cases is commendable. Effective labour inspection and access to relevant data and records by the competent authorities is absolutely critical to ensure that the rights of platform workers, including migrant workers, are protected. This is why the mandate of the labour inspectorate should be extended to the platform economy with material resources made available to inspectors for this purpose.

As the UN Working Group on Business and Human Rights highlighted following an official ten-day visit to Italy in 2021, that: “Migrant workers, including from African and Asian countries, working in sectors such as agriculture, garment and logistics, are trapped in a cycle of exploitation, debt bondage and human rights abuses that must be broken […] This requires decisive action by the Government and business to provide decent work conditions for all workers”.

In this regard, while recognizing the ability to grant “special case” residence permits, for reasons of social protection and in particular cases of exploitation, we need to highlight the dangers of inspection personnel notifying the public security authorities of the presence of any irregular migrant workers as illegal entry to and residence in the State territory remains a criminal offence. If undocumented workers, including those in the platform economy, face immigration enforcement, they are less likely to raise complaints of abusive employment practices. Further, it will also be difficult for prosecutors and the inspectorate to build a case against an abusive employer if workers do not report these practices.

We trust that the Government will engage meaningfully with trade unions and employers to address the issues raised by the Committee of Experts in order to bring its legislation into conformity with the Conventions in question.

Government representative – I can conclude my previous remarks with three elements and then I will pass the floor to my colleague.

First of all, regarding the inspectors employed by the labour inspectorate, we can confirm that their number is sufficient and adequate to provide all the activities in the field of labour inspection and the concrete and effective protection of all workers. Of course, we can confirm that all Italian labour inspectors are public officials with stability of employment and are totally independent of the chains of government and from improper external influence. Their recruitment is prescribed by national law only on the basis of their qualifications, as expected in Italy for all public officials. Regarding their numbers, at the end of December 2022, the total number of inspectors coordinated by the national agency was just under 4,000. Last year, and we continued this year, the National Plan to combat undeclared work provided a total of 2,412 new inspectors for the National Labour Inspectorate. All inspectors, as we can confirm, are assigned to verifying compliance with labour and social protection at the national level without any distinction as to workers.

The second point is related to the question of the data on the recovery of wage and social security credits related to foreign workers without a residence permit. We can now provide inaugural information on the credits for social security, that in the last year 2022, are calculated by the national institute for social protection at just under €4 million. This is the total amount for all workers without a residence permit.

Finally, it is important to highlight that, on the basis of Italian legislation, the regular employment of migrant workers does not undermine the right of these workers without residence permits to benefit from a proper wage, social security contributions and provisions regarding work hours, health and occupational safety, as well as rights relating to the principle of non-discrimination for the protection of minors and working mothers. For specific elements and technical remarks, I would like to give the floor to my colleague from the national inspectorate.

Another Government representative – My colleague has already spoken about the question which was raised about the independence of labour inspectors in Italy. The first thing to note is that we have a specialized authority which is detached and separate from the Government, and this is a fact.

The whole legal system concerning labour inspection in Italy is intended to provide protection for workers. There is no confusion in that. Our system is traditionally based on sanctions, a sanction-based system. No sanction is issued in a labour inspection report to workers, whether or not they are migrants. The sanctions in the reports of labour inspectors in Italy are always for employers, who in such cases exploit workers, and in this specific case, migrant workers, whether or not they have regular work permits. This is an important point, because I have heard something which is not correct. Labour inspectors issue fines to employers, not to workers. So, this is a fact.

More technically, about coordination with other bodies, it has been said that there is no coordination at all, particularly with other inspectors in the social security system. Every month in each province of Italy there is a meeting between the labour inspectorate and the INPS. The person who said that probably does not know, but it has been like this throughout Italy since 2015.

About coordination with the occupational safety and health (OSH) system, which is new for labour inspection in Italy. We have traditionally worked on OSH matters in the building sector, now we have competence in all sectors. But this is very new, so it is true that we are implementing the system and that OSH inspectors in the regional system have very long competence and have worked in this field since the 1970s. So, in this sense, we have regional/local coordination between the National Labour Inspectorate (the State-level authority) and the regional OSH inspection system (regional/local OSH inspection authorities). In this way, every region has coordination in this specific field, so this is coordination as well.

More specifically, on the remarks made on tools and remedies; an important tool that we have, in addition to fines and sanctions in the strict sense of the term, we have compliance orders for the payment of unpaid salaries, which are orders issued by labour inspectors. This is an important tool which makes it possible to recover salaries, and more specifically decent salaries, because these orders refer to the salary set out in collective agreements at the national level. This is a tool and a remedy to which all migrant workers are entitled, whether or not they have a regular permit. This is another important point, as all migrant workers, whether or not they have a regular permit, have access to the settlement procedures which we have in labour inspectorates. So, we have settlement procedures to which migrant workers are also entitled, even though they do not have a regular permit in Italy. This is quite important to say as well, so there is access to that.

A further tool concerning this item is the administrative assessment in labour inspection reports of the social security contributions to which workers are entitled. This is a measure to which all migrant workers are entitled, whether or not they have a regular permit in Italy: access to the right to social security contributions, even in the informal economy. I have heard a comment about chains of subcontractors. In Italy we have a very widespread system of joint and several liability concerning the whole chain, which is quite an important measure concerning wages and social security contributions, and this is a measure which is activated by the National Labour Inspectorate. A very quick remark about the gig economy, where we have very obviously innovative legislation. Very recently in Italy we have extended the protection of the law provided to employed workers to gig economy riders, and this is implemented by the labour inspection system in Italy.

Finally, as I have less than one minute, just to say a very quick word about what happens in practice. I am the director of a small territorial labour inspectorate in the north of Italy where there are many migrant workers. We have seen that this new approach to inspection with the collaboration of the IOM is very important, not only in the six provinces where this is implemented, but even in my province where we do not have this implementation. In this context, we have met the officials of the IOM and cultural mediators in task forces in other territories, and we are importing these meetings to our province, and we are starting other new approaches, which are much more informal obviously. This means that this measure, contrary to what was said before, it is a measure that is not going to end and which has now been renewed for the next two years. But it is a new approach which is really important for those of us who work in the territory as labour inspectors, and it is resulting in an important change in cultural approach. Multi-agency collaboration is very important and changes the cultural approach of labour inspectors as well.

Employer members – We have listened carefully and thank the various speakers who took the floor for the interventions and detailed information provided. We reiterate that Conventions Nos 81 and 129 are priority governance Conventions, which therefore require special consideration by Governments, workers and employers. The Employers wish to stress once again the importance of compliance with ratified ILO Conventions. Considering the Committee of Experts’ observations in today’s discussions, the Employers recommend the Government of Italy to provide information on the number of migrant workers in an irregular situation detected by labour inspectors, and on the role of labour inspectors in informing migrant workers about their labour rights. We ask the Government to include in this information data on the recovery of wage and social security credits specific to workers without a residence permit, and the number of special case residence permits granted as a result of cooperation between inspection services. Finally, in line with the Committee of Experts’ observations, we request the Government to provide information on the resources of the labour inspectorate that are allocated to verifying immigration status in practice.

Worker members – We thank the Government of Italy for the information and clarifications provided. We also wish to thank the other speakers.

First, we wish to clarify three issues. The first is that in our intervention we never questioned the independence of inspectors. Second, it seems strange to us to say that 4,000 inspectors are sufficient when the Worker member of Italy has told us that enterprises know that their chances of being inspected are once every 15 years. And, third, we never said that inspectors punish workers, but that there is an indirect risk that inspection can lead to expulsion from the country. We therefore wish to reiterate our concern at the criminalization of illegal immigration and at the additional duties imposed on labour inspectors to inform the public security authorities of the presence of irregular immigrant workers. We recall once again that the primary duty of labour inspectors is to protect workers and not to enforce the Immigration Act. As a result, these additional duties are not compatible with Conventions Nos 81 and 129.

We call on the Government to repeal the laws and regulations which require labour inspectors to notify the public security authorities of the presence of any irregular migrant worker. We also observe with concern the ending of resident permits for ‘special cases’ which used to be granted to irregular migrant workers and those subject to exploitation, as well as the lack of disaggregated data on the recovery of wage credits and social security contributions due to migrant workers. We recommend that, instead of distancing irregular migrant workers even further from the formalization of their work, the Government should adopt measures for the enforcement of legal provisions relating to conditions of work and the protection of migrant workers, including by: facilitating recourse to rapid non-judicial remedies, such as conciliation mechanisms; increasing the penalties imposed on offending employers; establishing a guarantee fund to ensure compliance with the warnings and penalties imposed by labour inspectors and the rapid payment of wage arrears and the pending social security contributions of migrant workers; and the extension of the scope of labour inspection to platform work and domestic work. Specific measures should also be adopted in the long term to address the numerous violations of workers’ rights and cases of exploitation, including of migrant workers, in the agricultural sector.

In this regard, we encourage the Government to make use of the various existing tools, and in particular the comparative analysis undertaken by the ILO and the EU in 2020 on the protection and assistance provided to victims of labour exploitation. Furthermore, in view of the clear lack of coordination between the various bodies entrusted with labour inspection, the Government should take immediate measures, in accordance: on the one hand, with Article 5 of Convention No. 81, to draw up, in collaboration with the social partners, a labour inspection strategy that clearly determines the missions and functions of each body and service and strengthens cooperation and collaboration between them; and, on the other, in conformity with point 2.2.7 of the ILO Guidelines on general principles of labour inspection, to establish a tripartite process for the planning and follow-up of inspections. We call on the Government to create a database for the coordinated compilation of statistics between the various bodies and institutions entrusted with labour inspection. We urge the Government of Italy to seek ILO technical assistance to address the shortcomings identified and to ensure that Conventions Nos 81 and 129 are applied fully and effectively in the country.

Conclusions of the Committee

The Committee took note of the written and oral information provided by the Government and the discussion that followed.

The Committee noted with concern several issues regarding compliance with the Conventions, in essence related to labour inspection with respect to employment of migrant workers in an irregular situation.

Taking into account the discussion, the Committee urges the Government, in consultation with the social partners, to:

- improve the collection of disaggregated labour inspection data, including by establishing an integrated database in coordination with the different agencies and bodies performing labour inspection duties;

- consider the establishment of a tripartite consultative mechanism in line with the ILO Guidelines on General Principles of Labour Inspection to ensure the effective design, adoption and review of inspection policies, strategies, programmes and plans, including the strengthening of gender-responsive enforcement measures related to ascertainment warnings and the collection of unpaid wages and contributions;

- consider the establishment of a wages and contributions protection fund in consultation with the social partners to assure the payment of unpaid wages and contributions;

- extend the collection of statistical data regarding cases of failure to comply with contractual obligations to workers in an irregular situation, to ensure recovery of the credits for these workers, notably unpaid wages and social security contributions;

- provide the Labour Inspectorate with the necessary resources for effective labour inspection.

The Committee also requests the Government to continue to provide information on:

- the number of migrant workers in an irregular situation detected by labour inspectors;

- the role of labour inspectors in informing migrant workers about their labour rights and in enforcing those rights; and

- the number of “special case” residence permits granted and a result of cooperation by those individuals with inspection services.

The Committee invites the Government to avail itself of ILO technical assistance to effectively implement all of the Committee’s recommendations.

The Committee requests the Government to submit a report to the Committee of Experts by 1 September 2023, on measures taken and progress achieved towards full compliance with the Convention.

Individual Case (CAS) - Discussion: 1988, Publication: 75th ILC session (1988)

The Government has communicated the following information:

Following the comments made by the Committee of Experts, the Government has conveyed to the ILO the documentation which constitutes a partial reply to the observations of the Committee concerning the present Convention.

In addition, a Government representative stated that at the outset of this Conference, the Government had provided the Office with the documentation which the Committee of Experts had requested concerning the application of the Convention. Detailed information was contained in the 1987 annual general report on the activities of the inspection services. The bulk of the information requested under Article 16 of the Convention was provided in this report, as regards both the number of inspections carried out and their frequency. The data also permitted an evaluation of the types of inspection by sector of activity to be made. The Government had also supplied the text of the Act on the status of the staff of local health units which are assigned labour inspection functions, in response to the request made by the Committee of Experts regarding Article 6 of the Convention. In reflecting upon the contents of the report on labour inspection activities, the Government had noted that although the inspection services are staffed by highly qualified personnel, the services should be reinforced in order to meet the growing requirements of inspection and oversight. In regard to the problem of co-ordination between the various services which had been assigned inspection functions, the Government agreed that this fell within the scope of Article 5 of the Convention. A misunderstanding had developed, however, over replies furnished by the Government several years ago. Several institutions were engaged in co-ordination at different levels: local, regional and national. Local health units, while they were legal entities enjoying complete autonomy, were organisationally part of local and territorial structures (i.e. regions and communities). At the national level, the application and interpretation of standards of protection at the workplace were within the competence of the Ministry of Labour which, on request or on its own accord, could draw up directives and instructions which were discussed by a permanent commission on the prevention of accidents and on occupational health. There were obviously some problems of co-ordination when matters concerning workers' health and the observance of technical standards at the workplace were concerned. For those aspects, the local health units had access to an interregional standing committee with branches in the most significant zones of economic activity. In reply to the point raised in the Committee of Experts' report regarding Article 9 of the Convention, the Government stressed that in practice technicians specialising in various sectors, such as industrial hygienists, engineers and doctors, collaborated in every standing committee branch. The Government had provided annual reports under Articles 20 and 21 of the Convention on a regular basis, except for during a certain period in which there had been operational difficulties owing to the entry into force of new legislation. The Government remained attentive to problems of the effectiveness of labour inspection. In the past few years, there had been thorough discussions on measures which could be taken in response to the large-scale introduction of new technology in production processes. Efforts had been launched to seek more efficacious means to ensure maximum protection for workers and to preserve the environment. The Government pledged to provide any other documentation which might assist in an evaluation of the extent of application of the Convention.

The Employers' members thanked the Government representative for her statement. There had for some years been several shortcomings in respect of a number of Articles of this important Convention. Sufficient information on the frequency of inspections, on co-operation between the labour inspectorate and the local health units and on the status of their staff was still lacking. Despite problems of co-ordination, the Committee of Experts should have the proper information at its disposal especially considering the importance of annual inspection reports; for ten years now, this had not been the case. Although the Government representative appeared to have said that reports were being sent regularly, the Committee of Experts had observed that no annual reports had been received by the Office since 1978. According to written information recently supplied by the Government, a substantial report had now been communicated. They hoped that it would contain all the necessary information and that such information would be submitted on a regular basis from now on, to avoid having another gap of several years during which the Committee of Experts had no information at its disposal.

The Workers' members welcomed the new information provided by the Government. A partial reply to the points raised by the Committee of Experts had been given, but this was still not fully satisfactory. They found the failure to send reports since 1978 to be irregular and abnormal. This led them to wonder if there were also other shortcomings in regard to labour inspection. They recalled the vital role it played in verifying that laws were in fact being respected, as for example, in the field of ensuring equal opportunity. The Workers' members welcomed the Government's statement that it wished to equip the inspection staff sufficiently in order to meet the obligations under the Convention.

The Worker member of Italy expressed his surprise at both the optimism which had been voiced and the Government's statement that it was now providing the information requested by the Committee of Experts. He had hoped to hear a statement of commitment on the part on the Government to prevent the large number of occupational accidents occuring in Italy. He wondered how those accidents could be explained if everything was going so well. In 1987 there had been 1 million occupational accidents, resulting in 1,500 deaths and 50,000 cases of permanent invalidity. He hoped the Government would reinforce the labour inspection services before it was too late for other workers. The absence of labour inspection gave employers a licence to violate labour laws. The unions had often asked the Government to take steps to redress the situation. He added in closing that the Senate had recently set up a commission of inquiry on labour inspection and workplace conditions.

The Government representative acknowledged that the reply given has been a partial one, but she had attempted to provide additional information, in particular on co-ordination. All the information requested on the frequency of inspections was included in the report mentioned. Unfortunately, it can be confirmed that the number of accidents at work and their quite serious consequences are very high. The Government was making an effort to find a solution to the problem of inspection. Unfortunately, the number of persons engaged in labour inspection was still too low and regular, timely inspections could not be guaranteed. The commission of inquiry to which the Workers' member of Italy had referred stood as testimony to the efforts being made by the Italian authorities to ensure the full application of the Convention.

The Workers' members though that the comments made during the discussion pointed to the absolute necessity of having properly functioning labour inspection services and of providing information regularly in this regard. In the light of the accident statistics cited, there were steps to be taken above and beyond labour inspection, steps involving improved protection for workers under provisions contained in laws and freely concluded collective agreements.

The Committee noted the written and oral information given by the Government and the discussion which had taken place. It hoped that the Government would be able to provide full particulars on all the points raised by the Committee of Experts, and that real progress would be able to be noted in these respects, in particular as regards the regular publication and communication to the ILO of annual labour inspection reports in conformity with the requirements of the Convention and as regard strengthen the equipping and personnel of the labour inspection services and the prevention of accidents.

Direct Request (CEACR) - adopted 2023, published 112nd ILC session (2024)

Previous comment

In order to provide a comprehensive view of the issues relating to the application of the ratified Conventions on labour inspection, the Committee considers it appropriate to examine Conventions Nos 81 (labour inspection) and 129 (labour inspection in agriculture) together.

Article 3(1) and (2) of Convention No. 81 and Article 6(1) and (3) of Convention No. 129.Additional functions entrusted to labour inspectors related to conciliation. The Committee notes that, in reply to its previous comment, the Government refers in its report to the importance of the monocratic conciliation procedure, established pursuant to section 11 of the Legislative Decree No. 124/2004. The Government indicates that such conciliation does not entail the risk of interfering with and/or diverting labour inspectors from their primary functions, but rather represents a valuable tool for protecting workers’ rights and ensuring the correct implementation of labour legislation and contractual provisions. According to the Government, the monocratic conciliation guarantees protection of workers by avoiding the burdens related to judicial and administrative procedures. The Committee notes that, according to section 11 of the Legislative Decree No. 124/2004, the monocratic conciliation is limited to issues connected with unpaid wages and social security contributions, and labour inspectors have the discretion to decide whether to pursue it. If no agreement is reached by the parties during the conciliation, the labour inspector will proceed with an inspection, which will not be limited to the worker’s complaint but will include all the activities of the employer. If the inspection finds that the worker’s complaint is justified, a certified notice of findings will be issued, obliging the employer to pay what is due. The Committee also notes that, according to the data provided by the Government, the number of complaints received by labour inspectors and dealt with by means of conciliation have been increasing in the past few years (11,964 cases in 2020, 12,581 in 2021 and 14,020 in 2022). The Committee requests the Government to provide information on the proportion of time spent by labour inspectors in carrying out procedures related to monocratic conciliation compared to the time spent on performing their primary duties in accordance with Article 3(1) of Convention No. 81 and Article 6(1) of Convention No. 129.

Articles 5 and 16 of Convention No. 81 and Articles 12 and 21 of Convention No. 129. Co-operation with other Government services. Inspections as often as is necessary to ensure the effective application of the relevant legal provisions. The Committee notes that, in reply to its previous comment concerning the coordination between the National Labour Inspectorate (INL) and the inspection departments of the Local Health Agencies (ASL), the Government indicates that in July 2022 an agreement was concluded between the Government, the Regions and the Autonomous Provinces of Trento and Bolzano on “Operational directions for control and supervisory activities, pursuant to section 13 of Legislative Decree No. 81/2008, as amended by Law Decree No. 146 of October 21, 2021”. This agreement aims at ensuring the continuity of administrative action and enhancing the national coordination of workplace health and safety supervisory activities by the INL and the ASL. With regard to statistics on inspections, the Government indicates that 17,035 establishments were inspected during 2022 (compared with 13,924 in 2021 and 10,069 in 2020). In addition, 16,037 inspections were finalized, under which health and safety offenses were contested against 13,237 enterprises, with an overall incidence of non-compliance of 83 per cent. A total of 27,126 offenses were found as a result of the inspections, of which 25,594 of a criminal nature (equal to 94 per cent) and 1,532 of an administrative nature (equal to 6 per cent). In relation to the 25,594 criminal violations charged in 2022, 24,980 were related to occupational health and safety (OSH) offences. The Government notes that the preponderance of criminal offenses found depends on the fact that OSH matters are largely governed by sanctions of a criminal nature. The Committee takes note of this information which addresses its previous request.

Article 6 of Convention No. 81 and Article 8(1) of Convention No. 129. Independence of labour inspectors. Following its previous comment, the Committee notes the Government’s indication that in the period between 2020 and the first half of 2023, there were nine disciplinary proceedings pursued against inspection personnel (four in 2021 and five in 2022). None of the defined proceedings involved criminal matters. For three of these cases, the conduct was sanctioned with suspension from duty and salary for two days, five days and four months, respectively, while the others were sanction with a fine. The Committee also notes the detailed information provided by the Government concerning the nature of the violations identified in those cases. In addition, the Government indicates that two cases, one opened in 2022 and one in 2023, involved criminal responsibilities and are pending the outcome of the related proceedings. These cases refer to offenses under the following provisions of the criminal code: section 479 (intentional false statement by a public official in an authentic instrument), section 640 (fraud), section 323 (abuse of office) and section 361 (failure to report a crime by a public official). The Committee takes notes of this information which addresses its previous request.

Articles 7 and 10 of Convention No. 81 and Articles 9 and 14 of Convention No. 129.Number of labour inspectors for the effective discharge of the duties of the inspectorate. Training. Following the Committee’s previous comment and with reference to the conclusions of the Committee on the Application of Standards (CAS), the Government indicates that, to date, the number of actual recruitments is of 327 officials (administrative, socio-statistical and IT staff), 435 ordinary labour inspectors and 548 technical inspectors. The recruitment of an additional 129 technical inspectors is scheduled for September 2023. Final selections are being made from the ranked lists of candidates. Any positions not filled as a result of the procedures already activated may be subject to further competitive procedures. With regard to training, the Committee notes the Government’s indication that, following the expansion of INL’s inspection powers on OSH by the Law Decree No. 146/2021, OSH training for inspectors were carried out in the form of two weekly sessions held virtually, involving all inspection staff. The training, which began in November 2021 and continued throughout 2022, intensified with the entry of newly hired inspectors in September 2022. Topics covered in 2021 included the role of the employer, delegation of functions, outdoor workers and workplaces, risk assessment, and the roles of the health and safety officer and the occupational health physician. During 2022, the focus was on other topics relevant to workplace health and safety, labour law, and social security and insurance, for a total of 290 hours of specialized training provided. The Government adds that an extraordinary training plan for newly hired technical inspectors is ongoing. The Committee requests the Government to continue to provide information on the progress made in the recruitment of new inspectors. The Committee also requests the Government to indicate whether inspectors are allocated to the different functions performed by the INL (such as OSH, labour conditions and social security inspections, conciliation, mediation in labour disputes etc.) and, if so, to provide information in this respect.

Article 11 of Convention No. 81 and Article 15 of Convention No. 129. Material resources of the labour inspectorate. Following its previous comment, the Committee notes the Government’s indication that in 2022 there has been an increase of 17.6 per cent in the expenditures for mission and travel allowances and that approximately €8 million have been allocated for the payment of mission-related expenses of the inspection staff. The Government indicates that the aim is to ensure an increase in the number of inspections carried out annually with the target of reaching a 20 per cent increase by 2024 from the numbers recorded for the 2019–21 period. The Government also notes that the training budget in 2022 increased by 61.5 per cent in comparison to 2021, mostly in order to meet the OSH training needs of inspectors. With regard to the budget of the INL raised from the allocation of funds resulting from penalties imposed by labour inspectors, the Government indicates that the limit established by the Law Decree No. 145/2013 and updated by Law No. 145/2018, is of €13 million. On the utilization of such budgetary resources, the Government states that a quota of 5 per cent is dedicated to the financing of equipment used for the performance of inspection activities, as well as for leasing of mobile telephone devices for the inspection teams as provided by the Directorate Decree No. 40/2022 on the financing of material for the efficiency of inspection functions. The Government indicates that the total budget for the provision of IT equipment for the first year of service of every new inspector can be roughly estimated at €2,600. The Committee requests the Government to continue to provide information on the financial and material resources allocated to the labour inspectorate in view of the progressive recruitment of new inspectors.

Article 13 of Convention No. 81 and Article 18 of Convention No. 129. Measures with immediate executory force. In reply to the Committee’s previous comment, the Government indicates that measures with immediate executory force can only be ordered by inspectors: (i) in case of serious violations in the field of health and safety at work as set out in Annex I of the Legislative Decree No. 81 of 8 April 2008 on the protection of health and safety at the workplace; and (ii) when at the time of the inspection, at least 10 per cent of the workers have not had their contract communicated to the competent Centre for the Employment or are classified as casual self-employed workers in the absence of the conditions established by law. The Government indicates that, in view of the consequences of the suspension measure, and in accordance with the general principles of the national legal system, it is not possible to use an extensive interpretation of the rule in question and to apply it to situations that are not expressly provided for by the law. The Government refers to other measures that can be adopted by the labour inspector in case of OSH violations, such as the formal notice issued to the employer with a deadline for compliance. The Committee requests the Government to indicate whether, in accordance with Article 13(3) of Convention No. 81 and Article 18(3) of Convention No. 129, labour inspectors have the right to apply to the competent authority for the issuance of orders or for the initiation of measures with immediate executory force for situations presenting an imminent danger to health or safety which are not included in the list of Annex I of the Legislative Decree No. 81 of 8 April 2008. If labour inspectors currently do not have such a right, the Committee requests that the Government provide information on legislative measures to be taken or contemplated that will provide this right.

Articles 20 and 21 of Convention No. 81 and Articles 26 and 27 of Convention No. 129. Content of annual labour inspection reports. The Committee notes that, in reply to its previous comment, the Government indicates that, to date, the annual labour inspection reports indicate only the number of workers protected through the inspection activity but not the total number of workers employed at the establishment subject to inspection. The Government indicates that the information system in use does not allow this data to be extracted. However, as part of the actions already undertaken to improve the effectiveness and completeness of INL’s information systems, it will be possible, among other things, to obtain information on the total number of workers employed in the individual establishment at the time of the inspection. In this respect, the Committee recalls its 2006 General Survey on Labour Inspection, paragraph 326, in which it indicated that statistics on the number of workplaces liable to inspection and the number of workers employed therein are essential for the evaluation of the resources needed by the labour inspectorate and that without these figures it is impossible to assess the level of coverage by inspection as against the number of workplaces liable to inspection. Therefore, the Committee requests the Government to continue to provide information on the measures adopted in order to ensure that the labour inspection reports include statistics on the number of workplaces liable to inspection and the number of workers employed therein, in accordance with Article 21(c) of Convention No. 81 and Article 27(c) of Convention No. 129. The Committee also requests the Government to continue to provide information on the measures taken in order to improve the effectiveness of the INL’s information system, including any initiative undertaken in order to establish an integrated database in coordination with the different agencies and bodies performing labour inspection duties, as requested by the CAS.

Observation (CEACR) - adopted 2023, published 112nd ILC session (2024)

Previous comment

In order to provide a comprehensive view of the issues relating to the application of the ratified Conventions on labour inspection, the Committee considers it appropriate to examine Conventions Nos 81 (labour inspection) and 129 (labour inspection in agriculture) together.

Follow-up to the conclusions of the Committee on the Application of Standards (International Labour Conference, 111th Session, June 2023)

The Committee notes the 2023 conclusions of the Conference Committee on the Application of Standards (CAS) on the application of Conventions Nos. 81 and 129 by Italy, in particular those related to: (i) improving the collection of disaggregated labour inspection data, including by establishing an integrated database in coordination with the different agencies and bodies performing labour inspection duties; (ii) extending the collection of statistical data regarding cases of failure to comply with contractual obligations to workers in an irregular situation, to ensure recovery of the credits for these workers, notably unpaid wages and social security contributions; (iii) providing the Labour Inspectorate with the necessary resources for effective labour inspection. The CAS also requested the Government to provide information on: (i) the number of migrant workers in an irregular situation detected by labour inspectors; (ii) the role of labour inspectors in informing migrant workers about their labour rights and in enforcing those rights; and (iii) the number of “special case” residence permits granted and a result of cooperation by those individuals with inspection services.

The CAS invited the Government to avail itself of ILO technical assistance to effectively implement all of the Committee’s recommendations.

The Committee notes with interest the information provided by the Government in its report concerning the establishment of a tripartite technical roundtable mandated to analyse the issues raised by the CAS and identify the most appropriate solutions. The Government indicates that the first meeting took place on 19 July 2023, involving representatives of the National Labour Inspectorate (INL), the National Social Security Institute (INPS), the Ministry of the Interior and the Ministry of Foreign Affairs and International Cooperation (MAECI), as well as the Ministry of Labour and Social Policies, the Director of the ILO Office for Italy and San Marino, and the most representative organizations of workers and employers. The Committee requests the Government to continue to provide information on the content and outcomes of the meetings of the tripartite technical roundtable and on the involvement of social partners in the process.

Article 3(1) and (2) of Convention No. 81 and Article 6(1) and (3) of Convention No. 129. Additional functions entrusted to labour inspectors in relation to immigration. Data on migrant workers in an irregular situation and actions undertaken by labour inspectors. Following its previous comment with regard to the number of irregular migrant workers detected by labour inspectors, the Committee notes the Government’s indication that during 2022, 1,206 non-EU workers without residence permit were identified by labour inspectors, representing an increase of 63 percent in comparison to the previous year, with the agricultural sector being the most affected. With regard to the role of labour inspectors in informing migrant workers of their rights and ensuring that those rights are respected, the Government indicates that several measures have already been adopted such as: (i) the translation into several languages (corresponding to the foreign communities most present in the Italian labour market) of the information form adopted by the decree of the Ministry of Interior, the Ministry of Labor and the Ministry of Economy and Finance, in application of the EU Directive 2009/52/EC introducing minimum standards on sanctions and measures against employers who employ third country nationals; (ii) the creation of multilingual brochures with the aim of assisting foreign workers in understanding the national legislative framework and in identifying and reporting possible exploitative situations; (iii) the online publication of the complaint form (so-called Request for Action), translated into ten languages; and (iv) the cooperation of the INL with the creation of inter-institutional help-desks in six local labour inspectorates which provide a multilingual service aimed at third-country nationals, victims or potential victims of labour exploitation, with the support of intercultural mediators and experts in the legal, social, labour and administrative fields. In addition, the Committee notes the detailed information provided by the Government with regard to the implementation of the project “A.L.T. Caporalato D.U.E.”, which continues to strengthen the role of the inspectorate in preventing abusive working conditions in targeted economic sectors, as well as the information concerning awareness-raising and prevention activities conducted by the labour inspectorate with regard to gang mastering and labour exploitation.

Data on recovery of wages and social security credits for migrant workers in an irregular situation. Concerning the data on the recovery of wages and social security credits specific to foreign workers without a residence permit, the Committee welcomes the detailed information provided by the Government on the unpaid social security contributions identified by INPS inspectors in 2022 and referring to non-EU workers without a valid residence permit, disaggregated by country of origin and gender of the workers. The Committee also notes the Government’s indication that the INL has started to redesign its procedures and implement an information system that will improve the collection of inspection data to allow the gathering of information on the amounts recovered and to be recovered in relation to the nationality and gender of the workers. The Government indicates that this process is ongoing and will require time to be completed. The Government also refers to the existing legal procedures for the recovery of wages and social contribution claims in case of employer’s insolvency toward the worker, such as the procedure of monocratic conciliation and the certified notice of findings, regulated by sections 11 and 12 of Legislative Decree No. 124/2004. The Government indicates that these legal remedies also apply to migrant workers in an irregular situation.

“Special cases” residence permits. The Committee also notes the detailed information provided by the Government with regard to the number of “special cases” residence permits granted as a result of cooperation by foreign workers without a valid residence permit with the inspection services, disaggregated by region and country of origin. The Committee notes that the residence permits issued for social protection reasons (section 18(1) of Legislative Decree No. 286/1998) were 384 for 2021, 315 for 2022 and 163 for the year 2023 (updated to 28 July 2023) and those for serious labour exploitation (section 22 (12-quarter) of the same Decree) were 124 for 2021, 174 for 2022 and 117 for 2023 (updated to 28 July 2023).

While taking note of the progress reported, the Committee requests the Government to continue to provide information on the number of irregular migrant workers detected by labour inspectors and on the actions undertaken by labour inspectors to ensure the enforcement of legal provisions relating to conditions of work and the protection of those workers, particularly with regard to the agricultural sector. The Committee also requests the Government to continue to provide information on the development of a system that will allow the collection of data on the recovery of wage and social security credits specific to foreign workers without a residence permit, and to provide information on those credits recovered through the existing legal procedure such as the monocratic conciliation and the certified notice of findings, if possible disaggregated by gender. It also requests the Government to provide information on the time and resources of the labour inspectorate that are allocated to the task of verifying the legality of the immigration status in practice as a proportion of inspectors’ overall time and resources.

The Committee is raising other matters in a request addressed directly to the Government.

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

In order to provide a comprehensive view of the issues relating to the application of the ratified Conventions on labour inspection, the Committee considers it appropriate to examine Conventions Nos 81 (labour inspection) and 129 (labour inspection in agriculture) together.

Article 3(1) and (2) of Convention No. 81 and Article 6 (1) and (3) of Convention No. 129.Additional functions entrusted to labour inspectors related to conciliation. The Committee notes that according to section 11 of Legislative Decree No.124/2004, labour inspectors may initiate conciliation to labour disputes. The Committee also notes that, according to the 2021 Labour Inspection report, in view of the persistent shortage of administrative staff assigned to support activities and other fundamental services provided by the National Labour Inspectorate (hereinafter INL), such as conciliation, certifications, management of disputes and relations with the public, about 25 per cent of the inspection units are employed in these various tasks. The Committee requests the Government to indicate the measures adopted to ensure that the functions assigned to labour inspectors do not interfere with the main objective of labour inspectors to ensure the protection of workers in accordance with labour inspectors’ primary duties as set forth in Article 3(1) of Convention No. 81 and Article 6(1) of Convention No. 129.

Articles 4, 5 and 16 of Convention No. 81 and Articles 7, 12 and 21 of Convention No. 129. Coordination of inspection activities by a central authority and undertaking of inspections as often as is necessary to ensure the effective application of the relevant legal provisions. Co-operation with other Government services. The Committee previously noted the establishment of the INL as the single entity of labour inspection, which took over the inspection departments of the National Institute for Social Security (INPS), the Italian Workers’ Compensation Authority (INAIL) and the Ministry of Labour and Social Policy. The reform also provided methods for coordinating with inspection departments from the Local Health Agencies (ASL) and the Regional Environmental Protection Agencies (ARPA). The Committee also had previously noted a decrease in the number of inspection activities and an increase in the percentage of violation detected and number of suspensive measures.

The Committee notes the Government’s indication in its report concerning the adoption of Directorial Decree No. 22 of 6 April 2020 on the reorganization of the INL. The Decree establishes four general executive Directorates at the central level, including on labour protection, safety and oversight; human, financial and logistical resources; planning, organization, control and ICT; and legal coordination. There is also a non-executive Communication Office, working directly under the Director. At the regional level, there are four inter-regional labour inspectorates (IIL) and 74 regional labour inspectorates (ITL). The Committee for Steering and Assessment of Active Policies and National Coordination of Oversight for Health and Safety at Work and the Regional Coordination Committees, as provided for by sections 5 and 7 of Legislative Decree No. 81/2008, represent various institutional entities with health and safety responsibilities, and are tasked with optimizing inter-institution and collaboration and the coordination of inspections. The Committee takes note of this information which addresses its previous request concerning Article 4 of Convention No. 81 and Article 7 of Convention No. 129.

The Committee also notes the adoption of Law Decree No. 146/2021, which amends Legislative Decree No. 81/2008. The Committee notes that the new section 13 of Legislative Decree No. 81/2008 provides that inspections on OSH shall be carried out by the local health authorities and by the INL. The Committee notes that before the adoption of this Decree, the INL would only perform OSH inspections in the construction sector. The 2021 Decree also extends the power of the INL to issue suspension orders in case of serious violations of health and safety measures.

Concerning the reasons for the decrease in the number of inspections since the establishment of the INL, the Government indicates that the analysis and comparison of the main parameters relating to staffing and inspections, to assess progress by the Inspectorate in the three-year period 2017-2019, reveal that the downward trend in volumes of inspection activity is proportionally less steep than the steady reduction in the human resources available – caused by retirements without corresponding recruitment – and is balanced by an increase in the effectiveness of inspections. Regarding the number of labour inspectors, the Committee refers to its point below under Article 10 of Convention No. 81 and Article 14 of Convention No. 129. The Committee also notes the detailed information provided by the Government with regards to inspections undertaken, violations detected, and penalties imposed. The Committee requests the Government to provide information on the impact of the recent organizational reform on the activities carried out by the INL, in particular with regard to the coordination of OSH inspections between the INL and local health authorities. It also requests the Government to continue to provide information on the number of inspections undertaken, violations detected and penalties imposed.

Article 6 of Convention No. 81 and Article 8(1) of Convention No. 129. Independence of labour inspectors. The Committee previously requested the Government to specify the disciplinary measures that can be applied to labour inspectors in case of deviation from instructions, and to provide information on the record of disciplinary procedures related to the consistency of inspections.

In response, the Government indicates that monitoring is carried out every six months within the framework of the Transparent and Consistent Inspection Project, in order to verify and ensure the consistent and correct performance of inspection activities, in line with the circulars and operational instructions issued by the INL and the Code of Practice for labour inspectors. In 2020, four cases of violation were identified through the project, involving only disciplinary measures. In total, 12 cases were detected from 2017 to 2020 (two in 2017, two in 2018, four in 2019 and four in 2020), including three cases that involved criminal charges and one that was subject to a ten-day duty and salary suspension. For the other cases, disciplinary measures imposed ranged from spoken or written reprimands to duty suspensions. The Committee also notes the adoption by the INL of the Plan for transparency and prevention of corruption 2020-2022. The Committee requests the Government to continue to provide information on the deviation from instructions of labour inspectors identified through the Transparent and Consistent Inspection Project or by other means, including the number of cases handled, the nature of the violation identified—specifying the type of disciplinary infringement or the particular criminal aspects--and the sanctions imposed.

Articles 7 and 10 of Convention No. 81 and Articles 9 and 14 of Convention No. 129. Number of labour inspectors for the effective discharge of the duties of the inspectorate. Training. Following its previous comments, the Committee notes that as of 31 December 2021, the INL was composed of 3,848 staff: 2,294 inspectors of the INL, 942 INPS inspectors, 223 INAIL inspectors, and 389 Carabinieri officers. The Committee further notes that according to the 2021 Labour Inspection Report, due to the expansion of the OSH functions of the INL established in the Law Decree No. 146/2021, the Government is planning to hire 2,580 personnel, representing a 65 per cent increase in personnel. The Committee notes that as of July 2022, the recruitment process was ongoing for 1,174 technical inspectors, 50 statisticians, and 25 IT officers. In the 2021 Labour Inspection Report, the Government indicates that the additional personnel would be deployed to reinforce the field presence of the INL. The Committee further notes that there is an ongoing recruitment for additional 90 officers of the Carabinieri with labour inspection functions. The 2021 Labour inspection report, also indicates that at the end of 2021 the INL started a comprehensive programme of training to cover the expanded OSH functions of the inspectorate. The Committee requests the Government to provide information on the progresses made in the recruitment of new inspectors. The Committee also requests the Government to provide an overview of the allocation of the inspectors to the different functions performed by the INL (such as OSH, labour conditions and social security inspections, conciliation, mediation in labour disputes etc.). Lastly, it requests the Government to provide more information on the programme of training for new and incumbent inspectors, including the dates of training sessions, subjects covered, and numbers and types of personnel attending.

Article 11 of Convention No. 81 and Article 15 of Convention No. 129. Material resources of the labour inspectorate. The Committee previously noted that in view of the cuts that followed the spending review, the National Legislature allocated part of the amounts of the penalties collected as a result of labour inspections to labour inspection activity. It requested the Government to provide information on the budgetary situation of the INL, in particular with regard to its labour inspection activities, and the proportion of its budget raised from the allocation of funds resulting from penalties imposed by labour inspectors.

The Committee notes the Government’s indication that the average annual cost of remuneration for a member of inspection staff is about €40,000, while other operational expenses (IT equipment and similar) for 2020 were estimated at around €1,000 annually. Considering the 2,399 inspection staff in post on 31 December 2020, the cost of inspection personnel was estimated at around €99.5 million. The Inspectorate budget has also allocated €8 million to pay for missions of the INL personnel. Moreover, the fund derived from fines issued by inspection staff and allocated to financing bonuses for inspectors was €10 million in 2017 and €13 million in 2018 and 2019 (limit of €10 million set by Decree Law No. 145/2013 adopted as Law No. 9/2014 and amended to €13 million by Law No. 145/2018). The Committee notes that according to section 79(2) of Law No. 448/1998 and subsequent amendments, on public finance measures for stabilization and development, a share equal to 10 per cent of the amount deriving from the collection of administrative and penal sanctions imposed by the provincial directorates of the labour inspection service is dedicated, in a portion of 50 percent, to the training and refresher courses for the staff of that service, and to purchase personal protective equipment, essential equipment, tools and appliances for carrying out the inspection activity and related procedures. The remaining 50 per cent of the aforementioned share is destined to create incentives for inspections of the working conditions in undertakings. The Committee requests the Government to continue to provide detailed information on the proportion of the INL budget raised from the allocation of funds resulting from penalties imposed by labour inspectors and on the utilization of such budgetary resources. It also requests the Government to provide information on the budget allocated to the INL, including for offices, equipment and transport facilities, in view of the recruitment of a substantial number of new inspectors and the expansion of the INL OSH functions.

Article 13 of Convention No. 81 and Article 18 of Convention No. 129. Measures with immediate executory force. The Committee notes that section 14 of Legislative Decree No. 81/2008 as amended by Law Decree No. 146/2021 provides that labour inspectors may adopt suspension measures in case of serious violations of health and safety provisions as listed in Annex I of the same Legislative Decree or in cases where, at the time of the inspection, at least ten per cent of the workers have not had their contract communicated to the competent Centre for the Employment or are classified as occasional self-employed workers in the absence of the conditions established by law. Noting this legislative reform, the Committee requests the Government to indicatewhether labour inspectors can issue suspension orders in the event of other occurrences of imminent danger to the health and safety of workers, other than those listed in section 14 and Annex I of Legislative Decree No. 81/2008.

Articles 20 and 21 of Convention No. 81 and Articles 26 and 27 of Convention No. 129. Content of annual labour inspection reports. Following its previous comments, the Committee notes the Government’s indication that statistics of industrial accidents and cases of occupational disease are drawn up and published separately by the INAIL in its annual report, a copy of which has been attached to the Government’s report. The Committee also notes that the yearly Labour Inspection reports of the INL are published on the website of the Ministry of Labour and Social Policies. The Committee notes that the statistics on workplaces liable to inspection and the number of workers employed therein do not appear to be included in the report. The Committee requests the Government to continue its efforts to ensure that the annual reports are communicated to the ILO and that they contain all the information required by Article 21, including information on the statistics of workplaces liable to inspection and the number of workers employed therein (Article 21(c)).

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

In order to provide a comprehensive view of the issues relating to the application of the ratified Conventions on labour inspection, the Committee considers it appropriate to examine Conventions Nos 81 (labour inspection) and 129 (labour inspection in agriculture) together.

Article 3(1) and (2) of Convention No. 81 and Article 6(1) and (3) of Convention No. 129. Additional functions entrusted to labour inspectors related to immigration. The Committee previously noted the Government’s indication on the actions taken by labour inspectors regarding the regularization of employment relationship of migrant workers in an irregular situation, as well as the related rights granted to them. The Committee also noted that inspection personnel shall notify the public security authorities of the presence of any irregular migrant workers, as “illegal entry to and residence in the State territory” remains a criminal offence.

The Committee notes that, according to the report of the Government, when inspections reveal failures to comply with contractual obligations, therefore creating financial credits for workers, the labour inspectors may, through a certified notice of findings, ensure the recovery of the credits (wages, social security, etc.) of the concerned workers, including foreign workers without regular residence permit. The Government indicates however, that the current system of collection of statistical data only allows for an overview of the total figures in this regard, without specific reference to workers without residence permit.

In reply to the previous Committee’s comment, the Government also indicates that the current system for monitoring results of inspection activities by the National Labour Inspectorate’s (INL) regional offices identifies the number of migrant workers without work permits encountered in the course of inspections (778 in 2020 and 739 in 2021), but does not record data specific to the delivery to those workers of the information sheet, introduced by the Interministerial Decree of 2007 and implementing section 1(3) of Legislative Decree No. 109/2012.

The Committee also notes that, pursuant to sections 18 and 22 (12-quater) of Legislative Decree No. 286/1998, residence permits may be granted to concerned workers in “special cases”, for reasons of social protection and in cases of particular exploitation. The Committee notes that for granting such permit, the irregular migrant worker in an exploitative situation is required to file a complaint and cooperate in the criminal proceedings against the employer. The Committee also notes that according to section 22 (12-sexies) of the same Decree, this residence permit allows for work to be carried out and can be converted, upon expiry, into a residence permit for employment or self-employment. The Government indicates that this special residence permit is a useful tool to encourage migrant workers in an irregular situation to cooperate with inspection services, without fearing negative repercussions, such as losing their jobs or being deported. The Government also refers to inspection activities carried out within the three-year Plan against exploitation and gangmasters in Agriculture (2020–2022), through two projects financed respectively by the European Commission (SU.PR.EME Italia) and the Ministry of Labour and Social Policy (A.L.T. Caporalato!). It states that the inter-provincial inspection task forces, the multi-agency working method and the collaboration between public and private entities contribute to improving the situation of migrant workers.

The Committee further notes that, as previously reported, the Government indicates that labour inspectors shall communicate the presence of migrant workers in an irregular situation to the public security authority and that illegal entry and stay in the country and the employment of workers without permit are defined as offences by sections 10bis and 22(12) of Legislative Decree No. 286/1998. The Committee requests the Government to continue to provide information on the number of migrant workers in an irregular situation detected by labour inspectors and on the role of labour inspectors in informing migrant workers about their labour rights and in enforcing those rights, including: (i) improved data on the recovery of wage and social security credits specific to foreign workers without a residence permit; and (ii) the number of “special case” residence permits granted and a result of cooperation by those individuals with inspection services. It also requests the Government to provide information on the time and resources of the labour inspectorate that are allocated to the task of verifying the legality of the immigration status in practice as a proportion of inspectors’ overall time and resources.

The Committee is raising other matters in a request addressed directly to the Government.

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

In order to provide a comprehensive view of the issues relating to the application of the ratified Conventions on labour inspection, the Committee considers it appropriate to examine Conventions Nos. 81 (labour inspection) and 129 (labour inspection in agriculture) together.

Articles 4 and 16 of the Convention No. 81 and Articles 7 and 21 of Convention No. 129. Coordination of inspection activities by a central authority and undertaking of inspections as often as is necessary to ensure the effective application of the relevant legal provisions. Reform of the labour inspection system. The Committee notes that the Government indicates in its report, in response to its previous request concerning the organization and functioning of the labour inspection system following its reform, that: (i) the National Labour Inspectorate (INL), was created on 1 January 2017, as established by the Legislative Decree No. 149 of 14 September 2015; (ii) the INL took over the National Institute for Social Security (INPS), the Italian Workers’ Compensation Authority (INAIL) and the Ministry of Labour and Social Policy’s inspection departments; and (iii) the purpose of creating a single entity for labour inspection was to simplify and streamline oversight for labour and social legislation, and to provide methods for coordinating with inspection departments from the Local Health Agencies (ASL) and the Regional Environmental Protection Agencies (ARPA).

The Committee further notes the organization chart of the INL as well as the adoption of the following texts: (i) the Presidential Decree No. 109 of 26 May 2016 which issued the regulations governing the Inspectorate’s Statute; (ii) the Prime Ministerial Decree of 23 February 2016, on human and physical resources for the operation of the sole agency for labour inspections; (iii) the Prime Ministerial Decree of 25 March 2016, which regulates the financial, economic and asset management of the Inspectorate as well as its negotiating activity; and (iv) the INL circular No. 2 of 25 January 2017 which provided the first operational instructions for logistics, coordination and planning for inspection activity. In addition, the Committee takes note of the information provided by the Government, in response to its previous request, concerning the objectives set in terms of numbers and effectiveness of inspections, and the extent to which these objectives have been met in all regions of the country. It further notes the decrease in the number of inspections (from 145,697 in 2015 to 116,846 in 2018) but the increase in: (i) the percentage of violations detected (from 60.29 per cent in 2015 to 65.01 per cent in 2018), especially in relation to occupational safety and health (from 69 per cent in 2015 to 82 per cent in 2018); and (ii) the number of suspensive measures (from 7,118 in 2015 to 8,797 in 2018), and notes in this respect the indication in the 2018 Annual Labour Inspection report that this increase is due to the effective selection of inspection targets. The Committee requests the Government to provide further information on the measures referred to by the Government to streamline and simplify inspection procedures, and to indicate any practical consequences for INL from coordination with the inspection departments from ASL and ARPA, such as whether INL inspectors assign any labour inspection responsibilities to those other agencies or assume inspection responsibilities delegated by law to those other agencies, and any impact on INL’s use of its unannounced inspection authority under Article 12(1). Furthermore, the Committee asks the Government to continue to provide information on any further measures adopted to regulate the new organizational structure of the inspectorate. It requests the Government to provide information on the reason for the decrease in the number of inspections undertaken since the implementation of the reform, and to continue to provide information on the number of inspections undertaken, violations detected and penalties imposed.

Article 6 of Convention No. 81 and Article 8(1) of Convention No. 129. Independence of labour inspectors. The Committee notes that the Government states, in response to its previous request concerning the Transparent and Uniform Inspection Work Project and the consequence for inspectors in the case of non compliance with the principle of uniformity of inspections, that: (i) notifications may be made concerning inspection assessments which clearly deviate from specific instructions and directions provided by the Ministry of Labour, with the exception of actions for which the law provides for a margin of discretion (such as the power to suspend operations); (ii) if the notification is received, administrative measures may be adopted to eliminate any inappropriate penalties (including self-assessment); (iii) in the case of ethical infringements the INL central bodies, following an investigation, may apply the disciplinary measures provided for by law to the staff involved; (iv) the Transparency Project does not replace nor overrule appeal or review procedures; and (v) to date, this monitoring has not led to notifications of particular significance with specific disciplinary consequences. The Committee requests the Government to specify the disciplinary measures that can be applied to labour inspectors in case of deviation from instructions, and to provide information on the record of disciplinary procedures related to the consistency of inspections, since 2014.

Article 10 of Convention No. 81 and Article 14 of Convention No. 129. Number of labour inspectors for the effective discharge of the duties of the inspectorate. The Committee notes the information available in the latest annual reports that the number of members of labour and technical inspectors decreased between 2015 and 2018 (from 2,605 to 2,496 and from 292 to 230, respectively) and that the number of Carabinieri officers increased in the same period (from 324 to 391). The Committee requests the Government to provide information on the reason for the decrease in the number of labour inspectors, as well as information on measures taken or envisaged to ensure that a sufficient number of labour inspectors is appointed, in accordance with Article 10 of Convention No. 81 and Article 14 of Convention No. 129.

Article 11 of Convention No. 81 and Article 15 of Convention No. 129. Material resources of the labour inspectorate. The Committee notes that the Government indicates, in response to its previous request concerning resources for the inspectorate, the adoption of Law No. 208 of 28 December 2015 on “Provisions for annual and multi-year state budgets” and Law No. 209 of 28 December 2015 on “the State budget for the 2016 financial year and multi-year budget for 2016–2018.” The Committee also notes the Government’s statement in its report that in view of the cuts that followed the spending review, the National Legislature allocated part of the amounts of the penalties collected as a result of labour inspections to labour inspection activity.

The Committee considers that, in conformity with Article 11, it is essential for member States to allocate the necessary material resources so that labour inspectors can carry out their duties effectively, and not to adjust that allocation based on anticipated receipt of funds resulting from labour inspection penalties. The Committee requests that the Government provide information on the budgetary situation of the INL (in particular with regard to its labour inspection activities), and the proportion of its budget raised from the allocation of funds resulting from penalties imposed by labour inspectors.

Articles 20 and 21 of Convention No. 81 and Articles 26 and 27 of Convention No. 129. Content of annual labour inspection reports. The Committee notes that the Government indicates that statistics of industrial accidents and cases of occupational disease are drawn up and published separately by the INAIL in its annual report, a copy of which has been attached to the Government’s report. The Committee encourages the Government to take the necessary measures to ensure that an annual report is published containing all the information envisaged on all the matters enumerated in Article 21 of Convention No. 81 and Article 27 of Convention No. 129, including information on industrial accidents and cases of occupational disease, and that it is transmitted to the Office.

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

In order to provide a comprehensive view of the issues relating to the application of the ratified Conventions on labour inspection, the Committee considers it appropriate to examine Conventions Nos 81 (labour inspection) and 129 (labour inspection in agriculture) together.

Article 3(1) and (2) of Convention No. 81 and Article 6(1) and (3) of Convention No. 129. Additional functions entrusted to labour inspectors. The Committee notes that the Government states in its report, in response to its previous request concerning the functions of labour inspectors relating to the employment of migrant workers in an irregular situation, that: (i) the inspection activity concerning labour and social legislation, with the assistance of the Carabinieri forces, has in recent years paid particular attention to combating undeclared work, especially in the agricultural sector; (ii) although ascertaining whether third-country nationals have entered Italy legally does not fall within the specific remit of local inspectorates, inspection personnel – as investigative police officials – notify the public security authorities of the presence of any irregular migrant workers, as “illegal entry to and residence in the State territory” remains a criminal offense; (iii) the invalidity of the employment contract following failure to comply with necessary procedures, does not prejudice the rights of workers who do not hold residence permits as regards remuneration, contributions, working hours, health and safety and the principles of non-discrimination and protection of minors and working mothers; (iv) an Interministerial Decree of the Ministry of the Interior, Ministry of Labour and Social Policy, and the Ministry of Economy and Finance was issued in 2017 (on implementing the provisions of section 1(3) of Legislative Decree No. 109/2012) which provides that migrant workers are informed by labour inspectors of their rights to wages and insurance and social security contributions and of the means to assert those rights; and (v) an action was planned for 2016 to fight undeclared work with particular regard to agriculture. The Committee also notes the Government’s indication, in reply to its previous request, that information on the actions taken when regularizing the employment relationship of migrant workers in an irregular situation, as well as information on the rights that were granted to them following their detection – including the number of cases in which wages and social security contributions were paid for work performed, and compensation was provided for accidents at work – is not available, and will be sent in the next report.

The Committee recalls that, pursuant to Article 3(1) and (2) of Convention No. 81 and Article 6(1) and (3) of Convention No. 129, the functions of the system of labour inspection shall be to secure the enforcement of the legal provisions relating to conditions of work and the protection of workers while engaged in their work, and any further duties which may be entrusted to labour inspectors shall not be such as to interfere with the effective discharge of their primary duties. In this respect, the Committee recalls that in its 2017 General Survey on certain occupational safety and health instruments, paragraph 452, it indicated that workers in a vulnerable situation may not be willing to cooperate with the labour inspection services if they fear negative consequences as a result of inspection activities, such as the loss of their job or expulsion from the country. The Committee urges the Government to take additional measures to ensure that the functions assigned to labour inspectors do not interfere with the main objective of labour inspectors, in accordance with Article 3(1) of Convention No. 81 and Article 6(1) of Convention No. 129. In this respect, it requests the Government to provide information on the manner in which it ensures that the cooperation with the public security authorities does not prejudice in any way the authority and impartiality which are necessary to inspectors in their relations with employers and workers, in accordance with Article 3(2) of the Convention. The Committee requests the Government to provide further information on the implementation of the role of labour inspectors in informing migrant workers about their rights, including any available statistics on the application of the Interministerial Decree of 2017. Lastly, it once again requests the Government to provide information on the concrete actions taken when regularizing the employment relationship of migrant workers in an irregular situation, as well as information on the rights that were granted to them following their detection (such as the number of cases in which their outstanding wages and other benefits were fully paid and cases in which compensation was paid in the event of past work accidents).

The Committee is raising other matters in a request addressed directly to the Government.

Direct Request (CEACR) - adopted 2015, published 105th ILC session (2016)

Reform of the labour inspection system. The Committee notes that legislative Decree No. 149 of 14 September 2015 on the rationalization and simplification of inspection activities in the area of labour and social legislation establishes a uniform labour inspection system, bringing together the inspection services of the Ministry of Labour, the National Social Security Institute (INPS) and the National Occupational Accident Insurance Institute (INAIL). The Committee requests the Government to provide detailed information on the organization and functioning of the labour inspection system following its reform, including the functions and powers entrusted to labour inspectors, and their number, status and conditions of service. Please also provide an organizational chart of the revised system, as well as a copy of any texts adopted to implement Decree No. 149 of 14 September 2015, if possible in one of the working languages of the ILO.

Article 4 of the Convention. Coordination of inspection activities by a central authority. The Committee previously noted the observations made by the Italian General Confederation of Labour (CGIL) concerning the centralization of the planning of labour inspections; and the evaluation of their results within the Ministry of Labour (which, in the opinion of the CGIL, deprives inspectors of their authority). The Government, in response to these observations, indicates that annual labour inspection plans are drawn up at the level of the Ministry of Labour focusing on sectors and regions that were identified to be most at risk during labour inspections at the regional and local levels. According to the Government, the evaluation within the Ministry of Labour concerns the achievement of the set objectives in terms of the number and effectiveness of labour inspections, but not the performance of individual labour inspectors.

In this context, the Committee also recalls the previous observations made by the CGIL that the “Extraordinary Plan” for combating undeclared and irregular work in the four regions of the south of the country had major defects and gaps in terms of the coordinated use of resources (transfer to southern Italy of labour inspectors working in other regions). The Committee requests the Government to provide information on the objectives set in terms of numbers and effectiveness of inspections, and the extent to which these objectives have been met in all regions of the country.

Article 6. Independence of labour inspectors. The Committee also previously noted the observations made by the CGIL concerning the signing of “protocols” with various associations representing enterprises stating that any “abnormal conduct” by inspectors should be reported. The Government, in response to these observations indicates that no such protocol has been signed, but that the Transparent and Uniform Inspection Work Project of the Directorate General for Inspection Services comprises the control of compliance with the principle of uniformity of inspections and codes of conduct. The Committee requests the Government to provide more information on the Transparent and Uniform Inspection Work Project, the criteria for determining non-compliance by labour inspectors with the principle of uniformity of inspections, and the consequences they may face if such non-compliance is established by the Directorate General for Inspection Services.

Article 11. Material resources of the labour inspectorate. The Committee previously noted that, according to the CGIL, cuts in public expenditure have resulted in major restrictions on inspection work, and have even affected the reimbursement of travel costs incurred by labour inspectors when using their own means of transport. In this regard, the Committee notes that, while the Government acknowledges that public expenditure cuts have affected the discharge of the duties of employees in the public administration, it also indicates that inspection work is a strategic priority of the Ministry of Labour. It further indicates that the Directorate General for Inspection has requested supplementary funds to achieve the objectives in the 2014 inspection plan, and that a special part of the current budget is earmarked for the payment of expenses incurred by labour inspectors in the course of their work. While acknowledging the budgetary constraints of the Government, the Committee hopes that the Government will continue to provide the labour inspection services with the necessary resources to ensure the effective discharge of labour inspection duties. In this regard, the Committee requests the Government to: (i) specify the proportion of the national budget devoted to labour inspection; and (ii) indicate, whether all expenses incurred during the labour inspector’s duties were covered by the special budget allocated for this purpose.

Articles 5(a), 20 and 21. Content of annual labour inspection reports. The Committee notes that the 2013 annual labour inspection report published by the Directorate General for Inspection Services and communicated with the Government’s report contains statistical information on most of the subjects covered by Article 21 of the Convention, except for information on industrial accidents and cases of occupational diseases as required by Article 21(f) and (g). In this regard, the Committee notes the Government’s indications that statistics of industrial accidents and cases of occupational disease are drawn up and published by the INAIL in its annual report, a copy of which has been attached to the Government’s report. The Committee requests the Government to consider, in view of the statistics available that could be obtained through inter-institutional cooperation with the INAIL, to include all the data required under Article 21, including those provided in paragraphs (f) and (g), in the annual report on the labour inspection services published by the Directorate General for Inspection Services, so as to facilitate the assessment of the work of the labour inspection authorities and the allocation of adequate resources.

Observation (CEACR) - adopted 2015, published 105th ILC session (2016)

Article 3(1) and (2) of the Convention. Additional functions entrusted to labour inspectors. The Committee notes from the Government’s indications and the statistics provided in its report that labour inspections have continued to focus on combating undeclared employment. It notes that in 2013, 139,824 labour inspection visits were carried out (including a significant number of so-called “summary inspections” solely designed to assess the incidence of undeclared employment including with the Carabinieri Command for Labour Protection), during which 1,091 irregular non-EU workers were detected.

The Committee notes the Government’s reiterated indications that labour inspections concerned with the detection of irregular employment are aimed at the protection of workers. According to the Government, labour inspectors take measures to: (i) regularize the employment relationship for non-EU workers in an irregular situation; (ii) recover outstanding social security and insurance contributions; and (iii) are increasingly applying measures to ensure the rapid and effective payment of outstanding wages and entitlements of workers (such as the submission of cases to conciliation and the possibility of voluntary payments). The Government also refers to the envisaged decriminalization of the offence of illegal immigration and its conversion into an administrative offence which should make it easier for non-EU workers in an irregular situation to claim their rights before the competent authorities, and for labour inspectors to provide for their effective protection. The Government emphasizes that the functions of labour inspectors to provide effective protection for all workers, including workers in an irregular situation, are clearly different from the Carabinieri entrusted with combating illegal immigration, and that cooperation during inspection visits is in many cases intended to ensure the physical safety of labour inspectors.

The Committee welcomes the abovementioned efforts made to ensure that workers in an irregular situation are being granted their due rights. Noting however the important part of inspection activities in the area of control of the legality of employment, and with reference to its previous observation, the Committee would like to emphasize that the role assigned to labour inspectors in preventing the irregular employment of foreign workers should not jeopardize the performance of their primary duties as defined by the Convention. Moreover, the Committee is of the view that the association of the Carabinieri may not be conducive to the relationship of trust that is essential to enlisting the cooperation of employers and workers with labour inspectors. The Committee therefore requests the Government, in conformity with Article 3(2), to ensure that the functions relating to the prevention of the employment of foreign workers in an irregular situation do not interfere with the primary duties of labour inspectors or prejudice in any way the authority and impartiality which are necessary to inspectors in their relations with employers and workers.

It requests the Government to continue to provide information on the manner in which the labour inspectorate ensures the discharge of employers’ obligations with regard to foreign workers in an irregular situation from the point of view of residence status (including subsequent to the decriminalization of the offence of illegal immigration). Please also provide information in relation to the concrete actions that are taken when regularizing the employment relationship of such workers, as well as information on the rights that were granted to them following their detection (number of cases in which their relationship was regularized, number of cases in which their outstanding wages and other benefits were fully paid, cases in which compensation was paid in the event of past work accidents, etc.).

Noting from the Government’s indications that the Carabinieri have the independent power to carry out inspections in workplaces, the Committee requests the Government to provide information on the measures taken so as to ensure that the cooperation of labour inspectors with the Carabinieri is limited to an extent that is compatible with the purpose of the Convention.

The Committee is raising other matters in a request addressed directly to the Government.

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

The Committee notes the Government’s report, which was received at the Office on 23 September 2010. It also notes the comments from the Italian General Confederation of Labour (CGIL) dated 25 May and 20 September 2010, which were sent to the Government on 27 July and 28 September 2010, respectively.

Article 3(1) and (2) of the Convention. Impact of monitoring and sanctioning of illegal employment and undeclared work on inspection of conditions of work. The Committee notes that the annual activity reports on inspections in the areas of labour and social security of the Ministry of Labour, Health and Social Policy for 2007, 2008, 2009 and 2010 show that labour inspection is essentially concerned with monitoring the legality of employment, including that of migrant workers.

The Government points out that, in view of the current economic and social structure of the national labour market, in which employment of foreign workers is constantly increasing, it is inevitable that inspection work also has to focus on the control of the establishment of appropriate and lawful employment relationships with citizens of non-EU countries and of new EU Member States.

The CGIL indicates that the role of the inspection unit of the Carabinieri attached to the Ministry constitutes an important and particularly pertinent component of the strategy to coordinate various inspection activities and that this unit has always focused on the strict observance of the rights of workers, particularly minors. However, it considers that the “Extraordinary Plan” for combating undeclared and illegal work in the four regions of the south of the country has major defects and gaps in terms of the coordinated use of resources and, in particular, the allocation of additional resources, given that it is based on the transfer to southern Italy of labour inspectors working in other regions and is therefore detrimental to their inspection work in those areas.

The Committee recalls once again that the role assigned to labour inspectors as Carabinieri of the criminal police may severely jeopardize the performance of their primary duties as defined by the Convention, namely to ensure the protection of workers. It refers once again to paragraph 78 of the 2006 General Survey on Labour Inspection according to which the primary duty of labour inspectors is to protect workers and not to enforce immigration law. Given the potentially large proportion of inspection activities spent on verifying the legality of immigration status, the Committee has emphasized that additional duties that are not aimed at securing the enforcement of the legal provisions relating to conditions of work and the protection of workers should be assigned to labour inspectors only insofar as they do not interfere with their primary duties and do not prejudice in any way the authority and impartiality which are necessary to inspectors in their relations with employers and workers. The Committee has also emphasized that the attribution of police functions to the labour inspection is not conducive to the relationship of trust needed to create the climate of confidence that is essential to enlisting the cooperation of employers and workers with labour inspectors. It must be possible for inspectors to be respected for their authority to report offences, and at the same time to be approachable as preventers and advisers.

The Committee has therefore emphasized that the function of verifying the legality of employment should have as its corollary the reinstatement of the statutory rights of all the workers if it is to be compatible with the objective of the labour inspection. This objective can only be met if the workers covered are convinced that the primary task of the inspectorate is to enforce the legal provisions relating to conditions of work and the protection of workers. The Committee observes in this regard that in the framework of the European Union, Directive 2009/52/EC also provides for minimum protective standards for third country nationals in illegal employment situations such as the establishment of effective national mechanisms to recover outstanding wages and other benefits due as a result of their employment relationship.

The Committee requests the Government to take the necessary measures in order to re-establish labour inspectors in their duties defined by the Convention and limit their cooperation with the immigration authorities to an extent that is compatible with the purpose of the Convention. It urges the Government to ensure in this regard respect for the rights and working methods attached to the function of the labour inspection which are radically different from those of other officials entrusted with the task of combating illegal employment and immigration. Please keep the Office informed of all progress made towards this end. The Committee would also be grateful if the Government would indicate the manner in which the labour inspectorate ensures the discharge of employers’ obligations with regard to foreign workers in an irregular situation, from the point of view of residence status (payment of wages and other benefits owed) for work done, in cases where such persons are liable to expulsion from the country by the authority responsible for controlling illegal immigration.

Article 4. Supervision and control by a central authority. The Committee notes that the CGIL criticizes a government initiative which seeks, firstly, to centralize choices with regard to inspections to be carried out and the evaluation of the results within the Ministry of Labour (which, in the opinion of the CGIL, deprives inspectors of their authority) and, secondly, to sign “protocols” with various associations representing enterprises and their consultants stating that any “abnormal conduct” by inspectors must be indicated. The Committee requests the Government to communicate to the Office any comments it considers appropriate with regard to the points raised by the CGIL. It would be grateful if the Government would indicate in particular the basic criteria used for the determination of inspection visits to be carried out and for the evaluation of their results and to send copies of models of the protocols mentioned by the CGIL.

Article 11. Labour inspection resources. The Committee notes that, according to the CGIL, cuts in public expenditure since 2008 have resulted in major restrictions on inspection work, to the extent of blocking the possibility for inspectors to use their own means of transport, as provided for in Act No. 122/10. The Committee requests the Government to give details on the evolution of the budgetary and other resources allocated to the labour inspectorate in the framework of the national budget and provide further information on transport facilities made available to labour inspectors for the performance of their duties and on procedures for the reimbursement of travel and other expenses.

Articles 5(a), 20 and 21. Publication and communication to the ILO of an annual inspection report. Statistics of industrial and commercial workplaces liable to inspection and the number of workers employed therein. The Committee notes that the annual inspection reports sent to the Office contain general information on the number of enterprises inspected, the number of labour inspectors and also on infringements and penalties imposed. However, they do not contain any information on workplaces liable to inspection or on industrial accidents and cases of occupational disease. The Committee notes that, according to the Government, the Ministry of Labour and Social Policy, in cooperation with the social security institutions, is preparing databases to assist with the rationalization and coordination of inspection work.

With reference to its general observations of 2009 and 2010 concerning the establishment of a register of workplaces liable to inspection and the publication of an annual inspection report, the Committee requests the Government to clarify whether the annual labour inspection report is published by the central authority. It also requests the Government to keep the Office informed of any steps taken or contemplated, including by means of inter-institutional cooperation, to ensure that the annual report contains detailed information on each of the points listed in Article 21. The Committee draws the Government’s attention to the indications contained in Part IV of the Labour Inspection Recommendation, 1947 (No. 81), regarding the appropriate level of detail for information required by Article 21(a)–(g) of the Convention.

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

The Committee notes the Government’s report received in July 2008, its replies to the Committee’s previous comments and the attached substantial documentation relating to the implementation of Legislative Decree No. 124 of 23 April 2004 on the rationalization of inspection duties relating to social security and labour.

Article 3, paragraph 2, of the Convention. Impact of monitoring and sanctioning of illegal employment and unauthorized work on inspection of conditions of work. In its previous comments the Committee had noted that numerous structural and legislative measures adopted to implement Legislative Decree No. 124/2004 focused on strengthening the powers of the Ministry of Labour and Social Policy for combating unauthorized work and illegal employment and that labour inspectors played a major role in this process. The Committee had emphasized the need to re-establish labour inspectors in their duties defined by the Convention and limit their cooperation with the immigration authorities to an extent that is compatible with the purpose of this Convention.

The Committee notes the indication by the Government that inspectors’ powers are not limited to the control of clandestine non-EU workers and their principal objective is to ensure observance of employment and social legislation. The Government enumerates the duties of the inspectors of the Ministry of Labour, Health and Social Policy under Act No. 628 of 22 July 1961 and Legislative Decree No. 124 of 23 April 2004. These include the monitoring of the application of all laws concerning civil and social rights, the protection of labour relations and the occasional control of contractual arrangements, typical or atypical; the monitoring of the correct application of contracts and collective agreements; the monitoring of occupational safety in the building sector only; the supervision of the functioning of pension funds and the welfare activities of professional associations; the carrying out of inquiries and investigations at the request of the Ministry of Labour; and the fulfilment of the functions required by legislation and regulations or delegated by the Ministry of Labour.

The Government adds that monitoring and control is entrusted not only to inspectors of the Ministry of Labour, Health and Social Policy but also to the Carabinieri of the Labour Protection Division, the inspectors of the social security and insurance institutions and the local health authority inspectors. The inspectors of the Ministry of Labour operate as officials of the criminal police “within the limits of the service assigned and under powers conferred under current legislation”. The Carabinieri of the Labour Protection Division perform similar functions to the inspectors of the Ministry of Labour, that is criminal police activities which, unlike those of labour inspectors, are not subject to “the limits of the service and under powers conferred under current legislation”. Monitoring and control functions in pensions and welfare matters are also exercised by the inspectors of the National Social Security Institute (INPS), the National Occupational Accidents Insurance Institution (INAIL) and other bodies who do not have the status of officials or agents of the criminal police. Finally, local health authorities also have staff responsible for monitoring and control of the application of legislation on occupational safety and health. Like the labour inspectors, this staff also has the status of criminal police officer.

The Committee also notes that, according to the comments of the Italian Confederation of Small and Medium Private Industry (CONFAPI) on the Government’s report, the Italian legislation in this area is largely in line with the Convention.

The Committee finally takes note of the detailed information attached by the Government on the results of special investigations carried out during the second half of 2006 and 2007 as well as several circulars issued by the General Inspectorate of the Ministry of Labour since 28 September 2006 for the implementation of Legislative Decree No. 124 of 23 April 2004. The Committee observes that the control of the legality of employment, including employment of clandestine migrants, appears to constitute one of the main targets of these circulars and investigations.

The Committee recalls from its previous comments that the role of the labour inspectorate, pursuant to the provisions of the Convention, is to monitor not the legality of the employment relationship but the conditions in which the work is performed and that the system of labour inspection must apply to all employees or apprentices, however they may be remunerated and whatever the type, form or duration of their contract. Cooperation with the immigration authorities should be carried out cautiously, keeping in mind that the main objective of the labour inspection system is to protect the rights and interests of all workers and to improve working conditions. In this respect, it should be emphasized that the expression “while engaged in their work” used in Article 3(1)(a) of the Convention indicates that the protection afforded by labour inspection must be provided to workers during their period of employment.

The Committee considers that the role assigned to labour inspectors as Carabinieri of the criminal police may severely jeopardize the performance of their original duties as defined by the Convention, namely to ensure that workers are protected against the imposition of conditions of work which are contrary to the legislation. As indicated in its previous comments, systematically involving labour inspectors in coordinated operations to combat illegal employment does nothing to promote a climate of confidence, which is necessary if cooperation on the part of workers with an irregular status of residency is to be achieved, especially in the form of reports and complaints to labour inspectors. On the contrary, it represents an obstacle to the opportunities for inspectors to obtain information regarding the conditions of work experienced by these workers.

The Committee therefore once again emphasizes the need for the Government to take measures to distinguish with sufficient clarity the powers and working methods of labour inspectors from those of the officials of other bodies responsible for combating illegal employment and migration. Such a separation in no way excludes the possibility of establishing a form of collaboration which involves labour inspectors drawing the attention of the competent authorities to employers in breach of the legislation regarding conditions of work and the protection of workers, especially as regards abuses reported with regard to workers whose situation is irregular. The Committee emphasizes once again that the financial consequences (fines and workers’ wage claims) resulting from the actions of the labour inspectorate can constitute an effective deterrent against the employment of persons in an irregular situation with regard to labour legislation. The Committee requests the Government to indicate in its next report any measures taken or envisaged to re-establish labour inspectors in their duties defined by the Convention and limit their cooperation with the immigration authorities to an extent that is compatible with the purpose of the Convention. It would be grateful if the Government would keep the Office informed of all progress made in this respect or, if necessary, inform it of any difficulties encountered.

Articles 20 and 21. Publication and communication to the ILO of an annual inspection report. In its previous comments, the Committee took note of the Government’s decision not to publish an annual report in the immediate future on account of institutional reforms concerning primarily the methods for the collection of statistics. The Committee notes from the Government’s latest report that, nevertheless, the results of inspection activities are published either on the Ministry of Labour web site or through press conferences. The Committee recalls that the publication of an annual inspection report is required by Article 20(1) and (2) of the Convention and once again requests the Government to publish such a report in the near future, containing detailed information on each of the matters covered by Article 21, and to ensure that a copy is sent to the ILO within the deadlines required by Article 20(3).

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

The Committee notes the Government’s report received in October 2006, its replies to its previous comments and the substantial attached documentation, including the explanatory circulars relating to the implementation of Legislative Decree No. 124 of 23 April 2004 on the rationalization of inspection duties relating to social security and labour.

1. Article 3, paragraph 2, of the Convention. Inspection of conditions of work and monitoring and sanctioning of illegal employment and unauthorized work. As the Committee emphasized in its previous comments, the role of the labour inspectorate, pursuant to the provisions of the Convention, is to monitor not the legality of the employment relationship but the conditions in which the work is performed. In paragraph 77 of its 2006 General Survey on labour inspection, the Committee recalled that neither the Labour Inspection Convention, 1947 (No. 81), nor the Labour Inspection (Agriculture) Convention, 1969 (No. 129), contain any provision suggesting that any worker be excluded from the protection afforded by labour inspection on account of their irregular employment status. In this respect, it referred to Article 4 of Convention No. 129, which states that the system of labour inspection in agriculture must apply to all employees or apprentices, however they may be remunerated and whatever the type, form or duration of their contract. The Committee pointed out that, during the preparatory work for the adoption of this provision, most of the member States which responded considered that the existence of a wage relationship with the operator should be the determining factor in defining the workers covered. In paragraph 161 of the abovementioned General Survey, the Committee observed that, in view of the growing numbers of foreign and migrant workers in many countries, the labour inspectorate is often asked to cooperate with the immigration authorities and that such cooperation should be carried out cautiously, keeping in mind that the main objective of the labour inspection system is to protect the rights and interests of all workers and to improve their working conditions. In this respect, it should be emphasized that the expression “while engaged in their work” used in Article 3, paragraph 1(a), of the Convention indicates that the protection afforded by labour inspection must be provided to workers throughout their period of employment. The Committee notes that numerous structural and legislative measures adopted to implement Legislative Decree No. 124/2004 focus on strengthening the powers of the Ministry of Labour and Social Policy for combating unauthorized work and illegal employment and that labour inspectors play a major role in this process. It considers that the role assigned to labour inspectors in this context may severely jeopardize the performance of their original duties as defined by the Convention, namely to ensure that workers are protected against the imposition of conditions of work which are contrary to the legislation. The achievement of this objective by inspectors largely depends on the cooperation of all workers, especially in the form of reports and complaints to labour inspectors, irrespective of the type or form of the contract of employment. Systematically involving labour inspectors in coordinated operations to combat illegal employment does nothing to promote a climate of confidence, which is necessary for such cooperation on the part of workers having an irregular status as regards their residence and employment. On the contrary, it represents an obstacle to the opportunities for inspectors to obtain information regarding the conditions of work experienced by workers in establishments to which this applies the most.

The Committee cannot therefore overemphasize the need for the Government to take measures to distinguish with sufficient clarity the powers and working methods of labour inspectors from those of the officials of other bodies responsible for combating illegal employment. Such a separation in no way excludes the possibility of establishing a form of collaboration which involves inspectors drawing the attention of the competent authorities to employers in breach of the legislation regarding conditions of work and the protection of workers, especially as regards abuses reported with regard to workers whose situation is irregular. In order to remain in conformity with the purpose of their duties, the action taken by inspectors should enable the implementation of legal proceedings against employers guilty of contraventions, entailing not only the imposition of adequate penalties in accordance with the various categories of contraventions but also the requirement to pay any outstanding sums owed to the workers concerned for the actual duration of their period of employment. The financial consequences (fines and workers’ wage claims) resulting from the actions of the labour inspectorate can constitute an effective deterrent against the employment of persons in an irregular situation with regard to labour legislation. The Committee hopes that the Government will take steps to re-establish labour inspectors in their duties defined by the Convention and limit their cooperation with the immigration authorities to an extent that is compatible with the purpose of the Convention. It would be grateful if the Government would keep the Office informed of all progress made in this respect or, if necessary, inform it of any difficulties encountered.

2. Articles 20 and 21. Publication and communication to the ILO of an annual inspection report. The Committee notes that, on account of institutional reforms undertaken in relation to labour inspection, including methods for the collection of statistics, the Government considers that it is not appropriate to publish an annual report in the immediate future. The Committee hopes, however, that it will be possible to publish this report in the near future, that it will contain detailed information on each of the matters covered by Article 21 and that a copy will be sent to the ILO within the deadlines required by Article 20.

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

The Committee notes the Government’s report and the attached documentation. It notes with interest that, according to the Government, measures have been taken to reinforce and rationalize the supervision of working conditions, particularly through section 8 of Act No. 30 of 14 February 2003 announcing decrees to establish a general directorate responsible for the coordination of the activities of the various supervision services and regional directorates. Decrees are also envisaged in the fields of the prevention of individual disputes, industrial relations, special security, administrative procedures and to determine the functions of the inspection council. The Committee would be grateful if the Government would provide a copy of the texts once they are adopted.

1. Article 3, paragraph 2, of the Convention. The Committee notes that inspections on tax matters will be combined with those of the National Institute for Industrial Accident Insurance (INPS and INAIL) to combat clandestine employment. The Committee emphasizes that the legal provisions covered by the Convention are those relating to conditions of work and the protection of workers while engaged in their work. The role of the labour inspectorate, under the terms of these provisions of the Convention, is not to control the lawfulness of the employment relationship, but the conditions under which the work is performed. It is extremely important that labour inspectors are not confused with tax controllers. Any such assimilation would have the effect of gravely prejudicing, and even destroying the climate of minimum confidence which should exist in the relations of inspectors with employers and workers. Indeed, operations to identify and prosecute violations of employment legislation generally give rise, both on the part of the employers targeted and the workers engaged by them, due to the manifest reciprocity of their interests, to reactions of hostility and even aggression and violence in relation to inspectors. Whether or not their situation is lawful, the workers covered by the Convention have rights in relation to conditions of work and should be able to benefit from the same protection in certain fields, such as wages, working time and health and safety at the workplace. Workers are an essential source of information on the manner in which the law is applied and on violations committed in workplaces liable to inspection and should not hesitate to turn to inspectors by reason of any lack of clarity in their legal situation.

The Committee requests the Government to provide information on the measures adopted to ensure, in accordance with Article 3, paragraph 2, that any further duties which may be entrusted to labour inspectors are not such as to interfere with the effective discharge of their primary duties, as set out in paragraph 1 (enforcement of the legislation on conditions of work; technical advice and information on its application; and participation in its improvement), or prejudice in any way the authority and impartiality which are necessary to inspectors in their relations with employers and workers.

Article 5(a). The Committee notes that the labour inspectorate is responsible for supervising occupational safety and health in specific sectors, including construction, railways, public works underground and underwater, explosives and hydraulic installations. The Committee also notes that the regions are responsible for taking preventive measures in relation to industrial accidents and occupational health through local health units, which are entrusted with powers of inspection. According to the Government, the powers of inspection in the field of occupational safety are exercised jointly by labour inspectors and the communal authorities through health units. The Committee requests the Government to provide copies of the texts governing this sharing of competence and the collaboration procedures referred to above.

Articles 6 and 7. The Committee notes with interest the legislative provisions establishing the allocation of financial resources to improve the training of labour inspectors, hold labour inspection workshops and increase the technical resources of the inspection services, including distance training, with a view to enabling them to discharge the additional duties which will be entrusted to them.

Articles 10 and 16. According to the Government, the number of inspections increased between 2002 and 2004 from 143,336 to 178,637, and the number of workplaces inspected rose from 125,576 to 157,194. The Committee would be grateful if the Government would provide information on the distribution of inspections by type and objective, in particular making a distinction between those targeting conditions of work and those relating to other fields.

Articles 20 and 21. The Committee notes the data on industrial accidents and cases of occupational disease, the personnel of the inspection services and the inspections carried out jointly with the state railway service. Nevertheless, it notes that an annual labour inspection report conforming to the above provisions of the Convention in its form and content has not been communicated. It therefore requests the Government to ensure that the central labour inspection authority complies with its obligation to publish and communicate such a report to the ILO within the established time limits. Guidance on the information that should be contained in the annual report is provided in Paragraph 9 of Recommendation No. 81 which supplements the Convention.

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

Further to its previous comments, the Committee notes the detailed information supplied in the Government’s report as well as the abundant documentation annexed thereto.

Articles 4 and 5 of the Convention. In its previous observation, the Committee noted that the labour inspectorate acts as a central authority and coordinates between various services engaged in activities relating to occupational safety and health. In this regard, it notes with interest that new impetus was given to intensified inspection services through programming and coordination of integrated supervision and that, in particular, the activities of labour inspectors from the different authorities on fiscal, tax and social security respectively were carried out under the coordination of the Central Committee set up by the Ministerial Decree of 23 September 1998. The Committee hopes that the Government will continue to provide information on any further measures taken to enhance labour inspection.

The Committee notes, however, that the Government’s report contains no reply to its previous comment on the manner in which organizations of employers and workers have reacted to the legislative texts recently adopted on the duties of the labour inspectorate in relation to occupational safety and health. It would be grateful if the Government would supply such information in its next report.

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

With reference also to its observation, the Committee would be grateful if the Government would provide additional information on the following matters.

Article 3(2) and Articles 9 and 10 of the Convention.  The Committee notes that the labour inspection services, in addition to the duties envisaged in Article 3(1), are entrusted with various other functions under the new legislative texts: coordination and supervision in the field of work performed underwater (Act of 23 December 1998); liaison between employers and jobseekers at the provincial level (Legislative Decree of 23 December 1997); supervision of the transfers of workers between enterprises for temporary employment contracts (Act No. 96-97); conducting the preliminary compulsory conciliation procedure for labour disputes (Legislative Decree No. 80 of 31 March 1998), which involves thousands of cases a year; verification of "provincial realignment agreements" (Act No. 448-98); approval of programmes for the improvement of occupational safety (Legislative Decrees Nos. 626/94 and 242/96 adopted under European directives). Furthermore, the inspection services are henceforth responsible, instead of the judicial authorities, for carrying out at very short notice inquiries into the causes of industrial accidents resulting in the death of the worker or incapacity for work of over 30 days, at the request of the authority responsible for public security (Legislative Decree No. 51 of 19 February 1998). In the view of the Government, this latter function alone, in view of the complexity of the applicable texts and standards, involves an additional workload which would justify an increase not only in the quantity, but also in the quality of the technical and administrative staff of the labour inspection services. The Committee considers that the function of supervising occupational safety and health in sectors which are particularly at risk, such as construction, compressed air, civil engineering and underground work, entrusted to labour inspectors by the Decree of 14 October 1997, requires an in-depth knowledge of technical and scientific fields which is not necessarily included in the general training programmes of labour inspectors. The Committee therefore reminds the Government that, in accordance with Article 9, measures should be taken to ensure that duly qualified technical experts and specialists, including specialists in medicine, engineering, electricity and chemistry, are associated in the work of inspection, in such manner as may be deemed most appropriate for the purpose of securing the enforcement of the legal provisions relating to the protection of the health and safety of workers while engaged in their work and of investigating the effects of processes, materials and methods of work on the health and safety of workers. The Committee notes that the Government envisages, in order to cope with the diversity and complexity of the tasks with which labour inspectors are entrusted, a strengthening of the inspection services, particularly through the recruitment of new staff and the transfer of officials working in other labour administration services; the Committee requests the Government to keep the ILO informed of the progress achieved in this respect, with an indication of the new distribution of the staff of the labour inspectorate by category and by qualification throughout the national territory.

Cooperation between the inspection services and other government services and public or private institutions engaged in similar activities (Article 5(1)).  The Government emphasizes that the high level of computerization of the labour inspection system is an important factor in its effectiveness, and that coordination in the central administration and between the administration and the various supervisory authorities is a fundamental prerequisite for the effective application of the legislative provisions which have been adopted recently respecting labour inspection. It indicates that coordination at the regional level is carried out in the coordination committees established by Legislative Decree No. 126 of 1994, the structure and functions of which are determined by the Decree of 5 December 1997, and that the labour inspectorate and local health councils collaborate in developing work programmes. The Government adds that periodic exchanges of information between the various actors take place in the areas determined by the Convention as being the principal functions of inspection. The Committee would be grateful if the Government would indicate precisely which body or bodies are henceforth entrusted at the local, regional and central levels with transmitting to the central labour inspection authority the statistical data which is to be included in the annual inspection report on the subjects set out in Article 21(b), (c), (d), (e), (f) and (g) for all the workplaces covered by the Convention. It also requests the Government to provide details on the manner and frequency with which this information is provided.

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

The Committee notes with satisfaction the Government’s report, the detailed information provided in reply to its previous comments and the abundant documentation on the legislative and practical measures taken with a view to a substantial improvement in the application of the Convention.

1.  Role of the labour inspectorate in the supervision and control of services engaged in activities related to the supervision of the legislation respecting conditions of work.  The Committee notes the information and documents indicating that the labour inspectorate is once again entrusted with duties relating to the supervision of occupational health and safety, which had previously been transferred to local health units and which had been criticized by employers’ and workers’ organizations. Although noting that the duties of the labour inspectorate in this field are still limited and only apply to workplaces characterized by major risks to health and safety, the Committee nevertheless notes that, in accordance with Articles 4 and 5 of the Convention, the labour inspectorate acts as a central authority and coordinates between the various services engaged in activities relating to occupational safety and health in all sectors of activity. The Committee would be grateful if the Government would indicate the manner in which the organizations of employers and workers have reacted to the legislative texts which have been adopted recently re-establishing the duties of the labour inspectorate in relation to occupational safety and health.

2.  Child labour.  With reference also to its general observation of 1999 concerning labour inspection and child labour, the Committee notes with particular interest the initiatives recently taken to combat child labour, and particularly the adoption of legislative measures respecting the strengthening of compulsory education and the drafting of a decree to give effect to European Directive No. 94/33/EC on the protection of young people at work. It hopes that the Government will transmit a copy of the above decree to the ILO once it has been published.

Observation (CEACR) - adopted 1998, published 87th ILC session (1999)

The Committee notes the Government's report. It also notes the comments made by the Trade Union Association of Credit Enterprises on the manner in which the Convention is applied.

Articles 3 and 5. The Committee notes, in accordance with Legislative Decree No. 687 of 7 November 1996 respecting the unification of peripheral services and the reorganization of regional and provincial labour directorates, that regional labour directorates include a labour inspection section entrusted with the technical functions previously discharged by regional labour inspectorates, and that provincial labour directorates include a labour inspection section responsible for the technical functions of a legal nature related to the inspection activities previously discharged by provincial labour inspectorates. The Committee also notes, from the information provided in the Government's report, that the principal functions of the labour inspection system prescribed by Article 3, paragraph 1, of the Convention are discharged by different public structures, including the labour inspection services. It also notes that the labour inspection services fulfil functions in many related fields. The Trade Union Association of Credit Enterprises (ASSICREDITO) raises the issue of the transfer to local health units, under the terms of Act No. 833 of 23 December 1978, of the functions of the labour inspectorate with regard to prevention and occupational safety and health. The Committee had already expressed its concern in its previous observation with regard to the problems of coordination that such a transfer could create and refers in this respect to the comments of the Trade Union Association of Petrochemical and Allied Enterprises (ASAP). However, the Committee notes that the amendments to the legislation announced in the Government's report transmitted in 1991 to restore to the inspection services a large number of their functions in order to improve the coordination of the bodies contributing to supervision have not achieved their objective. The Committee recalls that, in accordance with point (a) of Article 5, the competent authorities shall make appropriate arrangements to promote effective cooperation between the inspection services and other government services and public or private institutions engaged in similar activities. It hopes that the Government will not delay the implementation of measures to give effect to this provision and that it will provide detailed information in its next report on any progress achieved in this respect.

Article 4. The Committee notes the Government's statement that the reforms to decentralize certain functions are under way, but that labour inspection will continue to be covered by the central administration, and it requests the Government to provide information on the progress made in these reforms and their eventual impact on the labour inspectorate.

Articles 20 and 21 of the Convention. The Committee notes that the last annual report of the inspection services transmitted to the ILO covers the year 1992. The Government's subsequent reports on the application of the Convention have described substantial changes in the law and regulations in the fields of the organization and distribution of the responsibilities inherent to the functions of labour inspection. The Committee regrets that, due to the absence for five years of annual inspection reports, it is not in a position to assess the impact of these changes on the progress made in practice in the application of the Convention. The Committee reminds the Government that copies of the annual reports on the work of the inspection services under the control of the central labour inspection authority shall be transmitted to the Director-General of the ILO within three months of their publication (Article 20, paragraph 3). It emphasizes that annual inspection reports are essential documents for the assessment of the functioning of the inspection system envisaged by the Convention and it requests the Government to take the necessary measures to ensure that the above reports, which must cover each of the subjects enumerated in Article 21, are in future transmitted to the ILO within the prescribed time-limits.

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

1. Article 5 of the Convention. In earlier comments, the Committee referred to problems of coordination between the labour inspectorate and local health authorities, the latter having been given responsibilities relating to safety and health at work. It now notes that under legislation before the Senate many of the responsibilities in question will be shifted back to the labour inspectorate, and that this will help coordinate inspections. This appears also to answer the point made by the Petrochemical and Allied Trades Union (ASAP) that decentralising labour inspection led to uneven results: agreements between the social partners could not - in the absence of a reliable national scheme of reference - fill these gaps. The Committee hopes that the improvements looked for will follow and that the Government will supply full details.

2. Articles 20 and 21. Further to its previous requests, the Committee has noted the contents of the annual report on labour inspection for 1990, although that for 1989 was not received. It hopes that future annual reports will be published and communicated to the Office as required by the Convention. It hopes that those reports will include all available information on the matters listed in Article 21, including industrial accidents and occupational diseases.

3. Article 3 (2). The Committee notes that section 14 of Act No. 146 of 1990 imposes on the labour inspectorate responsibilities for supervising certain strike balloting. It trusts that this duty will not interfere with the effective discharge of inspectors' primary duties or prejudice the authority and impartiality necessary to inspectors in their relations with employers and workers. It hopes the Government will indicate any practical difficulties encountered in this respect.

4. Articles 16, 17 and 18. The Committee has noted the comments of the Independent Bank-workers Union (FABI), as to problems in the application and inspection of provisions on working hours and overtime in Salerno. It notes also the information subsequently provided by the Government as to the steps taken by the labour inspectorate in that respect. The Committee recalls the labour inspectorate's primary role in ensuring the effective application of relevant legal provisions and hopes the Government will continue to supply full details of any problems arising in this connection.

5. The Committee has noted also the comments of the General Confederation of Commerce, Tourism and Services (CONFCOMMERCIO).

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

With reference to its earlier comments, the Committee takes note of the information provided by the Government, concerning the application of Articles 9, 10 and 16 of the Convention.

Article 5(a). In reply to the Committee's comments on the problems of co-ordination between the labour inspectorate and local health units in the areas of workers' health and observance of technical standards in the workplace, the Government states that it is currently examining certain measures to rationalise supervision of health and safety at work. The Committee takes note of these indications and asks the Government to keep it informed of any measures taken to this end.

Articles 20 and 21. The Committee takes note of the annual report on the activities of the labour inspectorate for 1988 and the statistics of occupational accidents and diseases for 1979-87. It trusts that, in future, detailed information on all the subjects set out in Article 21 will be included in the annual inspection reports.

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

The Committee notes with interest the information supplied by the Government in reply to its previous observations. It is addressing a direct request to the Government on a number of points concerning the application of Articles 5 and 21 of the Convention.