Visualizar en: Francés - Español
- 104. The Committee has already examined this case and submitted interim
- conclusions to the Governing Body which were approved at its 241st Session,
- November 1988 (see 259th Report, paras. 679-708). The Government sent further
- observations on the case in a communication dated 16 February 1989.
- 105. Indonesia has not ratified the Freedom of Association and Protection of
- the Right to Organise Convention, 1948 (No. 87); it has ratified the Right to
- Organise and Collective Bargaining Convention, 1949 (No. 98).
A. Previous examination of the case
A. Previous examination of the case
- 106. At its November 1988 meeting, the Committee noted that this case
- involved a general allegation by the International Confederation of Free Trade
- Unions (ICFTU) of restrictions on trade union rights in Indonesia based on the
- following specific criticisms of the industrial relations legislation: (1) ban
- on the right to organise in trade unions for all public servants, teachers and
- employees of government-owned or controlled corporations; (2) insufficient
- protection against anti-union discrimination and interference contrary to
- Articles 1 and 2 of Convention No. 98; (3) restrictions on collective
- bargaining contrary to Article 4 of Convention No. 98; (4) restrictions on the
- exercise of the right to strike.
- 107. As regards the first allegation which specifically concerned public
- servants, the Committee noted the Government's response that since conditions
- of employment for public sector employees are set by special laws and
- regulations, collective agreements as a trade union function do not apply. It
- also noted the Government's reference to the sole civil servants' association,
- KORPRI, as having a negotiating role between civil servants and their
- employer, the Government. While noting the Government's general assertion that
- the principles of freedom of association are contained in Indonesian statutes,
- the Committee regretted the lack of detailed information on KORPRI, in
- particular on the alleged influential role played in it by the authorities,
- evidenced by the fact that the Minister of Internal Affairs is Chairman of
- KORPRI's Central Board.
- 108. As regards the alleged denial of the right to organise in unions facing
- employees of government-owned or controlled corporations, of state enterprises
- and teachers, the Committee again noted the Government's general assertion
- that freedom of association exists but that it appeared that any associations
- formed could not pursue trade union objectives.
- 109. As regards Articles 1 and 2 of Convention No. 98, the Committee noted
- that the Committee of Experts on the Application of Conventions and
- Recommendations had been calling on the Government for many years to
- strengthen its legislative provisions against anti-union discrimination so as
- to accord protection to workers at the time of recruitment and during
- employment against prejudicial acts carried out by employers or interference
- by their organisations in the establishment of workers' organisations. While
- noting the Government's general denial of these shortcomings and its reference
- to the Pancasila philosophy for industrial relations, the Committee reiterated
- the Committee of Experts' request that more specific provisions be enacted to
- ensure full conformity with the requirements of Articles 1 and 2 of Convention
- No. 98.
- 110. As for the alleged restrictions on collective bargaining, the Committee
- noted that the Government supplied certain statistics on collective labour
- agreements and company regulations. However, it observed with concern that -
- despite KORPRI's potential involvement in negotiations - the Government had
- clearly stated that collective agreements were not applicable for public
- sector workers. The Committee recalled that, under Article 6 of Convention No.
- 98, only public services engaged in the administration of the State are not
- covered by the Convention's provisions.
- 111. Lastly, as regards the alleged restrictions on the right to strike, the
- Committee noted with concern the very extensive list of non-essential services
- and industries scheduled in Presidential Decision No. 123 of 1963 in which
- strike action is banned (including state-run agencies such as tourist hotels,
- department stores and the Ancol pleasure park). While noting the Government's
- claim that withdrawal of these services could be detrimental to human life and
- that strikes should only be used as a last resort, it recalled the principle
- that strikes may be restricted or prohibited in essential services in the
- strict sense of the term, namely, where an interruption would endanger the
- life, personal safety or health of the whole or part of the population.
- 112. On this same point, the Committee noted that the Government made no
- specific comment on the ICFTU's allegation that Act No. 22 of 1957 on the
- settlement of labour disputes sets up a system of compulsory arbitration which
- makes strikes impossible in practice, apart from stating that strikes should
- be used only as a last resort. It recalled its position on conciliation and
- arbitration procedures which are not agreed to by both parties to the
- industrial dispute, namely, that the substitution, through legislative means,
- of compulsory arbitration for the right to strike as a means of resolving
- labour disputes can be justified only in certain circumstances, in particular
- in essential services in the strict sense of the term (i.e. those whose
- interruption would endanger the life, personal safety or health of the whole
- or part of the population).
- 113. On the basis of the Committee's conclusions summarised above, the
- Governing Body approved the following interim recommendations:
- a) As regards the alleged ban on the right to organise in trade unions
- applying to public servants and all state employees working in
- government-owned or controlled enterprises, and teachers, the Committee
- recalls that all workers, without distinction whatsoever, should enjoy the
- right to establish organisations to further and defend their interests.
- b) It requests the Government to supply more information on the activities
- of the KORPRI (the civil servants' association), the PGRI (the teachers'
- association) and any other associations set up for public and para-public
- servants to protect their interests, e.g. in collective bargaining, grievance
- procedures.
- c) The Committee requests the Government to review the legislative monopoly
- situation establishing KORPRI as the sole association for civil servants so as
- to permit civil servants to join organisations of their own choosing.
- d) The Committee reiterates the observations of the Committee of Experts on
- the Application of Conventions and Recommendations as regards the legislative
- shortcomings for full observance of Articles 1 and 2 of Convention No. 98 and
- as regards the limits on collective bargaining inconsistent with Article 4 of
- the same Convention; it draws these aspects of the present case to the
- attention of the Committee of Experts.
- e) The Committee requests the Government to take steps for the amendment of
- Presidential Decision No. 123 of 1963 which contains a too broad list of
- services deemed to be essential, in which strike action is prohibited, but
- which go beyond the Committee's definition of essential services.
- f) The Committee requests the Government to supply more detailed
- observations on the allegation that Act No. 22 of 1957 on the settlement of
- labour disputes sets up a system of compulsory arbitration which in fact makes
- strikes impossible.
- B. The Government's further observations
- 114. In a letter dated 16 February 1989, the Government repeats that freedom
- of association and collective bargaining in labour matters are fully respected
- in Indonesia since they are embodied in the Constitution and other
- legislation. It asks that full consideration be given to the fact that
- Indonesia is "now in the process of development towards the most suitable
- pattern" of applying these rights, especially because historical experiences
- have indicated that freedom of expression without full responsibility has
- resulted in huge problems which endangered the integrity of Indonesia as a
- State.
- 115. Turning to the Committee's specific recommendations made in November
- 1988, the Government explains that as regards the right to organise in trade
- unions of government or public enterprise employees, it fully secures the
- rights to organise for every citizen either to be or not to be a member of any
- organisation, including a trade union. But in spite of this, any public
- servant or employee of public enterprises should obey the existing
- regulations, one of which is the requirement of being a member of KORPRI
- ("Korps Pegawai Republik Indonesia" or Civil Servants' Corps). The Government
- states that those who do not intend to become a member of KORPRI should decide
- not to be a public servant or employee of public enterprises. Freedom of
- choice to be a member of government service or a state enterprise employee is
- a basic human right of every citizen, which is highly appreciated in
- Indonesia. It explains that KORPRI is a "corps" and cannot be considered as a
- workers' organisation or trade union, whereas the Teachers' Association of the
- Republic of Indonesia (PGRI) is a professional organisation which aims at
- developing education, improving professionalism of teachers, and contributing
- concepts for better educational development. According to the Government,
- members of PGRI may also become members of KORPRI, and members of KORPRI may
- also be members of PGRI. Likewise, there are members of the All-Indonesian
- Workers' Federation (SPSI) who are members of KORPRI and PGRI. Although KORPRI
- and PGRI are not trade unions as such, the protection of their members is
- their main duty and responsibility based on the Decision of the Central Board
- of KORPRI No. Kep. 50/K-X/PP/84 on the Organisational Structure and Working
- Procedures. The Central Board of KORPRI and its secretariat at all regional
- levels have established the Bureau of Employee Relations which is responsible
- for giving guidance, developing employee relations and settling any disputes
- among the members of KORPRI, in all the public enterprises owned by the
- central and regional governments. KORPRI has also set up a Bureau of Legal Aid
- (on the basis of the above-mentioned Decision of 1984) which is responsible
- for efforts and activities relating to legal assistance needed by KORPRI's
- members. There have been a lot of disputes settled satisfactorily by the
- KORPRI Bureau of Employee Relations.
- 116. As regards the particular situation of teachers, the Government states
- that protection by PGRI of its members' rights and interests against unfair
- treatment by superiors is ensured through the use of the principle of mutual
- understanding (brotherhood). This method is used because most teachers,
- schoolmasters, school inspectors and officers of the Department of Education
- and Culture are PGRI members. There have been cases where schoolmasters of
- elementary schools and a Board member of PGRI in West Java had been downgraded
- by the Head Provincial Office of the Department of Education and Culture and
- which were settled by PGRI leading to their rehabilitation to the previous
- ranks and positions. The PGRI Bureau of Legal Aid always takes action on such
- cases of unfair treatment, injustice, violence, etc.
- 117. Since these two organisations are not workers' organisations or trade
- unions, the Government states that it is impossible to negotiate towards or to
- conclude collective labour agreements for KORPRI and PGRI members. Conditions
- of work and salary of public servants are regulated by government regulations,
- and public enterprise employees are subject to government regulations or
- ministerial decrees, or to the legislation specifically issued for the
- enterprises concerned. However, it points out that in the formulation of
- company regulations for public enterprises, KORPRI representatives from the
- respective company are also involved in the discussions. In addition, it
- stresses that many employees of enterprises which are fully or partly owned by
- the Government are members of trade unions. For example, the General Labour
- Agreement signed on the one hand by plantation enterprises in Sumatra and on
- the other hand by the All-Indonesia Workers' Federation (the principal private
- sector trade union) in North Sumatra Province covers labour matters concerning
- plantation enterprises owned by the Government. Moreover, according to the
- Government, if an employee wishes to resign from membership of KORPRI and
- become a member of a trade union, he or she is entitled to do so in those
- enterprises fully or partly owned by the Government. For instance, the
- workers of PT. Semen Cibinong are organised in a trade union.
- 118. Regarding the observation made by the Committee of Experts on the
- Application of Conventions and Recommendations, particularly on Articles 1 and
- 2 of Convention No. 98, the Government states that it is applying these
- provisions, except in relation to employees of government and state-owned
- enterprises who have decided themselves to be members of KORPRI. It adds that
- Article 4 of Convention No. 98 is fully respected by the Government and many
- efforts have been made to promote and encourage collective bargaining and
- voluntary negotiations between unions and employers on conditions of work and
- terms of employment. One of these efforts is the publication of Ministerial
- Decree No. 01/MEN/1985 on the procedures to conclude collective labour
- agreements; other efforts have also been made to improve knowledge about and
- escalate the dissemination of information in favour of the wide use of
- collective labour agreements at enterprise level. In fact, states the
- Government, the development of collective labour agreements at enterprise
- level is one of the target priorities of national development in the field of
- labour policies.
- 119. As regards Presidential Decree No. 123 of 1963, which the Committee
- considers as inhibiting the right to strike of the unions, the Government
- points out that it was issued over 25 years ago and is no longer relevant to
- the current situation of the society. The Government indicates that the Decree
- established the detailed lists of governmental agencies, enterprises and
- development projects which were identified as vital at that period of time; at
- present, however, many of those governmental agencies, enterprises and
- development projects are no longer in operation. The number of workers
- employed in the areas listed in that Decree only amounts to about 170,000
- persons. In any case, states the Government, industrial relations based on the
- spirit of brotherhood obviously do not see strikes as an urgent requirement.
- 120. Lastly, the Government points out that the right to strike is fully
- guaranteed by Act No. 22 of 1957 and Act No. 14 of 1969 in which the machinery
- for strikes is well laid down. In fact, strikes are continuously occurring
- despite their marked decrease from time to time. According to the Government,
- the recorded data concerning strikes over the last four years are: in 1985, 78
- strikes; in 1986, 73 strikes; in 1987, 37 strikes; and in 1988, 36 strikes.
- These data evidence the fact that strikes still exist, even though industrial
- peace has significantly improved. The trend of strikes has been substantially
- decreasing due to the practice of mutual deliberation to obtain consensus, and
- the effective means of settling disputes has been felt to be of much help. The
- Government holds that compulsory arbitration does not exert coercion on the
- disputing parties to achieve the settlement, but is rather a means of finding
- an amicable solution based on the existing regulations and practices. Under
- the present system, the disputing parties in a bipartite situation will
- conduct negotiations by themselves to achieve an agreement and, if no solution
- is found after the government conciliator has assisted, the dispute can be
- filed with regional or national committee for labour disputes settlement.
C. The Committee's conclusions
C. The Committee's conclusions
- 121. On the first issue, the Committee observes with regret that, despite
- the Government's repeated reference to texts ensuring the right of every
- citizen to join or not to join any organisation, including a trade union,
- according to the Government's clear words, a very large section of the
- workforce in Indonesia does not have freedom to form or join a workers'
- organisation of its own choosing. The workers involved are government
- employees, and the Government indicates that they can only join KORPRI, a body
- "which cannot be considered as a workers' organisation or trade union" and
- which is translated into English as the "Civil Servants' Corps". At the same
- time, the Committee observes that, according to the Government, employees of
- public enterprises owned or controlled by the State do enjoy freedom to
- unionise.
- 122. The Committee notes that the texts referred to by the Government are
- worded very generally. For example, the 1945 Constitution provides, in article
- 28, that "Freedom of association and assembly, of expressing thoughts and of
- issuing writing and the like, shall be prescribed by statute"; Act No. 14 of
- 1969 on the Basic Provisions Respecting Manpower, in section 11, states that:
- "(1) All manpower shall have the right to establish and to become a member of
- a manpower union. (2) A manpower union shall be established in a democratic
- mannner" and in section 12: "A manpower union shall have the right to conclude
- a labour agreement with any employer" ("employer" meaning, according to the
- Elucidation which accompanies Act No. 14, public or private entities); and
- Ministerial Regulation No. PER-01/MEN/1975 on the Registration of Labour
- Organisations stipulates, in section 2, that "Workers' organisations which may
- register at the Department of Manpower ( ... ) are those taking the form of a
- federation of trade unions as meant in section 1c) above, which is represented
- in at least 20 provinces and has a membership of not less than 15 trade unions
- as meant in section 1b) above"; section 1 defines the various types of
- organisations as:
- a) labour organisation means an organisation voluntarily established by and
- for workers as a trade union or federation of trade unions;
- b) trade union means an organisation voluntarily established by and for
- workers consisting of units within a field of industrial activity which belong
- to a central body;
- c) federation of trade unions means a workers' organisation the membership
- of which consists of trade unions as meant in b) above. (It appears from the
- most recent (1989) observation of the Committee of Experts on the Application
- of Conventions and Recommendations made under Convention No. 98 that
- Ministerial Regulation No. PER-01/MEN/1975 has been replaced by a 1987
- Ministerial Regulation which apparently changes the registration procedures
- but not the definitions.)
- 123. It is thus clear that there is no specific ban on unionisation of
- public servants (and other government employees) contained in the legislative
- texts referred to by the Government and available to the Committee. However,
- the situation in practice, in the Government's own words, seems to be quite
- different and it follows that there is a violation of the basic freedom of
- association principle that all workers - without distinction whatsoever -
- should be able to form and join organisations of their own choosing.
- 124. Leaving aside for the moment the question of compulsory membership of
- KORPRI, the Committee must now examine the nature of workers' organisations
- existing in Indonesia for government employees, whether these bodies be called
- "corps" or "associations", in view of the Committee's previous decisions in
- similar cases. In one case, the Committee decided that registration as a
- society under the Societies Act of the country concerned of a civil servants'
- association did not guarantee to the workers concerned the right to be
- represented by a body to promote and defend their occupational interests (see
- 230th Report, Case No. 1189 (Kenya), paras. 679-688). In another case where a
- government deprived a particular category of public service workers of their
- previously enjoyed right to belong to a trade union, the Committee found that
- the possibility for them to join "a departmental staff association" to be
- approved by the director of the employing institution did not satisfy the
- requirement that workers should be able to establish and join organisations of
- their own choosing without previous authorisation (see 234th Report, Case No.
- 1261 (United Kingdom), paras. 343-371).
- 125. In the present case, the Committee notes that, according to its basic
- statute, KORPRI has the following functions or activities:
- a) to encourage and initiate modernisation by performing constructive
- activities and efforts;
- b) to motivate improvement in the performance of public services;
- c) to advise and make recommendations to the Government concerning all
- matters relating to the aims and main tasks of KORPRI;
- d) to accommodate, analyse, and communicate the interests of its members in
- accordance with the government regulations and policies;
- e) to organise efforts and activities for the development and maintenance
- of the material and spiritual welfare of its members and their families.
- It also notes the Government's description of KORPRI's Bureau of Employee
- Relations and Bureau of Legal Aid, which appear to work successfully in
- settling disputes in general rather than labour disputes. In addition, from
- information available to the Committee, KORPRI's activities during the
- celebration of its 17th anniversary included hospital and orphanage visits,
- blood donations, family planning and drug abuse lectures, sports games and
- choir competitions (see Indonesian Observer of 24 November 1988). The
- Committee concludes from this that KORPRI does not meet the requirements of
- the principle that all workers should have the right to form and join
- organisations of their own choosing to defend their occupational interests.
- 126. As for the other bodies for government employees which exist, for
- example, to cover teachers, the Committee notes that the Government describes
- the PGRI as a "professional organisation" which is "not a trade union as
- such". From information available to the Committee it notes that the
- objectives of the PGRI as set out in its Constitution are:
- a) to achieve the realisation of the ideals of the 17 August 1945
- Proclamation of Independence of the Republic of Indonesia;
- b) to participate actively in Indonesian national development, especially
- in the fields of education and culture by giving assistance to the setting-up
- and management of the educational and cultural programmes in accordance with
- the government policy;
- c) to upgrade the attitude, quality and activities of the teaching
- profession and to find ways and means for better welfare of its members.
- The Government's description of the PGRI's activities also shows that this
- association is a professional organisation which aims at developing education,
- improving the professionalism of teachers and contributing concepts for better
- educational development. In consequence the Committee considers that PGRI does
- not completely fulfil the functions of a trade union aiming at promoting and
- defending the interests of its members.
- 127. Turning to the monopoly situation held by KORPRI as regards all
- government employees (by virtue of Presidential Decree No. 82 of 1971), the
- Committee notes the further information supplied by the Government to the
- effect that civil servants can join other associations but must, if they
- choose employment in the public service, join KORPRI. This does not change the
- position stated at its earlier examination of this case. In November 1988, the
- Committee clearly pointed out that "a situation in which an individual is
- denied any possibility of choice between different organisations by reason of
- the fact that the legislation permits the existence of only one organisation
- in the area in which he carries on his occupation, is incompatible with the
- principles of freedom of association" (para. 701). The ILO supervisory bodies
- have acknowledged that while it is generally to the advantage of workers and
- employers to avoid proliferation of competing organisations, a monopoly
- situation imposed by law is at variance with the principle of free choice of
- workers' and employers' organisations (see in this connection General Survey
- on Freedom of Association and Collective Bargaining, 1983, paras. 136-138).
- 128. The Committee would once again request the Government to review
- Presidential Decree No. 82 of 1971 so as to make possible the establishment of
- organisations to represent their occupational interests outside the
- established structure, which would not prevent KORPRI from continuing to play
- its welfare role as at present.
- 129. Secondly, as regards Article 4 of Convention No. 98 and the limited
- negotiating role available to the workers' organisations which exist for
- government employees and employees of public corporations, the Committee takes
- note of the Government's further description of how terms and conditions of
- employment are set in the public sector. The Committee can only regret that
- this information confirms its earlier understanding that both the legislation
- and practice are not in conformity with the Convention on this point. Since
- such a large segment of the wage-earning population (over half according to
- the ICFTU's allegations) is thus deprived of the right to bargain
- collectively, the Committee urges the Government to re-examine its legislation
- so as to recognise the right to bargain collectively to those public servants
- who are not engaged in the administration of the State (in accordance with
- Articles 4 and 6 of Convention No. 98). In its review, the Government should
- take special account of the Committee's jurisprudence which has held that
- teachers, administrative staff of national teaching services, the staff of
- national radio and television institutes, employees of the postal and
- telecommunications services and, more generally, employees of nationalised
- undertakings should enjoy the right to collective bargaining enshrined in
- Article 4 of the Convention (see Digest of Decisions, 1985, paras. 599-602 and
- 597).
- 130. On a related point, the Committee observes that in its most recent
- observation made concerning Article 4 of the Convention, the Committee of
- Experts continued its criticism of the level of bargaining available to
- private sector trade unions (bargaining is available only to registered
- federations and registration requires coverage of at least 20 provinces and 15
- trade unions). At the same time, however, it noted the Government's assurance
- that the legislation in question had been repealed and replaced. This
- Committee trusts that the Government will review the bargaining situation in
- relation to the Committee of Experts' current criticisms and that the
- examination will include the public employees' right to negotiate as set out
- in the above paragraph.
- 131. Thirdly, as regards Articles 1 and 2 of Convention No. 98 the Committee
- notes that, contrary to the Government's statement that KORPRI members are not
- protected by these Articles, Government Circular Letter No. Ed.1/DP/1978 of 22
- February 1978 expressly extends protective legislation to employees of
- government-owned or controlled companies. It also notes that the Committee of
- Experts, in its most recent observation, again requested the Government to
- adopt more specific legislative protection against all acts of anti-union
- discrimination (Article 1) and against acts of interference by employers and
- their organisations (Article 2). As it is clear from the Committee of Experts'
- observation that legislation already exists covering several aspects of these
- Articles which, in turn, means that relatively simple legislative additions
- need be made, the present Committee considers that this aspect of the case
- should be followed up by the Committee of Experts.
- 132. Fourthly, the Committee notes that the Government acknowledges that
- Presidential Decree No. 123 of 1963 (containing a too broad list of
- enterprises and services in which strikes are banned) is out of date and at
- present only applies to about 170,000 persons. The Government should
- accordingly have no difficulty in repealing the text, or at least in amending
- the schedule of services so as to ensure that strikes are prohibited only in
- essential services in the strict sense of the term, namely those whose
- interruption would endanger the life, personal safety or health of the whole
- or part of the population (see Digest of Decisions, para. 394, and General
- Survey, para. 214).
- 133. Lastly, the Committee has carefully examined the further information
- supplied by the Government on the impact of Act No. 22 of 1957 on the
- incidence of strikes, and the provisions of the Act itself. It understands
- that the system in force for the settlement of labour disputes follows either
- of the following patterns:
- (1) Both or either of the parties to a dispute, if the dispute is not
- referred to arbitration, requests in writing the aid of a conciliation officer
- to settle the dispute; if unsuccessful the officer refers the dispute to a
- tripartite regional settlement committee; its decision (which is binding and
- can be enforced through the normal judicial procedure for civil judgements)
- can be appealed by either party to the tripartite central committee for the
- settlement of labour disputes whose decisions are binding and enforceable if
- not reversed or suspended by the Minister of Labour on the grounds "that such
- action is necessary for the maintenance of public order or to protect the
- interests of the State".
- (2) Both parties can refer a dispute to arbitration voluntarily or on the
- recommendation of a conciliation officer or regional settlement committee;
- once "legalised" (approved) by the tripartite central committee for the
- settlement of disputes, the arbitration award can be enforced in the same way
- as a decision of the central committee and is not subject to review.
- Fact-finding can be used as a subsidiary procedure in arbitration.
- 134. The Committee notes in this connection that sections 13 and 14 of Act
- No. 14 of 1969 provide, respectively: "Exercise of the right to strike, to
- demonstrate and to lock out shall be determined by legislative regulation" and
- "Standards relating to the termination of employment and the settlement of
- labour disputes shall be determined by legislative regulation". Under section
- 6 of Act No. 22 of 1957 on the settlement of labour disputes, if either party
- to a dispute intends to take "measures" (lock-outs or strikes) against the
- other party, notice (specifying, inter alia, a lack of co-operation over two
- weeks in negotiations involving the conciliation officer) must be given to the
- other party and to the chairman of the regional committee who must acknowledge
- this in writing within seven days of his receipt of the notice; only when the
- party concerned has received this written acknowledgement can the "measures"
- be taken. In addition, according to section 23 of the Act, it shall be
- unlawful for an employer or worker to take reprisals (or measures resembling
- reprisals) in connection with a dispute or during its settlement.
- 135. In view of the above description, the Committee concludes that
- industrial action may be taken only after bipartite consultations have failed
- and the regional committee informed. The total time-lag involved can be as
- long as three weeks, or even longer if bureaucratic procrastination intervenes
- between delivery of the advice notice and its actual conveyance to the hands
- of the chairperson of the regional committee. Any action attempting to
- circumvent this process incurs a penalty of three months' imprisonment or a
- fine. In addition to this, the Committee recognises that the parties face the
- risk of having a conciliated agreement overturned by the Minister or of having
- an unsatisfactory settlement imposed on them through compulsory arbitration
- against which they cannot appeal.
- 136. In the Committee's opinion, despite the criteria written into the Act
- concerning these two latter points, the situation is open to criticism. In the
- first case, section 17 provides that the Minister's discretion to overturn a
- conciliated settlement shall be taken only after consultation with the other
- Ministers whose departments are represented on the tripartite central
- committee for settlement of disputes, but the fact remains that he has full
- freedom to decide in the final instance if there is a need to maintain public
- order or protect the interests of the State. This discretion is too broad.
- Secondly, section 19(3) does provide that in the arbitration procedure, the
- parties themselves chose the arbitrator or members of the arbitration board,
- but this does not temper the fact that non-appealable arbitration can be
- forced on the parties leaving them without recourse to strike action. The
- Committee thus recalls that it accepts limitations on recourse to strike
- action only in the case of public servants acting in their capacity as agents
- of the public authority, or in essential services in the strict sense of the
- term (namely, where an interruption would endanger the life, personal safety
- or health of the whole or part of the population) or in cases of serious
- national crisis. While it takes due note of the fact that in the present case
- strikes are theoretically possible in the early stages of conciliation and a
- small number apparently take place in practice, it requests the Government to
- re-examine the legislation in question so as to ensure that workers'
- organisations may have recourse to the right to strike as a means of promoting
- and protecting the interests of their members.
The Committee's recommendations
The Committee's recommendations
- 137. In the light of its foregoing conclusions, the Committee invites the
- Governing Body to approve the following recommendations:
- a) The Committee considers that the Government should review the situation
- of government employees so as to ensure that, in practice, these workers -
- like workers in the private sector and employees of public corporations - have
- the right to form and join organisations of their own choosing.
- b) In particular, the Committee again requests the Government to review
- Presidential Decree No. 82 of 1971 so as to make it possible for public
- employees to establish organisations to represent their occupational interests
- outside the existing structure (KORPRI), which performs only a welfare role.
- c) Regretting the discrepancies existing between Article 4 of Convention
- No. 98 and the legislation and practice on collective bargaining - in
- particular the limitations on public sector negotiations and on the level of
- bargaining available to private sector trade unions - the Committee trusts
- that the Government will re-examine the bargaining situation in the light of
- the Committee of Experts' current criticisms since Article 6 of the Convention
- permits the exclusion only of public servants engaged in the administration of
- the State.
- d) The Committee requests the Government to take steps to repeal or amend
- Presidential Decree No. 123 of 1963 which, in the Government's own terms, is
- no longer relevant to the current situation in Indonesia.
- e) The Committee requests the Government to reconsider the compulsory
- arbitration system set up by Act No. 22 of 1957, particularly the problem of
- resort to strike action.
- f) The Committee draws this case to the attention of the Committee of
- Experts on the Application of Conventions and Recommendations.