Τετάρτη 3 Οκτωβρίου 2018

Social Dialogue: International best practices and Recommendations for united Cyprus



Social Dialogue: International best practices and Recommendations for united Cyprus

Gregoris Ioannou
[commissioned study for Cyprus Dialogue Forum] 


1. Introduction:

Social Dialogue has been a key achievement of humanity and as a practice has now almost one Century of history in the developed world. It is a central concept both in the ILO’s Decent Work Agenda and the EU’s social model but has faced considerable strains during the economic crisis and is in need to modernize and develop further, finding the best possible mechanisms, processes and contexts in which it can be conducted. However, above all for social dialogue practices to have meaning and effect, “serious political commitment and sustained collaborative effort” is needed. There is a wide diversity of national social dialogue institutions in EU countries and there is no ideal model and “one size fits all” as these reflect historical traditions, and socio-political and economic circumstances that shape national contexts (Guardiancich and Molina [eds.], 2017).

Based on the current existing social dialogue practices in the GCC and TCC and the environment in which social dialogue takes place as outlined in the two relevant CDF Reports, this Report aims to briefly examine selected alternative forms of social dialogue operating in other countries and a) identify those international best practices that could more efficiently and effectively be adopted or that could inform a united Cyprus context and  b) suggest the steps that need to be taken for this direction. The benefits, difficulties, prerequisites and implications in this endeavor are discussed and c) the Recommendations are summed up and specified along with some concluding remarks. The international examples selected are drawn primarily from EU countries and rely on the most recent research conducted by the ILO and by Eurofound on behalf of the European Commission and the recommendations made after the study of social dialogue in the conditions of the economic crisis.

      2. Social dialogue international best practices:

Social dialogue contexts and processes differ across countries as there is a variety of industrial relations models (Eurofound, 2018a). Social dialogue occurs in a bi-partite form alongside and connected to collective bargaining, but more often in a tripartite form involving both general and specific issues (ILO, 2017). It also operates at different levels – usually national and sectoral but also sometimes at a regional and at an enterprise level. The degree of its institutionalization, frequency of meetings, scope and depth of consultation processes and actual impact on policy making varies across countries but overall it can be said that the main tripartite social dialogue bodies have an advisory role with the governments maintaining the leading role.

Although social dialogue has been generally weakened during the crisis in various ways, or has been unable in many countries to play a substantial role in crisis management there are European examples where in fact social dialogue has been strengthened during the recent economic crisis. These are France, Germany, Netherlands, Slovakia and Sweden (ILO, 2018). Germany and Sweden do not have a tradition of statutory tripartism but have instead fairly elaborate bi-partite social dialogue bodies and extensive collective bargaining. In 2014 Germany has instituted a Minimum Wage Commission authorized to decide on increases in the minimum wage every two years. This commission is chaired by an appointment of the Federal Labour Minister and composed by trade union and employer representatives and academic experts for a five year term. In Germany, in addition to the formal channels, informal, ad hoc meetings of the social partners took place in order to deal with the emergency situation arising from the crisis. These “crisis summits” called by the state and involving several relevant federal ministries, were used to present and discuss the social partners’ views on appropriate crisis responses, started before the crisis and continued after it (Lesch and Vogel, 2017). Ad hoc, non formalized social dialogue in Germany has been very effective in providing responses to the crisis such as negotiating reduced working time to avoid layoffs (ILO, 2018).

France at the other extreme end has a tradition of an active role of the state and intervention through extension mechanisms in collective bargaining and legislative tools. In 2007 France has enacted a new law granting the social partners consultation rights “in relation to any government project or prior to any draft bill on reforms in the area of labour relations, employment or vocational training” (Karnite, 2016). Although consultation rights do not necessarily translate into substantive deliberation, it did lead into more frequent meetings and discussions, strengthening the form and process of social dialogue (Freyssinet, 2017). Effectively this has institutionalized an already occurring phenomenon, boosting it symbolically through its legal consolidation.

Unlike in many EU countries, in Slovakia anti-crisis measures were first discussed at the country’s Economic and Social Council before being adopted (Eurofound, 2018a). In addition the “tripartite plus” Council for the Economic Crisis was established in 2009 playing a leading role in the formulation of the Government’s response to the crisis replaced in 2012 by the Council of Solidarity and Development (Cziria, 2017). Good and early planning and professional preparation of the meetings was important in addition to the political commitment not to interrupt and even strengthen further the social dialogue process during the crisis period. Another good practice in Slovakia, which has experimented with the consecutive establishment of various peak level tripartite bodies in the last two decades in search of efficiency and according to political dynamics, is the publication of the minutes and the holding of press conference after national level social dialogue meetings (Cziria, 2017).

In the Netherlands, although trade unions were weakened through rising labour market flexibility and falling trade union density undermining their legitimacy in social dialogue, there was no rupture with past and the Polder Model which has social dialogue at the heart of labour relations and social policy has survived. The Dutch social partners have reached agreements during and after the crisis on issues such as “wages; social and employment policies (including implementation of EU Directives); industrial relations and labour law, including collective bargaining practice and procedures; and anti-crisis measures on competitiveness and productivity” (Dekkers, Bekker and Cremmers, 2017). Also employers and trade unions have recently accepted one seat less for each, allowing two organizations representing the self-employed to also be represented in the Social and Economic Council, the supreme tripartite body of Netherlands (Dekkers, Bekker and Cremmers, 2017).

The participation of the social partners in the EU Semester can also be considered as an international best practice, at least at the level of intention for EU policy makers. Although in many instances more formal than substantive and still lagging behind the more elaborate and comprehensive social dialogue mechanisms and procedures at national level of most EU member states, it has the potential to systematize and perhaps revitalize social dialogue practices in EU member states, especially in those states where the crisis undermined or marginalized it almost pushing it out of existence. Although the emphasis so far has been procedural (Eurofound 2017) emphasis has been shifting to social partner capacity building (Weber and Pavlovaite, 2018; Eurofound , 2018b) which is expected to be the central dimension in the next years (Eurofound, 2019 forthcoming).   

        3. Adapting suitable social dialogue examples and suggestions for directions in a united Cyprus context:

Although the positive contribution that social dialogue can have on the economy and society is recognized in both communities of Cyprus and there is already significant institutionalization of social dialogue mechanisms and processes in both sides, there are substantial imbalances and weaknesses, especially in the TCC (Sonan, 2018). Unlike the Republic of Cyprus which has ratified the ILO Convention on Tripartite Consultation (International Labour Standards) 144 (1976) in 1977 and operates since then a full-fledged tripartite system, the Turkish Cypriot Community has a much simpler and less comprehensive system in place. In the GCC, although a more elaborate system is in place this has been weakened during the crisis and although some improvement took place in the last years, social dialogue has not returned to the pre crisis levels in terms of depth and substance. Moreover the changing environment in the labour market already in place and the much bigger challenges that will inevitably escort the reunification process, point to the direction of reform and strengthening of the social dialogue context in general.
Given that labour law and labour and social policy will need to be unified in principle and operate at the level of the federal state a series of measures will have to be adopted in order to facilitate the transition to the united Cyprus context and maintain the social dialogue environment at the optimum level. Building strong social dialogue mechanisms that can oversee the reunification process is necessary in order to deal swiftly with the problems in the labour market and possible negative socio-economic developments that may arise. If a well functioning bi-communal, social partner consultation system is established from day 1, the transition can be achieved smoothly and this will also increase stability, the sense of security and social ownership of the reunification process[1].

Steps need to be taken in three directions:
 A) Strengthening of the legal framework of social dialogue.
Making consultation a legal right of the social partners and an obligation of the state will contribute to the systematization of discussions and the development of a social dialogue culture in a United Cyprus. Especially since a new political order will be in the process of construction after an agreement is ratified, the establishment by federal law of a series of tripartite bodies (see below) can both, place social dialogue on a stable footing especially in the transitional period, and allow ownership of the reunification process assisting in its social legitimization. In the medium term, establishing a comprehensive, well structured tripartite system will contribute to the democratization process and effective and socially balanced decision making and law making on labour, social and economic policy.
B) Enhancing the autonomy, representativeness and strength of social partners.
This requires an active concerted effort by the state and the social partners that needs to take various forms. First of all it requires the political commitment of the political leaderships that the social partners will be a pillar of the reunification process and that tripartite social dialogue will be at the heart of the united Cyprus project. From this, it follows that measures, which so far have not been considered, will be adopted in order to build a new effective consultation system. This would involve legislative reforms and administrative practices in order to protect unionization, especially in the Turkish Cypriot Community’s private sector including stricter inspections and better enforcement of existing laws with zero tolerance to anti-unionization practices by some employers. It will also need to involve changes in the institutional framework in order to improve the balance of power between the two sides in specific industries and measures to combat the fragmentation of the social partners. On the organizational side, and under the leadership of the social partners themselves, the aim should be the increase in social partners’ membership density and representativeness and enhancement of expertise and capacity of involvement in collective bargaining and social dialogue more generally.  
         C) Smooth operation of the labour market and harmonization and unification of social insurance systems.
Pre-emptive measures need to be adopted to prevent social dumping, observation mechanisms need to be instituted to inform the social dialogue bodies (regular as well as emergency ones) about possible interventions to be made as issues arise and a standing committee including experts should take over the planning of the merge of the social insurance systems in the medium term. The pre-emptive measures could involve the institutionalization of a national (federal) minimum wage and basic employment benefits that would protect the most vulnerable segment of the labour force. Beyond reducing work inequalities and allowing decent conditions in non unionized sectors, a “minimum wage and basic benefits package” can also serve as the starting point from where trade unions and employers can collectively bargain at sectoral or enterprise level better deals and more elaborate employment terms where the balance of power between the two sides allows it. In this way protective legislation will complement collective bargaining procedures. Measures are also needed in order to follow the situation in the labour market as it evolves and steps should be taken for the gradual unification of social insurance.


4. Specifying the Recommendations:

-          Establishment of a “Labour and Social Policy Council” by means of federal legislation (that will replace the Labour Consultative Assembly of the RoC and the Social and Economic Council in the Turkish Cypriot Community). Using federal legislation in order to set this peak tripartite body has both a practical and a symbolic function. On the one hand, assigning a statutory status to social dialogue and proclaiming to all that the state of United Cyprus is oriented towards the logic of social partnership. This peak tripartite body should be convened regularly (2 or 3 times per year) as well as additionally on extraordinary or emergency occasions when the government decides so. The main trade unions and employers’ organizations from both communities should be represented at the highest level and from the state’s side the Minister of Labour heading the meetings should be accompanied by high ranking competent civil servants. This body should operate as the main vehicle for social dialogue on general issues of labour and social policy and legislation at the top level. Although the government will have a leading role, the social parties should also have the right to jointly determine the agenda.

-          Establishment of the United Cyprus Committee of Employment, with a special focus on issues of combating unemployment, promoting training and more broadly overseeing the smooth operation of the labour market. Beyond employment issues, this could also be the body in which labour relations issues are discussed and common statements, campaigns and agreements decided as to how a more balanced labour market institutional framework could be promoted, representativeness enhanced, trust between social partners built and problems with inadequate compliance with standards set in collective agreements dealt with.   

-          Establishment of a Minimum Wage and Basic Employment Benefits Commission. This can follow the German model outlined above with the appointment of academic experts in addition to the social partner representatives and have a fixed term of service and a regular bi-annual review of the national minimum wage. The benefit from the establishment of such body is both substantive and procedural. The institutionalization of a national minimum wage and basic employment benefits will offer a minimum protection net for the weaker in the labour market and prevent social dumping that may appear amidst the capital movements during the transitional period. At the procedural level, the 5 year term appointments of social partners’ representatives and academic experts is expected to allow the development of mutual understanding, in-depth exchange of views and placing discussions on a scientific basis resulting in a consensual or at least majority decision on the bi-annual review.
  
-          Establishment of a Coordinating Committee for the convergence and unification of the Social Insurance Systems. This will need to be also tripartite in spirit but should involve experts as well, while functionaries from the two social insurance systems of the constituent states will also need to be part of it. Its aim will be the systematic study of the factors and parameters affecting the convergence and unification of social insurance, devise plans and scenarios, discuss problems and solutions and mediate between the federal government and the government of the two constituent states.

 5. Concluding remarks:

The international examples chosen and suggestions made above are of course indicative and briefly outlined and aim to serve the opening of the discussion between the social partners in the two communities in Cyprus. Successful practices abroad can only inform possible practices in Cyprus and cannot offer any detailed blueprints.  As stated in the introduction, the examples are drawn from EU countries, in which Cyprus belongs and in which social dialogue is most advanced. The recent economic crisis and the strains it placed on social dialogue constitutes a background upon which the different institutional arrangements can be evaluated in terms of their resilience.
Through the review of the most recent trends and the paths chosen by different countries in response to the crisis with respect to tripartism, some general directions, given the current actual state of affairs and the prevailing normative positions at the level of declarations by both the EU and the ILO, are suggested. These directions are specified with concrete recommendations about the establishment of structures and mechanisms that will enable social dialogue escort, condition, shape and influence the transition from a divided to a united Cyprus minimizing risks and maximizing social and political benefits.

References:

Cziria, L. (2017) Sustaining social dialogue though the crisis: The Slovakian experience, in Guardiancich, I. and Molina, O. (eds.) Talking through the crisis: Social dialogue and industrial relations trends in selected EU countries, ILO, Geneva

Dekker, R., Bekkers, S. and Cremers, J. (2017) The Dutch polder model: Resilience in times of crisis, in Guardiancich, I. and Molina, O. (eds.) Talking through the crisis: Social dialogue and industrial relations trends in selected EU countries, ILO, Geneva.

Guardiancich, I. and Molina, O. (eds.) (2017) Talking through the crisis: Social dialogue and industrial relations trends in selected EU countries, ILO, Geneva.

Eurofound. (2017) Involvement of the national social partners in the European Semester: 2016 update, Publications Office of the European Union, Luxembourg.

Eurofound. (2018a) Country profiles.

Eurofound. (2018b) Involvement of the national social partners in the European Semester 2017: Social dialogue practices, Publications Office of the European Union, Luxembourg.

Eurofound (2019 forthcoming) Exploring how to support capacity building for effective social dialogue

Freyssinet, J. (2017) Social dialogue in the shadow of the State in France, in Guardiancich, I. and Molina, O. (eds.) Talking through the crisis: Social dialogue and industrial relations trends in selected EU countries, ILO, Geneva.

ILO (2017) Voice matters: Consultation (Industrial and National Levels) Recommendation, 1960 (No. 113), ILO, Geneva.

ILO. (2018) Social dialogue and tripartism, Report VI, ILO, Geneva.

Ioannou, G. (2018) Social Dialogue Environment in the Greek Cypriot Community, Cyprus Dialogue Forum

Karnite, R. (2016), An attempt to revitalize social dialogue and national industrial relations systems in some of the CEECs – Lessons learnt and best practices in the way out of the crisis, final report, http://socdial.eu/page/2679/html/expert-materials.html

Lesch, H. and Vogel, S. (2017) Working together: Germany’s response to the global economic and financial crisis, in Guardiancich, I. and Molina, O. (eds.) Talking through the crisis: Social dialogue and industrial relations trends in selected EU countries, ILO, Geneva.

Molina, O. and Guardiancich, I. (2017) Comparative overview: National trajectories and good practices in social dialogue, in Guardiancich, I. and Molina, O. (eds.) (2017) Talking through the crisis: Social dialogue and industrial relations trends in selected EU countries, ILO, Geneva.

Sonan, S. (2018) Social Dialogue Environment in the Turkish Cypriot Community, Cyprus Dialogue Forum

Weber, T. and Pavlovaite, I. (2018), EU Social Partners’ project on “The European Social Fund: Supporting Social Dialogue at National, Regional and Local Levels”, Final report, Integrated Projects of the EU Social dialogue 2016-2018



[1] For this to be achieved, the social partners will need to be in closer communication with the two leaders and their teams from the negotiation stage, and be ready to come up with detailed proposals concerning the social dialogue process of united Cyprus immediately after the agreement is reached.

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