FINALREMARKS Theprohibitionofwomen’snightworkinindustry:Currentthinkingandpractice 185.TheCommitteeestheselectionbytheGoverningBodyofthenightworkConventionsNos.4,41,89andoftheProtocolof1990toConventionNo.89asthesubjectofaGeneralSurvey.Some94yearsaftertheadoptionofthefirstinternationalagreementonthesubjectandonlyfiveyearsaftertheentryintoforceofConventionNo.171,thelatestILOinstrumentdealingwiththeissueofnightwork,theCommitteefeelsthatastocktakingexerciseontheapplicationofILOstandardsconcerningtheemploymentofwomenduringthenightinindustryislongoverdue.Thefourinstrumentswhichformthesubjectofthepresentsurveyhavereceivedsincetheiradoptionatotalof165ratifications.Therehave,however,been66denunciationsandmoreStateshaveannouncedtheirintentiontodenouncetheseConventions.Thisshows,ontheonehand,thattheinstrumentsexaminedherehavebeenadequatelyratifiedbut,ontheother,thatsomeofthoseinstrumentshavemostlikelylosttheiruniversalrelevanceovertheyears. 186.ThepresentsurveytracestheevolutionofILOstandardsonnightworkbywomeninindustryinthelast80years.Fromthequasi-absoluteprohibitiononwomen’snightworklaiddownintheNightWork(Women)Convention,1919(No.4),totheprovisionsofthe1990ProtocolallowingforexemptionstotheprohibitioncontainedinConventionNo.89,theCommitteehasexaminedtheILO’seffortstodesigninternationallabourinstrumentsonnightworkbywomeninindustrycapableofofferingthebestguaranteesofprotectionwhilekeepingupwithsocialprogressandcontemporarythinkingonthesituationofwomenintheworkingworld.TheCommitteeobserves,inthisregard,thatthehistoricaldevelopmentofwomen’snightworkastracedinthissurveydemonstratesthatthequestionofdevisingmeasuresthataimatprotectingwomengenerallybecauseoftheirgender(asdistinctfromthoseaimedatprotectingwomen’sreproductiveandinfantnursingroles)hasalwaysbeenandcontinuestobecontroversial.Thesurveyofnationalpracticealsorevealsthatthegeneraltrendworldwideistoprovideprotectionforwomeninnightworkinafashionthatdoesnotinfringetheirrightstoequalityofopportunityandtreatment. ReportIII(1B)-2001-Finalremarks-En.doc 138 ReportoftheCommitteeofExperts 187.TheCommitteenotesthat,whilethequestionofestablishinggenderspecificrestrictionsonnightworkiswithoutanydoubtintrinsicallylinked–asanalysedingreaterdetailinChapter4above–totheprinciplesofnondiscriminationandequalityoftreatmentbetweenmenandwomen,thepresentsurveyisprincipallyfocusedontheapplicationofprotectivemeasuresconcerningnightworkbywomeninindustry.Thebroaderissuesofgenderequality,non-discriminationandequaltreatmenthavethereforebeendealtwithonlywheretheyarerelevanttothatissue,inthelightoftheDiscrimination(Employmentandupation)Convention,1958(No.111).Further,whiletheCommitteehasalsomadereferencethroughoutthesurveytotheNightWorkConvention,1990(No.171),thisinstrumentwasnotincludedinthelistofinstrumentstheCommitteewasaskedtoexamineinthepresentsurvey. 188.TheCommitteerecallsthat,atthetimeofthefirstdiscussionsaimingattheadoptionofinternationalprotectivelegislationforwomeninthefinaldaysoftheeenthcenturyandtheearlyyearsofthetwentiethcentury,apassionatedebatedividedthosewhobelievedthatprotectingwomenwouldhaltadevelopmentthatthreatenedthesanctityofthefamilyfromthosewhowarnedthataconsiderablenumberofunmarriedwomenworkerswouldhavetochoosebetweendeathbystarvationorprostitutionifprotectivelawswereintroduced.1Fortunately,socialprogresstogetherwitheconomicdevelopmentandtechnologicaladvancementintheensuing90yearshaveprovedboththoseviewstobeoverlyexaggerated,eventhoughthedebateaboutbenefitsornegativeeffectsofspecialprotectivelabourlegislationprohibitingwomen’snightworkinindustrycontinuesinmanycountries. Theeffectsofnightwork:Newsolutionstooldproblems 189.Industrialsocietiesrelymoreandmoreonautomationofproductionandcontinuousshiftwork.Modernconditionsalsoleadtofundamentalchangesintheconceptofnightwork.Amultitudeofnewworking-timepatternshasemergedshowingaspreadofirregularhoursofworktodifferentsectors,asearchforgreaterflexibilityinmodatingindividualchoicesregardingworkinghours,weekendornightshiftarrangementsandrestdays,andtheappearancebinationsofworkschedules.Inrecentyearsaconsiderableamountofscientificresearchhasbeenconductedintoallaspectsofnightwork,providingvaluableinformationonthehumancostofworkingatnight.AsanalysedinChapter1,itisgenerallyagreedthatnightworkis 1SeeUllaWikander,“Somekepttheflagoffeministdemandswaving”inWikanderetal.(eds.):Protectingwomen–LaborlegislationinEurope,theUnitedStates,andAustralia,18801920,1995,pp.35,37. ReportIII(1B)-2001-Finalremarks-En.doc Finalremarks 139 particularlyfatiguingandhasadverseeffectsonthehealthofbothmaleandfemaleworkers.Thereisalsoabroadconsensusaboutthedetrimentaleffectsofnightworkontheworkers’socialandfamilylife.Theproblemsofrotatingshiftsstemmainlyfromworkinginoppositiontothebodyclockanddisruptingthesleep/wakecycle,whichountsinmanycasesnotonlyfordiminishedalertness,chronicfatigueandexcessivesleepinessbutalsoforgastricandcardiovasculardiseases.Genderisnotbelievedtobeafactoraffectingthetolerancetonightworksincethecircadianrhythmsofmenandwomenappeartoreactinthesamewaytothephaseshiftingofworkandsleepinconnectionwithnightwork,thoughsuchfactorsaspregnancyandtheadditionalloadonwomenoffamilyresponsibilitiesmayhaveaspecialimpactonfemaleshiftworkingandmayneedthereforetobetakenintoconsideration. 190.Theimprovedunderstandingoftheplaintsrelatedtosleepdeprivationandabnormalwork-hours,hasfacilitatedthedesignofnewshiftsystemsintegratingupationalhealthmeasures,preventionoffatiguestrategies,andanti-stressbehaviouraltechniques.RecentinternationalregulationssuchasthoseprovidedforinConventionNo.171,ortheEuropeanDirective93/104/EC,reflecttheneedformultifacetedprotectionofallnightworkers,butespeciallyinrespecttosafetyandhealth,socialsupportandmaternityprotection.Theyalsoemphasizetheneedforparticipatoryprocessesandenterprise-levelconsultationsinintroducingshiftsystems. Thecontinuedrelevanceoftheinstrumentsonwomen’snightwork 191.AssummarizedinChapter3above,therecordshowsacleartrendtomoveawayfromtheapproachtakeninConventionsNos.4,41and89.TheCommitteehasnotedinitsconclusionsinparagraphs153-155that,inmanycountries,effectisnolongergiventothoseinstruments,whileinothersconsiderationisbeinggiventodenouncingthem.Moreover,basedontheindicationscontainedinChapter5,thelikelihoodofConventionNo.89anditsProtocolreceivingfurtherratificationswouldappearratherremote. 192.Ontheotherhand,theCommitteecannotoverlookthefactthat,atpresent,66StatesareformallyboundbytheprovisionsofConventionNo.89(threeofwhicharealsopartiestotheProtocol)orConventionNo.41.Tothose,oneshouldadd12moreStateswhichprohibitorrestrictwomen’snightworkinvaryingdegreeswithout,however,beingpartiestoanyoftheinstrumentsunderreview.ThenumberofmemberStateswhosenationallegislationcontinuestoconformtotheprovisionsofConventionsNos.4,41or89isstillsignificant. 193.Inthelightoftheprecedinganalysis,theCommitteeconsidersthatConventionNo.4ismanifestlyofhistoricalimportanceonly.Itisarigidinstrument,ill-suitedtopresent-dayrealitiesconcerningworkingschedules,industrialproductionpositionofthelabourforce.Amongthe30 ReportIII(1B)-2001-Finalremarks-En.doc 140 ReportoftheCommitteeofExperts countrieswhicharestillboundbyConventionNo.4,itappearsthatthree(Cuba,Italy,Spain)havesimplyomittedtodenounceitsincetheyhavealreadydenouncedConventionNo.89.Onecountry(Lithuania)hasenactedinternallegislationtodenouncetheConventionbuthasnotasyetformallyregistereditsdenunciationwiththeInternationalLabourOffice,whileanothercountry(Austria)willinallprobabilitydenounceitsoonasaresultofitsobligationsarisingfromitsEUmembership.Asfortheremaining25ratifications,21arefromcountrieswhicharealreadypartiestooneoftherevisinginstruments–eitherConventionNo.41(12ratifications)orConventionNo.89(nineratifications)–andassuchmaynotbedeemedtohaveaninterestinremainingboundbyConventionNo.4.2TheCommitteeis,therefore,oftheopinionthatforallpracticalpurposesConventionNo.4nolongermakesausefulcurrentcontributiontoattainingtheobjectivesoftheOrganization,andthatILOmemberStatesshouldbepreparedeventuallytotakeappropriateaction.Thisshouldbe“shelved”and,whenthees,shouldbeincludedamongtheConventionswhichwillbeconsideredforabrogation. 194.WithregardtoConventionNo.41,theCommitteenotesthatitiscurrentlyinforceforonly16countriesandthatitremainsclosedtofurtherratificationsfollowingtheadoptionoftherevisingConventionNo.89.ItshouldbenotedthatatthetimeConventionNo.41wasclosedtoratification,onlyfourmemberStateswerestillboundbyitsprovisionsandthatthecurrentnumberofratificationsisonlyduetothefactthatsomeAfricancountries,uponedingtoindependenceandingMembersoftheILOinthelate1950sandearly1960s,mittedthemselvestocontinuetoapplytheConventionspreviouslyratifiedbythecolonialpowers.TheCommitteefurthernotesthatonecountry(Estonia)hasannounceditsintentiontodenouncethisinstrumentonthefirstasion,andthatinthreeothercountries(Argentina,Benin,Suriname)theConventionhasceasedtoapplyinpracticefollowingtheadoptionofnewlabourlegislationliftingtheprohibitionofnightworkforwomen.TheCommitteeis,therefore,ledtotheconclusionthat,notonlyisConventionNo.41poorlyratifiedanditsrelevanceisdiminishing,butalsothatitwouldbeintheinterestofthosememberStateswhicharestillpartiestothisConventiontoratifyinstead 2Inthisconnection,theCommitteewishestorecallitsearlierobservationonConventionNo.4concerningtheproblemofthesimultaneousapplicationoftwoConventionsonthesamesubject.NotingthatthelegislationofsomeMemberssimultaneouslyboundbytwoConventionsconcerningnightworkofwomen,whileinharmonywiththemoreflexibleprovisionsofarevisingConvention,didnotfullyconformwithcertainclausescontainedinConventionNo.4,thementedthat“aStateMemberwhichisboundsimultaneouslybytwoConventionsconcerningnightworkofwomenisconfrontedwiththefollowingalternatives:(a)toensuretheobservanceoftheobligationsarisingcumulativelyfromthetwoConventionssothatitcanavailitselfonlyofthosepermissiveclauses(exceptions)whichareauthorizedbothunderConventionNo.4andtherevisingConvention;or(b)iftheMemberconcernedwishestoavailitselfofexceptionsauthorizedundertherevisingConventionbutwhichgobeyondthosepermittedunderConventionNo.4,todenouncethelatter”;seeILC,48thSession,1964,ReportIII(PartIV),p.39. ReportIII(1B)-2001-Finalremarks-En.doc Finalremarks 141 therevisingConventionNo.89anditsProtocolwhichallowforgreaterflexibilityandaremoreeasilyadaptabletochangingcircumstancesandneeds. Protectionandequality:Theobligationforperiodicreview 195.Thereisnodoubtthatthepresenttrendistomoveawayfromablanketbanonnightworkforwomeninindustryandtogivethesocialpartnersatthenationalleveltheresponsibilityfordeterminingtheextentofthepermittedexemptions.Itisalsoevidentthatmoreattentionisnowbeingpaidtoregulatingnightworkforbothmenandwomen.Onthebasisofthereportsreviewed,itisclearthatmanycountries–someofwhichdrawuponthetechnicalassistanceoftheILO–areintheprocessofeasingoreliminatinglegalrestrictionsonwomen’semploymentduringthenightwiththeaimofimprovingwomen’sopportunitiesinemploymentandstrengtheningnon-discrimination.TheCommitteehasbeenpleasedtonotethatthistrendisnotlimitedtoregionsorcountrieswhichhavealreadyreachedacertainstageofsocialoreconomicdevelopment,butoftenextendstocountrieswheresocialattitudesandstereotypicalviewsaboutthepositionofwomeninthelabourmarketpersist.Whileexpressingitsfirmhopethatsuchatrendwillcontinue,theCommitteeconsidersitnecessarytoemphasizethataprocessofrevisionshouldnotresultinalegalvacuumwithnightworkersbeingdeprivedofanyregulatorysafeguards.Nightworkisgenerallyconsideredtohaveharmfuleffectsforallworkersandcallsforaregulatorylegalframework. 196.AstheCommitteehasbeenconsistentlypointingoutinindividualobservationsconcerningthequestionofrevisionofgender-specificlegislation,memberStatesareunderanobligationtoreviewperiodicallytheirprotectivelegislationinlightofscientificandtechnologicalknowledge.ThisobligationstemsfromArticle11(3)ofthe1979UNConventionontheEliminationofAllFormsofDiscriminationagainstWomen,aslaterreaffirmedinpoint5(b)ofthe1985ILOresolutiononequalopportunitiesandequaltreatmentformenandwomeninemployment,andsimilarlyendorsedinthelegalopinionoftheOfficeregardingpatibilitybetweentheUNConventionontheEliminationofAllFormsofDiscriminationagainstWomenandcertainILOConventionsontheprotectionofwomen. 197.Besides,theobligationforperiodicreviewsimplygivesexpressiontoanoverridingprinciple,ordingtowhichthepursuanceofapolicyofequalityofopportunityandtreatmentinemploymentorupationneedscontinuousaction.AstheCommitteehasunderlinedinapreviousstudy,“thepromotionofequalityofopportunityandtreatmentdoesnotaimatastablesituationthatmaybeattainedonceandforall,butratherrequiresapermanentprocesssothatpolicymaybeadjustedtochangesinsocietyinordertoeliminate ReportIII(1B)-2001-Finalremarks-En.doc 142 ReportoftheCommitteeofExperts thevariousformsofdistinctions,exclusionsandpreferencesbasedongroundslaiddowninthe1958instruments”.3 198.Intheprocessofreviewingspecialprotectivelegislationwithaviewtoexcisingalldiscriminatoryconstraints,specialconsiderationshouldbegiventotheprinciplescontainedintheWorkerswithFamilyResponsibilitiesConvention,1981(No.156).AstheCommitteeobservedinthe1993GeneralSurveyonthisConvention,“becausemeasurestoallowmenandwomentoharmonizetheirworkandmitmentsareanaturalextensionoftheeptedprinciplesonequality,ConventionNo.156andmendationNo.165mustbeviewedasanecessarypartoftheoverallgoalofensuringthateverymanandwomanshouldhavetheopportunitytoplayafullroleinsocial,economicandpubliclifeandalsointhefamily”.4 Thequestforanewbalance:TheILOtools 199.TheProtocoltoConventionNo.89representsafurtherstepintheprocessdesignedforthoseStatesthatwishtoofferthepossibilityofnightemploymenttowomenworkersandfeelthatsomeinstitutionalprotectionshouldremaininplacetoavoidexploitativepracticesandasuddenworseningofthesocialconditionsofwomenworkers.TheProtocolisproposedasatoolforasmoothtransitionfromoutrightprohibitiontofreeesstonightemployment.TheNightWorkConvention,1990(No.171),ispartofthesameprocesssinceitwasdraftedfortheneedsofthosecountrieswhichwouldbepreparedtoeliminateallrestrictionsonnightworkforwomenandtoconcludethattheharmfuleffectsofnightworkshouldberegulated,ifatall,formenandwomenalike. 200.Itshouldthusbeclearthat,inguidingitsstandard-settingactioninmattersofwomen’semployment–oftendepictedasadilemmaofprotectionorequality–theILOhasalwaysoptedforprotectionandequality.InadoptingtheProtocoltoConventionNo.89andConventionNo.171,theILOhassoughttosatisfythedifferentlyprioritizedneedsofitsconstituentswithoutlosingsightofitsprimaryobjective,thatisfixingsociallyeptableconditionsfornightworkers.Thetwoinstrumentsmayhavemuchmoremonthanappearsatfirstglance.Indeed,ConventionNo.89,asrevisedbythe1990Protocol,remainsfocusedonprotectioneventhoughinsubstanceitexpandsconsiderablytheexemptionpossibilitieswithregardtotheprohibitionofnightworkforwomen,whileConventionNo.171,eventhoughitwasdevisedasagenderneutralinstrument,doesprovidespecialprotectiontowomenundercertaincircumstances. 3SeeILC,75thSession,1988,ReportIII(Part4B),para.240,p.244.4SeeILC,80thSession,1993,ReportIII(Part4B),para.266,p.98. ReportIII(1B)-2001-Finalremarks-En.doc Finalremarks 143 201.TheCommitteehopesthatthepresentsurveywillhelptoclarifyboththeadvisabilityofregulatingnightworkingeneralandtheeptabilityofspecialprotectivemeasuresforwomenhavingregardtotheprinciplesofnondiscriminationandequalityoftreatmentbetweenmenandwomen.TheCommitteeconcludesthatConventionNo.89,asrevisedbythe1990Protocol,retainsitsrelevanceforsomecountriesasameansofprotectingthosewomenwhoneedprotectionfromtheharmfuleffectsandrisksofnightworkincertainindustries,whileacknowledgingtheneedforflexibleandconsensualsolutionstospecificproblemsandforconsistencywithmodernthinkingandprinciplesonmaternityprotection.TheCommitteebelievesthataconsiderablenumberofgovernmentsandemployers’andworkers’anizationsmaynotclearlyunderstandthefullrangeofpossibilitiesofferedbytheProtocolwithaviewtopermittingwomen’snightworkincertaincasesandunderspecificconditions. 202.Inlightoftheprecedinganalysis,theCommitteeconsidersitnecessarythat,inadditiontoencouragingtheratificationofConventionNo.171,greatereffortsshouldbemadebytheOfficetohelpthoseconstituentswhoarestillboundbytheprovisionsofConventionNo.89,andwhoarenotyetreadytoratifyConventionNo.171,torealizetheadvantagesofmodernizingtheirlegislationinlinewiththeprovisionsoftheProtocol.BearinginmindthatanincreasingnumberofStatesdecidetonolongergiveeffectto,ortodenounce,ConventionsNos.4,41or89,whileatthesametimeConventionNo.171hasnotyetattractedmanyratifications,theCommitteestressesthatthereisariskofpletederegulationofnightworkthroughtheremovalofallprotectivemeasuresforwomenandthefailuretoreplacethemwithalegislationofferingappropriateprotectiontoallnightworkers. ReportIII(1B)-2001-Finalremarks-En.doc