Protection of Agency Workers in South Africa: an Appraisal of Compliance with ILO and EU Norms
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Protection of Agency Workers in South Africa: An Appraisal of Compliance with ILO and EU Norms by Candice Joy Aletter submitted in fulfilment of the requirements for the degree Doctor of Laws In the Faculty of Law, University of Pretoria October 2016 Supervisor: Professor BPS van Eck © University of Pretoria © University of Pretoria Declaration of Originality Candice Joy Aletter Student number: 13424654 Declaration: 1. I understand what plagiarism is and am aware of the University’s policy in this regard. 2. I declare that this thesis is my own original work. Where other people’s work has been used (either from a printed source, internet or any other source), this has been properly acknowledged and referenced in accordance with departmental requirements. 3. I have not used work previously produced by another student or any other person to hand in as my own. 4. I have not allowed, and will not allow, anyone to copy my work with the intention of passing it off as his or her own work. Signature of student: Signature of supervisor: © University of Pretoria © University of Pretoria Acknowledgements My deepest gratitude is due to God for giving me the resources, ability, health and perseverance to complete this thesis. My sincere thanks to my supervisor Professor van Eck for the unwavering support and guidance of my LLD study. Thank you for your patience, understanding and motivation. Your keen interest in this research has been energizing and without your inspiration this study would not have been possible. Many thanks are due to my parents. Thanks to my mother Joy Leon for always listening and for her daily encouragement, and thanks to my father Keith Leon, though he will not see the completed result, his continuous support throughout my life made it possible. To my sister Lauren Martin, a fellow doctoral candidate, and my brother Jonty Leon, a fellow lawyer, acknowledgments are due: thanks for always being there for me. Lastly, my deepest thanks to my husband Frank Aletter for your love, wise counsel and strong encouragement throughout my studies, and to our sons Daniel and Benjamin, thanks for keeping life balanced and fun. © University of Pretoria © University of Pretoria Abstract This thesis is a policy-based study of the regulation of agency work in South Africa. It is set against the contextual background of a recent legislative overhaul and an increase in the number of precarious workers. The study aims to appraise the extent to which the South African regulatory framework complies with international norms in respect of agency work. The research considers how German and Namibian regulation might improve the current model of the regulation of agency work in South Africa. The study identifies the purpose of labour law in South Africa as offering diversified rights as well as being economic in nature. The premise upon which the thesis is based is a social justice approach to the function of labour law. An analysis of ILO and EU regulations on agency work is conducted, and identifies a combined list of norms in respect of the protection of agency workers. South Africa’s labour law policy approach is explored together with the amended regulation on agency work. A comparison is drawn with foreign countries’ regulations and policy approaches: the appraisal identifies shortcomings in South Africa’s regulatory model. The study focuses on the evolutionary improvement of agency workers’ protection based on international approaches. The research culminates by formulating an amended model for the regulation of agency work in South Africa, in which these proposed adaptations seek to remedy the shortcomings which were observed in the appraisal process. Total number of words: 98 422. © University of Pretoria © University of Pretoria Table of Contents Chapter 1 Introduction 1. Introduction ......................................................................................................... 1 2. Contextual Background ....................................................................................... 2 2.1 Unemployment ...................................................................................... 2 2.2 Non-Standard Employment ................................................................... 4 2.3 Legislative Overhaul ............................................................................. 7 3. Concept of “Agency Work” and Other Definitions................................................ 9 4. Research Aims and Question of the Study ....................................................... 13 5. Significance of the Study ................................................................................... 13 6. Research Methodology ..................................................................................... 14 7. Delineations and Limitations ............................................................................. 15 8. Overview of the Chapters in the Study .............................................................. 17 Chapter 2 The Purpose of Labour Law 1. Introduction ....................................................................................................... 21 2. Historical Perspective on the Purpose of Labour Law ....................................... 23 2.1 Introduction ......................................................................................... 23 2.2 Collective Laissez Faire Era ............................................................... 23 2.3 Economic Era ..................................................................................... 25 2.4 Modern Era ......................................................................................... 27 3. Competing Perspectives on the Purpose of Labour Law .................................. 28 3.1 Introduction ......................................................................................... 28 3.2 Free-Market Libertarian Perspective ................................................... 28 3.2.1 Competitive and Successful Economic Goal ........................... 28 3.2.2 Doctrine of Freedom of Contract ............................................. 29 3.2.3 Minimal Legal Intervention ....................................................... 30 3.2.4 Protective View of Labour Law is Not Supported ..................... 32 3.3 Social Justice Perspective .................................................................. 32 © University of Pretoria 3.3.1 Social Justice ........................................................................... 33 3.3.2 Protection of Employees Instead of Freedom of Contract ....... 34 3.3.3 Legal Intervention .................................................................... 35 3.3.4 Labour Rights as Human Rights .............................................. 35 3.3.5 Social Security and Social Protection ...................................... 36 4. The Purpose of Labour Law in South Africa ...................................................... 37 5. Conclusion ........................................................................................................ 41 Chapter 3 The ILO Convention on Private Employment Agencies and the Decent Work Agenda 1. Introduction ....................................................................................................... 45 2. Relevance of International Labour Standards ................................................... 46 3. ILO Standards on Agency Work ........................................................................ 49 3.1 Introduction ......................................................................................... 49 3.2 Early Conventions and Recommendations ......................................... 50 3.3 Private Employment Agencies Convention, 1997 ............................... 51 3.4 Private Employment Agencies Recommendation, 1997 ..................... 55 4. Challenges Faced by the ILO ............................................................................ 58 4.1 Introduction ......................................................................................... 58 4.2 Challenges .......................................................................................... 58 4.2.1 Relevance ................................................................................ 58 4.2.2 Globalisation ............................................................................ 59 4.2.3 Universality .............................................................................. 59 4.2.4 Interpretation ........................................................................... 60 4.2.5 Drafting Style ........................................................................... 60 4.2.6 Enforcement Mechanisms ....................................................... 61 5. ILO’s Policy Shift ............................................................................................... 61 5.1 Declaration on Fundamental Principles and Rights at Work ............... 61 5.2 The Decent Work Agenda ................................................................... 64 5.3 Declaration on Social Justice for a Fair Globalization ......................... 66 5.4 Additional Actions by the ILO .............................................................. 69 6. Conclusion ........................................................................................................ 71 © University of Pretoria Chapter 4 The EU Directive on Temporary Agency Work and “Flexicurity” 1. Introduction ......................................................................................................