BANGLADESH GSP PETITION: REQUEST FOR INTERIM

UNCLAS STATE 010011 SIPDIS SIPDIS SENSITIVE E.O. 12958: N/A TAGS: ELAB ECON ETRD PHUM PREL SUBJECT: BANGLADESH GSP PETITION: REQUEST FOR INTERIM DEMARCHE THIS MESSAGE IS SENSITIVE BUT UNCLASSIFIED; PLEASE PROTECT ACCORDINGLY. ¶1. (U) This is an action request, please see para 6. ¶2. (SBU) SUMMARY: The USTR-led Generalized System of Preferences (GSP) subcommittee accepted a 2007 American Federation of Labor and Congress of Industrial Organizations (AFL-CIO) GSP petition against the government of Bangladesh (GOB) for review. Based on credible evidence related to several of the petition's allegations, Post is requested to meet with appropriate GOB officials to highlight the GSP petition and request action in the areas detailed following para 6, which provide some immediate actions that the GOB should take to show progress on addressing the concerns raised in the petition. It also points out the broader systemic changes that ultimately must be undertaken to meet GSP eligibility criteria. The GSP subcommittee will continue to monitor GOB actions closely and will provide a recommendation by June 30 on next steps. END SUMMARY. ¶3. (SBU) BACKGROUND: After initial investigation, the GSP subcommittee is concerned that, as alleged in the 2007 AFL-CIO petition, Bangladesh has failed to make adequate progress on commitments made during a previous GSP review cycle in 2004-2005. The most recent petition from the AFL-CIO alleges the GOB has failed to realize associational rights in the export processing zones (EPZs),including implementation measures and basic protections from employer reprisal. In addition, the petition alleges problems with standards in the ready made garment (RMG) sector; child labor in the shrimp and fish processing industry; and harassment and violence by government forces against trade unions, workers, and labor rights NGOs. Host government should understand that under the GSP statute, failure to address issues of concern can lead to a loss of GSP benefits. Specifically, the GSP statute provides that a country may not be eligible for GSP benefits where the country has not or is not taking steps to afford internationally recognized worker rights to workers in the country. ¶4. (SBU) The current petition repeats ongoing issues from petitions that were filed, beginning in 1990, regarding the labor rights of freedom of association and collective bargaining in Bangladesh's EPZs. The current petition raises additional problems, including conditions in the RMG sector, child labor in the shrimp industry, and harassment and violence against trade unionists and labor rights NGOs under the state of emergency. In the past, the USG has decided not to take action to suspend GSP privileges for Bangladesh based on GOB's passage of the EPZ Workers Association and Industrial Relations Act of 2004 (EWAIRA). In delivering the demarche, Post should emphasize that the USG ultimately wants to see more than the interim associational measures called for in the EWAIRA, and that Bangladesh's long-term goal should be full rights of freedom of association and collective bargaining in the EPZs. ¶5. (SBU) GOB action to address the concerns raised is a critical step to preserving Bangladesh's GSP eligibility. We urge the GOB to fulfill its commitments under the EWAIRA with an ultimate goal of full permanent rights of association and collective bargaining in the EPZs. We encourage the authorities to provide transparent mechanisms and procedures for facilitating negotiations and mediation, and to undertake substantive efforts to protect workers who exercise their rights from employer reprisal. We further encourage the authorities to recognize and protect the rights of EPZ workers to seek assistance from the AFL-CIO Solidarity Center and other NGOS. Most EPZ workers lack the experience and know-how necessary to advocate on their own behalf. We believe that denying workers the right to contact with outside organizations, or harassment of those organizations, is a violation of the rights of freedom of association and collective bargaining. ¶6. (U) ACTION REQUEST: Post is requested to engage appropriate GOB officials to urge the GOB to take action in the following areas, and to indicate that, in the spring, we will begin to review and assess the GOB's progress in addressing these issues. Post should draw upon background above to explain the GSP review process, as well as the potential benefits of the GSP program for economic development. Immediate Steps -- In line with the USG's desire to see the full lifting of the current restrictions on fundamental rights under the state of emergency, we urge the GOB to lift the current legal prohibition on trade union activities (Emergency Powers Act, Section 4). -- We encourage the GOB to cease actions that contribute to the climate of intimidation against lawful labor groups; including intimidation of NGO staff. Pending charges against the staff of labor-rights NGOs should be carefully reviewed for any political motives, and labor activists should not be subject to indiscriminate arrests and intimidation. Export Processing Zones -- As part of the EWAIRA, the GOB should allow worker-led referenda to form associations. Referenda, elections, and constitutions by workers should be permitted (with applicable assistance from labor NGOs); such proceedings should not be subject to manipulation or influence by factory management, owners, or other authorities. Additionally, workers associations should be able to be constituted for an indefinite period, without an externally defined termination date (currently 2010.) -- The GOB should take the appropriate steps, including notification in the GOB's official gazette, to establish independent labor tribunals, as called for in the EWAIRA; -- The GOB should end the restriction on the review of correspondence or grievances submitted on behalf of EPZ workers on the basis that they come from NGOs located outside of the EPZs; -- The GOB should create appropriate legal mechanisms for hearing grievances from worker representation and welfare committee (WRWC) members concerning suspensions of employees for union activity by employers; -- The GOB should appoint an independent labor ombudsman with authority to investigate and report on the implementation and enforcement of the EWAIRA, including responding to individual concerns raised by workers. Such an ombudsman should have credibility as an independent observer and have full access to the EPZs in order to conduct his or her work. -- Longer Term Changes: While the immediate steps listed above, if implemented, would show important progress, the GSP committee reiterates that the goal, as communicated by letter to the government of Bangladesh from then-USTR Ambassador Robert Zoellick in December 2004, is to see full freedom of association for all workers in the EPZs. It is important to note that the GOB had agreed to take this action in 1992 during consultations over an earlier GSP country practice review. Actions in the Ready-Made Garment Sector -- Enforce the provisions of the 12-point tripartite agreement in the RMG sector including: 1) strict enforcement of the new minimum wage, and legal action to enforce payment of wage arrears; 2) mandate the provision of appointment letters; 3) register unions that submit complete applications for registration. Child labor -- Undertake immediate action on child labor in the shrimp industry, including increasing the number of inspections, imposing fines on employers who violate minimum wage laws, and develop incentives to keep children in schools and out of the industry; -- Establish a dedicated child labor law enforcement task force, to include a permanently constituted child labor enforcement cell under the Department of Labor's Chief Inspectorate from the Department of Factories and Establishments, and accompanying provisions for a mobile court system. With this task force, initiate enforcement efforts within the shrimp and seafood processing industry within 12 months. ¶7. (U) Washington agencies wish to thank Post for its excellent recent reporting on labor issues in Bangladesh and its cooperation on the GSP review. Follow up inquiries may be directed to Aaron Scheibe in the Economic, Energy, and Business Affairs Bureau (EEB) via email (scheibeap@state.gov) or phone (202-647-8202). RICE