International Labour Organisation Act 1947

This Act (International Labour Organisation Act 1947, No. 91 of 1947) performs a single statutory operation: it approves, for the Commonwealth of Australia, the text of the amended Constitution of the International Labour Organisation (the Constitution), and sets that Constitution out in the Schedule to the Act (s 2; Schedule). The Act is short. Section 1 supplies the short title. Section 2 declares that the Constitution set out in the Schedule is approved.

Mechanically, the Schedule reproduces the Constitution itself, including the Preamble, the decision‑making and institutional design of the ILO (Chapters I-IV), procedural rules for the adoption and application of Conventions and Recommendations (Article 19 and following), dispute‑resolution procedures (Articles 26-34 and 37), financial arrangements (Article 13), privileges and immunities (Article 40), and the Declaration of Philadelphia (Annex). The Commonwealth law does not, on its face, amend, restate, or create domestic statutory obligations beyond approving the Constitution text; rather, Parliament has given formal approval by enacting the Constitution into the Act as schedule material (s 2 and the Schedule). The Schedule is therefore the authoritative text of the Constitution as approved by the Parliament in 1947.

The Constitution itself sets out the mechanical rules that govern membership, representation, the tripartite structure (governments, employers, workers), the process for drafting and adopting Conventions and Recommendations, the obligations on Members to bring Conventions and Recommendations before their competent authorities within fixed timeframes (Article 19(5)(b), (6)(b)), reporting duties (Article 22), financial obligations and consequences for arrears (Article 13(2)(c), (3), (4)), the availability of Commissions of Enquiry and referral to the International Court of Justice for disputes (Articles 26-34, 37), and the procedures for applying Conventions to non‑metropolitan territories and federal arrangements (Articles 35 and 19(7)). The Annex (Declaration of Philadelphia) sets out the ILO’s aims and principles that the Conference reaffirmed on 10 May 1944.

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International Labour Organisation Act 1947

No. 91 of 1947

An Act to approve the amended Constitution of the International Labour Organisation Preamble

Contents

1 Short title

2 Approval of Constitution of I.L.O.

The Schedule—The Constitution Of The International Labour Organisation

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International Labour Organisation Act 1947

No. 91 of 1947

An Act to approve the amended Constitution of the International Labour Organisation Preamble

[Assented to 11 December 1947]

The Parliament of Australia enacts:

WHEREAS by Part XIII of the Treaty of Peace between the Allied and Associated Powers and Germany, concluded at Versailles on the twenty‑eighth day of June, One thousand nine hundred and nineteen, there was established a permanent organisation known as the International Labour Organisation of which Australia is an original member:

AND WHEREAS Part XIII of the said Treaty of Peace contained the original Constitution of the International Labour Organisation:

AND WHEREAS by instruments of amendment adopted by the General Conference of the International Labour Organisation on the second day of November, One thousand nine hundred and twenty‑two, the fifth day of November, One thousand nine hundred and forty‑five and the ninth day of October, One thousand nine hundred and forty‑six, the provisions of the Constitution of the International Labour Organisation were, in accordance with Article thirty‑six of that Constitution, amended in various respects:

AND WHEREAS it is expedient that the Constitution of the Organisation, as now amended, should be approved by the Parliament:

BE it therefore enacted by the King’s Most Excellent Majesty, the Senate, and the House of Representatives of the Commonwealth of Australia, as follows:

1 Short title

This Act may be cited as the International Labour Organisation Act 1947.

2 Approval of Constitution of I.L.O.

The Constitution of the International Labour Organisation (a copy of which is set out in the Schedule to this Act) is approved.

The Schedule—The Constitution Of The International Labour Organisation

Section 2

PREAMBLE

Whereas universal and lasting peace can be established only if it is based upon social justice;

And whereas conditions of labour exist involving such injustice, hardship and privation to large numbers of people as to produce unrest so great that the peace and harmony of the world are imperilled; and an improvement of those conditions is urgently required: as, for example, by the regulation of the hours of work, including the establishment of a maximum working day and week, the regulation of the labour supply, the prevention of unemployment, the provision of an adequate living wage, the protection of the worker against sickness, disease and injury arising out of his employment, the protection of children, young persons and women, provision for old age and injury, protection of the interests of workers when employed in countries other than their own, recognition of the principle of equal remuneration for work of equal value, recognition of the principle of freedom of association, the organisation of vocational and technical education and other measures;

Whereas also the failure of any nation to adopt humane conditions of labour is an obstacle in the way of other nations which desire to improve the conditions in their own countries;

The HIGH CONTRACTING PARTIES, moved by sentiments of justice and humanity as well as by the desire to secure the permanent peace of the world, and with a view to attaining the objectives set forth in this Preamble, agree to the following Constitution of the International Labour Organisation:

CHAPTER I—ORGANISATION

Article 1

1. A permanent organisation is hereby established for the promotion of the objects set forth in the Preamble to this Constitution and in the Declaration concerning the aims and purposes of the International Labour Organisation adopted at Philadelphia on 10 May 1944 the text of which is annexed to this Constitution.
2. The Members of the International Labour Organisation shall be the States which were Members of the Organisation on 1 November 1945, and such other States as may become Members in pursuance of the provisions of paragraphs 3 and 4 of this Article.
3. Any original Member of the United Nations and any State admitted to membership of the United Nations by a decision of the General Assembly in accordance with the provisions of the Charter may become a Member of the International Labour Organisation by communicating to the Director‑General of the International Labour Office its formal acceptance of the obligations of the Constitution of the International Labour Organisation.
4. The General Conference of the International Labour Organisation may also admit Members to the Organisation by a vote concurred in by two thirds of the delegates attending the session, including two thirds of the Government delegates present and voting. Such admission shall take effect on the communication to the Director‑General of the International Labour Office by the Government of the new Member of its formal acceptance of the obligations of the Constitution of the Organisation.
5. No Member of the International Labour Organisation may withdraw from the Organisation without giving notice of its intention so to do to the Director‑General of the International Labour Office. Such notice shall take effect two years after the date of its reception by the Director‑General, subject to the Member having at that time fulfilled all financial obligations arising out of its membership. When a Member has ratified any International Labour Convention, such withdrawal shall not affect the continued validity for the period provided for in the Convention of all obligations arising thereunder or relating thereto.
6. In the event of any State having ceased to be a Member of the Organisation, its readmission to membership shall be governed by the provisions of paragraph 3 or paragraph 4 of this Article as the case may be.

Article 2

The permanent organisation shall consist of:

(a) a General Conference of representatives of the Members;

(b) a Governing Body composed as described in Article 7; and

Article 3

1. The meetings of the General Conference of representatives of the Members shall be held from time to time as occasion may require, and at least once in every year. It shall be composed of four representatives of each of the Members, of whom two shall be Government delegates and the two others shall be delegates representing respectively the employers and the workpeople of each of the Members.
2. Each delegate may be accompanied by advisers, who shall not exceed two in number for each item on the agenda of the meeting. When questions specially affecting women are to be considered by the Conference, one at least of the advisers should be a woman.
3. Each Member which is responsible for the international relations of non‑metropolitan territories may appoint as additional advisers to each of its delegates:

(a) persons nominated by it as representatives of any such territory in regard to matters within the self‑governing powers of that territory; and

(b) persons nominated by it to advise its delegates in regard to matters concerning non‑self‑governing territories.

4. In the case of a territory under the joint authority of two or more Members, persons may be nominated to advise the delegates of such Members.
5. The Members undertake to nominate non‑Government delegates and advisers chosen in agreement with the industrial organisations, if such organisations exist, which are most representative of employers or workpeople, as the case may be, in their respective countries.
6. Advisers shall not speak except on a request made by the delegate whom they accompany and by the special authorization of the President of the Conference, and may not vote.
7. A delegate may by notice in writing addressed to the President appoint one of his advisers to act as his deputy, and the adviser, while so acting, shall be allowed to speak and vote.
8. The names of the delegates and their advisers will be communicated to the International Labour Office by the Government of each of the Members.
9. The credentials of delegates and their advisers shall be subject to scrutiny by the Conference, which may, by two thirds of the votes cast by the delegates present, refuse to admit any delegate or adviser whom it deems not to have been nominated in accordance with this Article.

Article 4

1. Every delegate shall be entitled to vote individually on all matters which are taken into consideration by the Conference.
2. If one of the Members fails to nominate one of the non‑Government delegates whom it is entitled to nominate, the other non‑Government delegate shall be allowed to sit and speak at the Conference, but not to vote.
3. If in accordance with Article 3 the Conference refuses admission to a delegate of one of the Members, the provisions of the present Article shall apply as if that delegate had not been nominated.

Article 5

The meetings of the Conference shall, subject to any decisions which may have been taken by the Conference itself at a previous meeting, be held at such place as may be decided by the Governing Body.

Article 6

Any change in the seat of the International Labour Office shall be decided by the Conference by a two‑thirds majority of the votes cast by the delegates present.

Article 7

1. The Governing Body shall consist of thirty‑two persons:
Sixteen representing Governments,
Eight representing the employers, and
Eight representing the workers.
2. Of the sixteen persons representing Governments, eight shall be appointed by the Members of chief industrial importance, and eight shall be appointed by the Members selected for that purpose by the Government delegates to the Conference, excluding the delegates of the eight Members mentioned above. Of the sixteen Members represented, six shall be non‑European States.
3. The Governing Body shall as occasion requires determine which are the Members of the Organisation of chief industrial importance and shall make rules to ensure that all questions relating to the selection of the Members of chief industrial importance are considered by an impartial committee before being decided by the Governing Body. Any appeal made by a Member from the declaration of the Governing Body as to which are the Members of chief industrial importance shall be decided by the Conference, but an appeal to the Conference shall not suspend the application of the declaration until such time as the Conference decides the appeal.
4. The persons representing the employers and the persons representing the workers shall be elected respectively by the employers’ delegates and the workers’ delegates to the Conference. Two employers’ representatives and two workers’ representatives shall belong to non‑European States.
5. The period of office of the Governing Body shall be three years. If for any reason the Governing Body elections do not take place on the expiry of this period, the Governing Body shall remain in office until such elections are held.
6. The method of filling vacancies and of appointing substitutes and other similar questions may be decided by the Governing Body subject to the approval of the Conference.
7. The Governing Body shall, from time to time, elect from its number a Chairman and two Vice‑Chairmen, of whom one shall be a person representing a Government, one a person representing the employers, and one a person representing the workers.
8. The Governing Body shall regulate its own procedure and shall fix its own times of meeting. A special meeting shall be held if a written request to that effect is made by at least twelve of the representatives on the Governing Body.

Article 8

1. There shall be a Director‑General of the International Labour Office, who shall be appointed by the Governing Body, and, subject to the instructions of the Governing Body, shall be responsible for the efficient conduct of the International Labour Office and for such other duties as may be assigned to him.
2. The Director‑General or his deputy shall attend all meetings of the Governing Body.

Article 9

1. The staff of the International Labour Office shall be appointed by the Director‑General under regulations approved by the Governing Body.
2. So far as is possible with due regard to the efficiency of the work of the Office, the Director‑General shall select persons of different nationalities.
3. A certain number of these persons shall be women.
4. The responsibilities of the Director‑General and the staff shall be exclusively international in character. In the performance of their duties, the Director‑General and the staff shall not seek or receive instructions from any Government or from any other authority external to the Organisation. They shall refrain from any action which might reflect on their position as international officials responsible only to the Organisation.
5. Each Member of the Organisation undertakes to respect the exclusively international character of the responsibilities of the Director‑General and the staff and not to seek to influence them in the discharge of their responsibilities.
Article 10
1. The functions of the International Labour Office shall include the collection and distribution of information on all subjects relating to the international adjustment of conditions of industrial life and labour, and particularly the examination of subjects which it is proposed to bring before the Conference with a view to the conclusion of international Conventions, and the conduct of such special investigations as may be ordered by the Conference or by the Governing Body.
2. Subject to such directions as the Governing Body may give, the Office will—

(a) prepare the documents on the various items of the agenda for the meetings of the Conference;

(b) accord to Governments at their request all appropriate assistance within its power in connection with the framing of laws and regulations on the basis of the decisions of the Conference and the improvement of administrative practices and systems of inspection;

(c) carry out the duties required of it by the provisions of this Constitution in connection with the effective observance of Conventions;

(d) edit and issue, in such languages as the Governing Body may think desirable, publications dealing with problems of industry and employment of international interest.

3. Generally, it shall have such other powers and duties as may be assigned to it by the Conference or by the Governing Body.

Article 11

The Government departments of any of the Members which deal with questions of industry and employment may communicate directly with the Director‑General through the representative of their Government on the Governing Body of the International Labour Office or, failing any such representative, through such other qualified official as the Government may nominate for the purpose.

Article 12

1. The International Labour Organisation shall co‑operate within the terms of this Constitution with any general international organisation entrusted with the co‑ordination of the activities of public international organisations having specialised responsibilities and with public international organisations having specialised responsibilities in related fields.
2. The International Labour Organisation may make appropriate arrangements for the representatives of public international organisations to participate without vote in its deliberations.
3. The International Labour Organisation may make suitable arrangements for such consultation as it may think desirable with recognised non‑governmental international organisations, including international organisations of employers, workers, agriculturists and co‑operators.

Article 13

1. The International Labour Organisation may make such financial and budgetary arrangements with the United Nations as may appear appropriate.
2. Pending the conclusion of such arrangements or if at any time no such arrangements are in force—

(a) each of the Members will pay the travelling and subsistence expenses of its delegates and their advisers and of its representatives attending the meetings of the Conference or the Governing Body, as the case may be;

(b) all other expenses of the International Labour Office and of the meetings of the Conference or Governing Body shall be paid by the Director‑General of the International Labour Office out of the general funds of the International Labour Organisation;

(c) the arrangements for the approval, allocation and collection of the budget of the International Labour Organisation shall be determined by the Conference by a two‑thirds majority of the votes cast by the delegates present, and shall provide for the approval of the budget and of the arrangements for the allocation of expenses among the Members of the Organisation by a committee of Government representatives.

3. The expenses of the International Labour Organisation shall be borne by the Members in accordance with the arrangements in force in virtue of paragraph 1 or paragraph 2 (c) of this Article.
4. A Member of the Organisation which is in arrears in the payment of its financial contribution to the Organisation shall have no vote in the Conference, in the Governing Body, in any committee, or in the elections of members of the Governing Body, if the amount of its arrears equals or exceeds the amount of the contributions due from it for the preceding two full years: Provided that the Conference may by a two‑thirds majority of the votes cast by the delegates present permit such a Member to vote if it is satisfied that the failure to pay is due to conditions beyond the control of the Member.
5. The Director‑General of the International Labour Office shall be responsible to the Governing Body for the proper expenditure of the funds of the International Labour Organisation.

CHAPTER II—PROCEDURE

Article 14

1. The agenda for all meetings of the Conference will be settled by the Governing Body, which shall consider any suggestion as to the agenda that may be made by the Government of any of the Members or by any representative organisation recognised for the purpose of Article 3, or by any public international organisation.
2. The Governing Body shall make rules to ensure thorough technical preparation and adequate consultation of the Members primarily concerned, by means of a preparatory Conference or otherwise, prior to the adoption of a Convention or Recommendation by the Conference.

Article 15

1. The Director‑General shall act as the Secretary‑General of the Conference, and shall transmit the agenda so as to reach the Members four months before the meeting of the Conference, and, through them, the non‑Government delegates when appointed.
2. The reports on each item of the agenda shall be despatched so as to reach the Members in time to permit adequate consideration before the meeting of the Conference. The Governing Body shall make rules for the application of this provision.

Article 16

1. Any of the Governments of the Members may formally object to the inclusion of any item or items in the agenda. The grounds for such objection shall be set forth in a statement addressed to the Director‑General who shall circulate it to all the Members of the Organisation.
2. Items to which such objection has been made shall not, however, be excluded from the agenda, if at the Conference a majority of two thirds of the votes cast by the delegates present is in favour of considering them.
3. If the Conference decides (otherwise than under the preceding paragraph) by two thirds of the votes cast by the delegates present that any subject shall be considered by the Conference, that subject shall be included in the agenda for the following meeting.

Article 17

1. The Conference shall elect a President and three Vice‑Presidents. One of the Vice‑Presidents shall be a Government delegate, one an employers’ delegate and one a workers’ delegate. The Conference shall regulate its own procedure and may appoint committees to consider and report on any matter.
2. Except as otherwise expressly provided in this Constitution or by the terms of any Convention or other instrument conferring powers on the Conference or of the financial and budgetary arrangements adopted in virtue of Article 13, all matters shall be decided by a simple majority of the votes cast by the delegates present.
3. The voting is void unless the total number of votes cast is equal to half the number of the delegates attending the Conference.

Article 18

The Conference may add to any committees which it appoints technical experts without power to vote.

Article 19

1. When the Conference has decided on the adoption of proposals with regard to an item in the agenda, it will rest with the Conference to determine whether these proposals should take the form: (a) of an international Convention, or (b) of a Recommendation to meet circumstances where the subject, or aspect of it, dealt with is not considered suitable or appropriate at that time for a Convention.
2. In either case a majority of two thirds of the votes cast by the delegates present shall be necessary on the final vote for the adoption of the Convention or Recommendation, as the case may be, by the Conference.
3. In framing any Convention or Recommendation of general application the Conference shall have due regard to those countries in which climatic conditions, the imperfect development of industrial organisation, or other special circumstances make the industrial conditions substantially different and shall suggest the modifications, if any, which it considers may be required to meet the case of such countries.
4. Two copies of the Convention or Recommendation shall be authenticated by the signatures of the President of the Conference and of the Director‑General. Of these copies one shall be deposited in the archives of the International Labour Office and the other with the Secretary‑General of the United Nations. The Director‑General will communicate a certified copy of the Convention or Recommendation to each of the Members.
5. In the case of a Convention—

(a) the Convention will be communicated to all Members for ratification;

(b) each of the Members undertakes that it will, within the period of one year at most from the closing of the session of the Conference, or if it is impossible owing to exceptional circumstances to do so within the period of one year, then at the earliest practicable moment and in no case later than eighteen months from the closing of the session of the Conference, bring the Convention before the authority or authorities within whose competence the matter lies, for the enactment of legislation or other action;

(c) Members shall inform the Director‑General of the International Labour Office of the measures taken in accordance with this Article to bring the Convention before the said competent authority or authorities, with particulars of the authority or authorities regarded as competent, and of the action taken by them;

(d) if the Member obtains the consent of the authority or authorities within whose competence the matter lies, it will communicate the formal ratification of the Convention to the Director‑General and will take such action as may be necessary to make effective the provisions of such Convention;

(e) if the Member does not obtain the consent of the authority or authorities within whose competence the matter lies, no further obligation shall rest upon the Member except that it shall report to the Director‑General of the International Labour Office, at appropriate intervals as requested by the Governing Body, the position of its law and practice in regard to the matters dealt with in the Convention, showing the extent to which effect has been given, or is proposed to be given, to any of the provisions of the Convention by legislation, administrative action, collective agreement or otherwise and stating the difficulties which prevent or delay the ratification of such Convention.

6. In the case of a Recommendation—

(a) the Recommendation will be communicated to all Members for their consideration with a view to effect being given to it by national legislation or otherwise;

(b) each of the members undertakes that it will, within a period of one year at most from the closing of the session of the Conference, or if it is impossible owing to exceptional circumstances to do so within the period of one year, then at the earliest practicable moment and in no case later than eighteen months after the closing of the Conference, bring the Recommendation before the authority or authorities within whose competence the matter lies for the enactment of legislation or other action;

(c) the Members shall inform the Director‑General of the International Labour Office of the measures taken in accordance with this article to bring the Recommendation before the said competent authority or authorities with particulars of the authority or authorities regarded as competent, and of the action taken by them;

(d) apart from bringing the Recommendation before the said competent authority or authorities, no further obligation shall rest upon the Members, except that they shall report to the Director‑General of the International Labour Office, at appropriate intervals as requested by the Governing Body, the position of the law and practice in their country in regard to the matters dealt with in the Recommendation, showing the extent to which effect has been given, or is proposed to be given, to the provisions of the Recommendation and such modifications of these provisions as it has been found or may be found necessary to make in adopting or applying them.

7. In the case of a federal State, the following provisions shall apply:

(a) in respect of Conventions and Recommendations which the federal Government regards as appropriate under its constitutional system for federal action, the obligations of the federal State shall be the same as those of Members which are not federal States;

(b) in respect of Conventions and Recommendations which the federal Government regards as appropriate under its constitutional system, in whole or in part, for action by the constituent States, provinces, or cantons rather than for federal action, the federal Government shall—

(i) make, in accordance with its Constitution and the Constitutions of the States, provinces or cantons concerned, effective arrangements for the reference of such Conventions and Recommendations not later than eighteen months from the closing of the session of the Conference to the appropriate federal, State, provincial or cantonal authorities for the enactment of legislation or other action;

(ii) arrange, subject to the concurrence of the State, provincial or cantonal Governments concerned, for periodical consultations between the federal and the State, provincial or cantonal authorities with a view to promoting within the federal State co‑ordinated action to give effect to the provisions of such Conventions and Recommendations;

(iii) inform the Director‑General of the International Labour Office of the measures taken in accordance with this article to bring such Conventions and Recommendations before the appropriate federal, State, provincial or cantonal authorities with particulars of the authorities regarded as appropriate and of the action taken by them;

(iv) in respect of each such Convention which it has not ratified, report to the Director‑General of the International Labour Office, at appropriate intervals as requested by the Governing Body, the position of the law and practice of the federation and its constituent States, provinces or cantons in regard to the Convention, showing the extent to which effect has been given, or is proposed to be given, to any of the provisions of the Convention by legislation, administrative action, collective agreement, or otherwise;

(v) in respect of each such Recommendation, report to the Director‑General of the International Labour Office, at appropriate intervals as requested by the Governing Body, the position of the law and practice of the federation and its constituent States, provinces or cantons in regard to the Recommendation, showing the extent to which effect has been given, or is proposed to be given, to the provisions of the Recommendation and such modifications of these provisions as have been found or may be found necessary in adopting or applying them.

8. In no case shall the adoption of any Convention or Recommendation by the Conference, or the ratification of any Convention by any Member, be deemed to affect any law, award, custom or agreement which ensures more favourable conditions to the workers concerned than those provided for in the Convention or Recommendation.

Article 20

Any Convention so ratified shall be communicated by the Director‑General of the International Labour Office to the Secretary‑General of the United Nations for registration in accordance with the provisions of Article 102 of the Charter of the United Nations but shall only be binding upon the Members which ratify it.

Article 21

1. If any Convention coming before the Conference for final consideration fails to secure the support of two thirds of the votes cast by the delegates present, it shall nevertheless be within the right of any of the Members of the Organisation to agree to such Convention among themselves.
2. Any Convention so agreed to shall be communicated by the Governments concerned to the Director‑General of the International Labour Office and to the Secretary‑General of the United Nations for registration in accordance with the provisions of Article 102 of the Charter of the United Nations.

Article 22

Each of the Members agrees to make an annual report to the International Labour Office on the measures which it has taken to give effect to the provisions of Conventions to which it is a party. These reports shall be made in such form and shall contain such particulars as the Governing Body may request.

Article 23

1. The Director‑General shall lay before the next meeting of the Conference a summary of the information and reports communicated to him by Members in pursuance of Articles 19 and 22.
2. Each Member shall communicate to the representative organisations recognised for the purpose of Article 3 copies of the information and reports communicated to the Director‑General in pursuance of Articles 19 and 22.

Article 24

In the event of any representation being made to the International Labour Office by an industrial association of employers or of workers that any of the Members has failed to secure in any respect the effective observance within its jurisdiction of any Convention to which it is a party, the Governing Body may communicate this representation to the Government against which it is made, and may invite that Government to make such statement on the subject as it may think fit.

Article 25

If no statement is received within a reasonable time from the Government in question, or if the statement when received is not deemed to be satisfactory by the Governing Body, the latter shall have the right to publish the representation and the statement, if any, made in reply to it.

Article 26

1. Any of the Members shall have the right to file a complaint with the International Labour Office if it is not satisfied that any other Member is securing the effective observance of any Convention which both have ratified in accordance with the foregoing Articles.
2. The Governing Body may, if it thinks fit, before referring such a complaint to a Commission of Enquiry, as hereinafter provided for, communicate with the Government in question in the manner described in Article 24.
3. If the Governing Body does not think it necessary to communicate the complaint to the Government in question, or if, when it has made such communication, no statement in reply has been received within a reasonable time which the Governing Body considers to be satisfactory, the Governing Body may appoint a Commission of Enquiry to consider the complaint and to report thereon.
4. The Governing Body may adopt the same procedure either of its own motion or on receipt of a complaint from a delegate to the Conference.
5. When any matter arising out of Articles 25 or 26 is being considered by the Governing Body, the Government in question shall, if not already represented thereon, be entitled to send a representative to take part in the proceedings of the Governing Body while the matter is under consideration. Adequate notice of the date on which the matter will be considered shall be given to the Government in question.

Article 27

The Members agree that, in the event of the reference of a complaint to a Commission of Enquiry under Article 26, they will each, whether directly concerned in the complaint or not, place at the disposal of the Commission all the information in their possession which bears upon the subject matter of the complaint.

Article 28

When the Commission of Enquiry has fully considered the complaint, it shall prepare a report embodying its findings on all questions of fact relevant to determining the issue between the parties and containing such recommendations as it may think proper as to the steps which should be taken to meet the complaint and the time within which they should be taken.

Article 29

1. The Director‑General of the International Labour Office shall communicate the report of the Commission of Enquiry to the Governing Body and to each of the Governments concerned in the complaint, and shall cause it to be published.
2. Each of these Governments shall within three months inform the Director‑General of the International Labour Office whether or not it accepts the recommendations contained in the report of the Commission; and if not, whether it proposes to refer the complaint to the International Court of Justice.

Article 30

In the event of any Member failing to take the action required by paragraphs 5 (b), 6 (b) or 7 (b) (i) of Article 19 with regard to a Convention or Recommendation, any other Member shall be entitled to refer the matter to the Governing Body. In the event of the Governing Body finding that there has been such a failure, it shall report the matter to the Conference.

Article 31

The decision of the International Court of Justice in regard to a complaint or matter which has been referred to it in pursuance of Article 29 shall be final.

Article 32

The International Court of Justice may affirm, vary or reverse any of the findings or recommendations of the Commission of Enquiry, if any.

Article 33

In the event of any Member failing to carry out within the time specified the recommendations, if any, contained in the report of the Commission of Enquiry, or in the decision of the International Court of Justice, as the case may be, the Governing Body may recommend to the Conference such action as it may deem wise and expedient to secure compliance therewith.

Article 34

The defaulting Government may at any time inform the Governing Body that it has taken the steps necessary to comply with the recommendations of the Commission of Enquiry or with those in the decision of the International Court of Justice, as the case may be, and may request it to constitute a Commission of Enquiry to verify its contention. In this case the provisions of Articles 27, 28, 29, 31 and 32 shall apply, and if the report of the Commission of Enquiry or the decision of the International Court of Justice is in favour of the defaulting Government, the Governing Body shall forthwith recommend the discontinuance of any action taken in pursuance of Article 33.

CHAPTER III—GENERAL

Article 35

1. The Members undertake that Conventions which they have ratified in accordance with the provisions of this Constitution shall be applied to the non‑metropolitan territories for whose international relations they are responsible, including any trust territories for which they are the administering authority, except where the subject matter of the Convention is within the self‑governing powers of the territory or the Convention is inapplicable owing to the local conditions or subject to such modifications as may be necessary to adapt the Convention to local conditions.
2. Each Member which ratifies a Convention shall as soon as possible after ratification communicate to the Director‑General of the International Labour Office a declaration stating in respect of the territories other than those referred to in paragraphs 4 and 5 below the extent to which it undertakes that the provisions of the Convention shall be applied and giving such particulars as may be prescribed by the Convention.
3. Each Member which has communicated a declaration in virtue of the preceding paragraph may from time to time, in accordance with the terms of the Convention, communicate a further declaration modifying the terms of any former declaration and stating the present position in respect of such territories.
4. Where the subject matter of the Convention is within the self‑governing powers of any non‑metropolitan territory the Member responsible for the international relations of that territory shall bring the Convention to the notice of the Government of the territory as soon as possible with a view to the enactment of legislation or other action by such Government. Thereafter the Member, in agreement with the Government of the territory, may communicate to the Director‑General of the International Labour Office a declaration accepting the obligations of the Convention on behalf of such territory.
5. A declaration accepting the obligations of any Convention may be communicated to the Director‑General of the International Labour Office—

(a) by two or more Members of the Organisation in respect of any territory which is under their joint authority; or

(b) by any international authority responsible for the administration of any territory, in virtue of the Charter of the United Nations or otherwise, in respect of any such territory.

6. Acceptance of the obligations of a Convention in virtue of paragraph 4 or paragraph 5 shall involve the acceptance on behalf of the territory concerned of the obligations stipulated by the terms of the Convention and the obligations under the Constitution of the Organisation which apply to ratified Conventions. A declaration of acceptance may specify such modifications of the provisions of the Convention as may be necessary to adapt the Convention to local conditions.
7. Each Member or international authority which has communicated a declaration in virtue of paragraph 4 or paragraph 5 of this Article may from time to time, in accordance with the terms of the Convention, communicate a further declaration modifying the terms of any former declaration or terminating the acceptance of the obligations of the Convention on behalf of the territory concerned.
8. If the obligations of a Convention are not accepted on behalf of a territory to which paragraph 4 or paragraph 5 of this Article relates, the Member or Members or international authority concerned shall report to the Director‑General of the International Labour Office the position of the law and practice of that territory in regard to the matters dealt with in the Convention and the report shall show the extent to which effect has been given, or is proposed to be given, to any of the provisions of the Convention by legislation, administrative action, collective agreement or otherwise and shall state the difficulties which prevent or delay the acceptance of such Convention.

Article 36

Amendments to this Constitution which are adopted by the Conference by a majority of two thirds of the votes cast by the delegates present shall take effect when ratified or accepted by two thirds of the Members of the Organisation including five of the eight Members which are represented on the Governing Body as Members of chief industrial importance in accordance with the provisions of paragraph 3 of Article 7 of this Constitution.

Article 37

1. Any question or dispute relating to the interpretation of this Constitution or of any subsequent Convention concluded by the Members in pursuance of the provisions of this Constitution shall be referred for decision to the International Court of Justice.
2. Notwithstanding the provisions of paragraph 1 of this Article the Governing Body may make and submit to the Conference for approval rules providing for the appointment of a tribunal for the expeditious determination of any dispute or question relating to the interpretation of a Convention which may be referred thereto by the Governing Body or in accordance with the terms of the Convention. Any applicable judgment or advisory opinion of the International Court of Justice shall be binding upon any tribunal established in virtue of this paragraph. Any award made by such a tribunal shall be circulated to the Members of the Organisation and any observations which they may make thereon shall be brought before the Conference.

Article 38

1. The International Labour Organisation may convene such regional conferences and establish such regional agencies as may be desirable to promote the aims and purposes of the Organisation.
2. The powers, functions and procedure of regional conferences shall be governed by rules drawn up by the Governing Body and submitted to the General Conference for confirmation.

CHAPTER IV—MISCELLANEOUS PROVISIONS

Article 39

The International Labour Organisation shall possess full judicial personality and in particular the capacity—

(a) to contract;

(b) to acquire and dispose of immovable and movable property;

Article 40

1. The International Labour Organisation shall enjoy in the territory of each of its Members such privileges and immunities as are necessary for the fulfilment of its purposes.
2. Delegates to the Conference, members of the Governing Body and the Director‑General and officials of the Office shall likewise enjoy such privileges and immunities as are necessary for the independent exercise of their functions in connection with the Organisation.
3. Such privileges and immunities shall be defined in a separate agreement to be prepared by the Organisation with a view to its acceptance by the Members.

ANNEX

DECLARATION CONCERNING THE AIMS AND PURPOSES OF THE INTERNATIONAL LABOUR ORGANISATION

The General Conference of the International Labour Organisation, meeting in its Twenty‑sixth Session in Philadelphia, hereby adopts, this tenth day of May in the year nineteen hundred and forty‑four, the present Declaration of the aims and purposes of the International Labour Organisation and of the principles which should inspire the policy of its Members.

The Conference reaffirms the fundamental principles on which the Organisation is based and, in particular, that:

(a) labour is not a commodity;

(b) freedom of expression and of association are essential to sustained progress;

(d) the war against want requires to be carried on with unrelenting vigour within each nation, and by continuous and concerted international effort in which the representatives of workers and employers, enjoying equal status with those of Governments, join with them in free discussion and democratic decision with a view to the promotion of the common welfare.

Believing that experience has fully demonstrated the truth of the statement in the Constitution of the International Labour Organisation that lasting peace can be established only if it is based on social justice, the Conference affirms that:

(a) all human beings, irrespective of race, creed or sex, have the right to pursue both their material well‑being and their spiritual development in conditions of freedom and dignity, of economic security and equal opportunity;

(b) the attainment of the conditions in which this shall be possible must constitute the central aim of national and international policy;

(c) all national and international policies and measures, in particular those of an economic and financial character, should be judged in this light and accepted only in so far as they may be held to promote and not to hinder the achievement of this fundamental objective;

(d) it is a responsibility of the International Labour Organisation to examine and consider all international economic and financial policies and measures in the light of this fundamental objective;

(e) in discharging the tasks entrusted to it the International Labour Organisation, having considered all relevant economic and financial factors, may include in its decisions and recommendations any provisions which it considers appropriate.

III

The Conference recognizes the solemn obligation of the International Labour Organisation to further among the nations of the world programmes which will achieve:

(a) full employment and the raising of standards of living;

(b) the employment of workers in the occupations in which they can have the satisfaction of giving the fullest measure of their skill and attainments and make their greatest contribution to the common well‑being;

(c) the provision, as a means to the attainment of this end and under adequate guarantees for all concerned, of facilities for training and the transfer of labour, including migration for employment and settlement;

(d) policies in regard to wages and earnings, hours and other conditions of work calculated to ensure a just share of the fruits of progress to all, and a minimum living wage to all employed and in need of such protection;

(e) the effective recognition of the right of collective bargaining, the co‑operation of management and labour in the continuous improvement of productive efficiency, and the collaboration of workers and employers in the preparation and application of social and economic measures;

(f) the extension of social security measures to provide a basic income to all in need of such protection and comprehensive medical care;

(g) adequate protection for the life and health of workers in all occupations;

(h) provision for child welfare and maternity protection;

(i) the provision of adequate nutrition, housing and facilities for recreation and culture;

(j) the assurance of equality of educational and vocational opportunity.

Confident that the fuller and broader utilisation of the world’s productive resources necessary for the achievement of the objectives set forth in this Declaration can be secured by effective international and national action, including measures to expand production and consumption, to avoid severe economic fluctuations, to promote the economic and social advancement of the less developed regions of the world, to assure greater stability in world prices of primary products, and to promote a high and steady volume of international trade, the Conference pledges the full co‑operation of the International Labour Organisation with such international bodies as may be entrusted with a share of the responsibility for this great task and for the promotion of the health, education and well‑being of all peoples.

The Conference affirms that the principles set forth in this Declaration are fully applicable to all peoples everywhere and that, while the manner of their application must be determined with due regard to the stage of social and economic development reached by each people, their progressive application to peoples who are still dependent, as well as to those who have already achieved self‑government, is a matter of concern to the whole civilised world.

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International Labour Organisation Act 1947

No. 91 of 1947

An Act to approve the amended Constitution of the International Labour Organisation Preamble

Contents

1 Short title

2 Approval of Constitution of I.L.O.

The Schedule—The Constitution Of The International Labour Organisation

International Labour Organisation Act 1947

No. 91 of 1947

An Act to approve the amended Constitution of the International Labour Organisation Preamble

[Assented to 11 December 1947]

The Parliament of Australia enacts:

AND WHEREAS Part XIII of the said Treaty of Peace contained the original Constitution of the International Labour Organisation:

AND WHEREAS it is expedient that the Constitution of the Organisation, as now amended, should be approved by the Parliament:

BE it therefore enacted by the King’s Most Excellent Majesty, the Senate, and the House of Representatives of the Commonwealth of Australia, as follows:

The Constitution set out in the Schedule organises the ILO around several core structural and procedural concepts. These are matters of institutional design, membership, tripartism, the Convention/Recommendation process, reporting and surveillance, dispute‑settlement, financial arrangements, and international legal personality.

Membership and permanence: Article 1 creates a permanent organisation for the promotion of social justice and defines who may be a Member (original Members on 1 November 1945, other UN Members by acceptance in writing to the Director‑General, or admission by two‑thirds vote of the Conference). Article 1(5) provides that a Member may withdraw only after two years’ notice and subject to fulfilment of financial obligations, and that withdrawal does not affect obligations arising under ratified Conventions for the periods provided in those Conventions.
Tripartite representation and decision‑making: The General Conference is composed of four delegates per Member, two Government and two non‑Government (employers and workers) (Article 3). The Governing Body is made up of 32 persons (16 Government, 8 employers, 8 workers) with specific selection rules including the identification of Members of chief industrial importance (Article 7). Tripartism is central: delegates representing employers and workers must be nominated in agreement with the most representative industrial organisations (Article 3(5)); employers’ and workers’ representatives to the Governing Body are elected by their respective delegates to the Conference (Article 7(4)).
Convention/Recommendation mechanism: Article 19 sets out the process for the Conference to adopt either Conventions (binding upon ratification) or Recommendations (non‑binding guidance), including a two‑thirds majority requirement for final adoption (Article 19(2)). A Convention becomes subject to ratification procedures (Article 19(5)) and is only binding on Members which ratify (Article 20). The Director‑General authenticates and circulates adopted instruments (Article 19(4)).
Domestic action, federal and non‑metropolitan application: Articles 19(5)-(7) require Members to bring Conventions or Recommendations before the competent authorities within prescribed time limits (one year normally; up to 18 months in exceptional circumstances) and to report on that process. Article 35 deals with application to non‑metropolitan territories and allows Members to make declarations specifying the extent of application or modifications needed.
Reporting, supervision and remedies: Annual reporting obligations are in Article 22. Articles 24-25 permit representations by employers’ or workers’ organisations regarding non‑observance and allow the Governing Body to publish representations and replies. Articles 26-34 provide a graduated dispute and compliance procedure: complaints, communication with the government concerned, appointment of a Commission of Enquiry, publication of Commission reports, three‑month responses, referral to the International Court of Justice, and recommendations to the Conference if a Member fails to act. Article 27 requires that Members supply information to Commissions.
Financial arrangements and consequences of arrears: Article 13 provides that the ILO may make financial arrangements with the United Nations but, pending those or in their absence, Members pay delegates’ travel and subsistence (Art 13(2)(a)), the Director‑General pays other expenses from the ILO general funds (Art 13(2)(b)), and the Conference determines budget approval and allocation by two‑thirds majority (Art 13(2)(c)). Article 13(3) states that expenses shall be borne by Members in accordance with the arrangements. Article 13(4) provides that Members in arrears equal to or exceeding two full years’ contributions lose voting rights unless the Conference, by two‑thirds majority, permits voting due to conditions beyond the Member’s control.
International legal personality and privileges: Article 39 grants the ILO capacity to contract, hold property and institute legal proceedings. Article 40 requires Members to grant necessary privileges and immunities to the ILO, its delegates, the Governing Body and Office staff, to be defined in a separate agreement.
Principles and aims: The Preamble and the Annex (Declaration of Philadelphia) articulate the philosophical and policy aims , social justice as the basis of peace; labour is not a commodity; freedom of expression and association; support for full employment, social security, equal opportunity, vocational training, and a minimum living wage insofar as these relate to the ILO’s mandate.

These concepts together form the instrument’s internal logic: Conventions are proposed, adopted by a qualified majority, communicated to Members for national action and ratification, followed by reporting and a multistep compliance mechanism that can escalate to publication, commissions and ultimately referral to the International Court of Justice. The tripartite design and special rules for financial contribution and voting embed political incentives, while Articles on territorial application and federal states mediate the domestic implementation challenge.

The Schedule’s Constitution names and structures several distinct categories of actors and identifies specific obligations or rights for each.

Members (States): Primary legal subjects. Membership rules and withdrawal (Article 1). Members decide who their delegates are (Article 3) and are the entities that ratify Conventions and implement Recommendations (Articles 19, 20). Members bear financial responsibility for ILO expenses (Article 13(3)), must make annual reports (Article 22), and must cooperate with enquiries (Article 27). Members risk loss of voting rights if in arrears (Article 13(4)) and may be the subject of representations, complaints, espionage by a Commission of Enquiry or referral to the International Court of Justice (Articles 24-31, 37).
Government delegates and officials: Governments nominate two delegates to each Conference (Article 3(1)) and may appoint additional advisers in matters implicating non‑metropolitan territories (Article 3(3)). Government delegates sit in the tripartite Conference and contribute to policy and electoral choices for the Governing Body (Articles 3 and 7).
Employers’ and workers’ organisations: These organisation categories provide the non‑Government delegates and advisers to the Conference and elect their representatives to the Governing Body (Articles 3(1), 3(5), 7(4)). They have rights to make representations to the International Labour Office about Member non‑compliance (Article 24) and to participate in the Conference and, through that, in policy formation.
Director‑General and International Labour Office staff: The Constitution creates the Office headed by a Director‑General who is appointed by the Governing Body and is charged with running the Office subject to Governing Body instructions (Article 8). Staff are appointed under Director‑General authority subject to Governing Body approved regulations (Article 9). Article 9(4-5) imposes an international, independent character on these officials: they "shall not seek or receive instructions from any Government or from any other authority external to the Organisation" and Members undertake to respect this independence.
Members’ internal authorities (competent national authorities, federal component units, non‑metropolitan territories): Article 19(5)(b) and (6)(b) require Members to bring Conventions and Recommendations before the "authority or authorities within whose competence the matter lies" for legislation or other action within stated timeframes. In federal States, Article 19(7) places specific duties on the federal government to arrange reference, consultations and reporting to constituent units.
Non‑metropolitan territories and international authorities administering territories: Article 35 governs the application and modification of Conventions to such territories, allows declarations by Members regarding territorial application, and permits joint declarations or international authority declarations on behalf of territories.
The public and international organisations: Article 12 permits cooperation and participation by other international organisations in the ILO’s deliberations; Article 19(4) provides that copies of Conventions and Recommendations will be deposited with the UN Secretary‑General. The ILO’s legal personality (Article 39) and privileges (Article 40) affect how it interacts with other international and domestic bodies.

Who pays: Members pay delegates’ travel and subsistence (Art 13(2)(a)), otherwise expenses are allocated according to budget arrangements determined by the Conference (Art 13(2)(c), (3)). Who decides: the Conference (for policy and constitutional amendments where two‑thirds majorities apply), the Governing Body (for operational direction, election of Director‑General, determining agenda per Art 14), and the Director‑General (for day‑to‑day Office administration under the Governing Body’s instructions). What behaviour changes: States must nominate appropriate tripartite delegates, consider Conventions in their domestic constitutional frameworks within prescribed timeframes, make annual reports, avoid arrears to retain voting, and cooperate with enquiries , all set out in the Schedule.

The Constitution’s Schedule imposes a set of concrete obligations and confers rights. The following is a focused list of material duties and rights with the controlling article references.

Duties (principal, with article references)

To bring Conventions and Recommendations before competent authorities: Each Member must "within the period of one year at most... bring the Convention before the authority or authorities within whose competence the matter lies, for the enactment of legislation or other action" (Article 19(5)(b); for Recommendations, Article 19(6)(b)). An 18‑month exception is allowed in exceptional circumstances.
To report on action taken: Members must inform the Director‑General of measures taken to bring instruments before competent authorities (Article 19(5)(c); 19(6)(c)) and make an annual report on measures taken to give effect to Conventions to which they are a party (Article 22).
To cooperate with Commissions of Enquiry: Members shall "place at the disposal of the Commission all the information in their possession" relevant to a complaint (Article 27).
To communicate declarations for non‑metropolitan territories: Members that ratify a Convention must communicate declarations regarding territorial application and may modify those declarations in accordance with the Convention (Article 35(2)-(3), (6)-(7)).
Financial contributions and budget compliance: Members shall bear the expenses of the ILO in accordance with the budgetary arrangements set by the Conference or by arrangements with the UN (Article 13(1)-(3)).
To respect the international character of Office staff: Members "undertake to respect the exclusively international character of the responsibilities of the Director‑General and the staff" and not to seek to influence them (Article 9(4-5)).

Rights (principal, with article references)

Right to vote and participate: Delegates have individual votes on Conference matters (Article 4(1)); Members have decision rights in the Conference (subject to voting rules) and in the election/appointment processes for the Governing Body and its composition (Articles 3, 7).
Right to file complaints and representations: Any Member can file a complaint concerning another Member’s observance of ratified Conventions (Article 26(1)). Employers’ and workers’ organisations can make representations to the International Labour Office about alleged failures (Article 24).
Right to request Commission of Enquiry: The Governing Body may appoint a Commission of Enquiry when dissatisfied with a government’s response or if otherwise warranted (Article 26(3)); the defaulting government may request a Commission to verify compliance (Article 34).
Right to appeal decisions regarding classification of Members of chief industrial importance: A Member may appeal a Governing Body declaration about which Members are of chief industrial importance to the Conference, though the appeal does not suspend the declaration (Article 7(3)).
Right to seek adjudication by the International Court of Justice: Questions or disputes of interpretation of the Constitution or any Convention may be referred to the ICJ (Article 37(1)); decisions of the ICJ are final (Article 31).
Right to privileges and immunities: The ILO, delegates, Governing Body members, Director‑General and officers are to enjoy "such privileges and immunities as are necessary" for the fulfilment of functions, to be defined in a separate agreement (Article 40).

Operationally important procedural duties/rights

Adoption thresholds: Adoption of Conventions and Recommendations requires two‑thirds of votes cast by delegates present on the final vote (Article 19(2)). Adoption of amendments to the Constitution similarly requires two‑thirds at the Conference and subsequent ratification by two‑thirds of Members including five of the eight Members of chief industrial importance (Article 36).
Financial consequences for arrears: A Member in arrears equal to or exceeding contributions for the preceding two full years loses voting rights in the Conference, Governing Body, committees, and elections for the Governing Body unless the Conference by two‑thirds majority permits voting (Article 13(4)).
Territorial application: Members that ratify Conventions must communicate territorial declarations and may make modifications to adapt Conventions to local conditions (Article 35(1)-(7)).
Federal systems: Federal Members have specific procedural duties to refer Conventions to constituent authorities, arrange consultations, and report on legislative or other action (Article 19(7)).

These duties and rights structure behaviour at three levels: international (voting, referral to ICJ), institutional (Governing Body, Director‑General responsibilities), and domestic (reference to national authorities, reporting, territorial application). They affect the allocation of administrative burdens inside government, the role of social partner organisations, and the legal standing of Conventions in domestic law (only binding upon ratifying Members , Article 20).

The Constitution in the Schedule does not set criminal sanctions or monetary fines for non‑compliance. Enforcement is procedural and reputational, carried out through institutional mechanisms that create leverage and consequences. The Schedule provides a graduated sequence of enforcement tools; the key ones are below with article references.

Loss of voting rights for financial default (Article 13(4)): This is a direct procedural penalty. A Member that is in arrears equal to or exceeding the amount of contributions due for the preceding two full years "shall have no vote" in the Conference, Governing Body, committees, or elections of members of the Governing Body. The Conference may, by two‑thirds majority, permit such a Member to vote if it is satisfied the failure to pay is due to conditions beyond the Member’s control.
Representations and publication (Articles 24-25): If an industrial association makes a representation alleging a Member’s failure to effectively observe a Convention, the Governing Body may communicate the representation to the Government and invite a statement (Article 24). If the reply is not received in reasonable time or is unsatisfactory, the Governing Body may publish the representation and the Government’s statement (Article 25). Publication has reputational impact; the Constitution makes publication an enforcement instrument.
Complaint and Commission of Enquiry procedures (Articles 26-34): Any Member may file a complaint against another Member’s observance of a ratified Convention (Article 26(1)). The Governing Body may attempt preliminary communication, and if unsatisfied may appoint a Commission of Enquiry (Article 26(2)-(3)). The Commission prepares a report with findings of fact and recommendations (Article 28), which the Director‑General circulates and publishes, and Governments must reply within three months indicating acceptance or whether they will refer the matter to the International Court of Justice (Article 29). If a Member fails to take action required by Articles 19(5)(b), 19(6)(b) or Article 19(7)(b)(i), any other Member may refer the matter to the Governing Body and the Governing Body shall report the matter to the Conference (Article 30). If a Member fails to carry out recommendations or ICJ decisions, the Governing Body may recommend to the Conference "such action as it may deem wise and expedient to secure compliance therewith" (Article 33). Those recommendations can include political and diplomatic measures but the Constitution does not list coercive sanctions.
Referral to International Court of Justice (Articles 29-32, 37): If, after a Commission report, a government either does not accept recommendations or proposes to refer to the ICJ, the ICJ decision "shall be final" (Article 31). Article 37(1) also permits referral of questions of interpretation of the Constitution or of any Convention to the ICJ. The ICJ’s decisions are binding on the Members that consent to its jurisdiction, and the Constitution treats ICJ rulings as ultimately determinative.
Reporting and publicity (Articles 22, 23): Annual reporting obligations (Article 22) and the Director‑General’s requirement to lay summaries of such reports before the Conference (Article 23(1)) create an ongoing transparency regime. Transparency itself is an enforcement mechanism; repeated adverse reporting may influence a Member’s standing.

Notably absent are direct coercive powers vested in the ILO itself to impose fines, withhold budget services, or suspend membership. The primary specific sanction is the loss of voting rights for financial arrears (Article 13(4)). For substantive non‑observance of Conventions, enforcement is primarily reputational, diplomatic and judicial through Commissions and the ICJ, with recourse to the Conference for recommended action (Articles 33-34). The Constitution requires broad cooperation: Article 27 obliges all Members to place information at the disposal of Commissions, which can impose a practical compliance burden.

The enforcement architecture therefore relies on procedural escalation, transparency and the authoritative weight of Commission reports and ICJ decisions, rather than administrative fines or automatic sanctions. The Constitution also empowers the Governing Body and Conference to adopt measures "as they may deem wise and expedient" when compliance fails (Article 33), leaving concrete remedial options open to political choice by Members.

The Schedule expressly links the ILO Constitution to international legal instruments and domestic constitutional arrangements, and it prescribes interaction rules with domestic law, regional arrangements, and the United Nations.

Relationship with the United Nations and Article 102 registration: Article 19(4) and Article 21 require that authenticated Conventions or Agreements be deposited with the Secretary‑General of the United Nations for registration under Article 102 of the UN Charter. Article 13(1) also contemplates financial and budgetary arrangements with the United Nations. The Schedule thus embeds the ILO within the UN framework for registration and financial coordination.
Domestic implementation: The Constitution distinguishes between adoption by the Conference and binding legal effect. A Convention is "binding upon the Members which ratify it" (Article 20). Article 19(5)(b) requires Members to bring a Convention before the "authority or authorities within whose competence the matter lies" for enactment or other action within a year (or 18 months in exceptional circumstances). This provision recognises that domestic law, constitutional distribution of powers, and internal procedures determine the mechanics of implementation. The Schedule does not directly convert a Convention into domestic law; instead, it requires Members to take domestic legislative or administrative steps and to report on them (Articles 19(5)(b)-(d), 22). For federal States, Article 19(7) sets out obligations for consultation and reference to constituent authorities, recognising domestic constitutional constraints.
Non‑metropolitan territories and colonial/administrative arrangements: Article 35 provides rules for applying Conventions to territories for whose international relations a Member is responsible. It permits modification or exceptions where the subject matter is within a territory’s self‑governing powers, or where local conditions make the Convention inapplicable. This establishes a legal interface between international obligations and colonial/territorial administrations, requiring declarations and reports to the Director‑General.
International organisation cooperation: Article 12 requires cooperation "within the terms of this Constitution" with general international organisations entrusted with co‑ordination of public international organisations and allows participation by public international organisations without vote. Article 38 authorises regional conferences and agencies subject to Governing Body rules and Conference confirmation. These provisions mean the ILO’s activity will intersect with regional legal instruments and institutions.
Privileges, immunities and domestic law: Article 40 obliges Members to grant "such privileges and immunities as are necessary" for the fulfilment of the ILO’s purposes and those of delegates and officials. The precise scope is deferred to a separate agreement to be prepared and accepted by Members. That separate agreement will interact with domestic law on diplomatic privileges, immunities and the capacity of an international organisation to hold property (Article 39).
Judicial interaction: Article 37(1) provides that questions or disputes relating to interpretation of the Constitution or any Convention shall be referred to the International Court of Justice. Article 31 makes the ICJ decision final. This produces a direct channel from ILO disputes to the international judicial system. It also means that where the ILO or its Members have accepted ICJ jurisdiction, the ICJ’s rulings will affect the interpretation of Conventions and the Constitution.
Internal procedural rules vs domestic constitutional constraints: Several provisions anticipate and accommodate domestic legal variety: Articles 3(5) and 7(3) address selection of industrial representatives and the classification of Members of chief industrial importance; Article 19(3) instructs drafters to have "due regard" for countries with different climatic or developmental conditions and to suggest modifications; Article 35 allows territorial modifications; and Article 19(7) creates federal state procedures. Those clauses require the ILO’s processes to engage with domestic legal differences rather than override them.
Budgetary interaction with domestic finance laws: Article 13(2)(c) and (3) envisage budget approval, allocation and collection arrangements for the ILO budget; in practice, those arrangements will require Members to commit to financial contributions under their domestic appropriation/finance laws, and Article 13(4) links failure to pay to loss of voting rights.

In sum, the Schedule sets out how international obligations under the ILO interact with domestic legal processes: Conventions require domestic steps to implement; reporting and territorial declarations mediate application to territories; financial commitments require domestic appropriation; the ILO’s privileges are to be given effect by subsequent agreements; and disputes can be escalated to the ICJ. The Constitution therefore integrates the ILO within the architecture of international law while preserving channels for domestic legal procedures and federal or territorial variance.

The Act’s preamble explains the immediate amendment history that led to the 1947 approval. It states that Part XIII of the Treaty of Versailles established the original ILO and that instruments of amendment to the Constitution were adopted by the ILO General Conference on 2 November 1922, 5 November 1945 and 9 October 1946 "in accordance with Article thirty‑six of that Constitution" and that it was "expedient that the Constitution of the Organisation, as now amended, should be approved by the Parliament" (Preamble).

Article 36 of the Constitution itself prescribes the formal amendment procedure for the Constitution going forward: amendments adopted by the Conference by a two‑thirds majority take effect only when ratified or accepted by two‑thirds of the Members "including five of the eight Members which are represented on the Governing Body as Members of chief industrial importance" (Article 36). The article therefore creates a dual threshold for constitutional amendment: (1) a super‑majority at the Conference level; and (2) subsequent ratification by a qualified majority of Members that must include a majority of the recognised industrial powers (five out of eight). Article 7(3) and Article 36 together make the identification of the "Members of chief industrial importance" procedurally significant, because it conditions the ratification threshold.

The Act itself does not record any post‑1947 amendments to the Constitution nor subsequent legislative amendments to the Act. The Schedule records the state of the Constitution as amended by the dates specified in the preamble and as adopted by the 1944 Philadelphia Declaration annex. Because this legislative instrument incorporates the text as a schedule, any later changes to the ILO Constitution would, in sovereign practice, require further domestic deliberation to recognise, or would be applied internationally by Australia as a Member pursuant to its own acceptance or ratification mechanisms. The Act does not detail the domestic process by which Australia would manifest its acceptance of future amendments beyond the Schedule; however, Article 36 makes clear that motions for amendment follow the Conference and ratification process among Members internationally.

Procedurally, the Schedule fixes a high bar for constitutional amendment: the two‑thirds Conference adoption threshold together with a ratification requirement that secures participation of the major industrial Members. The Schedule also establishes appeals and governance mechanisms that affect amendment classification (Article 7(3) allows Members to appeal a Governing Body declaration about which Members are of chief industrial importance, with final determination by the Conference).

From the text of the Act and Schedule, the recorded amendment steps before 1947 are: the General Conference adopted instruments of amendment on 2 November 1922, 5 November 1945 and 9 October 1946, and the 1944 Declaration of Philadelphia was annexed. The Act’s approval in 1947 is thus an act of parliamentary recognition of those amendments. The Constitution’s Article 36 lays out the continuing amendment pathway for future constitutional change.

The Schedule neither lists nor summarises any case law. The text does not identify domestic judicial decisions or litigation records. The Constitution itself, however, prescribes legal processes for dispute resolution that establish where litigation or adjudication may occur and which decisions are final.

International Court of Justice jurisdiction (Article 37): Article 37(1) provides that any question or dispute relating to the interpretation of the Constitution or of any subsequent Convention concluded by the Members may be referred to the International Court of Justice. Article 31 states that the decision of the ICJ in regard to a complaint or matter referred under Article 29 is final. Article 32 permits the ICJ to affirm, vary or reverse Commission of Enquiry findings. Thus the Constitution contemplates ICJ adjudication as the ultimate legal forum for inter‑state interpretation disputes.
Commission of Enquiry process as quasi‑judicial fact‑finding (Articles 26-30): The Schedule establishes the Commission of Enquiry as the body that will carry out fact‑finding on complaints about the observance of ratified Conventions. The Commission prepares a report with findings of fact and recommendations (Article 28), and the report is required to be communicated and published (Article 29). Parties may then take the issue to the ICJ or the Governing Body may recommend further action (Article 29(2), 33). The Constitution allows a defaulting government to request a Commission to verify that it has complied with recommendations (Article 34).
No domestic judicial remedies specified in the Schedule: The Constitution’s enforcement mechanisms are international, political and judicial at the inter‑state level (ICJ), but the Schedule does not create domestic civil or criminal causes of action in the Commonwealth’s law. The Schedule requires Members to take domestic steps to implement ratified Conventions, but any domestic litigation arising from those implementing measures would proceed under domestic law and is beyond the text of the Schedule.

Because the Schedule is the only text reproduced in the Act, the Act’s litigation history in the source is empty. The Schedule does, however, create rights and obligations that can generate litigation at the international level (ICJ) and indirectly at the domestic level through implementing legislation. The Schedule anticipates that disputes over interpretation and compliance will be litigated before the ICJ where referred, and that Commission of Enquiry reports and their publication will form an evidentiary and reputational basis for further action.

In the absence of any cases or judicial decisions noted in the source, this section records the constitutional routes by which disputes may be adjudicated, and the finality of ICJ decisions for matters within that court’s competence as contemplated by the Constitution (Articles 31-32, 37).

The Schedule contains several provisions that commonly cause implementation surprises or operational friction; these are practical "gotchas" to watch for when advising clients or designing compliance systems. Each point below cites the controlling article.

Adoption does not equal domestic effect: Article 20 makes clear that a Convention is "binding upon the Members which ratify it". Adoption by the Conference does not automatically change domestic law. The constitutional rule in Article 19(5)(b) requires each Member "to bring the Convention before the authority or authorities within whose competence the matter lies, for the enactment of legislation or other action" within one year (or at most 18 months in exceptional circumstances). Therefore, domestic legal effect requires a separate step that depends on the Member’s constitutional allocation of powers. Advisors should not assume that Conference adoption is self‑executing domestically.
Timeframes are strict in form, flexible in practice: The one‑year period (or 18 months in exceptional circumstances) to bring instruments before competent authorities (Article 19(5)(b), 19(6)(b)) creates a predictable administrative deadline. Failure to act can trigger reporting and potential referral to the Governing Body (Article 30). But the Constitution contemplates exceptions and reporting if consent from competent authorities is not obtained (Article 19(5)(e)), so practitioners must document reasons and ongoing steps; absence of timely action can create reputational and procedural difficulties.
Federal systems require coordination: Article 19(7) imposes duties on federal governments to refer Conventions to constituent units when appropriate, to arrange consultations, and to report on the law and practice of the federation and its constituent parts. For federations, failure to coordinate will produce procedural non‑compliance that can be used in representations or complaints.
Arrears lead to loss of voting rights: Article 13(4) provides a concrete penalty: arrears equal to two full years’ contributions result in loss of voting rights in the Conference, Governing Body, committees and Governing Body elections. That consequence is automatic unless the Conference, by two‑thirds majority, permits the Member to vote. Budgetary shortfalls therefore translate into political exclusion.
"Members of chief industrial importance" classification influences amendment thresholds and Governing Body composition: Article 7(2) and (3) allow the Governing Body to identify Members of chief industrial importance. Article 36’s amendment ratification threshold includes numeric requirements tied to that categorisation (five of the eight Members of chief industrial importance). The Governing Body determines who those Members are, subject to an impartial committee and Conference appeal, but appeals do not suspend the declaration. Practitioners should note that this internal classification has outsized constitutional significance.
Staff independence and non‑interference: Article 9(4-5) makes it an undertaking by Members not to instruct the Director‑General or staff. In practice, tensions may arise where government expectations or funding incentives create pressure; the obligation is to respect "exclusively international" duties and not to seek to influence officials. Implementation requires internal instructions to departments and procurement or secondment arrangements to respect these restrictions.
Privileges and immunities are not automatic: Article 40 defers the grant and scope of privileges and immunities to a separate agreement to be prepared by the Organisation and accepted by Members. Until that separate agreement is concluded and accepted, the precise immunities and privileges remain subject to negotiation, and there may be legal uncertainty in domestic law about the ILO’s and delegates’ immunities.
Publication and reputational enforcement: The Governing Body may publish representations and Commission reports (Articles 25, 29). Publication is a non‑legal but material consequence that can affect a Member’s international reputation, trade negotiations and diplomatic relations. It is not a legal sanction but it is an enforcement tool.
Non‑Government delegates’ selection constraints: Article 3(5) requires non‑Government delegates and advisers to be nominated in agreement with "the industrial organisations, if such organisations exist, which are most representative of employers or workpeople". In countries where representative organisations are contested or weak, nomination disputes can delay participation or produce credentials scrutiny by the Conference (Article 3(9)).
No single coercive enforcement mechanism for substantive compliance: There are no statutory fines, suspension or automatic sanctions for failure to give effect to conventions beyond the procedural tools described above. If a Member refuses Commission recommendations and the ICJ decision runs against it, the Constitution leaves to the Governing Body and the Conference the task of recommending further action (Article 33), which means political negotiation will determine practical outcomes.
Registration requirement and UN interplay: The Director‑General must deposit adopted Conventions with the UN Secretary‑General for registration (Article 19(4)). That registration triggers international transparency and may intersect with obligations under the UN Charter but the Constitution does not prescribe domestic legal effects of such registration.

These "gotchas" are procedural, jurisdictional and political. They translate into implementation risks, timing traps, and strategic considerations for governments, employers’ and workers’ organisations and advisers dealing with ratification, domestic legislation drafting, representation, and compliance reporting.

Complying with the obligations created by the Constitution in the Schedule requires actions at international, national and organisational levels. The steps below present a practical compliance matrix tied to the key Articles.

Governance and representation

Nominate Conference delegates and advisers in accordance with Article 3: As a Member, ensure the four delegates (two Government and two non‑Government) are appointed; non‑Government delegates should be chosen in agreement with the most representative employer and worker organisations where they exist (Article 3(1), (5)). Maintain records of nominations and credentials for transmission to the Director‑General (Article 3(8)) and prepare for credentials scrutiny by the Conference (Article 3(9)).
Ensure tripartite election and participation for the Governing Body: Employers’ and workers’ representatives must be elected by their respective delegates to the Conference (Article 7(4)), and Government seats include eight appointed by Members of chief industrial importance and eight by selected Members (Article 7(2)). Prepare administrative arrangements for participation and electoral processes.

Domestic implementation processes

Establish an internal coordination mechanism to bring adopted Conventions/Recommendations before the competent authority within the stipulated timeframe: Article 19(5)(b) requires that within one year (or up to 18 months in exceptional cases) the Convention be brought before the competent authority. Set an administrative workflow to identify the "authority or authorities" within whose competence the matter lies, prepare explanatory materials, draft legislative or regulatory proposals, and log steps taken for reporting. If consent cannot be obtained, prepare the required report to the Director‑General explaining the position and difficulties (Article 19(5)(e)).
For federations, set up consultation and referral procedures: Article 19(7) requires reference to constituent units for matters within their competence, periodic consultations, and reporting. Draft memoranda of understanding or intergovernmental protocols to manage the referral process and statutory timetables.

Reporting and record‑keeping

Implement annual reporting systems: Article 22 mandates an annual report to the International Labour Office on measures taken to give effect to Conventions. Create templates that capture legislative action, administrative measures, collective agreement coverage, and problems encountered. The Director‑General will summarise these reports to the Conference (Article 23).
Maintain records of communications to the Director‑General: Article 19(5)(c) and (6)(c) require informing the Director‑General of measures taken to bring Conventions/Recommendations before competent authorities. Maintain an administrative trail for audits, and produce timely communications when required.

Financial compliance

Budget appropriately for ILO contributions and delegate expenses: Article 13(2)(a) places travel and subsistence costs on Members; other expenses are apportioned under the budget arrangements (Article 13(2)(c), (3)). Ensure appropriation processes and treasury sign‑offs are in place to prevent arrears that would lead to loss of voting rights under Article 13(4).
Monitor and plan for budget approval processes by the Conference: The Conference determines budget approval and allocation by two‑thirds majority (Article 13(2)(c)). Engage diplomatically where contributions and budgetary allocations are negotiated.

Cooperation with ILO enquiries and information requests

Prepare to cooperate with Commissions of Enquiry: Article 27 obliges Members "each, whether directly concerned in the complaint or not, [to] place at the disposal of the Commission all the information in their possession which bears upon the subject matter of the complaint." Establish internal processes to locate, vet and transmit relevant information, while protecting any legitimately classified material in line with domestic law and informing the ILO of constraints.
Manage responses to representations and publishable materials: If the Governing Body communicates a representation to the government (Article 24), prepare factual statements that can be made public (Article 25). Coordinate with communications and foreign affairs ministries to manage reputational issues.

Legal and constitutional assessment

Conduct a constitutional mapping exercise for any Convention under consideration: Identify legal changes required, the competent authorities to act, potential need for legislative reform, and interactions with existing domestic laws and collective agreements. For federal systems, assess which matters require constituency action (Article 19(7)).
Prepare legal advice on ratification pathways: Because Conventions bind only upon ratification (Article 20), legal advice must address what ratification entails domestically and whether implementing legislation is needed to give effect domestically.

Protect staff independence and abide by immunities

Establish internal instructions to departments and officials to refrain from instructing ILO officials: Article 9(4-5) requires Members not to seek to influence Office staff. Implement an internal compliance policy for communications and contacts with the Director‑General and the Office staff.
Negotiate and accept the separate privileges and immunities agreement: Article 40 tasks the ILO and the Members to settle a separate agreement defining privileges and immunities. Prepare domestic ratification or acceptance measures necessary to give effect to that agreement domestically.

Engage social partners

Ensure employers’ and workers’ organisations are consulted and enabled to participate: Article 3(5) requires non‑Government delegates to be chosen in agreement with representative organisations. Maintain transparent selection processes and provide these organisations with the information they need to participate effectively.

Prepare for dispute resolution contingencies

Map potential escalation paths: If the matter may become contentious, anticipate the steps in Articles 24-34. Prepare political/diplomatic strategies for responding to representations, managing Commission processes, and assessing whether to accept recommendations or refer matters to the ICJ. Ensure legal teams are prepared for international litigation if escalation occurs.

Administrative and compliance tooling

Create a compliance register for all Conventions, Recommendations and territorial declarations applied by the Member under Article 35; track deadlines, reporting obligations, and the content of any modifications or exceptions made.
Assign a central point of contact to the Director‑General: Article 11 permits government departments to communicate directly with the Director‑General through the Government’s representative on the Governing Body or another qualified official. Nominate and resource that contact point.

Following these steps will align a Member with the procedural, reporting, financial and representational obligations set out in the Constitution. Administrative discipline is essential because the ILO’s enforcement relies on procedural compliance, transparency and the ability to produce timely records for any Commission or Governing Body scrutiny.

International Labour Organisation Act 1947

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