Observation (CEACR) - adopted 2009, published 99th ILC session (2010)

Employment Policy Convention, 1964 (No. 122) - Cambodia (Ratification: 1971)

The Committee notes the information provided in the Government’s report received in November 2008, and the communication of the Free Trade Union of Workers of the Kingdom of Cambodia (FTUWKC) received in August 2008. The FTUWKC indicates that Cambodia is one of the poorest countries in Asia, where life expectancy is 56 years and where 80 per cent of the population live on less that US$2 a day. The FTUWKC also indicates that the garment industry, which has developed rapidly over the last ten years, now accounts for 90 per cent of Cambodia’s exports and employs around 355,000 people, mainly young women from the poor rural communities. The Committee notes the concerns expressed by the FTUWKC that core labour standards are not being complied with in many factories, as workers are being forced to work long hours, night shifts and overtime, and do not benefit from paid, sick, or maternity leave.

Articles 1 and 2 of the Convention. Coordination of employment policy with poverty reduction. The Committee notes that the Government has implemented the National Strategic Development Plan (NSDP), with the aim of reducing poverty and achieving the Cambodian Millennium Development Goals. In this regard, the Government has operated the long-term “Rectangular Strategy” in order to deliver on the NSDP. The Committee notes that the Rectangle III programme specifies policies relating to private sector development and employment. In particular, it specifies a systematic policy aimed at: (i) creating jobs, particularly for young persons entering the labour market, and for all Cambodian workers through various measures which encourage domestic investment and attract foreign direct investment in priority sectors, including agriculture, agro-industry, labour-intensive industries and tourism; (ii) establishing skills training networks for the poor; and (iii) developing a labour statistics system. The Committee hopes that the Government will be in a position to indicate in its next report whether specific difficulties have been encountered in achieving the objectives defined in the Rectangular Strategy on employment policies, and the extent to which these difficulties have been overcome. The Committee also invites the Government to provide indications on the progress achieved in the collection of labour market data and the manner in which such data is used in the formulation and implementation of the employment policy.

ILO technical assistance. The Committee notes that the 21st synthesis report for “Better Factories Cambodia” indicates that the programme has contributed to an improvement in the working conditions and standard of living of more than 270,000 workers, especially young women from rural areas. The Committee requests the Government to continue to provide information on the progress of the “Better Factories Cambodia” programme and on the impact it has had on the creation of productive employment.

Rural employment. The Committee notes that the Government has implemented diversification measures in different regions across the country. In Preah Vihear, the mountain areas are being converted into tourist destinations; in Svay Rieng, factories are now operating in former poor rural areas; and factories are being established in Kampong Chhnang. The Committee requests the Government to provide information in its next report on the measures it has taken to promote employment opportunities in rural areas, including data on how such measures have contributed to ensuring balanced regional development.

Youth employment. The Committee notes from the ILO’s Policy Brief on Youth Employment in Cambodia (2007) that the total number of young people is expected to grow from 3.2 million in 2005 to 3.6 million in 2011. Young persons will still have a 24 per cent share of the total population. In this regard, there is concern over how the labour market will absorb an estimated 275,000 young jobseekers expected for each year over the next five years. The Committee notes that the NSDP includes provision for the implementation of a systematic policy to create more jobs, especially for young people entering the labour market, through various measures such as the establishment of skills training networks to assist young people and new graduates in response to labour market needs. The Committee asks the Government to provide information on the measures taken to ensure productive employment opportunities for young persons.

Labour market and training policies. The Committee notes that, in 2007, 38 educational and vocational institutions were in operation, under the overall responsibility of the Ministry of Labour and Vocational Training. In this year, 69,471 students attended training courses in those institutions, of whom 46,384 persons from 17 provinces, received certificates. The Government also indicates that, with the assistance of the Governments of India and Japan, entrepreneur training centres were established in order to promote a culture of entrepreneurship in the country. The Committee requests the Government to continue to provide information on the results achieved by the measures taken by the Ministry of Labour and Vocational Training to coordinate education and training policies with prospective employment opportunities and to promote an entrepreneurship culture.

Business development. The Committee notes that the Government has adopted a comprehensive SME Development Framework and prepared an SME Development Programme. Measures implemented under this programme are intended to create a favourable business environment for SMEs and micro-enterprises, to enable their better access to medium- and long-term finance, and to establish specific systems to support women in business, including through facilitating women’s access to SME development initiatives and services. The Committee notes with interest the measures taken to stimulate small and micro-enterprises and asks the Government to provide information in its next report on the effects of these initiatives on the creation of productive employment. It also asks the Government to provide information on any measures taken to involve social partners so as to ensure that the concerns of small businesses are taken into account in the formulation of employment policies and measures. In this regard, the Government may deem it useful to consult the provisions of the Job Creation in Small and Medium-Sized Enterprises Recommendation, 1998 (No. 189).

Article 3. Participation of social partners. The Government indicates in its report that the Labour Advisory Committee has not been consulted in the development and review of employment policies and programmes. The Committee recalls that, under the Convention, governments are required to ensure that the opinions of workers’ and employers’ organizations, as well as workers in the rural sector and the informal economy, are to be consulted “with a view to taking fully into account their experiences and views”. The Committee asks the Government to provide concrete examples on the manner in which the views of employers, workers and other affected groups are sufficiently taken into account in the development, implementation and review of employment policies and programmes.