Direct Request (CEACR) - adopted 2021, published 110th ILC session (2022)

Employment Policy Convention, 1964 (No. 122) - Jordan (Ratification: 1966)

Articles 1 and 2 of the Convention. Formulation and implementation of an active employment policy. The Committee previously requested information on the formulation and implementation of active labour market measures taken under the National Employment Strategy (NES) 2011–20, in consultation with the social partners, as well as on the manner in which employment policy measures are kept under review within the framework of an overall coordinated economic and social policy. The Committee notes that the NES was updated in 2017, in the course of which all factors affecting the labour market, including the Syrian refugee crisis, were examined. The Committee further notes the initial updated form of the NES included a set of measures that regulate migrant workers in all sectors. Moreover, the Ministry of Labour updated its own strategic plan during the reporting period, in consultation with all partners, to arrive at an institutional strategy and employment policies aligned with the Royal Guidelines and governmental guidance. The Committee notes that employment creation is included as a priority of the Decent Work Country Programme (DWCP) 2018–22 for Jordan. The DWCP envisages, among other activities, the implementation of active labour market programmes in collaboration with institutions and social partners, to improve access for jobseekers to the labour market. Noting the expiry of the NES 2011–20, the Committee requests the Government to provide updated information on the results achieved, challenges encountered and lessons learned from its implementation. It further requests the Government to provide a copy of the updated NES and to indicate the manner in which it ensures that the development, implementation, monitoring and review of the updated NES is carried out in consultation with all stakeholders. The Committee further requests the Government to provide information on the nature and impact of the active labour market measures taken in pursuance of the NES, as well as in the context of the DWCP 2018–22.

Impact of COVID-19. The Committee notes that, according to data from the World Bank, the COVID-19 crisis has exacerbated employment challenges, including low labour force participation and high unemployment, particularly among the youth and women. The Committee observes from World Bank data that the employment rate in Jordan stood at 26.3 per cent in the second quarter of 2020, while the unemployment rate stood at 23 per cent in the same quarter. In comparison, according to the ILOSTAT database, the unemployment rate in 2019 stood at 16.8 per cent. The Committee also notes from information published by the World Bank that Jordan’s real GDP growth slowed down to 1.3 per cent in the first quarter of 2020, compared to 2.0 per cent in the same quarter in 2019, and that the economy was projected to contract further by 5.5 per cent during the year. The Committee requests the Government to provide information on the impact of the COVID-19 pandemic on the labour market and the active labour market measures taken, including statistical data disaggregated by sex, age, and economic sector, and on measures taken or envisaged to address the challenges encountered. The Committee also requests the Government to provide information on the lessons learned from the crisis, including on measures taken to promote inclusive employment and decent work for the purposes of prevention, recovery, peace and resilience with respect to crisis situations.

Article 2. Collection and use of labour market information. Employment trends. In its last comments, the Committee requested information on measures taken to improve the national labour market information system, and the manner in which collected data is used in designing, implementing and reviewing employment policy measures. In its response, the Government indicates that the Ministry of Labour relies on several data sources, both national (such as the Department of Statistics and the National Centre for Human Resources Development, which conducts sectoral studies) and data sources provided by international bodies such as the ILO. The Ministry of Labour relies on this data in the design and development of programmes and projects. The Government further indicates that the Labour Market Data Section of the Ministry of Labour engages in data analysis and prepares reports for decision-makers, with recommendations for the design and development of future programmes. The Government also refers to the development of a system to follow-up on and evaluate programmes and projects, which includes the elaboration of studies aiming to assess the impact of projects implemented by the Ministry. The information derived from these studies enables evidence-based decision-making. The Committee requests the Government to continue to provide detailed updated information on the measures taken to improve its labour market information system, and to provide further information on its system to follow-up and evaluate active labour market programmes and projects, including its impact on the design, implementation and review of employment policy measures. Noting the 2018 data provided by the Government on time-related underemployment disaggregated by sex, the Committee further requests the Government to provide complete and updated statistics on the levels and trends of employment, unemployment and underemployment in the country, disaggregated by age and sex.

Education and training. In its previous comments, the Committee requested information concerning the results achieved through implementation of the Jordan National Employment-Technical and Vocational Education and Training (E-TVET) system, its impact on specific groups of workers, and the manner in which the social partners and other concerned stakeholders are consulted with respect to the development, implementation and coordination of education and training. The Committee notes that, in response to its previous comment on the issue of consultation with social partners, the Government refers to the adoption of Law No. 9 of 2019 on the development of vocational and technical skills. Pursuant to section 4 of this Law, the functions of a newly established body, the Vocational and Technical Skills Development Council, include the adoption of the Ministry’s strategies, policies and plans to develop the sector of education and vocational and technical training, and the proposal of draft laws and regulations pertaining to this sector. The Committee observes that the Council’s membership includes representatives from various Ministries and from the private sector in different branches of activity, such as health, commerce, construction and tourism. It is, however, not clear from the report of the Government whether this body is tripartite. The Committee recalls that Article 3 of the Convention requires consultation with the representatives of the persons affected by the measures to be taken and, in particular, representatives of employers and workers. The Committee further notes that the National Employment–Technical and Vocational Education and Training (E–TVET) Strategy expired in 2020. The Committee requests the Government to provide information on the results achieved through the implementation of the E-TVET Strategy, the challenges encountered, the lessons learned and on any plans to renew the strategy. Noting the multiple training initiatives undertaken by the Government over the reporting period, the Committee also requests the Government to continue to provide information on the impact of the education and vocational trainings provided on labour market participation and the implementation of the national employment policy. In addition, the Committee requests the Government to provide further information on the role of the social partners in the consultation process of the Vocational and Technical Skills Development Council in practice.

Specific groups of workers. In its previous comments, the Committee requested the Government to provide information on the results achieved through implementation of the E-TVET, on specific groups, including women, young persons, persons with disabilities, older workers, former inmates and refugees.

1. Women. The Committee notes that, in its concluding observations of 9 March 2017, the United Nations Committee on the Elimination of Discrimination against Women (CEDAW) had expressed concern at employment issues faced by women, including high unemployment rates, difficulties in accessing the formal labour markets concentration in low-paid jobs, and persistent gender wage gaps (see CEDAW/C/JOR/CO/6, paragraph 43). In this respect, the Committee notes the Government’s reference to the Production Branch Plant initiative, which extends investments from developing areas to areas where there are pockets of poverty. The initiative provides employment opportunities to unemployed women in areas of high poverty by entering into contracts with investors to set up production branch plants, with support from the Government. The Committee also notes the information provided by the Government on the training of young women in coordination and cooperation with a range of stakeholders. The Government indicates that the training programmes offered focus on activities such as sewing, embroidery, handicrafts and sales, as well as plumbing and maintenance of electrical appliances. The Committee observes, however, that according to data from a 2020 World Bank report, women continue to experience lower labour force participation rates and higher unemployment rates than men, with the unemployment rate of women with bachelor degrees or above standing at 32 per cent in 2019.

2. Youth. The Committee observes from the World Bank report that the unemployment rate of young persons of 15 to 24 years of age reached 40.6 per cent in 2019. In comparison, the ILOSTAT database estimates that the youth unemployment rate stood at 37.3 per cent in the same year, with young women experiencing an unemployment rate of 49.4 per cent, which is more than 10 per cent higher than young men (34.8 per cent). In addition, the ILOSTAT database indicates that the share of the youth not in employment, education or training was of 36 per cent in 2019, with a considerably higher rate for young women (43.8 per cent) than for young men (29.3 per cent). The Committee notes in this context the adoption of the National Youth Strategy 2019–25, which covers, as part of its mission, the promotion of work for youth, as well as projects to encourage entrepreneurship and to support business incubators.

3. Persons with disabilities and refugees. The Committee notes the information provided by the Government in relation to measures to promote the employment of Jordanians and facilitate the participation of refugees in the Jordanian labour market. In addition, the Government refers to measures taken to promote the employment of persons with disabilities, including provision of training, amending the Guide to Employment of Persons with Disabilities, and conducting inspections to monitor the application of Article 13 of the Labour Code on the employment of persons with disabilities.

With regard to women’s access to employment, including in the public service, in occupations traditionally carried out by men and in occupations offering career prospects, the Committee refers the Government to its comments adopted in 2020 under the Discrimination (Employment and Occupation) Convention, 1958 (No. 111). The Committee also requests the Government to provide further information on measures taken, including in the context of the National Youth Strategy and in response to the COVID-19 crisis, to promote the employment of specific groups of workers, including women and young people, but also rural workers, persons with disabilities, older workers, former inmates, and refugees. The Committee requests the Government to include statistics on the employment rates of these groups of workers disaggregated by sex and age.

Article 3. Consultation with the social partners. The Committee notes that one of the outcomes envisaged under Priority III of the DWCP 2018–22 for Jordan is enhancing the contribution of the social partners to relevant tripartite bodies, such as the Jordan National Employment-Technical and Vocational Education and Training Council and the various skills bodies in different sectors. The Committee requests the Government to provide information on the nature of the measures taken and the results achieved, in the context of the DWCP 2018–22, to improve social partners’ contribution in the activities of the abovementioned bodies. The Committee also requests the Government to provide information on the consultations undertaken in the development, implementation and review of the new employment policy and its measures, in coordination with other economic and social policies. In the absence of up-to-date information on this issue, the Committee once again requests the Government to provide information on the activities of the “tripartite committee” in respect of these policies.