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Comments adopted by the CEACR: Cambodia

Adopted by the CEACR in 2021

C087 - Observation (CEACR) - adopted 2021, published 110th ILC session (2022)

The Committee notes the observations of the International Trade Union Confederation (ITUC), received on 1 September 2021, concerning matters examined in this comment and also denouncing that in August 2021: (i) Rong Chhun, the president of the Cambodian Confederation of Unions (CCU) and ex-president of the Cambodian Independent Teachers’ Association (CITA), who was arrested in July 2020 following his advocacy for villagers in a land dispute along the Cambodia–Vietnam border, was sentenced to two years imprisonment; and (ii) Sar Kanika, president of the Cambodian Informal Labourers’ Association, who also participated in these trade union activities in defence of the economic interests of farmers, was similarly sentenced to 20 months imprisonment. The Committee welcomes the news on the release of Mr Chhun and Ms Kanika in November 2021.
The Committee notes that the ITUC further denounces that over the past year a number of emergency laws and decrees were passed restricting the exercise of freedom of association. The ITUC alludes in particular to: (i) the Law on the Management of the Nation in Emergencies, alleging that it grants the Government broad powers to ban meetings and gatherings, to survey telecommunications, to ban or restrict news media that may harm “national security” and other measures that are “suitable and necessary”, with infractions punishable by heavy imprisonment terms and fines; and (ii) the Law on Measures to Prevent the Spread of COVID-19 and other Serious, Dangerous and Contagious Diseases, which includes bans on gatherings and unspecified “administrative and other measures that are necessary to respond and prevent the spread of COVID-19”. The ITUC alleges that such vague provisions allow for abuses by the authorities through arbitrarily targeting people and organizations protesting government policies. The ITUC also alleges that a problematic draft public order law would require approval from authorities for the use of public spaces and would permit authorities to stop an event if authorization has not been sought. The ITUC further alleges that Mrs Soy Sros, president of a local union affiliated to the Collective Union of Movement of Workers, was detained on 3 April 2020 by police in the Kompong Speu Province pursuant to a criminal complaint filed against her by the employer for having posted messages on social media related to a labour dispute concerning the unjust dismissal of a number of union members. The Committee notes that, as to the need to investigate allegations of violent repression of trade union activity, and detention or prosecution of trade union leaders for undertaking legitimate trade union activities, the Government: (i) informs that grievance and complaint procedures are in place at all levels and that any individual, including trade unionists, can use and benefit from them; (ii) notes in general that trade unions and trade unionists must submit their grievances to the responsible authorities, who will take immediate action in accordance with applicable rules and procedures, and provide relevant information so that the Ministry of Labour and Vocational Training (MLVT) can provide legal assistance accordingly; and (iii) states that if trade union leaders commit any criminal offence they shall be liable for it. While observing from publicly available information that there has been some evolution concerning the release of Mrs Soy Sros, the Committee regrets that the Government has not provided more information as to other specific allegations submitted to it by workers’ organizations and requests it to provide its detailed comments on all these serious allegations.

Follow-up to the conclusions of the Committee on the Application of Standards (International Labour Conference, 109th Session, June 2021)

The Committee notes the discussion which took place in June 2021 in the Conference Committee on the Application of Standards (the Conference Committee) concerning the application of the Convention by Cambodia. The Committee observes that the Conference Committee expressed deep concern at the continuing acts of violence against workers, the arrests of trade unionists in connection with their activities as well as the lack of effective and timely investigations in relation to these incidents and urged Government to: (i) investigate all allegations of violent repression of trade union activity and detention of trade union leaders; (ii) take all necessary measures to expedite the investigations into the murders of trade union leaders Chea Vichea and Ros Sovannareth (in 2004) and Hy Vuthy (in 2007) and ensure that the perpetrators of the crimes are brought to justice; (iii) undertake all necessary efforts to settle the legal proceedings against trade unionists in connection with the incidents during the January 2014 demonstrations, ensure that no criminal charges or sanctions are imposed in relation to the peaceful exercise of trade union activities and drop all criminal charges for those trade unionists charged in connection with the January 2014 demonstrations; and (iv) take all necessary measures to stop arbitrary arrest, detention and prosecution of trade unionists for undertaking legitimate trade union activity. The Conference Committee also noted that, while some positive steps have been achieved in bringing the law in line with the Convention, serious compliance issues remain unaddressed, and called upon the Government to: (1) provide the reports of the three committees charged with investigations into the murders of, and violence perpetrated against trade union leaders to the Committee of Experts; (2) ensure that acts of anti-union discrimination are swiftly investigated and that, if verified, adequate remedies and dissuasive sanctions are applied; (3) with the help of ILO technical assistance, develop guidelines, a code of practice or a handbook on the policing and handling of industrial and protest actions; (4) amend the Law on Trade Unions, in consultation with the social partners, to ensure compliance with the Convention; (5) ensure that workers are able to register trade unions through a simple, objective and transparent process; (6) continue to identify appropriate legal measures, in consultation with the social partners, to ensure that teachers, domestic workers and civil servants not covered by the Law on Trade Unions (LTU) have the freedom of association rights under the Convention; (7) repeal the literacy requirement in sections 20, 21 and 38 of the LTU; repeal paragraph 2 of section 28 of the LTU on the automatic dissolution of workers’ organizations in case of complete closure of an enterprise or establishment and repeal section 29 of the LTU on the dissolution of employers’ and workers’ organizations initiated by members of those organizations; (8) discuss with the social partners the possibility of allowing the formation of employers’ and workers’ organizations by sector or profession; and (9) increase its efforts to make the Arbitration Council an effective and sustainable institution in handling labour disputes and ensure that binding Arbitration Council decisions are effectively enforced in law and in practice. Finally, the Conference Committee recommended that the Government accept a direct contacts mission as soon as possible. In this respect, the Committee welcomes that by a communication of 10 August 2021 the Government accepted the direct contacts mission and is in contact with the ILO in order to organize its realization whenever feasible in the context of the COVID-19 pandemic.

Trade union rights and civil liberties

Murders of trade unionists. With regard to its long-standing recommendation to carry out expeditious and independent investigations into the murders of trade union leaders Chea Vichea and Ros Sovannareth (in 2004) and Hy Vuthy (in 2007), the Committee notes that: (i) as to the murder of Chea Vichea the Government indicates that re-investigation is currently under the authority of the Phnom Penh Police, noting that in spite of the challenges the police have been making an effort to end the case, and reiterating that close collaboration of family members and all parties concerned remains indispensable; (ii) with regard to the murder of Ros Sovannareth, the Government recalls that the Court of Appeal reconsidered the case and issued a verdict in July 2019, where the suspect Thach Saveth was sentenced to 15 years of imprisonment for premeditated murder; and (iii) concerning the murder of Hy Vuthy, the Government recalls that Chan Sophon, the suspect who was arrested in September 2013, filed an appeal and was released in February 2014, and notes that the other suspect who was also sentenced in absentia, Phal Vannak, is under arrest warrant. The Committee notes, on the other hand, that the ITUC denounces once again the nonresolution and lingering impunity with regard to these murders 17 and 14 years after they occurred. The Committee reiterates its deep concern at the lack of progress concerning the investigations, and refers in this respect to the conclusions and recommendations of the Committee on Freedom of Association in its examination of Case No. 2318 (see 396th Report, November 2021, paragraphs 166 to 172).  Recalling once again the need to conclude the investigations and to bring to justice the perpetrators and the instigators of these crimes, the Committee firmly urges the competent authorities to take all necessary measures to expedite the process of investigation and report on meaningful progress.
Incidents during the January 2014 demonstrations. Concerning the trade unionists facing criminal charges in relation to incidents during the January 2014 demonstrations, in its previous comment the Committee had noted with interest that the six trade union leaders that had initially been sentenced to a suspended three years and six months imprisonment were acquitted of all charges on 28 May 2019; had further noted, as to other trade unionists under judicial procedures, that a working group had been established to follow up with the court in order to expedite the settlement; had taken note of detailed statistics concerning the settlement efforts; and had requested the Government to continue providing information on pending procedures. The Committee notes that in its latest report the Government: (i) reiterates that the riot that took place could not be considered as peaceful exercise of trade union activities, and that it was a politically motivated act; (ii) states that the complaints were submitted to the competent courts that ruled at their discretion in accordance with the evidence provided (some suspects were discharged if they were innocent in accordance with procedural rules); (iii) indicates that as of November 2021 there were few criminal cases under the court proceedings and none of these cases were related to the exercise of freedom of association; and (iv) recalls that the MLVT and the Ministry of Justice have been working together to provide legal support to trade unionists whose court cases are still pending. The Committee notes, on the other hand, that the ITUC: (i) recalls that garment workers were protesting for a liveable minimum wage and that, in return, military police opened fire killing and wounding several of them; (ii) laments that after seven years there remain unsolved cases concerning the arbitrary arrests and detention of trade unionists following the 2014 protests; and (iii) denounces that several trade unionists still have criminal or civil charges pending against them for their peaceful participation in the demonstrations. The Committee further notes that, in reply to the request of the Conference Committee to provide the reports of the three committees charged with investigations into the murders of, and violence perpetrated against, trade union leaders, the Government reiterates that it cannot share the detailed reports of the three committees as they pertain to internal affairs of the country, but that, as reported to the direct contacts mission in 2016, the conclusions of the three committees were submitted to the competent courts for further proceedings and the Government will be able to share the outcome of the court proceedings once available. The Committee requests the Government to continue providing information on the pending legal procedures against trade unionists, in particular on any verdicts issued, as well as to provide detailed information on any court rulings resulting from the conclusions of the fact-finding committees investigating the allegations of killings, physical violence and arrests of protesting workers, as well as all materials from the fact-finding committees’ reports that do not directly implicate internal affairs of the country.
Training of police forces in relation to industrial and protest action. In its previous comments, recalling that the intervention of the police should be in proportion to the threat to public order and that the competent authorities should receive adequate instructions so as to avoid the danger of excessive force in trying to control demonstrations that might undermine public order, the Committee encouraged the Government to consider availing itself of the technical assistance of the Office in relation to the training of police forces, with a view, for example, to the development of guidelines, a code of practice or a handbook on handling industrial and protest action. The Committee duly notes that the Government informs that: (i) 120 police officers from four different units received the training co-organized by the MLVT and the Office of the High Commissioner for Human Rights, with the support of the ILO; (ii) follow-up trainings took place in 2020, with a total of 550 police officers participating in trainings on the rights to strike and peaceful demonstration; and (iii) in light of the outcomes of such trainings, the MLVT will continue liaising with relevant institutions to conduct consultations on the development of a guideline on measure on labour disputes and industrial action, and a request for technical support will be submitted to the ILO in due course. The Committee requests the Government to continue providing information in this regard, in particular as to the development, with the assistance of the ILO, of guidelines, a code of practice or a handbook on the policing and handling of industrial and protest actions, and as to the number of police officers participating in training sessions, the duration of such training, and the subjects covered, including as to whether the disciplinary consequences of using excessive force are part of the training.

Legislative issues

The Committee notes that the Government reiterates the information provided on the amendments to the LTU that entered into force in January 2020, stating that they resulted in an increment in the number of professional organizations registered, and indicating that out of the 5,650 professional organizations registered, 5,352 are local worker unions, 247 federations of worker unions, 40 confederations of worker unions and 11 employer associations. The Committee notes the Government’s indication that it is unnecessary to further amend the LTU; the Government notes that a key priority is to raise awareness of trade unionists on the provisions of the LTU, it welcomes further consultations to review the content of the LTU and its implementation and it would like to seek ILO support to organize trainings on the LTU to build the capacity of social partners. The Government further encourages workers and trade unionists to bring any complaint to the MLVT in the event of any irregularity with respect to registration, representation and exercise of freedom of association under the LTU. On the other hand, the Committee notes that the ITUC alleges that the amendments to the LTU failed to bring it into conformity with the Convention and that trade unions report that the Government did not meaningfully engage with them and refused to consider the unions’ proposed amendments, which would have ensured compliance with the Convention.
Article 2 of the Convention. Rights of workers and employers, without distinction whatsoever, to establish and join organizations. In its previous comments the Committee has been urging the Government to take appropriate measures, in consultation with the social partners, to ensure that civil servants – including teachers – who are not covered by the LTU are fully ensured their freedom of association rights under the Convention, and that the legislation is amended accordingly. The Committee notes that the Government reiterates that the LTU is applicable to teachers working for private institutions and that civil servants and public school teachers can enjoy freedom of association pursuant to the Law on Associations and Non-Governmental Organizations (LANGO). The Government adds that the Convention does not require that the freedom of association of all individuals be covered by a single legal instrument, and indicates that these different regimes are due to the administrative system and division of authorities of the state institutions in charge of the registration of professional organizations. In this respect, the Committee must recall once again its prior emphasis that some provisions in the LANGO contravene freedom of association rights of civil servants under the Convention, as that law lacks provisions recognizing civil servants’ associations’ right to draw up constitutions and rules, the right to elect representatives, the right to organize activities and formulate programmes without interference of the public authorities, and the right to affiliate to federations or confederations, including at the international level, and subjects the registration of these associations to the authorization of the Ministry of Interior. In addition, the Committee has been noting that workers’ organizations and associations express deep concern at the lack of protection of teachers’ trade union rights (referring in particular to sanctions and threats to teachers seeking to organize). The Committee notes that the ITUC observations allege again that the regressive framework of the LANGO is not compliant with the Convention.  Regretting the continuing absence of progress in this respect, the Committee must once again urge the Government to take appropriate measures, in consultation with the social partners, to ensure that civil servants – including public sector teachers – who are not covered by the LTU are fully ensured their freedom of association rights under the Convention, and that the legislation applicable to them is amended accordingly.
As to domestic workers, the Committee notes that the Government states that the LTU is applicable to them. Furthermore, concerning the possibility of forming organizations by sector or profession, the Government indicates that there is no prohibition on the formation of organizations by sector or profession as long as the criteria stipulated in the LTU are met, and claims that the Convention does not require national law to expressly stipulate such provision. The Government adds that it would like to seek ILO assistance to organize trainings to promote public awareness of workers and employers in this regard. Having duly noted these indications, the Committee recalls that workers’ organizations have been expressing deep concern as to the difficulties faced by domestic workers and also workers in the informal economy in general seeking to create or join unions, since the LTU provides for an enterprise union model, whose requirements are often very difficult to meet by these workers, and that the law in practice does not allow for the creation of unions by sector or profession. The Committee further notes that the ITUC once again highlights in its observations, as one of the most relevant shortcomings of the national legislation, that domestic workers, workers in the informal economy and others not organized on an enterprise model, still cannot in practice form and join unions. The Committee encourages the Government to promote the full and effective enjoyment of the rights under the Convention by domestic workers and workers in the informal economy. For these workers and other workers who are not easily organized on an enterprise level model, the Committee requests the Government to take any necessary measures to allow the formation of unions by sector or profession, in consultation with the social partners and with the assistance of the ILO.
Article 3. Right to elect representatives freely. Requirements for leaders, managers, and those responsible for the administration of unions and of employer associations. In its previous comment the Committee had requested the Government to take the necessary measures to amend sections 20, 21 and 38 of the LTU to remove the requirement to read and to write Khmer from the eligibility criteria of foreigners. The Committee notes that the Government indicates in this respect that the LTU was amended through tripartite consensus and that the requirement is not incompatible with the Convention. On the other hand, the Committee notes that the ITUC observations denounce again the requirement as one of the important pending hurdles to conform the LTU to the Convention. The Committee further recalls that the legal imposition of literacy requirements for the eligibility of representatives is incompatible with the Convention (see 2012 General Survey on the fundamental Conventions, paragraph 104). The Committee requests once again that the Government take the necessary measures to remove the requirement to read and to write Khmer from sections 20, 21 and 38 of the LTU. The Committee requests the Government to provide information on any developments in this respect.
Article 4. Dissolution of representative organizations. In its previous comments the Committee had requested the Government to amend paragraph 2 of section 28 of the LTU, providing that a union is automatically dissolved in the event of a complete closure of the enterprise or establishment. The Committee observed that the 2019 amendments to the LTU retained under paragraph 2 of section 28 the automatic dissolution of a union in the event of a complete closure of its enterprise or establishment, but included an additional condition: complete payment of workers’ wages and other benefits. The Committee notes that the Government reiterates that the amendment was made to ensure the interests of workers and trade unions when the enterprise is closed down, that the amendment was thus welcomed by the unions, and that as local unions are legally attached to the existing enterprise where they are formed, when that enterprise no longer legally exists the local union should no longer exist either. In this respect, the Committee must recall that, while the payment of wages and other benefits may be one of the reasons why a union may have a legitimate interest to continue to operate after the dissolution of the enterprise concerned, there may be other legitimate reasons for it to do so (such as defending other legitimate claims, including against any legal successors of the former company). Recalling that the dissolution of a workers’ or employers’ organization should only be decided under the procedures laid down by their statutes, or by a court ruling, the Committee requests once again that the Government take the necessary measures to amend section 28 of the LTU accordingly by fully removing its paragraph 2.
Grounds to request dissolution by Court. The Committee has also been requesting the Government to take the necessary measures to amend section 29 of the LTU, which affords any party concerned or 50 per cent of the total of members of the union or the employer association the right to file a complaint to the Labour Court to request a dissolution. Observing that the 2019 amendments to the LTU did not modify the provision in question, and noting that members can always decide to leave the union, the Committee recalled in its previous observation that the manner in which members may request dissolution should be left to the organization’s by-laws. Noting that the Government does not provide any additional comments in this regard, the Committee once again requests it to take the necessary measures to amend section 29 of the LTU so as to leave to the unions’ or employers’ associations own rules and by-laws the determination of the procedures for their dissolution by their members.

Application of the Convention in practice

Independent adjudication mechanisms. In its previous comments the Committee has been recalling the importance of ensuring the effectiveness of the judicial system as a safeguard against impunity, and an effective means to protect workers’ freedom of association rights during labour disputes, as well as to address the serious concerns raised on the independence of the judiciary and its impact on the application of the Convention. The Committee has also welcomed the Government’s commitment to strengthen the Arbitration Council (AC) and trusted that the AC would continue to remain easily accessible and to play its important role in the handling of collective disputes, and that any necessary measures would be undertaken to ensure that its awards, when binding, are duly enforced. The Committee notes with interest the Government’s indication that the new amendment to the Labour Law has expanded the jurisdiction of the AC to also cover individual disputes, and that the Government reiterates its firm commitment to supporting the operation of the AC and ensuring the sustainability of this institution. The Committee further notes that the Government indicates, as to the AC decisions, that the disputing parties are required to choose between a binding or a non-binding award from the outset, and that in case of non-compliance with a binding award the party concerned may file a complaint to the competent court to seek enforcement. Emphasizing the importance of the independence of adjudication mechanisms, the Committee invites the Government to continue to provide information on the operation of the AC, including on the number and nature of disputes brought before it and as to the extent of compliance with non-binding AC awards, as well as the use of the courts to ensure that the AC awards, when binding, are duly enforced, including the number of court rulings issued to this end.
The Committee is raising other matters in a request addressed directly to the Government.

C087 - Direct Request (CEACR) - adopted 2021, published 110th ILC session (2022)

Article 2 of the Convention. Right of workers to establish organizations without previous authorization. Registration requirements. In its previous comments, the Committee had observed that the March 2017 direct contacts mission highlighted concerns raised by workers’ organizations in relation to the requirements for acquisition and maintenance of registration and their application in practice, including allegations of arbitrary denial of applications and of introducing through regulations new requirements not set out in the law. The Committee had noted that, as reported by the Government: (i) following a trade union forum on the matter, the Ministry of Labour and Vocational Training (MLVT) issued Instruction No. 39/18, directing all departments in charge of registration to facilitate the registration process, including as to not requiring family background and allowing administration staff of the federation or confederation union to assist local worker unions members; (ii) 72 labour inspectors participated in a training on registration procedures; and (iii) on 31 May 2019, the MLVT issued Instruction No. 53/19, calling on the competent departments to revise the required documents for federations and confederations of workers’ unions, eliminating a number of requirements. The Committee notes that the Government further reports that: (i) the requirements set out in the Law on Trade Unions (LTU) should not be construed as barriers to registration; (ii) the MLVT has not received any complaint purely regarding the rejection, suspension or dismissal of registration; (iii) requests by the registrar to rectify incorrect information in an application form should not be construed as a restriction to registration; (iv) the legal procedures are to ensure that trade unions are established to protect the legitimate rights and benefits of workers; (v) the developments in the registration procedures are reflected in the increasing number of trade union registrations, in spite of the challenges posed by the COVID-19 pandemic - with 394 new organizations registered; and (vi) the MLVT welcomes all complaints with respect to the registration process so the authorities can investigate and address them. The Committee, on the other hand, notes that the observations of the International Trade Union Confederation (ITUC) allege, referring to concrete examples, that despite some amendments to the application forms, the registration of trade unions remains difficult, with applications denied for arbitrary reasons or for extremely minor technical errors. The Committee requests the Government to provide its comments in this respect and, in consultation with workers’ organizations, to continue assessing the operation of the registration procedures, as well as taking any additional necessary measures to ensure that registration operates as a simple and swift formality that does not entail any discretion or prior authorization.
Articles 2 and 3. Financial audit and maintenance of registration. In its previous comment, the Committee observed that the 2019 amendments to the LTU introduced: (i) a new section 27 requiring organizations not only to present a financial statement to their members but also to have them audited by an independent firm if so requested by either any donor or by a percentage of its members (10 per cent for local unions and 5 per cent for federations or confederations); and (ii) a new section 17 on maintenance of registration, requiring not only the submission of annual financial statements and activity reports, but also their audit by an independent audit firm if so requested by either any donor or by a percentage of its members (10 per cent for local unions and 5 per cent for federations or confederations). The Committee considers that these provisions could subject unions to the threat of frivolous audit requests, which would entail an onerous burden to maintain registration. Such audits should only be required if there are serious grounds for believing that the actions of an organization are contrary to its rules or the law (which should not infringe the principles of freedom of association enshrined in the Convention), for example substantiated claims of embezzlement or lack of legitimacy or independence. The Committee notes that the ITUC observations allege in this respect that the LTU grants excessive financial control by the authorities, including unlimited audits, which infringes the right of workers to administer their organizations.  Noting that the Government does not provide any additional comments in this regard, the Committee once again requests it, in consultation with the representative organizations concerned, to revise sections 17 and 27 of the LTU, so that audits to the financial statements and activity reports are only required if there are serious grounds for believing that the actions of an organization are contrary to its rules or to the law.
Quorum and decision-making requirements in union’s by-laws. In its previous comments, the Committee had noted the Government’s indication that requirements for union by-laws set out in section 13 of the LTU (absolute majority quorum for decisions on strike and on amendment to statutes, as well as for general assemblies of unions, and an absolute majority vote for a decision to go on strike) did not require actual presence through face to face meetings, and that unions may opt for any convenient way to convene and determine participation in their meetings, as stipulated in their by-laws, as long as the meeting quorum is met. The Government further indicated that misunderstandings concerning the application of the provision were clarified during the tripartite workshop of 24 March 2017 but that there was room for improvement through further consultations; that since the workshop the MLVT had not received any inquiries related to the application of section 13 of the LTU; and that an annual trade union forum was being conducted to review the implementation of the LTU. Not having received any additional information on the matter, the Committee expects that the Government will continue to take any necessary measures, including in the context of further amendments to the LTU, to clarify the application of the quorum requirements and enable unions to freely determine in their statutes or by-laws any alternative means to actual presence (such as proxies or delegations) to meet the required quorum, including in relation to higher level organizations.
Article 3. Right of employers’ and workers’ organizations to organize their activities and formulate their programmes. In its previous comments, the Committee referred to the need to amend section 326(1) of the Labour Law whereby, in the absence of agreement between the parties on the minimum service in an enterprise for the protection of the facility installations and equipment where a strike is taking place, the MLVT is empowered to determine the minimum service in question. The Committee also requested the Government to provide information on the application in practice of section 326(2) of the Labour Law, in particular any example of the sanctions imposed on workers for serious misconduct. The Committee had noted the Government’s indication that the MLVT had consulted with the relevant parties on the application of section 326 of the Labour Law in drafting a regulation to determine the minimum services in an enterprise where a strike is taking place. The Committee had further welcomed the Government’s indication that it would request ILO technical assistance to organize a tripartite consultation on the draft regulation. Not having received any additional information on the matter and recalling its previous recommendations, the Committee requests the Government to provide information on any developments in this regard, including as to the application in practice of section 326 of the Labour Law.
The Committee had also noted in its previous comments that the ITUC denounced, as common practices, the replacement of workers and the granting of injunctions to preclude industrial action, even when all the procedures had been followed by the unions. The ITUC observations included allegations of violent repression of strikes by hired criminals, as well as of mass dismissals of striking workers and of detention of union leaders organizing strike action in the garment sector. The Committee had also noted that, according to the Government: (i) injunctions were issued to protect private properties and prevent the loss of welfare or lives of workers; (ii) injunctions were never issued against strikes properly conducted in accordance with the law, but only if the strike was illegal, so that all striking workers were required to return to work within 48 hours and otherwise were considered as having committed serious misconduct and are subject to dismissal; (iii) due to the lack of effective enforcement of related laws and regulations, the increase in illegal strikes by opportunist trade union leaders for their personal benefit would jeopardize the effort to develop constructive and peaceful industrial relations; and (iv) 99 per cent of the strikes did not comply with at least one or more of the legal requirements. The Committee had thus observed that both the ITUC’s observations and the Government’s reply confirmed the existence of important issues and challenges concerning the legality of the exercise of industrial action in the country.  Not having received any additional information on the matter, the Committee requests once again the Government to hold a comprehensive tripartite dialogue on the issues raised concerning the legality of the exercise of industrial action, with a view to reviewing existing regulations and their application in practice, and undertaking any necessary measures to guarantee the lawful and peaceful exercise of the right to strike.
Articles 5 and 6. Capacity of higher-level organizations to represent their members. The Committee notes that the ITUC observations denounce the refusal of the MLVT to allow upper-level trade unions to represent or provide support to their members in collective disputes. The ITUC alludes, as an example, to a collective labour dispute conciliation case in which the authorities allegedly declared that leaders of federations and confederations were not allowed to speak during the meeting and were told that unions with most representative status could not have anyone represent them. The Committee requests the Government to provide its comments in this respect.

Adopted by the CEACR in 2020

C098 - Observation (CEACR) - adopted 2020, published 109th ILC session (2021)

The Committee notes the observations of the ITUC, received on 21 September 2020, alleging that the December 2019 amendments to the Trade Unions Law failed to bring it in conformity with the Convention and arguing in particular that anti-union discrimination sanctions remain far too low to be dissuasive. The Committee requests the Government to provide its comments in this respect.
Not having received other supplementary information, the Committee reiterates its comments adopted in 2019 and reproduced below.
The Committee notes the observations of the International Trade Union Confederation (ITUC) dated 1 September 2019 referring to matters examined in this comment.
The Committee takes note of the comments of the Government in reply to the 2016 and 2017 ITUC observations. Concerning the allegations of extended use of short-term contracts to terminate employment of trade union leaders and members and weaken active trade unions, the Government states that the Law on Trade Unions (LTU) provides remedies for both dismissal or non-renewal of fixed-term contracts due to anti-union discrimination and, if verified, the labour inspectors instruct the employer to reinstate the workers or impose a substantial fine. The Government adds that, to avoid misinterpretation of legal provisions concerning fixed-term contracts, the Ministry of Labour and Vocational Training (MLVT) conducted consultations with the social partners and other actors, such as the Arbitration Council, and that a common understanding was reached that the maximum duration of fixed-term contracts would be four years and, if exceeding this maximum period, the contract would be considered as having unfixed duration. This was reflected in an Instruction on determination of the type of employment contract, issued by the MLVT on 17 May 2019. While taking due note of the information provided, the Committee requests the Government to ensure that all measures are taken to monitor, in consultation with the social partners, that fixed-term contracts are not used for anti-union purposes, including through their non-renewal, and to continue to provide information in this respect.
Articles 1 and 3 of the Convention. Adequate protection against anti-union discrimination. For many years, several workers’ organizations, in particular the ITUC – including in its most recent observations, have been denouncing serious and numerous acts of anti-union discrimination in the country. The Committee notes that the Government indicates in this regard that the MLVT: (i) issued an administrative letter on 31 May 2019 to all employers and their associations to ensure strict and effective implementation of the provisions relating to anti union discrimination; (ii) invited employers’ representatives from 50 companies to disseminate information on the special protections against anti-union discrimination; and (iii) met with the representative of the Cambodia Labour Confederation (CLC) on two different occasions (13 June and 18 July 2019) to follow-up on its 44 cases before the courts (the Government informs that 11 of these were resolved with acquittal of charges and that the MVLT is working closely with the Ministry of Justice to review the remaining cases). While welcoming the steps undertaken for the effective implementation of the protections against anti-union discrimination, the Committee observes that, other than the reference to two meetings with the CLC, it has not received more detailed information on the numerous and grave allegations of anti-union discrimination laid out in previous observations of workers’ organizations. The Committee requests the Government to provide detailed information on the handling of the allegations of anti-union discrimination laid out in the observations of the ITUC in 2014, 2016 and 2019, and recalls the need to take all necessary measures to ensure that anti-union discrimination allegations are investigated by independent organs that enjoy the confidence of the parties and that, whenever such allegations are verified, adequate remedies and sufficiently dissuasive sanctions are applied.
Furthermore, in its previous comments, the Committee urged the Government to ensure that national legislation provided adequate protection against all acts of anti-union discrimination, such as dismissals and other prejudicial acts against trade union leaders and members, including sufficiently dissuasive sanctions. The Committee had taken note, in this respect, of the ITUC’s observations that penalties provided for under the LTU for anti-union practices by employers were too low (a maximum of 5 million Cambodian riels (KHR), equivalent to US$1,250) and may not be sufficiently dissuasive. The Committee was of the view that fines for unfair labour practices provided for in the LTU may be a deterrent for small and medium-sized enterprises, but would not appear to be so for high-productivity and large enterprise cases. The Committee had thus invited the Government to assess, in consultation with the social partners, the dissuasive nature of sanctions in the LTU or any other relevant laws. The Committee notes that the Government replies by affirming that the existing legal mechanisms set out adequate protection against anti-union discrimination. The Government indicates that: (i) in addition to the application of the provisions and remedies in the LTU concerning anti-union discrimination (Chapter 15), the LTU itself acknowledges (section 95) that other criminal laws may be applied to punish these actions (violence and discrimination against worker unions being criminal offences under sections 217 and 267 of the Penal Code) and that the employer could thus even face imprisonment, for example if the actions entailed violence; (ii) in addition to the fines imposed by the LTU, those affected can also claim compensation; (iii) the MLVT has never received complaints or grievances from trade unionists regarding existing sanctions; and (iv) the Government is committed to further strengthening the capacity of labour inspectors and raising the awareness of workers on their rights. The Committee observes, on the other hand, that, while several consultation meetings were held on the review and amendment of the LTU, the Government does not indicate that, as recommended by the Committee, these tripartite fora were used to assess the effective and dissuasive nature of the protections against anti-union discrimination. Moreover, the Committee notes that the ITUC observations, in addition to the concrete cases noted above, denounce in general a lack of action and adequate protection against rampant anti-union discrimination. The Committee requests the Government to provide detailed statistical information on the application of the different mechanisms to protect against anti-union discrimination, including as to sanctions and other remedies effectively imposed, for example reinstatement or compensation. The Committee further requests the Government to assess, in light of such data, and in consultation with the social partners, the appropriateness of existing remedies, in particular the dissuasive nature of sanctions; and to provide information on any development in this regard.
Article 4. Recognition of trade unions for purposes of collective bargaining. In its previous observation, noting that the Government’s statement that by lowering the most representative organisation threshold to 30 per cent, the law encouraged the increase of collective agreements, the Committee had invited the Government to assess the impact of the implementation of the LTU by providing statistics on: (a) the number of representative organizations identified based on their having secured at least 30 per cent of workers’ support without an election, and the number of collective agreements concluded by these representative organizations; and (b) the number of separate elections organized based on no union having secured 30 per cent support, and the number of collective agreements concluded by the organizations so elected. The Committee notes that the Government provides the following information: (i) the number of representative organizations having secured at least 30 per cent of workers’ support without election were four unions in 2018 (all in the garment sector, covering 3,226 workers) and 15 unions in 2019 (11 in the garment sector, covering 11,070 workers and four in the hotel sector, covering 890 workers); and (ii) the number of collective bargaining agreements concluded in 2018 and 2019 was seven (in 2018, four collective bargaining agreements were concluded between the employer and the shop steward; and, in 2019, three collective bargaining agreements between the employer and a most representative status union). The Government indicates that the information concerning point (b) above will be provided in its next report. The Committee further observes that the March 2017 direct contacts mission (DCM) recommended the Government to take the necessary measures, including issuing instructions to the competent authorities, to ensure that most representative status are recognized without delay and without the exercise of arbitrary discretion to workers’ organizations or coalitions of organizations meeting the minimum threshold. In this respect, while noting that the Government indicates that it issued an Instruction on the Facilitation for the Most Representative Status Certification and that one of the objectives of the amendments to the LTU is to facilitate the requirements to obtain most representative status, the Committee observes that the number of organizations having secured at least 30 per cent of workers’ support without election, as well as the number of collective bargaining agreements concluded, for 2018 and 2019, were very low. The Committee requests the Government to keep on providing information on the number of organizations recognized as having the most representative status, and the number of collective agreements in force, indicating the parties that concluded the agreement (in particular, if a most representative union, a bargaining council or a shop steward), the sectors concerned and the number of workers covered by these agreements; as well as information on any additional measures undertaken to address the issues noted by the DCM concerning the recognition of most representative status organizations, and to promote the full development and utilization of collective bargaining under the Convention.
Articles 4, 5 and 6. Right to collective bargaining of public servants not engaged in the administration of the State. In its previous comments the Committee had urged the Government to take the necessary measures, in consultation with the social partners, to ensure that public servants not engaged in the administration of the State, including teachers, who are governed by the Law on the Common Statute of Civil Servants and the Law on Education with regard to their right to organize, enjoy collective bargaining rights under the Convention. The Committee notes that, in its reply, the Government indicates that civil servants, including teachers, can form associations in accordance with the Law on Associations and Non-Governmental Organizations (LANGO), but does not provide any information on measures to ensure that public servants not engaged in the administration of the State can exercise the right to collective bargaining. Regretting the lack of progress in this respect, the Committee urges once again the Government to take the necessary measures, in consultation with the social partners, to ensure that public servants not engaged in the administration of the State, including teachers, enjoy collective bargaining rights under the Convention. The Committee requests the Government to report on any measures taken or envisaged in this regard and recalls that it may avail itself of the technical assistance of the Office.

Adopted by the CEACR in 2019

C122 - Direct Request (CEACR) - adopted 2019, published 109th ILC session (2021)

Articles 1 and 3 of the Convention. Formulation and implementation of an active employment policy. Consultations with the social partners. The Committee notes that in order to implement the National Employment Policy 2015–2025 (NEP), the Inter-Ministerial Committee adopted a three-year Action Plan 2017–19, developed in consultation with the social partners. The Government indicates that the secretariat of the NEP has been drafting a report on progress made in implementing the NEP by 2017. Once completed, the report will be reviewed by the social partners. The Government adds that one of the challenges identified with regard to the implementation of the NEP is insufficient reporting of NEP achievements at national and local levels, due to limited capacity among the designated officials and the limited budgetary resources available for the implementation of NEP-related activities. The Committee notes the Government’s indication that there is a need to build capacity to support the successful implementation of the NEP. On the other hand, the Committee notes the new Decent Work Country Programme 2019–23 (DWCP) for Cambodia, which aims to contribute to the achievement of Cambodia’s national development objectives by 2030 and will support implementation of the Rectangular Strategy IV, the National Strategic Development Plan 2019–2023 and the Cambodian Sustainable Development Goals. The DWCP focuses on: promoting employment and sustainable enterprise development; strengthening and expanding social protection, including occupational safety and health; and improving industrial relations and rights at work. It also aims to ensure access to sustainable, decent and productive work for all in the context of an increasingly formalized and inclusive labour market and enhanced social dialogue. The Committee requests the Government to provide updated detailed information on the nature and impact of the measures adopted within the framework of the NEP 2015–2025 and on progress in its implementation, as well as on other active labour market measures adopted with the objective of creating opportunities for decent, productive and sustainable employment. The Government is requested to communicate a copy of the report of the NEP secretariat once it is available. In addition, the Committee requests the Government to provide information on the manner in which groups affected by those measures are involved in the process of their development and implementation. Moreover, the Committee requests the Government to provide information on the steps taken to build the requisite capacity and allocate the budgetary resources necessary to ensure the successful implementation of the NEP. The Committee also requests the Government to provide information on the development, implementation and impact of specific measures undertaken within the framework of the Decent Work Country Programme 2019–23, including with regard to the participation of the social partners in the development and implementation of such measures.
Article 2. Labour market statistics and information. The Committee notes the brief response provided by the Government to its previous request concerning labour market trends. According to the statistics provided in relation to labour force participation in Cambodia in 2016, the Committee notes significantly lower employment rates among persons over the age of 44. The Committee also notes that women in all age categories experience lower employment rates than men. Moreover, the Committee notes that, according to the 2018 World Bank report and the DWCP 2019–23, women are under-represented at the managerial and technical levels in comparison to their male counterparts, due to lower rates of completion of primary school education. The Committee requests the Government to provide up-to-date information, including statistical data disaggregated by sex and age, on employment trends, including on employment, unemployment and visible underemployment in Cambodia. The Committee also requests the Government to provide information on measures taken to promote employment opportunities for older workers and women in all age categories.
Education and training policies. The Government indicates that the National Training Board (NTB) is responsible for monitoring and evaluating the Technical Vocational Education and Training (TVET) Policy 2017–2025. The NTB coordination mechanism, chaired by the Ministry of Labour, is mandated to ensure the coordination of education and training policies with the national employment policy, and engages national ministries and institutions, the private sector and the social partners. The Government indicates that the NTB also develops national TVET policies and strategies, tailoring TVET to the needs of the national economy and ensuring effective links to workplaces and training institutes. Noting that the Government has not provided any updated statistical data on the impact of the measures adopted under the TVET Policy 2017–2025, the Committee reiterates its request that the Government provide the data requested, disaggregated by sex, age and type of training. The Committee further requests the Government to provide detailed information on the manner in which the National Training Board coordinates technical education and vocational training policies the with employment policy and on the role of the social partners in the consultation process.
Youth employment. The Committee notes that, in 2017, the Government conducted a skills demand analysis in relation to higher-education graduates in Cambodia, as part of the Higher Education Quality and Capacity Improvement Project (HEQCIP). The findings of the analysis indicate that 52 per cent of students are concentrated in 5 per cent of all bachelor programmes offered by Higher Education Institutions (HEI), in courses such as general management, banking and finance. The Committee notes that new programmes, which more accurately respond to the needs of the labour market, attract only a marginal number of students, making up only 2 per cent of total enrolments. While the majority of HEIs have adopted skills supply adjustment practices, including through involving relevant external stakeholders, training programmes related to sectors that are primary drivers of economic growth continue to be in lower demand. The Committee also notes that the demand for skills on the Cambodian labour market continues to increase at a pace that is 10–20 per cent faster than the supply of skills. According to the 2018 World Bank report previously mentioned, Cambodia is currently facing one of the most significant skills shortages in the region. The Committee notes that the Government has not provided any updated information on the United for Youth Employment in Cambodia programme. The Committee once again requests the Government to provide information on the impact of the United for Youth Employment in Cambodia programme, as well as on other employment measures adopted or envisaged to promote decent, productive and lasting employment for young women and men and reduce inequalities in the labour market. The Committee further requests the Government to provide information on measures taken or envisaged to address current skills shortages and ensure that the Cambodian labour force is equipped with skills which meet the current needs of the labour market.
Regional and rural development. In its 2017 comments, the Committee noted that the Cambodia–Laos–Viet Nam Development Triangle Area (CLV–DTA) would remain under review until 2020. The Government reports that the term of the CLV–DTA has been extended to 2030. The Government further indicates that, as decided by the CLV leaders, the development of the Project for Economic Connectivity for Cambodia, Laos, and Viet Nam will be undertaken by the Joint Coordination Committee (JCC). On the other hand, the Government indicates that the Action Plan for Economic Connectivity (APEC) was adopted in March 2018 by Viet Nam and calls for the establishment of a Tripartite Coordination Committee (TCC) mandated to develop a detailed action plan in collaboration with ministries, agencies and local bodies from Cambodia, Laos, and Viet Nam. The key activities of the APEC include strengthening cooperation in vocational training and higher education, with a focus on professions committed to mobility in the Association of Southeast Asian Nations (ASEAN), exchange of labour market information between the CLV countries, encouraging investment in education and training, and improving teacher qualifications. The Government indicates that, under the CLV framework, it is developing a project aimed at supporting vocational education and training for students from Cambodia, Laos, and Viet Nam to study in Viet Nam. It adds that Cambodian teachers and students are being trained in Viet Nam through a cooperation between a TVET institution in Ratanakiri and Viet Nam’s Vocational and Technical Schools. The Committee requests the Government to provide updated, detailed information on the nature and impact of the activities of the Tripartite Coordination Committee and the Joint Coordination Committee, as well as on the impact of measures taken under the APEC, particularly with regard to regional cooperation in vocational training and higher education. The Committee further requests the Government to provide information on the progress and impact of the project aimed at supporting vocational education and training for students from Cambodia, Laos, and Viet Nam to study in Viet Nam.
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