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

Direct Request (CEACR) - adopted 2024, published 113rd ILC session (2025)

Articles 1 and 2 of the Convention. Formulation and implementation of an active employment policy coordinated with other major public policies. The Government indicates that the Ministry of Labour, in cooperation with the ILO, in the framework of the Decent Work Country Work Program, seeks to expand decent work opportunities for Jordanian youth, promote working conditions, non-discrimination and equal labour rights. The Government adds that it also aims to expand decent work through the Social Security Corporation and different measures, among others: (i) the Law which amends the Social Security Law No. 11 of 2023; (ii) the Law which amends the Labour Law No. 10 of 2023; (iii) the establishment of the Better Work Department within the organisational structure of the Central Inspection Directorate at the Ministry of Labour; (iv) the Decent Work Project in the Flower Growing Sector, which benefited 1,065 trainees from Jordanians and Syrian refugees equally with 70 per cent of females and 20 per cent persons with a disability; and (v) the training of labour inspectors in different fields. The Government indicates that the National Employment Strategy (NES) was formulated to address employment issues and policies at the national level, and its vision includes improving the standard of living of Jordanians by increasing employment, wages, benefits and productivity. The Government indicates that the NES included 52 projects implemented by 22 government agencies, and the average achievement rate of programs and projects reached 87.4 per cent (42 completed projects and 10 stalled and delayed projects). The Government also indicates that there was no update to the original NES and refers to the launch of the National Employment Program, which aims to stimulate the private sector to provide job opportunities to unemployed Jordanians in all economic sectors and all governorates of the Kingdom as well as to the Government’s Economic Priorities Program during 2021–23.

The Committee wishes to recall that the Convention requires that member States not only formulate once but also that they periodically review their employment policy based on lessons learnt and in order to determine new objectives taking into account persisting challenges. The Committee notes, in this respect, that Jordan faces several significant challenges in terms of employment policy, in particular persistently high unemployment rates, particularly among youth and women. The COVID-19 pandemic has exacerbated this problem, leading to widespread job losses and increased job insecurity (World Bank, 2021 and GIZ Employment in Jordan Project 2030). Another major challenge is the low female labour force participation. Despite high levels of education among women, their participation in the labour market remains very low, around 15 per cent while this area is critical to ensure inclusive economic growth (GIZ Employment in Jordan Project 2030). The Committee also notes that the prevalence of informal employment is also a significant concern. A large portion of the workforce is employed in the informal sector, which lacks job security, social protection, and decent working conditions. Economic diversification is another challenge with Jordan’s economy not being sufficiently diversified, which limits job creation in various sectors and makes the economy vulnerable to external shocks (World Bank, 2021). Finally, the existing mismatch between the skills of the workforce and the needs of the labour market hampers productivity and economic growth (ILO, Platform Work in Jordan Challenges and opportunities, 2023). In view of the above, the Committee considers that the lack of updating of the originally adopted NES prevents the Government from benefitting from a holistic approach and a precious tool to effectively promote a more inclusive and resilient economic future though job creation, enhanced skills development, stronger women’s participation in the workforce, and the integration of informal workers into the formal economy. The Committee henceforthrequests the Government to provide detailed information on the measures taken or envisaged for the formulation and implementation of an integrated active employment policy after the expiry of the NES 2011–20 and how the results achieved, challenges encountered and lessons learned from the NES 2011–20 were taken into account in the formulation of subsequent measures. It also requests the Government to provide detailed information on the Government’s Economic Priorities Program during 2021–23 and the National Employment Program, including statistics on the impact of the measures to promote full, productive and freely chosen employment.

Impact of COVID-19. The Committee notes the information provided by the Government on the effects of the pandemic on the labour sector. For example, that the high unemployment rate rose from 23.2 per cent in 2020 to 24.1 per cent in 2021; the number of employed workers decreased from 76.8 per cent in 2020 to 75.9 per cent in 2021; the percentage of the unemployed increased from 23.2 per cent in 2020 to 24 per cent in 2021; the revised economic participation of women indicated a decrease from 14.2 per cent in 2020 to 14 per cent in 2021. The Committee also notes the different measures adopted by the Government to face the pandemic, which included issuing manuals and protocols on health prevention measures for sectors operating under Defence Order No. 6 of 2020, activating the remote work system for enterprises in whole or in part to continue carrying out their economic activity as one of the forms of flexible work, and safeguarding job opportunities by suspending section 23 of the Labour Law related to termination of services of indefinite employment contracts. The Committee further notes the information provided by the Government on the effects of the measures adopted, including that the number of workers registered under the umbrella of the Social Security Corporation increased, the acceleration of the pace of electronic transformation of inspection work, cooperation and coordination between State agencies and participation in decision-making taken during the crisis, the establishment of committees with several parties to maintain the economic cycle of the State and mitigate the impact of the pandemic on the private sector, consultations and coordination with the social partners in taking decisions and procedures. The Committee notes, in addition, different mechanisms adopted by the Government during the pandemic, including: (i) that under Defence Order 20 of 2020, powers were delegated to inspect health requirements such as physical distancing, wearing masks, and taking vaccination doses for some government agencies; (ii) the development of work plans to distribute the working hours of labour inspectors; (iii) the resolution of labour complaints; and (iv) the development of the digital and technological capabilities to face the labour challenges related to the pandemic. The Committee requests the Government to indicate how the lessons learned from the COVID-19 pandemic, including measures taken to promote inclusive employment and decent work fed into the policy formulation processes.

Article 2. Collection and use of labour market information. Employment trends. The Government indicates that evaluation studies have been conducted on the active labour market program and projects, such as the following: (i) preparation of studies to assess the impact of legislation, including a study to motivate women to enter the labour market (flexible work system); (ii) evaluation of the project of supporting and establishing a nurseries project in the public and private sectors; and (iii) evaluation of public employment services. The Government indicates that, in cooperation with the European Union, a comprehensive concept paper for the labour market system was developed and used as the basis for work to develop a Labour Market Information System (LMIS) project. The Committee notes that an LMIS is currently being established, in collaboration with ILO and GIZ, which is included in the priorities of the vision of economic modernisation to obtain comprehensive and timely information on the labour market. The Government adds that the LMIS aims to prepare effective employment policies and strategies and make evidence-based decisions by investing resources in employment, education and training, and harmonising supply and demand for labour. The Committee notes the statistical data updated until 2022 submitted by the Government on unemployment rates of Jordanians divided by age groups, unemployment rate of Jordanians according to gender, Jordanian labour force by sex and economic participation (including employed and unemployed), Jordanian labour force by age groups and percentage distribution of employed Jordanians according to age groups. The Committee also notes that there has been a decrease in unemployment among men in the period 2021–22 and a continuous increase in unemployment among women in the period 2018–22. The Committee also notes from information published by the World Bank that Jordan’s unemployment increased to 22.3 per cent, remaining well above its pre-COVID-19 crisis average of 15.1 per cent (2012–19), with youth (46.1 per cent) and women (30.9 per cent) being the most affected. The Committee requests the Government to continue to provide detailed updated information on the state of advancement of the new Labour Market Information System, as well as an assessment of active labour market programmes and projects, including their impact on the design, implementation and review of employment policy measures. The Committee further requests the Government to continue 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. The Committee notes that the Government has not provided the information requested under this point. The Committee reiterates its request to 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. The Committee also reiterates its request to the Government 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 reiterates its request to 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 categories of workers. In its previous comments, the Committee requested the Government to provide information on specific groups, including women, young persons, persons with disabilities, older workers, former inmates and refugees.

1. Women. The Committee notes the information the Government provided on women’s work. The Government indicates that the Ministry of Labour is working on numerous projects to provide opportunities for professional development and to increase the training and qualification of women, such as the project to enhance women’s participation in vocational training programs. The Government highlights the establishment of the Creative Women Centre (CWC) in cooperation with the European Union, the German Agency for International Cooperation and the Municipality of Amman. The CWC aims to train and qualify women on multiple specialised professional skills to enhance their entry into the labour market. The Committee notes the statistical information provided by the Government on the empowerment of women and their occupancy rate in leading and supervisory posts and the empowerment of women and their occupancy rate in government posts. The Committee also notes from information published in the Gender Data Portal from the World Bank that vulnerable employment among women in Jordan has remained nearly the same since 1991.

2. Youth. The Government indicates that the National Youth Strategy for the years 2019–25 was launched, and its mission aims to advance the work of youth and develop their cognition, skills and values to enable them to create, innovate, produce and participate in life. The strategy aims to achieve the following objectives: stimulate the private sector to provide job opportunities for Jordanian men and women, develop employment services and reduce unemployment, build the capacity of young people and those working with them to establish and manage effective initiatives, build youth centres and the necessary infrastructure to provide advanced services and provide friendly spaces for youth. The Committee notes the statistics conducted by the Vocational Training Corporation disaggregated by sex on the participation of men and women in vocational training courses.

3. Persons with disabilities. The Government indicates that 4 per cent of the jobs are allocated annually to persons with disabilities who meet the definition in section 3 of the Rights of Persons with Disabilities Law No. 20 of 2017. The Government adds that based on the provisions of section 45 of the Civil Service Law No. 9 of 2020, persons with disabilities shall be appointed following the instructions for selecting and appointing employees in government jobs. The Committee notes the statistical data provided by the Government on the number of persons appointed under “persons with disabilities” in the civil service departments for the period 2020–22 and their percentages of the total appointments of “humanitarian cases”.

4. Refugees. The Government indicates that Jordan hosted many refugees, who certainly added diversity but posed a significant challenge regarding essential services and infrastructure. However, despite its limited resources, Jordan was keen to provide and meet all aspects of decent livelihoods for refugees. In this connection, the Ministry of Planning and International Cooperation has indicated that the size of the financial requirements of the Jordanian response plan for the Syrian crisis for the current year amounts to US$2.276 billion. The Government adds that Jordan has adopted the National Plan to Respond to the Syrian Crisis 2020–22, which includes many axes within two main sectors: the protection of refugees and the support and empowerment of local communities hosting refugees. The Government points out that the Department of Refugee Affairs developed an action strategy to raise the level of services of all kinds for refugees, including services to reduce gender-based violence, build the capacity of service providers, and improve infrastructure. The Ministry of Social Development is also working on providing protection and social care for refugees, especially refugee women. The Government further informs that the 2016 Jordanian Charter was also issued, and it aims to facilitate women’s participation in the labour market by increasing permits. In 2022, 62,000 work permits were issued to Syrian refugees, and 31,000 flexible permits were issued to allow refugees to move between workplaces.

5. Rural workers, older workers, former inmates. The Committee notes that the Government has not provided detailed information concerning these groups of workers.

The Committee requests the Government to continue to provide information on measures taken to promote the employment of specific groups of workers, including women, young people, persons with disabilities and refugees, but also rural workers, older workers, and former inmates. 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. In its previous comments, the Committee had requested 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 to the activities of the abovementioned bodies and 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 its reply, the Government refers to the Labour Code, Section 43 with establishes the Tripartite Committee for Labour Affairs (TCLA), and the Regulation of the TCLA (Regulation No. 21 of 2010) issued on May 2010, in particular Section 3 related to the composition of the TCLA, and Section 6b establishing the tasks and powers of the TCLA. While taking note of this information, the Committee reiterates its requests to the Government to provide information on the concrete consultations carried out with a view to reviewing the outcomes of the expired employment policy and formulating and implementing the future one, in coordination with other economic and social policies.

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

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.

Direct Request (CEACR) - adopted 2017, published 107th ILC session (2018)

Articles 1 and 2 of the Convention. Formulation and implementation of an active employment policy. In its previous comments, the Committee requested the Government to provide information on the results achieved through its implementation of the National Employment Strategy (NES) and the results in relation to the employment priorities of the Decent Work Country Programme 2012–15. The Committee notes the detailed information provided by the Government in its report concerning the set of policies designed to address employment issues at the national level and improve the standard of living by increasing employment, wages, benefits and productivity, with a focus on women, young people and people with disabilities. The Government adds that the NES is reviewed periodically to ensure that it remains abreast of changes in the labour market and that employment policies are linked to economic and social policies, given that unemployment is a socio-economic problem. The principal policies in the NES to promote full and productive employment include: development policies, such as investment policies providing exemptions to branch plants to promote balanced regional development; labour market measures to ensure better matching of labour supply and demand; and educational and training policies linked to prospective employment opportunities, including measures to increase the participation of women in the labour market. The Committee notes that, according to available World Bank statistics, Jordan’s economy remains sluggish, with economic growth declining from 2.4 per cent in 2014 to an estimated 2 per cent in 2016. Moreover, the overall unemployment rate climbed to a high of 15.6 per cent in 2016. The labour force participation rate and employment rate declined during the same period, decreasing to 36 and 30.5 per cent in 2016, respectively (compared with 36.7 and 31.9 per cent in 2015). The Government indicates that difficulties encountered in attaining the objective of full, productive and freely chosen employment include poor alignment between labour market outcomes and labour market requirements, structural unemployment, and imbalances between rates of economic growth and job creation. The Committee requests the Government to provide updated information on the formulation and implementation of active labour market measures taken under the NES, in consultation with the social partners. It also requests the Government to indicate the manner in which employment policy measures are kept under review within the framework of an overall coordinated economic and social policy.

Article 2. Collection and use of labour market information. The Committee welcomes the detailed statistical information provided by the Government. The Government indicates that the Department of Statistics conducts a quarterly survey of employment and unemployment, using the information gathered to formulate policies aimed at regulating the national labour market. The information is based on data collected from the Population and Housing Census. The Government adds that the survey sample does not represent the non-Jordanian population, given that it is based on households living in conventional dwellings, while a large number of non-Jordanian workers live in groups or at their workplaces, which are not classified as occupied dwellings for household sampling purposes. The Government indicates that the Department of Statistics is developing a new employment and unemployment survey methodology in collaboration with the ILO. The Committee requests the Government to provide information on the measures taken or envisaged to improve its labour market information system, including information on the manner in which the data collected is used in designing, implementing and reviewing employment policy measures. It also requests the Government to continue to supply updated data on the situation, level and trends of employment, unemployment and underemployment, disaggregated by age and sex.

Education and training. The Government reports that the National Employment–Technical and Vocational Education and Training (E–TVET) Strategy 2014–20 links education, training and employment, seeking to review and assess vocational and technical training and education programmes to ensure that individuals acquire skills that can be transferred across a wide range of jobs. The E–TVET includes a component to promote inclusiveness, including by increasing the participation of women in the labour force. The Government also indicates that the Vocational Training Corporation (VTC) applies the concept of demand-driven training, following a partnership approach with stakeholders, in which employers play a key role in identifying their training needs. In providing training, the VTC gives priority to young people, and most of those enrolled in training are between 16 and 30 years of age. The VTC undertakes measures to address the needs of particular social groups, including women, persons with disabilities, older workers, young people, former inmates of correctional facilities and refugees. In providing training, the VTC gives priority to young people; thus, most of those enrolled in training are between 16 and 30 years of age. The Government points out that difficulties encountered by the VTC include material and human resources challenges. The Committee requests the Government to provide information on the results achieved through implementation of the E TVET, including its impact on women, young people, persons with disabilities, older workers, former inmates and refugees. It also requests the Government to provide detailed information on the manner in which the social partners and other concerned stakeholders concerned are consulted with respect to the development, implementation and coordination of education and training programmes that meet the needs of the labour market.

Specific groups of workers. The Committee notes that, according to the statistical data supplied by the Government, in 2014, women made up only about 15 per cent of the total number of Jordanians in employment (1,088,865 men and 197,823 women). The Government indicates that, to address the particularly low participation of women in the labour market, the NES includes a set of policies aimed at increasing the options available for women to enter the labour market. The NES also seeks to reduce structural youth unemployment. In addition, the Government refers to the adoption of policies on autonomous lending in remote areas and the employment of rural women. In this regard, the Committee notes the adoption of the Rural Economic Growth and Employment Project (REGEP) with the financial support of the International Fund for Agriculture Development (IFAD), which aims to reduce rural poverty, vulnerability and inequality by creating employment and income-generating opportunities for the rural poor, especially women and youth. The Government indicates that the E–TVET provides for services to be put in place for workers in the informal economy, to encourage their transition to the formal economy. It also refers to measures taken to promote the employment of persons with disabilities, such as the establishment of an employment unit tasked with, among other things, providing them with the support necessary to enable them to integrate into the labour market, the publication of a guide on the employment of persons with disabilities and the organization of special courses on the rights of persons with disabilities, including on the employer’s obligation to provide reasonable accommodation. The Committee requests the Government to continue to provide information, including statistical data disaggregated by sex and age, on the implementation and impact of the measures taken to promote the employment of particular groups of workers, including women, young people, rural workers, persons with disabilities, older workers, former inmates, and refugees.

Article 3. Consultation with the social partners. The Government indicates that a tripartite committee has been established to serve as a forum for dialogue between representatives of the government, employers’ and workers’ organizations. It meets at least three times a year to discuss, among other issues, the extent to which employment policy and legislation are consistent with the needs of social and economic development and aligned with international labour standards. The Committee requests the Government to provide further information on the activities of the tripartite committee with respect to the development, implementation and review of employment policy measures and programmes and their coordination with other economic and social policies.

Direct Request (CEACR) - adopted 2013, published 103rd ILC session (2014)

Implementation of an active employment policy. Participation of the social partners. The Committee notes the Government’s report received in August 2013 which includes detailed labour market statistical data. The Government recalls that the National Employment Strategy (NES) 2011–20 aims to decrease unemployment and enhance employability, based on the overall vision laid out by the National Agenda. The NES analyses both labour supply and demand and the institutional context in which they operate and sets actions to produce the intended results. The Government indicates that the unemployment rate slightly decreased from 12.5 per cent in 2011 to 12.2 per cent in 2012. The Committee notes however that the economic participation rate of 38 per cent in 2012 is still low compared to the working-age population rate, which reached 62.7 per cent in 2012. This is believed to be mainly due to demographic changes, a mismatch between educational outputs and labour market needs, migrant workers’ competition with respect to Jordanian workers in some occupations, and the lack of information on available jobs. The Committee invites the Government to provide in its next report information on the results of the implementation of the NES in terms of employment creation and unemployment reduction (Article 1 of the Convention). The Committee also wishes to examine information on the manner in which employment data is used for deciding on and reviewing employment measures, in cooperation with the social partners and representatives of the stakeholders in the rural sector and the informal economy (Articles 2 and 3). Please also include relevant statistical data, disaggregated as much as possible, on the situation and trends of employment, unemployment and underemployment in both the formal and the informal economy. Referring to its previous observation, the Committee also invites the Government to provide information on the implementation and results in relation to the employment priorities of the Decent Work Country Programme 2012–15.

Coordination of education and training policy with employment policy. The Government indicates in its report on the application of the Human Resources Development Convention, 1975 (No. 142), that the Ministry of Labour and the Employment, Technical and Vocational Education and Training (E-TVET) Council, together with the National Centre for the Development of Human Resources, are working towards the development of a labour market management information system. The Committee also notes, based on data from the World Bank, that an active labour market initiative called “Jordan Job Compact” was designed to assist unskilled, semi-skilled and skilled youth to find jobs through a combination of training, stimulus packages and financing to employers and small and medium-sized enterprises (SMEs). The Committee invites the Government to provide in its next report information on the impact of the measures adopted to enhance the education and training system, and increase the quality and labour market relevance of training courses. It invites the Government to include results of the implementation of active labour market initiatives, including the “Jordan Job Compact” and the labour market management information system, in terms of overcoming the mismatch between education supply and labour market demand.

Youth employment. The Government indicates that the unemployment rate for the 15–24 age group reached 48.8 per cent in 2012. The Committee notes the Programme for the employment of Information and Communication Technology (ICT) Graduates which aims to reduce the high unemployment among ICT certificate holders. The programme consists of young graduates’ employment in the private sector for 12 months with practical training purposes. The Government reports that 316 companies have signed agreements with the programme institutions as of June 2013 and that around 2,000 graduates were expected to benefit from it by the end of 2013. The Committee notes that government representatives, civil society institutions and the General Federation of Jordanian Trade Unions participated in the drafting of the Jordanian Youth Rights at Work manual. The Committee invites the Government to supply disaggregated data on young persons obtaining lasting employment following their participation in vocational guidance and vocational training programmes. It also invites the Government to continue providing examples of initiatives intended to increase opportunities of young graduates to find lasting and productive employment, as well as information on the implementation and results of these initiatives.

Women’s employment. The Government recognizes the existence of a significant gap between the employment rate of men, which reached 54.9 per cent in 2012, and the employment rate of women of 11.3 per cent in the same year. The Committee notes that women’s unemployment rate has been declining from 25.9 per cent in 2005 to 19.9 per cent in 2012. It also notes that the Government launched programmes addressed to women’s employment in the textile sector, including the employment of women in remote areas and the establishment of additional factories in qualified industrial zones. Up to 2013, six factory branches were opened and 4,660 persons, 98 per cent of whom are women, benefited from these programmes. The Committee invites the Government to provide in its next report examples of other initiatives intended to increase women’s employment, as well as statistical data on the implementation and results of these initiatives.

Observation (CEACR) - adopted 2012, published 102nd ILC session (2013)

Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Committee notes the information provided by the Government in August 2011 in reply to the 2010 observation. The National Agenda (2006–15) and the document “We are all Jordan” of 2007 were combined into a three-year Executive Development Programme (EDP) 2007–09, which was followed by the EDP 2009–12. Promoting employment and training is both a priority and a cross-sectoral issue of the National Agenda and the EDP, to the extent that trade and investment policies, support to new industries and SMEs, and the increase of the private sector competitiveness are expected to stimulate job creation. In November 2010, the Jordan Global Jobs Pact Country Scan Report was prepared in coordination with the ILO and included an overview of the policy responses to the economic and financial crisis, and recommendations on how national policies, including employment policies, can contribute to shaping a fair and sustainable globalization. The Government further reports on labour market developments in line with the National Agenda. The cumulative number of additional jobs created between 2006 and 2009 was faster than that required to achieve the target unemployment rate of 6.3 per cent by 2017. The unemployment rate was reduced from 14.8 per cent in 2005 to 12.9 per cent in 2009 and was expected to be below 10 per cent in 2012. Public sector hiring continued to play an important role in absorbing Jordanian jobseekers. The Government acknowledges that the distribution of development benefits can be improved and investment should be promoted in governorates affected by higher unemployment rates. It also indicates that migrant workers continued to increase in the labour market. The Committee notes the establishment of the National Centre for Employment providing labour market information and job-matching services, as well as active labour market measures to support employment in the private sector, such as through offering incentives to employers for job creation. The Committee further notes that the National Employment Strategy (NES) was endorsed in May 2011. It seeks to address structural employment, calling for policies and programmes to amplify job creation including in the rural areas and governorates, while expanding social protection to all. The Committee also notes that a new Decent Work Country Programme (DWCP) 2012–15 has been launched which builds on the results of the Global Jobs Pact Country Scan and the goals outlined in the National Agenda, the EDP and the NES. Promoting decent work opportunities for all workers and strengthening employment policy coherence are among the DWCP priorities. The Committee invites the Government to provide in its next report detailed information on the impact of the National Employment Strategy, within the framework of the economic and social policy objectives of the National Agenda 2006–15 and the Executive Development Programme 2011–13, in terms of the promotion of full, productive and freely chosen employment. It also invites the Government to provide information on the progress achieved in relation to the employment priorities of the DWCP. The Government is also invited to include updated statistical data on the situation, level and trends of employment, unemployment and underemployment.

Coordination of education and training policy with employment policy. The Government indicates that the Employment, Education, Technical and Vocational Training Council has been established in line with the objectives of the National Agenda and is in charge, inter alia, of developing employment and training policies and programmes, and coordinating the relevant bodies. The Council is composed of a fund aimed at supporting employment and training and a Centre for Certification and Quality Control for education and training. The Government further indicates that it has formulated a set of comprehensive vocational programmes aimed at providing trainees with additional skills to increase their employability. The Committee notes that supporting training of Jordanians in the occupations needed by the labour market is one of the objectives of the NES. Moreover, the DWCP 2012–15 seeks to address the mismatch between education supply and labour market demand. The Committee invites the Government to provide information on the impact of the measures adopted, including in the context of the DWCP, to enhance the education and training system, and increase the quality and labour market relevance of training courses.

Youth employment. The Committee notes the Government’s information on young graduates participating in diploma and university level courses organized by the Vocational Training Agency in 2009, as well as students enrolled in technical diploma-level courses offered by the Agency in collaboration with Belqaa Applied University/Korean Institute of Technology over a three-year period (2008–11). The Committee notes that unemployment is particularly high among young persons and graduates, being estimated at around 31 per cent at the end of 2011. The DWCP 2012–15 focuses on promoting youth employment through measures such as increasing access of youth to entrepreneurship training opportunities. The Committee invites the Government to supply disaggregated data on young persons obtaining lasting employment following their participation in vocational guidance and vocational training programmes. It also requests the Government to provide information on other initiatives taken in consultation with social partners to increase opportunities for young persons, especially young graduates, to find lasting employment.

Women’s employment. The Committee notes that 96 per cent of young graduates attending training programmes organized by the Vocational Training Agency in 2009 were women (317 persons). Training covered areas such as administrative tasks, information technology, hairdressing and traditional crafts. The Government also refers to training programmes for women implemented by the Vocational Training Agency through agreements for training and employment with the private sector, such as in the field of gold shaping, as well as to a new training project to be started in 2011. The Committee recalls that Jordan faces a very low female participation rate, with 14 per cent of women participating in the labour force. The Committee requests the Government to provide information on the measures taken to ensure that women may qualify for productive employment opportunities. It also requests the Government to provide information on the impact of the measures taken to facilitate the integration of women into productive employment.

Article 3. Participation of the social partners. The Government indicates that programmes implementing the NES were formulated with the participation of all official partners. The Committee notes that reinforcing social dialogue mechanisms is among the NES priorities. It also notes that capacity development of the social partners and social dialogue platforms are an integral part of the DWCP 2012–15. The Committee invites the Government to provide in its next report examples of the manner in which the views of the social partners are taken into account in the development, implementation and review of employment policies and programmes. It also requests again the Government to indicate whether consultations have been held with representatives of workers in rural areas and the informal economy.

Observation (CEACR) - adopted 2010, published 100th ILC session (2011)

Articles 1 and 2 of the Convention. Coordination of employment policy with poverty reduction. The Committee notes the information provided by the Government in November 2009 in reply to the 2008 direct request. The Government has adopted the National Agenda (2006–15), which includes three action phases, the first of which, “Employment opportunities for all” (2007–12) emphasizes the intensive development of manpower, the growth of export industries, the eradication of structural unemployment and support for employment and vocational training. The National Agenda sets the objective of reducing the unemployment rate by half (from 12.7 per cent in 2008 to 6.8 per cent in 2017), creating 600,000 new vacancies and increasing the activity rate of persons with disabilities and of women. In the document Kulluna Al Urdun (“We are all Jordanians”) adopted in 2007, the representatives of Jordanian civil society expressed support for the objectives of the National Agenda. The document contains recommendations, particularly in relation to taxation, human resources development and the evaluation of enterprise performance. It also emphasizes the importance of reforming labour legislation with a view to promoting openness and flexibility in the labour market. The Committee also notes the document on the national employment policy, of October 2008, which provides a detailed analysis of the labour market situation, identifies the causes of unemployment and proposes a framework for action based on several approaches including: the coordination of vocational training policy with employment policy with a view to reducing the mismatch between labour supply and demand; the implementation of special measures to remove administrative obstacles to the creation of small and medium-sized enterprises; the promotion of a conducive environment for the integration of informal economy enterprises into the formal economy; and the reduction of disparities in regional development and the promotion of labour mobility. The Government indicates in its report that the number of jobseekers reached 24,029 in 2008, of whom 8,668 have been integrated into the labour market. The Committee invites the Government to provide detailed information in its next report on the results achieved in the implementation of the National Agenda (2006–15) in terms of the creation of productive and lasting employment. The Government is also invited to supplement its report with updated statistical data on the situation, level and trends of employment, unemployment and underemployment.

Coordination of education and training policy with employment policy. The Government indicates that the Vocational Training Institute has implemented a restructuring project with a view to establishing a vocational and technical education and training system offering high-quality training opportunities which respond to the needs of employers. This restructuring project will enable the Vocational Training Institute to achieve the objectives of the National Agenda, which envisages the establishment of two new vocational training bodies, the Employment and Vocational and Technical Training Council and the Higher Council for Human Resources Development. The Committee invites the Government to provide information on the measures adopted or envisaged to ensure that vocational training policies respond to the needs of the labour market. It invites the Government to include further information on the role of the training bodies and on the coordination established between the measures adopted in the context of education and training policies and of employment policy.

Youth employment. The Committee notes the statistics on the number of graduates who entered the labour market in 2005 and their distribution over three regions. According to the data contained in the national employment policy document of October 2008, each year between 70,000 and 80,000 young persons need to be integrated into the labour market, with the unemployment rate among young persons aged between 20 and 24 years amounting to 38 per cent of the active population. According to the information gathered in the General Survey of 2010 concerning employment instruments, the Committee noted that the unemployment rate is very high among educated workers, and particularly young university graduates, who are unable to find employment commensurate with their skill levels. This is now an issue for the advanced and developing countries, with the skills of young graduates being underutilized so that they have to accept casual jobs. Such a situation can prove detrimental to their lifetime career progression. The Committee therefore encourages governments to develop job creation and career guidance policies targeted in particular at this new category of the educated unemployed (General Survey, op. cit., paragraph 800). The Committee invites the Government to provide information in its next report on the impact of vocational training programmes and on the results achieved in terms of the integration of young educated workers. In particular, the Committee would be grateful to examine information disaggregated by gender on the training provided to young persons entering working life, and particularly those with a university qualification, and on its impact in terms of their integration into lasting employment.

Women’s employment. According to the information provided by the Government in July 2009, the Vocational Training Institute implemented a programme intended to increase the participation rate of women in training programmes. According to the National Agenda, the expected results would involve vocational education and training systems which respond more effectively to the needs of the labour market and active participation by the private sector in vocational education and training systems. According to the data contained in the national employment policy document of October 2008, the unemployment rate of women amounted to 26.1 per cent of the active population in 2007, and graduates of higher education were those most affected by unemployment. The Committee requests the Government to provide detailed information on the measures adopted or envisaged to improve and facilitate the integration of women into the labour market.

Article 3. Participation of the social partners. The Government indicates that consultations have been held in the context of the meetings organized within the Ministry of Employment, with the participation of representatives of employers’ and workers’ organizations and members of civil society. The Committee hopes that the Government will be in a position to provide precise information in its next report on the consultations held with the representatives of the social partners concerning employment policy. The Committee invites the Government to indicate whether consultations have been held with the most vulnerable categories of the population, and particularly with representatives of workers in rural areas and the informal economy, with a view to securing their collaboration in the design and implementation of employment policy programmes and measures.

Part V of the report form. ILO technical assistance. The Committee notes the technical cooperation projects established by the ILO in Jordan, and notes that the final phase of the handicraft promotion project was signed in September 2008. The project is intended to improve the training system in the field of handicrafts by promoting partnerships with the private sector and establishing networks of sales points, an Internet site and brochures to improve the marketing of handicraft production. The Committee also notes the Better Work project and its objective of reducing poverty by broadening opportunities for decent work in global supply chains through the improvement of the competitiveness of Jordanian enterprises, the development of their economic performance and the promotion of international labour standards. The Committee invites the Government to provide information in its next report on the action taken as a result of the technical assistance received from the Office with a view to ensuring the implementation of an active employment policy within the meaning of the Convention. It also invites the Government to provide information on the progress achieved in relation to the employment priorities of the Decent Work Country Programme.

Direct Request (CEACR) - adopted 2008, published 98th ILC session (2009)

1. Articles 1 and 2 of the Convention. Coordination of employment policy and poverty reduction. The Committee notes the information provided by the Government in August 2007 in reply to its observation of 2006. The Government recalls that it had set itself goals to fight unemployment, promote training and adapt the labour force so as to fill the available jobs and coordinate the education policies with the needs of the labour market. In the period ending in 2006, some 9,000 permanent jobs had been created in the framework of the programme to promote productivity. Furthermore, many programmes aimed at adapting the labour force to the needs of the labour market are currently being implemented, including a project to train rural women and a national training and employment project. The Committee asks the Government to provide in its next report information on the results achieved by the various programmes intended to create productive and lasting jobs. It requests the Government to supply information on the other measures adopted to ensure that employment, as a key factor in poverty reduction, is at the heart of macroeconomic and social policies. The Committee also hopes that the Government will be in a position to provide statistics in its next report on the situation and trends of employment, unemployment and underemployment, in particular with respect to women and young persons.

2. Education and training policies. The Committee notes the efforts made by the Vocational Training Institute to encourage the access of women to employment through training. Among the measures taken to increase the participation of women in vocational training programmes, the Government mentioned the establishment of ten vocational training centres for women in three different districts of the country, the readjustment of several institutions that up to now had been restricted to men, and the increase in the choice of occupations and professions open to young women. The Government also organises awareness-raising and professional guidance campaigns in schools. Through agreements concluded with private enterprise, the Institute also ensures that the same work schedules and salary scales are given to men and women participating in vocational training programmes. In 2006, some 900 students of both sexes had also participated in legal training classes on matters of labour law. During the period covered by the report, vocational training courses were also organized for the female attendees at a readaptation centre and for persons with special needs. The Committee asks the Government to continue to provide information on the education and training programmes being implemented and to indicate the results achieved in terms of the placement of beneficiaries, in particular women, in lasting employment.

3. Article 3. Participation of the social partners. The Government indicated that, in the framework of the ILO technical assistance project, workshops organized to improve the capacity of the social partners had led to the establishment of an Economic and Social Council and a tripartite consultative committee called the Tripartite Committee on Labour Affairs. The Committee requests the Government to provide information on the consultations concerning the national employment policy held by the Economic and Social Council and the Tripartite Committee on Labour Affairs, and on the manner in which the opinions expressed were taken into account in the formulation of employment policy. Please also indicate how the representatives of rural workers and workers of the informal economy are included in the consultations held by these two bodies.

4. Part V of the report form. ILO technical assistance. In its previous comments, the Committee had asked the Government to report on the results obtained in matters concerning the coordination of an active employment policy resulting from the implementation of ILO technical assistance projects. Furthermore, the Committee notes that the ILO’s Decent Work Country Programme (DWCP) in Jordan for the 2006–09 period envisages the creation of decent work for men and women by means of the adoption of the following measures: (i) the formulation of an employment strategy; (ii) the reinforcement of a national programme for the employment of young persons; (iii) support for vocational training reform; (iv) the revitalization of public employment services; and (v) the creation of small enterprises. The Committee hopes that the next report will contain detailed information on the impact of the ILO technical assistance projects intended to formulate and implement an active employment policy within the meaning of the Convention.

Observation (CEACR) - adopted 2006, published 96th ILC session (2007)

1. Coordination of employment policy and poverty reduction. The Committee notes the detailed information contained in the Government’s report received in October 2005. The Government indicates that, within the framework of its national strategy on poverty reduction and job creation, it has implemented a programme designed to achieve balanced regional development. This programme seeks to activate the role of popular participation in the management of development, to identify development planning indicators which can help in preparing, carrying out and evaluating strategic development plans, and in activating and promoting the use of information technology. The Government also refers to a programme aimed at promoting economic and social productivity in relation to the development of rural communities, and the promotion of productivity and infrastructures to support investment. It indicates that, by the end of 2004, this programme had succeeded in providing 6,465 permanent jobs and 1,400 temporary jobs. With regard to the manner in which the employment objectives have been taken into account in the adoption of general economic policy measures in areas such as monetary and budget policy or commercial policy, the Government explains that it has been promoting a policy of economic openness and trade liberalization with the goal of creating an attractive environment for business in order to increase local and foreign investment. It also mentions the free trade agreement signed with the United States, which includes labour provisions that reiterate the country’s commitments in relation to the ILO to respect and protect workers’ rights. The Committee welcomes the measures adopted, which are in line with the Convention, and asks the Government to keep it informed of the progress achieved through its various programmes and the manner in which the measures adopted have contributed to the creation of productive and sustainable employment. Please also provide information in the next report on the other measures taken to ensure that employment, as a key component of poverty reduction, is at the heart of macroeconomic and social policies (Articles 1 and 2 of the Convention).

2. In reply to the Committee’s previous comments, the Government provides detailed statistics, contained in the National Survey on Labour and Unemployment 2005, indicating the number of workers by age, sex, level of education and sector. The Committee notes that the overall unemployment rate for the first quarter of 2005 was 13.4 per cent, but stood at 19.7 per cent for women, while the employment rate for women remained very low. The Committee asks the Government to continue to communicate statistical data in its next report on the situation and trends in employment, unemployment and underemployment, in particular with regard to female workers.

3. Labour market and training policies. The Committee notes with interest the measures taken to strengthen the vocational training systems and adapt them to the needs of the labour market. The Government indicates in particular that the Higher Council for Technical and Vocational Education and Training was set up. Furthermore, the Vocational Training Institute contributes to the integration of its recipients into the labour market, and also undertakes studies on the training needs of the labour market as well as the follow-up of graduates. The Institute, which has, among others, 14 training centres especially for women, provides training programmes at the apprentice level and for high-level vocational training. The Government indicates that 4,816 women joined the national training programmes, of whom 4,411 have graduated. The Committee asks the Government to continue to provide information on the programmes implemented in relation to vocational training and the manner in which they have contributed to the integration of their beneficiaries, particularly women, in employment.

4. Consultation of the representatives of the persons affected. The Government indicates that it has adopted a participatory approach in the preparation of the recent development plan, as well as in the preparation of various national reports. It emphasizes that representatives of trade unions, as well as the private sector are part of the composition of national councils and that they participate in the work of the Vocational Training Institute, the Social Security Institute and the Vocational and Technical Education and Training Council. The Committee requests the Government to continue providing information on the issues raised by the social partners and on the manner in which their opinions have been taken into account in the formulation of employment policy. Please also indicate the measures taken or contemplated in order to involve not only employers’ and workers’ representatives, but also the representatives of other categories of the active population, such as persons working in the rural sector or the informal economy, in these consultations (Article 3).

5. ILO technical cooperation. The Government indicates that a number of projects have been carried out by the Ministry of Labour in collaboration with the ILO, namely: (a) the Social Dialogue Project which aims to set up a National Committee for Social Dialogue and establish a Jordanian Social and Economic Council; (b) a Project for the Reduction of Child Labour, which includes seven training workshops in order to promote the capacity of inspectors and the training of trainers on child labour; and (c) a Project to Develop the Capacity of Employees of the Ministry of Labour, which includes five national projects aimed at strengthening the Ministry’s capacity. The Committee asks the Government to keep it informed on the results achieved in relation to the coordination of an active employment policy as a result of the implementation of these projects. In particular, the Committee requests the Government to report on any consultation on its employment policy held by the National Committee for Social Dialogue (Part V of the report form).

Direct Request (CEACR) - adopted 2004, published 93rd ILC session (2005)

1. Coordination of employment policy with poverty reduction. The Committee notes the Government’s report received in 2003 containing information in reply to the observation of 2002. The Committee previously wished to know the results obtained, in terms of job creation, by the programmes which were established in the context of the national poverty reduction strategy. In its report, the Government mentions a programme designed to achieve balanced regional development and another programme aimed at promoting economic and social productivity in relation to the development of rural communities, the promotion of productivity and infrastructures for supporting investment. The Committee hopes that the Government will provide in its next report detailed information on the measures taken to ensure that employment, as a key component of poverty reduction, will be at the focus of economic and social policies. The Committee hopes that this report will contain more detailed information to enable it to evaluate to what extent the employment objectives contained in the national poverty reduction strategy have been, or are being, attained. Please state the manner in which these employment objectives have been taken into account in the adoption of general economic policy measures in areas such as monetary and budget policy or commercial policy. Please also indicate the observed or expected impact on employment of measures to privatize and establish export processing zones (Articles 1 and 2 of the Convention).

2. According to the statistical data transmitted by the Government, the overall unemployment rate in 2002 was 15.3 per cent, but 21.9 per cent for women, the employment rate of women was still very low (9.6 per cent compared with 55.2 per cent for men). The Committee requests the Government to communicate in its next report more detailed statistics on the situation and trends in employment, unemployment and underemployment, by age, sex, level of education and sector of activity.

3. Labour market and training policies. Also referring to the information provided by the Government in its report on the application of Convention No. 142, the Committee notes the measures taken to strengthen vocational training systems and adapt them to the needs of the labour market. It invites the Government to continue to provide information on programmes implemented in relation to vocational training, by communicating all relevant information on the manner in which they contribute to the integration of their beneficiaries, particularly women, in employment.

4. Consultation of the representatives of the persons affected. Referring to its previous requests, the Committee again requests the Government to describe the manner in which representatives of groups concerned are consulted with regard to employment policies, by stating the issues placed before them. Please indicate the measures taken or contemplated in order to involve not only employers’ and workers’ representatives but also the representatives of other sectors of the active population, such as persons working in the rural sector or the informal economy, in these consultations (Article 3).

5. ILO technical cooperation. The Committee has been informed of the implementation of a number of ILO technical cooperation projects which may favour the application of the Convention, including, in particular, the project to strengthen the capacity of the Ministry of Labour with regard to job creation and poverty reduction. It requests the Government to indicate the action taken as a result of the implementation of these projects (Part V of the report form).

Observation (CEACR) - adopted 2002, published 91st ILC session (2003)

The Committee notes the Government’s reports, received in August 2000 and September 2002. It notes with particular interest the document on Poverty Alleviation for a Stronger Jordan: A Comprehensive National Strategy, published in May 2002 and the detailed 2001 statistical survey on employment and unemployment appended to the Government’s last report.

1. Articles 1 and 2 of the Convention. The Committee notes that one approach that has been proposed in the poverty alleviation strategy is the development of work opportunities for the poor by working within communities to promote local jobs that are effective in improving individual situations and contributing to community development. The Committee also notes with interest that the document expressly cites the ILO Declaration of Philadelphia, and in particular the statement that "poverty anywhere constitutes a danger to prosperity everywhere". A reduction in the Government’s role in the facilitation of job creation is listed as a goal of the National Strategy, which envisages the creation of  a public/private partnership among leaders of private industry and responsible ministries for the purpose of examining options and incentives for job creation. The Committee would appreciate receiving further information on the follow-up given to the recommendations made in the poverty alleviation strategy.

2. The Committee notes that the unemployment rate was 14.7 per cent in 2001 (women workers being the most affected). Only 9.3 per cent of women were employed (as compared to 56.6 per cent of male workers). The Committee requests the Government to continue to include in its next report data concerning the size and distribution of the labour force, and the nature and extent of unemployment and underemployment, both in the aggregate and as they affect particular categories of workers, such as women and young persons. Please also indicate how the data collected have been used as a basis for deciding on employment policy measures within the framework of a coordinated economic and social policy.

3. The Committee notes that employment is to be created in the Aqaba free zone, the telecommunications and tourist industries and the qualified industrial zones, and would appreciate receiving details of progress in this area and the results obtained in terms of job creation.

4. The Committee notes the promulgation of Act No. 58 of 2001 on the Council on technical and vocational education and training and the measures envisaged by the Ministry of Education for the period 1999-2003 referred to in the report received in August 2000. The Committee encourages the Government to include in its next report information on the outcome of the measures taken to coordinate education and training with prospective employment opportunities.

5. The Committee notes the promulgation of Act No. 21 of 1999 regulating employment offices and requests the Government to provide information in its next report on the contribution made by the employment offices to employment creation and human resources development.

6. Article 3. The Government mentioned in the report received in August 2000 that committees composed of employers and workers are constituted when the authorities implement the social and economic policies. A social and economic council was created by the King in order to update the economic policy. The Committee requests the Government to supply details in its next report on the manner in which representatives of the persons affected are consulted concerning employment policies, with reference both to consultations with representatives of employers’ and workers’ organizations and to consultations with representatives of the rural and informal sectors. Please also indicate any consultations with employers’ and workers’ organizations held in order to implement the employment measures envisaged under the poverty alleviation strategy.

Direct Request (CEACR) - adopted 1999, published 88th ILC session (2000)

1. The Committee notes the information supplied in response to the previous direct request, as well as the Government's report received by the Office in September 1998. The Committee also notes that the Government has subsequently held a National Conference on Employment and Combating Unemployment in which both social partners and non-governmental organizations participated, and out of which has come a National Strategic Plan. Please provide a copy of the National Strategic Plan and further information on action taken as a follow-up to the Conference, with detailed information on how policies pertaining to, inter alia, macroeconomic issues and sectoral development take into account the objectives of full, productive and freely chosen employment and equality of access to employment, as requested in the report form under Article 1 of the Convention.

2. The Government states that the unemployment rate was 14.4 per cent for 1997, down slightly from 15 per cent in 1995. The participation rate of women is 16.3 per cent. It also provides information on the various changes to the vocational education and training programs, as well as statistics on the number of participants. Please supply further details on the outcome of these changes, as well as an indication of how many of the participants obtain lasting employment, and how the free choice of employment for women is assured.

3. In reply to previous comments, the Government explains that representatives of various sectors participate in all aspects of economic and social policy development affecting employment. Please describe measures taken to ensure that employment policies and programmes are formulated within a coordinated economic and social policy and in consultation with employers' and workers' representatives, as well as representatives of other sectors of the economically active population, such as rural and informal sector workers, as specified in Article 3, in conjunction with Article 2.

4. Please indicate the effect of any technical cooperation relating to employment received from the ILO, as requested in Part V of the report form.

Direct Request (CEACR) - adopted 1997, published 86th ILC session (1998)

The Committee notes the Government's report for the period ending June 1996 and the information it contains on certain aspects of the application of the Convention. It would be grateful if the Government would provide fuller information in its next report in reply to each of the questions in the report form adopted by the Governing Body, and particularly on the following points.

1. The Committee notes the information concerning the collection of labour market data under the 1994 general census and the special surveys on employment, unemployment and income carried out periodically by the Department of General Statistics. It asks the Government to communicate the results of these surveys, particularly as regards levels and trends in employment, underemployment and unemployment, for the country as a whole and in the various regions, by sector of activity, sex, age and skill level.

2. The Committee notes the general information concerning the main employment objectives of the 1993-1997 National Economic and Social Development Plan. It asks the Government to provide more detailed information on how the orientations of the main general and sectoral development policies are determined and kept under review in terms of their contribution, "as a major goal" to the promotion of full, productive and freely chosen employment, in accordance with Articles 1 and 2 of the Convention. Please specify in particular the impact, noted or expected, on employment of the measures taken with support from the International Monetary Fund as regards monetary and budgetary policy and prices, incomes and wages policy. Please also state the consequences for employment of the policy to strengthen the private sector. The Committee reminds the Government that it is interested in any information concerning the migration for employment policy.

3. The Committee notes the detailed description of the activities of the Development and Employment Fund created by Act No. 33 of 1992 and the Fund's activities report sent with the Government's report. Please continue to provide information on employment promotion measures and measures to reduce poverty through preferential funding for small enterprises, and the results obtained through such measures. Please also continue to provide information on the development of vocational training activities, stating how they are coordinated with employment prospects.

4. Article 3. The Committee notes that representatives of the various sectors concerned are members of the Board of Directors of the Development and Employment Fund. It also notes that representatives of trade unions and employers' organizations are associated with the administration of the Vocational Training Institute, the Education and Learning Council and the Economic and Social Council. The Committee recalls that the consultations required by this provision of the Convention should be extended to all aspects of economic and social policy having an influence on employment and should include, as well as employers' and workers' representatives, representatives from other sectors of the active population, such as persons employed in the rural sector or the informal sector. It would be grateful if the Government would indicate the duties and responsibilities of the various bodies it refers to that enable the necessary consultations to be ensured effectively.

5. Part V of the report form. The Committee recalls that it is interested in information on any ILO advisory or technical cooperation activities from which the Government may have benefited with regard to employment or human resource development policy, and any action taken as a result.

Direct Request (CEACR) - adopted 1994, published 81st ILC session (1994)

The Committee notes the Government's report containing a partial reply to its previous request. It also notes the report on the ILO multi-disciplinary mission to Jordan on employment and labour market policies of March 1992. It would be grateful if the Government would provide additional detailed information on the following points in its next report:

1. The Committee notes the information on the administrative procedure for collecting labour market data. It notes that the ILO mission published in its report a set of detailed recommendations on measures that could be taken to strengthen the Ministry of Labour's capacity to follow labour market trends. Please indicate whether measures have been taken as a result of these recommendations to improve the system for collecting and analyzing statistical data on employment, underemployment and unemployment. Please provide all available statistics on employment.

2. The Committee would be grateful if the Government would indicate the manner in which an active policy to promote full, productive and freely chosen employment has been formulated within the framework of a coordinated economic and social policy, in conformity with Articles 1 and 2 of the Convention. Please specify in particular the employment objectives of the new 5-year development plan. Please indicate also how, in the implementation of structural adjustment measures, account is taken of their incidence on employment. More specifically, the Government is asked to state its objectives in the areas of demographic policy and workers' migration, if applicable on the basis of the suggestions set out in Parts II and X of the Employment Policy Recommendation (No. 169).

3. In its report the Government refers to measures to contain growing unemployment by programmes to retrain job seekers. The Committee notes that, according to a survey conducted in 1992 by the National Aid Fund, approximately 75 per cent of the unemployed are graduates. With regard to the loss which such a situation represents for the individuals, please provide information on the measures taken or envisaged to provide employment for this category of unemployed persons, and more generally, on measures to coordinate education and training policies with employment prospects. Please indicate in particular whether any machinery is planned for cooperation between employment services and vocational training establishments. The Government again refers to the ILO mission report, and asks the Government to indicate whether its recommendations have been considered or followed up with regard to the organization of vocational training and of employment services.

4. The Committee notes Act No. 33 of 1992 respecting the Development and Employment Fund. It notes that the purpose of the Fund is to promote the creation of small enterprises by low-interest loans and financial facilities, for which the unemployed are given priority. Please provide information on the number of enterprises and jobs created by means of financial assistance from the Fund.

5. The Committee notes that the Government states, without giving details, that it cooperates with the social partners, and recalls that Article 3 of the Convention requires consultation on employment policy with representatives of persons affected, and particularly the representatives of employers and workers. Please give further particulars of how effect is given to this important provision of the Convention.

6. The Committee notes that an ILO technical cooperation project on employment promotion is in the process of being implemented. Please indicate any action taken as a result of ILO technical cooperation projects in the area of employment and any factors which may have prevented or delayed such action (Part V of the report form).

Direct Request (CEACR) - adopted 1993, published 80th ILC session (1993)

The Committee notes that the Government's report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

The Committee notes the brief indications supplied by the Government in reply to its previous direct requests. It would be grateful if, in its next report, the Government would provide full information on the following points:

1. The Committee notes that the Government states that it has improved the system of information on Jordanian and immigrant labour. Please describe the measures taken to collect and analyse statistical data on employment. Please provide detailed information on the volume and distribution of labour, the nature and extent of unemployment and underemployment and the trends in these areas.

2. In its previous comments, the Committee drew the Government's attention to the trends in the imbalances between labour supply and demand, particularly in the context of the implementation of a structural adjustment plan. According to information supplied by the competent departments of the ILO, these imbalances have shown an alarming further downward trend owing, in particular, to the return en masse of Jordanian and Palestinian migrant workers, and unemployment probably affects almost 25 per cent of the active population. Please describe the effects of the return of these workers in terms of labour and employment, and the measures taken to encourage their reintegration into the national labour market. The Government indicates that in order to promote the employment of nationals, it has undertaken to limit the access of immigrant workers to employment in the various sectors of activity. Please specify the nature of the measures aimed at gradually replacing immigrant labour by national labour and provide information on how they are applied in practice. In this connection the Committee draws the Government's attention to the relevant provisions of Part X of the Employment Policy (Supplementary Provisions) Recommendation, 1984 (No. 169).

3. The Government indicates that the Development and Employment Fund has embarked on action to support income- and employment-generating projects. Please provide information on the objectives and operation of the Fund and on the results obtained. The Government indicates that it has undertaken to develop training centres to conduct training programmes for new occupations, providing occupational training for more than 10,000 trainees in 1990 and more than 14,000 trainees in 1991. Please provide information on the nature of the occupational training programmes, and the number and category of the participants. Please provide information on measures to coordinate education and training policies with prospective employment opportunities, taking into account the relevant provisions of Convention No. 142 and the Committee's comments on the application of that Convention.

4. Please indicate how the representatives of the persons affected are consulted on employment policies, in accordance with Article 3 of the Convention.

5. With reference to its previous direct requests, the Committee would be grateful if the Government would indicate the action that has been taken as a result of ILO technical cooperation projects in the fields of employment policy and human resources development planning, and any factors which may have prevented or delayed such action (Part V of the report form).

Direct Request (CEACR) - adopted 1992, published 79th ILC session (1992)

The Committee notes the brief indications supplied by the Government in reply to its previous direct requests. It would be grateful if, in its next report, the Government would provide full information on the following points:

1. The Committee notes that the Government states that it has improved the system of information on Jordanian and immigrant labour. Please describe the measures taken to collect and analyse statistical data on employment. Please provide detailed information on the volume and distribution of labour, the nature and extent of unemployment and underemployment and the trends in these areas.

2. In its previous comments, the Committee drew the Government's attention to the trends in the imbalances between labour supply and demand, particularly in the context of the implementation of a structural adjustment plan. According to information supplied by the competent departments of the ILO, these imbalances have shown an alarming further downward trend owing, in particular, to the return en masse of Jordanian and Palestinian migrant workers, and unemployment probably affects almost 25 per cent of the active population. Please describe the effects of the return of these workers in terms of labour and employment, and the measures taken to encourage their reintegration into the national labour market. The Government indicates that in order to promote the employment of nationals, it has undertaken to limit the access of immigrant workers to employment in the various sectors of activity. Please specify the nature of the measures aimed at gradually replacing immigrant labour by national labour and provide information on how they are applied in practice. In this connection the Committee draws the Government's attention to the relevant provisions of part X of the Employment Policy (Supplementary Provisions) Recommendation, 1984 (No. 169).

3. The Government indicates that the Development and Employment Fund has embarked on action to support income- and employment-generating projects. Please provide information on the objectives and operation of the Fund and on the results obtained. The Government indicates that it has undertaken to develop training centres to conduct training programmes for new occupations, providing occupational training for more than 10,000 trainees in 1990 and more than 14,000 trainees in 1991. Please provide information on the nature of the occupational training programmes, and the number and category of the participants. Please provide information on measures to coordinate education and training policies with prospective employment opportunities, taking into account the relevant provisions of Convention No. 142 and the Committee's comments on the application of that Convention.

4. Please indicate how the representatives of the persons affected are consulted on employment policies, in accordance with Article 3 of the Convention.

5. With reference to its previous direct requests, the Committee would be grateful if the Government would indicate the action that has been taken as a result of ILO technical cooperation projects in the fields of employment policy and human resources development planning, and any factors which may have prevented or delayed such action (part V of the report form).

Direct Request (CEACR) - adopted 1991, published 78th ILC session (1991)

The Committee notes that the Government's report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its previous direct request, which read as follows:

1. The Committee notes the Government's report and the information it has supplied in reply to its previous comments. In those comments, it noted that the third Five-Year Plan 1986-1990 gave high priority to maximising employment and formulating policies geared to balancing manpower supply and demand, including measures for geographical co-ordination. The Government has supplied information on the progress that is being made and described the main difficulties encountered in achieving the objectives of the third Plan. The report also refers to the world economic situation and its harmful effects on the production sector, the slower rate of emigration of Jordanian citizens to find employment abroad and the increase in the number of jobseekers, particularly among persons with higher education diplomas. The Government describes the efforts that have been made by the responsible authorities to assist Jordanian workers in finding a job in the private sector or the public service, and to adapt education and training systems to labour-market needs.

2. In its previous comments, the Committee drew attention to the evaluation of potential imbalances between manpower supply and demand. The information supplied by the technical departments of the ILO appears to confirm a worsening trend, particularly in the context of the implementation of a structural adjustment programme. The Committee would be grateful if the Government would supply, in its next report, information on the outcome of the overall and sectoral development policies under the third Five-Year Plan in connection with the promotion of the objectives of full, productive and freely chosen employment as set out in the Convention (see the questions in the report form for Article 1 of the Convention). It requests the Government to describe the measures that have been taken to collect and analyse statistical and other data concerning the labour market so as to decide on and keep under review, within the framework of a co-ordinated economic and social policy, and in consultation with the representatives of the parties concerned, the main measures set out in the employment policy (Articles 2 and 3). It would be grateful if the Government would specify whether particular difficulties have been encountered in achieving these objectives and if it would indicate the extent to which these difficulties have been overcome.

With reference to its comments on the application of the Human Resources Development Convention, 1975 (No. 142), the Committee hopes that the Government will continue to supply in its future reports on Convention No. 122, information on the measures that have been taken to co-ordinate education and training policies with prospective employment opportunities.

3. Finally, the Committee notes the Government's reference in its report to an ILO/UNDP technical co-operation project in the field of employment policy. The Committee has also been informed by the competent departments of the ILO of other projects that are currently being executed, and of the proposals and recommendations made in a recent ILO mission to Jordan (September 1989) on employment, labour market and training policies. The Committee would be grateful if the Government would indicate the action that has been taken as a result and any factors which may have prevented or delayed such action (Part V of the report form).

Direct Request (CEACR) - adopted 1990, published 77th ILC session (1990)

1. The Committee notes the Government's report and the information it has supplied in reply to its previous comments. In those comments, it noted that the third Five-Year Plan 1986-1990 gave high priority to maximising employment and formulating policies geared to balancing manpower supply and demand, including measures for geographical co-ordination. The Government has supplied information on the progress that is being made and described the main difficulties encountered in achieving the objectives of the third Plan. The report also refers to the world economic situation and its harmful effects on the production sector, the slower rate of emigration of Jordanian citizens to find employment abroad and the increase in the number of jobseekers, particularly among persons with higher education diplomas. The Government describes the efforts that have been made by the responsible authorities to assist Jordanian workers in finding a job in the private sector or the public service, and to adapt education and training systems to labour-market needs.

2. In its previous comments, the Committee drew attention to the evaluation of potential imbalances between manpower supply and demand. The information supplied by the technical departments of the ILO appears to confirm a worsening trend, particularly in the context of the implementation of a structural adjustment programme. The Committee would be grateful if the Government would supply, in its next report, information on the outcome of the overall and sectoral development policies under the third Five-Year Plan in connection with the promotion of the objectives of full, productive and freely chosen employment as set out in the Convention (see the questions in the report form for Article 1 of the Convention). It requests the Government to describe the measures that have been taken to collect and analyse statistical and other data concerning the labour market so as to decide on and keep under review, within the framework of a co-ordinated economic and social policy, and in consultation with the representatives of the parties concerned, the main measures set out in the employment policy (Articles 2 and 3). It would be grateful if the Government would specify whether particular difficulties have been encountered in achieving these objectives and if it would indicate the extent to which these difficulties have been overcome.

With reference to its comments on the application of the Human Resources Development Convention, 1975 (No. 142), the Committee hopes that the Government will continue to supply in its future reports on Convention No. 122, information on the measures that have been taken to co-ordinate education and training policies with prospective employment opportunities.

3. Finally, the Committee notes the Government's reference in its report to an ILO/UNDP technical co-operation project in the field of employment policy. The Committee has also been informed by the competent departments of the ILO of other projects that are currently being executed, and of the proposals and recommendations made in a recent ILO mission to Jordan (September 1989) on employment, labour market and training policies. The Committee would be grateful if the Government would indicate the action that has been taken as a result and any factors which may have prevented or delayed such action (Part V of the report form).