Employment Policy Convention, 1964 (No. 122) - Iraq (Ratification: 1970)

Individual Case (CAS) - Discussion: 2026, Publication: 114th ILC session (2026)

Discussion by the Committee

Chairperson – We now turn to the final item on today’s agenda, which relates to the application of the Employment Service Convention, 1948 (No. 88), and the Employment Policy Convention, 1964 (No. 122). We have 20 speakers on the list for the discussion of this case. On this basis, the Officers have decided to reduce the maximum speaking time of delegations speaking on an individual basis from five to three minutes. I first invite the Government representative of Iraq, Director-General of the Legal Department, to take the floor.

Interpretation from Arabic: Government representative – This is the first time that I am taking the floor. I would therefore like to take this opportunity to congratulate you on your election as Chairperson of this Committee. We are delighted to have you as the Chairperson on the 100th anniversary of the creation of the Committee. The delegation of Iraq would like to thank the ILO and the Committee of Experts, as well as the Conference Committee, for the efforts made to promote decent work and social justice across the world. We also welcome the observations and recommendations concerning the application of Conventions Nos 88 and 122. We believe that these observations are an important tool to give momentum to the national reforms and develop the labour market institutions in Iraq.

Iraq is aware that providing productive and decent work opportunities is not only an economic objective, it is a fundamental pillar for social stability, sustainable development and a peaceful society. In this regard, the Government has continued in recent years to put in place a raft of reforms and policies aimed at promoting employment, developing the labour market, improving social protection and extending social dialogue despite the economic, demographic and development challenges that our country is facing.

With regard to national employment policy, Iraq has developed a national employment policy for 2026–30 through a broad collaborative process that included relevant governmental bodies, and employers’ and workers’ organizations, with ILO technical assistance. In developing this policy, we adopted a comprehensive approach, linking economic development, employment, capacity-building and social protection. This policy aims to address major challenges in the labour market, particularly unemployment, informal work, women’s low activity rates and geographic disparities in job opportunities. We have finalized several stages in the preparation and development of this policy. We are currently finalizing the Government approval procedures to ensure a smooth transition to implementation with clear performance indicators and periodic monitoring and evaluation mechanisms.

To promote institutional coordination and complementarity in the areas of employment, vocational training, and occupational safety and health, we have developed a national policy aimed at fostering coordination among the decentralized units responsible for these issues in the provinces. We have finalized the drafting of this policy and it will be submitted to the Government for approval. This will strengthen the national systems related to employment and vocational training.

The challenges facing the labour market and the informal economy are not unique to Iraq – rather many emerging economies are facing them. In this regard, the Ministry of Labour and Social Affairs has taken a number of measures to encourage a progressive transition towards the formal economy. These include making certain funding and loans programmes for small businesses contingent on their registration in social security and pension schemes. This approach helps to strengthen worker protection and comply with requirements for social security and pension scheme registration, as well as with national legislation.

We have also begun developing a national strategy for the transition to the formal economy for 2026–30. We have established a tripartite steering committee comprising various ministries, governmental bodies, and workers’ and employers’ organizations, with ILO technical support. The Government is working to develop labour market institutions, improve services for jobseekers and employers and develop databases and tools for matching labour market supply and demand. This will help to increase the efficiency of employment services and improve opportunities for accessing productive work.

The Government is particularly interested in the issue of women’s economic empowerment and encouraging women’s participation in the labour market. Based on this commitment, we have developed vocational training programmes for women to offer them opportunities to participate in development programmes and projects, and microfinancing programmes.

My delegation would like to emphasize that tens of thousands of women have been able to participate in vocational training programmes in recent years. This reflects ongoing efforts to empower them and provide them with more economic opportunities. Despite this, we are aware that the road is long. Further work is needed to address the socio-economic obstacles that limit women’s participation in economic activities. Moreover, the national employment policy addresses this issue with a range of measures to this end.

Cooperation between Iraq and the ILO has been a key factor in supporting national reforms over recent years. Through the decent work programme and ongoing technical cooperation, we have implemented a number of initiatives that have helped to promote governance, improve the performance of labour market institutions and broaden opportunities for decent work. This cooperation has led to the development of a national employment policy, the promotion of labour-intensive employment programmes, improvements to environments supporting small and medium-sized enterprises, as well as programmes for a fair economic transition and the inclusion of the most vulnerable groups in the labour market, including women, displaced persons and young people. Cooperation with the ILO has also helped to promote labour market governance, by developing institutional and policy frameworks for employment, and build national capacities in various areas related to decent work.

In terms of fundamental labour rights, Iraq has continued its efforts to develop a legislative framework in line with international labour standards. We are currently drafting a bill on occupational safety and health. We are also finalizing legislative revisions of the Labour Code and trade union laws. This contributes to strengthening the working environment and protecting trade union rights and freedoms. We have also taken important measures against child labour. We have established national tripartite mechanisms to review the relevant policies and laws, and have developed a national strategy to combat child labour, in accordance with Iraq’s international commitments and ILO observations.

With regard to occupational safety and health, we have implemented programmes to strengthen the capabilities of labour inspectors. We have also launched a campaign for safe work in the building and construction sector, which has reached tens of thousands of workers and employers, aimed at establishing a culture of prevention, compliance and improvement in working conditions. Developing the social protection system is one of the Iraqi Government’s main priorities. In this regard, we have seen tangible progress in recent years in the implementation of Act No. 18 on workers’ pensions and social security. This represents a significant step towards expanding social security coverage. These national efforts, supported by the ILO and the social partners, have led to an increase of more than half a million workers covered by social security, 161,000 of whom were covered between 2024 and 2025. For the first time, we have been able to create a voluntary social security system. A total of 38,513 workers joined this social security scheme in the same period, thereby enabling a greater number of workers to benefit from social protection and promoting the transition to formal employment.

We have also launched awareness-raising campaigns and institutional support programmes in various provinces in Iraq to encourage people to join social security schemes and encourage compliance with the relevant laws.

Social dialogue is a fundamental pillar adopted by the Iraqi Government in the development of economic and social policies. On this basis, we have established the social dialogue forum, which includes the Ministry of Labour and Social Affairs, and the workers’ and employers’ organizations. This forum has become the national tripartite forum responsible for the exchange of information and consultations in various social and economic areas, as well as policy legislation and programmes relating to the labour market. We are currently working to promote the institutionalization of the forum by establishing a tripartite secretariat, drafting rules of procedure and implementing the necessary legal framework and the smooth running of this forum.

Like many countries emerging from conflict and complex security and economic challenges, Iraq is facing major pressures owing to rapid population growth, an increased proportion of young people in the population, global economic shifts and the impact of climate change on certain economic activities – in addition to fast-increasing technological changes, which are placing new demands on the labour market.

Despite these challenges, the Iraqi Government is continuing its reform agenda, which aims to create a more inclusive and sustainable labour market by ensuring the diversification of the national economy, reducing reliance on the public sector as the main employer, and strengthening the role of the private sector to generate job opportunities and create the right circumstances for investment and production. In this context, the Government is working towards the development of a labour market information system and the strengthening of mechanisms for monitoring, statistics and analysis. This enables the development of policies based on evidence-based data and reliable indicators, while building the capacities of public institutions to respond to social and economic changes more effectively.

Iraq is fulfilling its obligations under the provisions of Convention No. 122. This goes beyond simply adopting a national employment policy and extends to making productive employment and decent work a central objective of the State’s economic and social policies. Against this backdrop, efforts are being made to strengthen consistency and coordination among policies on employment, education, vocational training, social protection, local development and investment in order to ensure a real and sustainable impact on employment opportunities and job quality.

We are paying particular attention to young people, who make up a large section of the population, through vocational rehabilitation programmes, capacity-building and support for small and medium-sized enterprises as the driving force behind economic and social development in Iraq. In parallel, we continue to make efforts to encourage women’s participation in economic activity not only through training and rehabilitation, but also by removing the social and institutional barriers that restrict their participation, and by fostering a safe and equitable working environment that ensures equal opportunities for women and men.

We are convinced that the achievement of the objectives of the two Conventions – Conventions Nos 88 and 122 – requires a genuine partnership among governments and the workers’ and employers’ organizations. It is this spirit of partnership that we strive to uphold through the tripartite social dialogue mechanisms, which henceforth hold a more important place and play a more effective role in the process of public policy development in Iraq.

We would like to highlight that we will continue our cooperation with the ILO and will benefit from its technical expertise and specialized programmes. This will contribute to developing national legislation, strengthening institutional capacity, improving labour market indicators and promoting decent work for all. The Iraqi delegation reiterates its full commitment to continuing the implementation of the recommendations issued by the ILO supervisory bodies, promoting compliance with international labour standards and providing the required reports and information with transparency and on a regular basis. We emphasize that the path of reform in Iraq is ongoing and is based on dialogue, cooperation and partnership. The progress made over recent years constitutes a solid basis on which we can rely during the next phase, with a view to achieving a labour market that is fairer, more equitable and more equipped to offer decent work opportunities to all its citizens.

To conclude, we thank the Committee on the Application of Standards, the Committee of Experts and the ILO for their continued support for Iraq, and we hope that this productive cooperation continues in order to promote the objectives of social justice, sustainable development and decent work.

Worker members – This is the first time that this Committee is examining in an integrated manner the application by Iraq of Convention No. 88 and Convention No. 122, together with related instruments on skills development and educational leave. The Worker members recall that Convention No. 122 established the overarching obligation to pursue an active policy aimed at full, productive and freely chosen employment. Convention No. 88 provides the essential institutional framework through effective public employment services, while the Paid Educational Leave Convention, 1974 (No. 140), and the Human Resources Development Convention, 1975 (No. 142), complement this architecture by strengthening skills development and lifelong learning. In this regard, the Worker members take note of the Government’s effort to develop a new national employment policy and of the creation of a specialized team within the tripartite High Committee for the Planning and Employment of the Labour Force.

We also note the launch of the digital Mihan platform, which may represent an important step towards improving labour market matching and strengthening public employment services. However, the Committee of Experts has clearly highlighted persistent and structural challenges in the Iraqi labour market that remain insufficiently addressed. These include high unemployment, particularly among women and young persons; extremely low female labour force participation of around 10.8 per cent, which is one of the lowest rates in the world; and widespread informality affecting more than two-thirds of employment. These figures point to a deep and systematic deficit in access to decent and productive employment. The Worker members are particularly concerned by the continued exclusion of women from the labour market, as well as the high level of vulnerability among young persons, internally displaced persons and persons with disabilities.

These realities require targeted and inclusive employment policies supported by effective public employment services under Convention No. 88. We also note with concern that limited information has been provided on the concrete measures taken to address informality and structural barriers to labour market participation, including weak coverage of labour law and social protection systems, particularly in rural and peripheral areas. However, the Worker members note with concern more general and systemic problems that affect compliance with Convention No. 122. We recall the outdated and restrictive legal framework regulating trade unions and exclusion of independent trade unions from tripartite consultation. Without the freedom of workers to form and join organizations of their own choosing, without the inclusion of independent trade unions in national information and consultation, and without support for collective bargaining, it is not possible to effectively fulfil obligations under Article 3 of Convention No. 122 and Article 4 of Convention No. 88, namely tripartite consultation on employment policies and the cooperation of representatives of employers and workers in the organization and operation of the employment service. The Worker members, therefore, underline that freedom of association is a precondition for compliance with Conventions Nos 122 and 88, as well as other ILO standards. We call on the Government to urgently address these gaps. While acknowledging ongoing international cooperation projects, including the ILO Decent Work Country Programme (DWCP), and related initiatives on employment-intensive investment and vocational training reform, the Worker members stress that these efforts must translate into coherent, measurable and nationally owned employment outcomes.

On vocational education and training, we note the information provided regarding institutional responsibilities under national legislation. However, we regret the absence of concrete data on outcomes, the status of key reforms such as the national technical and vocational education and training council and the extent of structured consultation with social partners. A functioning skill system is indispensable for aligning labour supply with demand and for making employment policy operational in practice.

The Worker members also recall the importance of paid educational leave as set out in Convention No. 140 as a key enabling tool for lifelong learning and employability. Finally, they emphasize that the effectiveness of employment policy under Convention No. 122 depends on strong coordination between public employment services, vocational training systems and comprehensive labour market information systems. At present, significant gaps remain in data availability, policy coherence and evidence-based implementation.

The Worker members, therefore, call on the Government to:

• strengthen the integration of its employment policy framework;
• urgently address the outdated restrictive legal framework regulating trade unions and adversely affecting representative tripartite consultation;
• reinforce its public employment services infrastructure;
• expand meaningful access to training and upskilling opportunities;
• ensure full and effective social dialogue in the design and implementation of employment policies.

Employer members – The Employer members recognize the obligations set out in Convention No. 122 on governments to declare and pursue an active policy designed to promote full, productive and freely chosen employment. Such an active employment policy stimulates economic growth and development. It also assists employers in meeting their labour needs. As outlined in the Convention, the Employer members recognize that the policy must take due account of the State’s level of economic development. The policy must also be pursued by methods that are appropriate to national conditions and practices. We submit that this must be the case for the Government of Iraq, which has experienced previous instability and war, and whose economy is overly dependent on oil exports.

We note that several ILO Conventions complement the requirement in Convention No. 122 regarding a national employment policy. This includes an effective public employment service to facilitate matching between labour supply and demand, as set out in Convention No. 88. It also includes comprehensive and coordinated policies and programmes of vocational guidance and vocational training, as set out in Convention No. 142. And finally, it includes the provision of paid educational leave for workers to pursue vocational education and training, as set out in Convention No. 140.

At the outset, we wish to recall the particular importance of Convention No. 122. Convention No. 122 is a governance Convention. The Government ratified this Convention in 1970. The Committee of Experts has previously issued three observations: in 2001, 2002 and 2023. We view compliance with this Convention as important for businesses, for workers and for the effective functioning of labour market institutions more broadly.

As stated earlier, the linkage between Conventions Nos 122 and 88 is well founded. As the Committee of Experts noted, Convention No. 122 establishes an overarching employment policy framework, while Convention No. 88 helps provide an institutional foundation through employment services that facilitate matching between labour supply and demand. The Government ratified Convention No. 88, a technical Convention, in 1951. The Committee of Experts has previously commented on this Convention once, in 2017. In its comment, the Committee of Experts referred to Conventions Nos 140 and 142, both of which were ratified in 1978. Both Conventions are technical Conventions. This is the first time that the Committee has discussed the application of Conventions Nos 122 and 88 by Iraq.

The Committee of Experts raised four main issues in its observation. First, the Committee of Experts discussed the importance of the declaration and pursuit of a national employment policy in law and in practice. It relied on the concluding observations of the United Nations Committee on Economic, Social and Cultural Rights which expressed concern about rising unemployment, the over-representation of disadvantaged and marginalized groups among the unemployed, low labour force participation of women, and the large informal economy. This data demonstrated that employment trends continue to be lacking, despite the existing national employment policy.

In response, the Employer members note that the Government has taken steps to prepare a new national employment policy which includes measures related to employment and training. We understand that this is a refreshed policy from the one noted in the 2017 Committee of Experts’ comment. We also understand that the Government is also in the process of reforming the Labour Code (Act No. 37 of 2015). The Employer members note that a specialized team within the tripartite High Committee for the Planning and Employment of the Labour Force has been established for this purpose. The Employer members emphasize the importance of social dialogue and consultation between the social partners concerning the declaration and pursuit of the new national employment policy and labour legislation reform. The Employer members encourage the Government to continue to cooperate with the ILO in relation to its national employment policy, including through the DWCP, the employment-intensive investment programme and the PROSPECTS partnership. We encourage the Government to avail itself of technical assistance regarding the national employment policy and all impacted Conventions. These constructive developments should be acknowledged. However, we recognize that key challenges remain in the Iraqi labour market, including high levels of informality, as well as low participation and underemployment of women in the labour force.

Second, and turning to Convention No. 88, the Employer members note the launch of the national digital Mihan platform to facilitate labour market matching. The Mihan platform connects jobseekers and vocational training graduates with employers to improve workforce integration. We recognize this development as having potential in operationalizing employment services in practice. However, we note that limited information has been provided by the Government in that regard.

Third, in relation to Convention No. 142, the Employer members acknowledge information from the Government regarding the role of the vocational training and labour department under Law No. 182 of 2018. The law identifies labour market needs in terms of occupations, types of work and required skills, as well as developing the capacity of jobseekers through training courses. The Employer members recognize that the implementation of these initiatives, in practice, would enable workers to qualify for jobs suited to their skills. However, information regarding their application in practice remains lacking.

Finally, the Committee of Experts noted that the Government intends to denounce Convention No. 140 regarding the development and implementation of paid education leave policies to support workers’ access to education and training. Like the Committee of Experts, we remind the Government that it must comply with Convention No. 140, as no denunciation is yet effective. We would also wish to remind the Government that denunciations can only occur during a narrow window following the expiration of an initial ten-year period from the date the Convention first came into force. Member States should, therefore, consider these windows carefully when ratifying ILO Conventions and make sure that they can implement the provisions through careful pre-ratification assessments.

The Employer members note that the goal of full, productive and freely chosen employment requires productivity, growth and an enabling business environment for employment opportunities to be created. The Government must facilitate and create an enabling environment for business growth and resilience through a national employment policy regarding employment and training, including through robust employment services as well as vocational training and education. This will ensure that growth and productive employment can be created.

Interpretation from Arabic: Employer member, Iraq – First of all, I would like to thank the ILO for its ongoing support to the Republic of Iraq and for the technical cooperation and capacity-building programmes, which have contributed to the promotion of social dialogue and the strengthening of the principles of decent work. We would also like to pay tribute to the Committee of Experts and this Committee for the support given to States. As regards the situation of Iraq and Conventions Nos 88 and 122, we would like to indicate that Iraq has currently launched real reforms for developing the labour market, promoting employment opportunities and improving the institutional legislative framework. Indeed, the Government, in collaboration with the workers’ and employers’ organizations, has established genuine dialogue for developing the current legislation, in particular the Labour Code (Act No. 37 of 2015), in order to respond to the needs of the market and sustainable development.

At present, we are convinced that this kind of dialogue will help to improve the legislation and the labour market in Iraq. The setting up of the social dialogue forum has been a step towards real tripartite collaboration which now enables solutions to be found for employment and the labour market through dialogue, cohesion and collaboration to meet labour market needs in Iraq.

Moreover, efforts are continuing to develop and modernize employment services, to establish a link between supply and demand in the labour market and thus respond to the objectives of Convention No. 88. In light of the economic challenges and changes being experienced by the country, progress continues and the employers in Iraq are convinced that achieving the objectives of both Conventions requires collaboration between the Government, employers and workers, with technical collaboration, exchanges of expertise and capacity-building. This work is ongoing. The progress achieved and the commitment to tripartism that exist today to pursue reform deserve to have every possible support from you to modernize employment opportunities and the labour market to meet the needs of our citizens. Lastly, we reiterate our commitment to collaborating with the Iraqi Government, the employers’ and workers’ organizations and the ILO to ensure observance of Conventions Nos 88 and 122.

Interpretation from Arabic: Government member of Libya, speaking on behalf of the group of Arab States – Libya has the pleasure to take the floor on behalf of the group of Arab States, and we would like to pay tribute to and thank the Government for its report on Conventions Nos 88 and 122. The group of Arab States has closely followed the Government’s presentation and we have noted all the efforts currently being made to develop labour institutions despite economic and social difficulties and to support development, which shows a true commitment to development, reform and the promotion of decent work.

The group of Arab States welcomes the progress achieved, in particular the establishment of a national employment policy for 2026–30, which is the fruit of participatory tripartite dialogue, in collaboration with the ILO. Such commitment and a participatory approach show the country’s commitment with regard to Convention No. 122, and reflects an overall national vision to find tripartite solutions to employment issues. We welcome the efforts that seek to establish a link between jobseekers and market needs, to secure the transition from the informal to the formal sector, and to raise the social protection threshold.

The group of Arab States would also like to pay tribute to the efforts made by the Government to promote tripartite social dialogue, and in particular the creation of a national social dialogue forum, which represents real progress, institutional progress that includes all the parties involved in the employment sector. Lastly, we encourage Iraq to continue its collaboration with the ILO and technical collaboration to reinforce national institutions, pursue reform and achieve decent work for everyone.

Government member, Bangladesh – We note that Iraq continues to make sincere efforts to develop its labour market and institutions and strengthen employment policies. We recognize that Iraq endeavours to take action in the face of complex economic challenges, social conditions and accumulated development challenges. We would like to express our appreciation for the progress achieved in preparing the national employment policy for the period 2026 to 2030. We also note that this was developed through a participatory dialogue involving the workers, employers and governments. This reflects a commitment to the provisions of Convention No. 122, a commitment to address unemployment and skills development. We would also like to welcome the efforts made to strengthen labour market institutions, particularly to expand vocational training programmes and link them to the needs of the economy. We noted the measures taken to encourage gradual transition from the informal economy to the formal economy.

We also note the expansion of social protection coverage and increase in the number of persons covered by social security. We noted the importance of the steps taken by Iraq to strengthen tripartite social dialogue particularly. The establishment of the National Social Dialogue Forum represents an important institutional development that we believe has the potential to enhance the participation of social partners in labour market and decent work policies.

Government member, Islamic Republic of Iran – The delegation of the Islamic Republic of Iran wishes to acknowledge the efforts of the Republic of Iraq in fulfilling its obligations under Conventions Nos 88 and 122. We recognize that Iraq operates within a challenging socio-economic environment, and we commend the tangible steps it has taken to strengthen its employment services and advance a coherent national employment policy. The development of the national employment policy for 2026–30, shaped through the consultations and in partnership with the ILO, reflects a genuine commitment to inclusive and participatory governance of the labour market. We also acknowledge Iraq’s continued efforts to expand vocational training, broaden social protection coverage and support the transition of workers from the informal to the formal economy, all of which are essential components of sustainable employment policy in line with Convention No. 122.

Furthermore, the establishment of the National Social Dialogue Forum is a meaningful institutional step that strengthens the voice of workers and employers in shaping decent work policies. The Islamic Republic of Iran encourages Iraq to continue on this path and stands in support of the constructive engagement between the Iraqi Government and the ILO supervisory bodies. We trust that the Committee’s deliberations will contribute positively to Iraq’s ongoing reforms efforts.

Worker member, Spain – Convention No. 122 demands consultation and cooperation in the elaboration of employment policy. Convention No. 88 is based on labour market institutions that meet the needs of workers and their representatives. The application of these two important Conventions therefore depends on the existence of representative trade union organizations able to participate freely and effectively in labour market governance. The trade union report submitted in this case sets out serious concerns at the continued exclusion of independent trade unions from important consultation institutions and mechanisms in the Iraqi labour market.

It also highlights concerns surrounding the unequal treatment of different trade union organizations and the concentration of representation in structures that do not fully reflect trade union pluralism. The independent trade unions of Iraq have demanded equality in recognition and participation in the bodies responsible for employment planning, labour market governance, social protection, vocational training and employment services. Workers must be free to elect their representatives, and all representative organizations must be able to participate on an equal footing. This matter is not limited to rights; it has a direct impact on the effectiveness of employment policy. Labour market institutions are strengthened when they benefit from workers’ varied perspectives and experience.

Excluding representative organizations weakens consultation and undoubtedly reduces trust in public institutions. The trade union movement has consistently argued that genuine tripartism requires equality between representative trade union organizations and an end to practices that result in exclusion, discrimination or the monopolizing of the representation of the working class. Conventions Nos 122 and 88 cannot, therefore, be applied in full if representative workers’ organizations are denied equal access to consultation processes and decision-making. The Iraqi working class deserves genuine representation and participation. We therefore urge the Government to ensure equality of treatment for all representative trade union organizations, recognize independent trade unions as legitimate social partners and ensure their participation in all institutions related to employment policy and services.

Government member, United Kingdom of Great Britain and Northern Ireland – We thank the Committee of Experts for their report on Iraq’s compliance with Conventions Nos 88 and 122 and the Government of Iraq for providing information on their implementation. The United Kingdom recognizes Iraq’s constructive engagement with the ILO, including through the DWCP. Ongoing efforts to develop a comprehensive national employment policy are welcome and would represent an important step towards enhancing labour force participation, particularly in the private sector. The launch of the digital Mihan platform is an additional encouraging example of digital innovation to support labour market matching. Iraq’s ongoing collaboration with international partners to strengthen employment services and deliver livelihood interventions is also recognized. Initiatives focused on job counselling, skills development and promoting safe and inclusive working environments are supporting institutional capacity, contributing to more effective and inclusive labour market participation. The United Kingdom notes the concerns raised by the Committee regarding persistent structural challenges in the labour market. High levels of unemployment continue, with disadvantaged and marginalized groups disproportionately affected. Female labour force participation remains among the lowest globally, and reliance on public sector employment remains significant, alongside a large-scale informal sector where workers are not protected by labour laws or social protection. Continued efforts to strengthen Iraq’s labour laws and working conditions will be essential to support economic stability and diversification and to foster much needed private sector development. This includes improving the effectiveness of public employment services; enhancing the capacity to match jobseekers with vacancies; strengthening coordination between employment services, training systems and employers and providing data and reporting.

The United Kingdom encourages the Government of Iraq to consider targeted and active measures within employment policies to support women’s access to safe and decent work and increase the labour market participation of traditionally under-represented groups; address informality of labour, including through ongoing efforts to formalize the labour force and support registration; advance and implement a coherent, integrated national employment policy that supports economic diversification and private sector development and, finally, continue to engage constructively with the ILO and avail itself of the technical assistance available. With sustained commitment and support from partners including the ILO, meaningful progress in improving labour market outcomes is achievable which will, in turn, support Iraq in increasing the private sector development critical to its economic diversification. The United Kingdom looks forward to Iraq’s next report demonstrating concrete progress in addressing these challenges and in meeting its obligations under Conventions Nos 88 and 122.

Worker member, France – Convention No. 122 requires governments to pursue an employment policy designed to ensure full, productive and freely chosen employment for all. Convention No. 88, meanwhile, demands the establishment of accessible employment services that meet the needs of all workers and jobseekers. The Committee of Experts has, however, highlighted the persistent difficulties facing women and young persons in the labour market. Women remain markedly under-represented in employment, while many young persons continue to face unemployment, precarity and limited opportunities for decent work.

Independent trade unions have emphasized that these challenges cannot be addressed through isolated measures. They require comprehensive employment policies drawn up in genuine consultation with workers and their representative organizations.

Women and young workers are often among the first to be affected by unemployment and precarious employment. They are also over-represented in precarious forms of work and more exposed to the risk of exclusion from labour market opportunities.

Convention No. 122 requires the implementation of policies that benefit all workers, not only those who are already in stable employment. Similarly, Convention No. 88 requires governments to establish employment services that are accessible to all and able to assist vulnerable groups in gaining access to employment opportunities. The trade union movement has stressed that employment policies should be designed in consultation with representative workers’ organizations. That is particularly important in the design of measures intended to improve opportunities for women and young persons. We reaffirm strongly that workers’ organizations have direct knowledge of obstacles in the labour market and can contribute to more effective and inclusive policies. The future of the Iraqi labour market depends on ensuring that women and young persons are not left on the sidelines. Their participation is essential to economic development, social stability and sustainable growth in employment.

We urge the Government to develop, in consultation with independent workers’ organizations, targeted measures intended to increase employment opportunities for women and young workers and to ensure equality in access to employment services in line with Conventions Nos 122 and 88. Lastly, we urge the Government to organize and, this time, effectively hold the social dialogue forum promised for last year, bringing to the table all independent trade union organizations in the country. That is the sine qua non for significant exchanges and action on the situation of women and young persons in employment.

Worker member, Finland – I speak on behalf of the Nordic Trade Unions. While this case concerns the application of Convention No. 122 and Convention No. 88 in Iraq, a deeper issue is at stake. These Conventions cannot be effectively implemented unless freedom of association is fully respected in law and in practice. Convention No. 122 requires an active employment policy promoting full, productive and freely chosen employment. Convention No. 88 requires a public employment service that functions effectively, fairly and in the public interest. Both Conventions also require the genuine involvement of worker and employer representatives in the design, operation and supervision of these policies and institutions. The requirement is explicit. Article 3 of Convention No. 122 mandates consultation with representatives of those affected, particularly employers and workers. Article 4 of Convention No. 88 requires cooperation with these representatives in organizing and operating employment services. These are not procedural details, but essential conditions for implementation. Concerns going to the core of freedom of association in Iraq are, therefore, inseparable from this case. Freedom of association is a precondition for compliance with Conventions Nos 122 and 88. Where workers cannot freely establish and join organizations of their own choosing, consultation cannot be genuine. Where independent unions cannot function effectively, cooperation cannot be meaningful.

Without genuine consultation and cooperation, implementation in law and in practice is simply not possible. The consequences for workers’ daily lives are direct. Public employment services must be transparent, accountable and accessible. Workers must be able to trust that access to employment is based on objective criteria, not favouritism, patronage, political influence or unequal treatment. These are long-standing concerns raised by independent unions in Iraq. Without independent workers’ organizations, there is no effective way to monitor whether employment services operate fairly. Without genuine trade union participation, there is no credible guarantee that institutions respond to workers’ needs rather than administrative or political interests. The mere existence of offices, laws or decrees is not sufficient to meet obligations under Convention No. 88. And the same applies to Convention No. 122. A national employment policy cannot be substantively compliant if those most affected by unemployment, informality and exclusion cannot participate through independent organizations of their own choosing.

If the workers’ voice is restricted or monopolized, policymaking cannot reflect workers’ realities, and consultation risks becoming a formality. This should be a central concern for this Committee. The absence of full freedom of association not only raises issues with respect to the very standards of freedom of association, it undermines the mechanisms through which Conventions Nos 88 and 122 are intended to function. And where the right to organize is not effectively guaranteed, the legal prerequisites for implementing these Conventions are not met.

Interpretation from Arabic: Government member, Morocco – Firstly, I would like to thank the members of the Committee of Experts for their report, recommendations and comments, all of which can only contribute to the correct implementation of international labour standards. I would also like to thank the Government for its explanations and detailed information on these two Conventions.

We have listened attentively to everything that has been said. We have taken note of the fact that Iraq continues to develop labour market-oriented institutions, and that these policies are based on the development of institutions that allow social and economic difficulties to be addressed. We have also heard details of the policies drafted for 2026–30 and which have been implemented through a collaborative approach with employers and workers and with the support of the ILO, demonstrating clear commitment to promoting productive, freely chosen employment as well as the development of human resources, in line with the objectives of Convention No. 122.

We welcome all the efforts made to develop vocational and technical training and the link between it and the labour market. This is a process of transition that must allow for a shift from the informal to the formal economy. All of this has opened up a path to social protection measures and also allows for the social partners to play a greater role in applying decent work policies. To conclude, we believe that the effort made by Iraq merits our support and follow up by the Office so that it may provide technical assistance and to allow for the full and complete application of these two Conventions.

Worker member, Australia – I take the floor on behalf of the Australian trade union movement. We are deeply concerned by the Committee of Experts’ observation that unemployment is increasing in Iraq. Unemployment disproportionately affects marginalized workers, including women workers and workers in rural and peripheral areas. In seeking employment, many are compelled to enter the informal economy. where they are often receiving inadequate pay, do not have legal protections and are exposed to hazardous and unregulated working conditions.

The expansion of the informal economy is a systematic violation of fundamental labour rights, as well as a social justice challenge with far-reaching implications. As more workers are pushed into insecure and unregulated forms of employment, inequality deepens. eroding social cohesion. Informality also places compliant businesses at a competitive disadvantage, weakening the foundations of fair and sustainable economic development. Addressing informality is, therefore, critical to promote inclusive growth, strengthen democratic institutions and advance broader social and economic stability. Women workers face particularly acute barriers to decent work, including structural discrimination, limited access to education and training and restrictive social norms constraining their labour market participation.

As a result, women are over-represented in informal and precarious employment, where they are more vulnerable to exploitation and harassment. Targeted measures are essential to break the cycle of women’s economic insecurity and exclusion. The Government has the obligation to pursue an active policy designed to promote full, productive and freely chosen employment under Convention No. 122, and to provide effective employment services to connect workers to opportunities for decent work under Convention No. 88. However, the Committee of Experts notes that the Government has not provided information on steps taken to address labour market challenges nor on measures to promote employment for marginalized workers. We urge the Government to engage collaboratively and report on labour market conditions, as well as on the development of a comprehensive national employment policy.

Addressing informality requires genuine social dialogue, meaningful worker participation and stronger labour market governance. Workers in the informal economy are among the most vulnerable, and their voices must be central in any government engagement with worker representatives. Independent trade unions, however, report ongoing constraints as the Government continues to grant exclusive representation rights to a single union. The persistent restrictions on trade union pluralism continue to impede freedom of association. We urge the Government to ensure equal rights and protections for all unions in law and in practice and collaborate with them to extend legal, social and labour protections to all workers.

Worker member, Kenya – Convention No. 122 requires governments to pursue an active employment policy aimed at promoting full, productive and freely chosen employment. Convention No. 88 requires effective public employment services capable of helping workers access employment opportunities. However, the implementation of these Conventions cannot be discussed solely in terms of programmes, institutions or statistics. The central question is whether workers themselves are genuinely involved in shaping the policy that affects their lives.

Independent trade unions in Iraq have repeatedly stressed that employment policies are often discussed and adopted without effective participation by representatives of workers’ organizations. This concern goes to the heart and purpose of both Conventions Nos 122 and 88. Employment policies cannot succeed when workers are absent from the decision-making process, and employment services cannot fully respond to workers’ needs if their representatives are excluded from labour market institutions. Workers are not merely beneficiaries of employment policies. They are principal actors in the labour market. They experience unemployment. They experience precarious work. They experience low wages, and they experience informality on daily basis. Their organizations possess valuable knowledge and experience that should contribute to the development of employment strategies and labour market reforms. The trade union movement has also raised concerns regarding the exclusion of independent unions from committees and institutions responsible for shaping employment policies.

Such exclusion weakens trust, reduces accountability and undermines the legitimacy of labour market governance. Convention No. 122 recognizes the importance of consultation and cooperation in employment policy. Convention No. 88 similarly relies on labour market institutions that are responsive to workers’ needs. These objectives cannot be achieved without effective participation of representative and independent workers’ organizations. No employment policy can be considered truly inclusive if workers are denied a meaningful voice in its development and implementation. Therefore, we strongly urge the Government to recognize independent workers’ organizations as full partners in the formulation, full partners in the implementation and full partners in the monitoring of employment policies and employment services.

Observer, Building and Woodworkers’ International (BWI) – The Building and Woodworkers’ International thanks the Government for its report and welcomes this opportunity for discussions under Conventions Nos 88 and 122. Convention No. 122 requires governments to pursue an active employment policy aimed at promoting full, productive and freely chosen employment, and Convention No. 88 requires effective public employment services, support for workers in accessing employment opportunities. The successful implementation of these Conventions cannot be measured solely by the number of jobs created or the number of workers registered with employment services. The real question is whether workers are gaining access to decent work and whether they have a meaningful voice in shaping the policies that affect their working lives. The Committee has highlighted a number of significant labour market challenges facing Iraq, including high unemployment, widespread informality and the particularly low participation of women in the labour market.

These challenges require comprehensive and coordinated policy responses that place decent work, inclusion and equal opportunities at their centre. The BWI therefore welcomes efforts to develop national employment policies and strengthen employment services. We also note the importance of ensuring that vocational education and training programmes are aligned with the labour market needs and support workers, particularly young women, young people and persons with disabilities and other groups facing barriers to employment. For workers in the construction, building materials and wood sectors these issues are especially important. Employment opportunities generated through reconstruction, infrastructure development and investment must translate into decent jobs, adequate training opportunities and sustainable livelihoods rather than precarious and informal work.

To achieve decent work, workers also need representative organizations capable of defending their interests in participating in labour market governance. Independent trade unions have raised concerns regarding the exclusion of representative workers' organizations from important labour market institutions and consultation processes. They have also highlighted the need for equal treatment among trade union organizations, genuine trade union pluralism and the recognition of independent unions as legitimate social partners. The BWI underlines the importance of effective social dialogue mechanisms that bring together governments, employers and representative workers’ organizations on an equal basis. Such dialogue is essential for addressing unemployment, informality, labour market inequalities, skill shortages and other employment challenges facing Iraq. Decent work requires rights, representation and participation. We therefore urge the Government to continue developing its national employment policies in consultation with the social partners, strengthening employment services and skills development programmes and ensuring the full participation of independent workers’ organizations in employment policy, employment services and labour market governance, in accordance with Conventions Nos 88 and 122.

Observer, Education International (EI) – Conventions Nos 122 and 88 are clear: employment policy must be built on genuine consultation. This is not optional. Yet in Iraq, independent trade unions report restrictive regulations and the lack of functioning of the tripartite dialogue forum. Consultation remains irregular, limited and too often symbolic, and this must change. Representative workers’ organizations have the right to participate fully, regularly and meaningfully in consultations on employment policies, labour market reforms, vocational training and continuous professional development, and social protection. Anything less undermines the very purpose of the Conventions we are discussing today. Policies designed without genuine workers’ participation will not respond to the realities experienced in workplaces and communities. Representing education workers, Education International wants to stress that education, competencies and skills are central to employment policies. Without sustained investment in public education, in teachers and in inclusive training systems, Iraq will not address the development challenges mentioned by the Government, such as unemployment, informality, geographical disparities, climate change, child labour and gender equality.

Genuine tripartite social dialogue is essential to designing policies that work. That means that all representative and independent unions must be at the table, not a select few. The Government stressed that Iraq is committed to, and has gained momentum in, promoting decent work for all and reform in labour market governance. The principles of Conventions Nos 122 and 88 must now be reflected in practice.

Interpretation from Arabic: Government representative – Before I start reading the prepared text I have before me, I have to admit that this interactive debate should continue, and we receive these observations with openness and appreciation. We have nothing to hide regarding the realities, challenges and measures we are undertaking. Each time, we consult with the organizations concerned.

On the other hand, I listened to some of the remarks. I had the feeling that we were discussing the Freedom of Association and Protection of the Right to Organise Convention, 1948 (No. 87), and not Conventions Nos 88 and 122 when it comes to the right to organize, freedom of association and the freedom of trade unions. In Iraq we have a Constitution, and the Constitution guarantees freedom of association and trade union pluralism. There is a law to enforce them. There are specific situations, there are challenges and there are measures taken. With regard to the enactment of the trade union organization law, this is being pursued in cooperation with the ILO.

In 2018, Iraq joined Convention No. 87 out of conviction, out of belief in the importance of the multi-faceted nature of the trade unions, and the trade unions participated in drafting the clause in the Constitution. Of course, there are different views, and there are conflicts. We are a developing country. We are in a region affected by conflicts and crises and now, because of the ongoing crises in Iraq, we find ourselves in a situation where oil exports have ground to a halt, and this has a knock-on effect on the employment market. As far as trade unions are concerned, my impression is that some of the remarks that have been made are not up to date. We do not have independent and non-independent trade unions. All trade unions in Iraq are independent. There is no intervention whatsoever or interference on the part of the Government in the work of trade unions. There are organizations that are more representative and there are organizations of a different nature. The Government does not boycott or grant certain trade unions a different degree of power than other ones. All these organizations are present and they have the approval of the Government, and I urge the Worker members to inquire about these issues and be more informed when it comes to social dialogue. The forum for social dialogue comprises all trade unions, all organizations regardless of their size, and we consult them when it comes to the adoption of policies. The ILO is aware of this process. There is also continued discussion with the Parliament and the Select Committee in Parliament on this issue. Now I go back to my prepared statement.

At the conclusion of this discussion, we would like to express our appreciation for members of the Committee and all participants, governments, employers and workers. We listened carefully to all the views expressed, and all these remarks are welcome when it comes to extending help to strengthen employment and decent work. Equally, it is important to evaluate the situation in countries based on what is actually on the ground, the results and the reforms undertaken, not overlooking the challenges and the extraordinary situations that we have to deal with.

Over the past few decades, Iraq was subject to wars, conflicts, terrorism and economic crises, all of which have left their impact on the labour markets, on the institutions, on the economic infrastructure. However, the Government has not viewed these challenges as grounds for scaling back its international commitments. On the contrary, it has turned them into a driving force for pursuing meaningful and concrete reforms. The drafting of the national employment policy and the development of the labour market are not empty promises. There are measures that are being completed within a time frame in cooperation with the ILO. Therefore, the delegation of Iraq is of the opinion that what happened over the past few years represents true progress in the implementation of Conventions Nos 88 and 122. We would like to affirm that there is institutional and political will, a serious one, to ensure that we have full employment that is productive and decent.

We have listened to some of the remarks which focused on the challenges. We are not in a state of denial when it comes to these challenges. However, we should not turn a blind eye to the progress achieved. We rely on technical assistance, and we believe this cooperation with the ILO is an indicator. We should not overlook the importance of the reforms that have been achieved. We are not seeking special treatment. We look for a balanced and fair assessment of what is being achieved on the ground.

We also believe that dealing with unemployment, the informal sector and the situation of women and the development of skills are deep-rooted problems, and they cannot be resolved overnight. I think this process takes time and requires a cumulative effort and a long-term policy. That is the path that we have chosen in Iraq.

The delegation of Iraq renews its full cooperation with the ILO and the supervisory bodies and is ready to continue its dialogue with the social partners. I would like to assure you that the Government will continue with the reforms when it comes to employment and social protection, vocational training and social dialogue, in line with our international commitments. I would like to make it crystal clear that we do not find ourselves in a position where we defend what our intentions are. On the contrary, we assert our position through achievements, reforms and new policies, and I believe our cooperation with the ILO bears witness to that progress. Therefore, we believe that the path we have chosen is a positive one and is worthy of support and technical assistance.

We hope that the conclusions of this Committee will reflect the progress achieved and the type of cooperation we have had.

Employer members – Before outlining our recommendations, we wish to echo the Government’s comment that many of the interventions that we heard on this case related to issues that were outside of the scope of the Conventions referenced by the Committee of Experts in its observation. We wish to remind the speakers that we are here to address the Government’s application of Conventions Nos 88 and 122 in law and in practice. In closing, and with respect to the Conventions at issue, we would like to reiterate the importance of governments’ compliance with Conventions Nos 88 and 122.

We believe that compliance is critical to ensure meaningful opportunities for both workers and employers to create an environment that creates sustainable growth. In addition, compliance with Convention No. 122 is critical to ensuring the broader effectiveness of the ten core ILO Conventions. The Employer members call on the Government to advance the integration and coordination of a national employment policy, along with employment services, vocational training and education, taking into consideration national conditions and practices. The Employer members call on the Government to continue to engage in social dialogue with social partners when advancing the integration and coordination of the national employment policy, and to do so in a manner that effectively addresses the labour market challenges faced by workers and employers in Iraq.

The Employer members thus request the Government to:

• provide information on the development and implementation of the new national employment policy;
• provide explanations for how the national employment policy is coordinated with the public employment service and how that service contributes in practice to the implementation of the national employment policy;
• provide specific information on measures aimed at women, young persons and vulnerable groups including the concrete impact of those measures on labour market participation and employment opportunities;
• continue to ensure meaningful consultation with the most representative social partners through the development of the national employment policy and labour law reforms, in line with Article 3 of Convention No. 122;
• provide information on the functioning and coverage of the public employment service network, including in the region of Kurdistan, as well as the cooperation mechanisms between public and private employment agencies;
• provide information on the reforms and initiatives undertaken to align vocational education and training with labour market requirements, especially as it relates to vocational training and human resources development for women, young persons and persons with disabilities;
• provide information on efforts to improve labour market information systems, including the collection, analysis and dissemination of disaggregated statistical data;
• provide information on the consultations with the social partners relating to the denunciation of Convention No. 140;
• continue to seek ILO technical assistance to support implementation, reporting and coordination between employment policy and employment services institutions.

Worker members – The Worker members thank the Government of Iraq for its participation in this discussion and all delegates who took the floor. The Worker members regret, however, the absence of a full tripartite delegation from Iraq during this discussion, as meaningful tripartite participation is fundamental to the work of the ILO and to the effective examination of cases before the Committee. The discussion has confirmed the significant and persistent structural challenges facing the Iraqi labour market as highlighted by the Committee of Experts in relation to the application of Conventions Nos 88 and 122, together with related instruments on skills development and lifelong learning.

Despite the Government’s effort to develop new national employment policies and initiatives such as the Mihan platform, unemployment remains high, particularly among women and young persons. Labour force participation, especially for women, remains extremely low, and informality continues to affect the majority of workers. These are not marginal concerns. They point to deep structural deficiencies in the functioning of the labour market and in access to decent and productive employment. The Workers’ group remains particularly concerned by the continued exclusion of women from the labour market and the persistent barriers faced by young persons, internally displaced persons and persons with disabilities. These groups require targeted and effective policy measures supported by well-functioning public employment services under Convention No. 88.

We also note the continued lack of detailed information on concrete measures to reduce informality and extend labour law coverage and social protection, particularly in rural and peripheral areas where decent work deficits are most acute. While we acknowledge the ongoing international cooperation initiatives, including those supported through the ILO’s DWCP and related projects, the Worker members stress that such initiatives must be fully integrated into a coherent national employment policy framework with clear targets, measurable outcomes and effective coordination between employment services, skill systems and labour market institutions. With regard to vocational education and training, the Worker members reiterate their concern over the absence of information on results achieved, institutional reforms and structured social partners’ involvement. A responsive and well governed skill system remains essential for translating employment policies’ objectives into real labour market outcomes. The Worker members also recall the importance of paid educational leave under Convention No. 140 as an integral component of lifelong learning and employability. Any steps away from this framework risk weakening workers’ access to skills development at a time when it is most needed.

Ultimately the effectiveness of Iraq’s employment policy under Convention No. 122 will depend on its ability to ensure coherent coordination between policy design, public employment services, vocational training systems and reliable labour market information supported by meaningful social dialogue. The Worker members, therefore, urge the Government to intensify efforts to address structural labour market weaknesses, strengthen implementation capacity and ensure that policy commitments are translated into tangible improvements in employment opportunities and working conditions for all.

In conclusion, we urge the Government to:

• finalize and implement coherent national employment policies aimed at full, productive and freely chosen employment and decent work, strengthen policy coherence and align employment policy, vocational education and training, and labour market requirements;
• strengthen the public employment service network, including in the region of Kurdistan, and report on the impact of the Mihan platform as a facilitator for labour market matching;
• conclude the ongoing legislative reforms applicable to trade unions and tripartite consultation and ensure an environment conducive to freedom of association in full compliance with the application of international labour standards;
• develop and implement targeted measures to increase the employment of women and young workers as well as other marginalized or disadvantaged groups, including persons with disabilities and internally displaced persons, and ensure their equal access to employment services;
• take concrete steps to reduce informality by extending labour law coverage and social protection, particularly in rural and peripheral areas, and supporting the transition to formal employment;
• strengthen labour market information systems and improve the collection, analysis and dissemination of labour market data to support the development and oversight of employment policies and services;
• report to the ILO on the result and impact of technical and vocational education and training reforms and measures to promote access to paid educational leave consistent with the applicable international obligations;
• ensure the full and meaningful involvement of all representative workers’ and employers’ organizations in the design, implementation, monitoring and review of the national employment policy in the organization and operation of employment services and in labour market governance through structured and regular social dialogue, in line with the principles of Conventions Nos 122 and 88.

We therefore request the Government of Iraq to avail itself of ILO technical assistance in order to bring its legislation into full compliance with Conventions Nos 88 and 122.

Chairperson – We conclude the discussion of this case. We thank the Government representative and all the speakers who took the floor for their participation.

Conclusions of the Committee

The Committee took note of the oral information provided by the Government and of the discussion that followed.

The Committee took note of the significant, persistent and deep structural deficiencies in the functioning of the labour market and in access to decent and productive employment, such as high unemployment, particularly among women and young persons, and extremely low labour force participation.

Taking into account the discussion, the Committee invited the Government to take effective and time-bound measures in consultation with the most representative workers’ and employers’ organizations to:

• advance the integration and coordination of employment policy, employment services and vocational training policies within a coherent national framework, supported by strong social dialogue and robust labour market information, to effectively address the country’s employment challenges;
• provide information on the development, content, implementation, and results of the national employment policy, including its contribution to addressing unemployment and increasing labour market participation, particularly the specific measures taken to promote employment for groups in vulnerable situations, such as young persons, women, internally displaced persons, and persons with disabilities;
• provide information on how the national employment policy is coordinated with the public employment service and how that service contributes in practice to the implementation of the national employment policy;
• provide information on the reforms and initiatives undertaken to align vocational education and training with labour market requirements, including any efforts to support skills development, apprenticeships, recognition of prior learning, and effective job-to-livelihood transitions, especially as it relates to vocational training and human resources development for women, young persons, and persons with disabilities;
• provide information on the functioning and coverage of the public employment service network, including in the region of Kurdistan, as well as the cooperation mechanisms between the public employment service and private employment agencies;
• strengthen labour market information systems and improve the collection, analysis and dissemination of disaggregated labour market data to support the design, implementation, monitoring and review of employment policies and services, and provide information on progress achieved;
• provide information on the results and impact of technical and vocational education and training reforms and related skills-development measures; and
• strengthen the full and meaningful involvement of the most representative employers’ and workers’ organisations through effective consultations and social dialogue regarding employment policy and employment services and provide specific examples of consultations held with the social partners and their participation throughout the employment policy process.

The Committee requested the Government to provide detailed information to the Committee of Experts by 1 September 2026 on the actions taken to implement these recommendations and the progress made, and to avail itself of ILO technical assistance.

Observation (CEACR) - adopted 2025, published 114th ILC session (2026)

The Committee recalls that the Employment Policy Convention, 1964 (No. 122), establishes the overarching obligation for Members to pursue, as a major goal, an active policy designed to promote full, productive and freely chosen employment. This Convention provides the normative framework within which other related instruments operate to ensure the practical implementation of this goal. The Employment Service Convention, 1948 (No. 88), on employment service lays the institutional foundations by requiring an effective public employment service to facilitate matching between labour supply and demand. The Paid Educational Leave Convention, 1974 (No. 140), and the Human Resources Development Convention, 1975 (No. 142), complement this framework by promoting continuous skills development and the integration of education and training within employment policy, thereby enhancing workers’ employability and labour market adaptability. Together, these instruments form a coherent set of standards aimed at achieving the objectives of Convention No. 122 through mutually reinforcing measures on employment promotion, labour market institutions, skills development and fair intermediation. With this in mind, the Committee has decided to examine the information supplied by the Government in an integrated manner.

Formulation and implementation of a national employment policy.Employment trends. The Committee notes that, in its 2024 concluding observations, the United Nations Committee on Economic, Social and Cultural Rights (CESCR) expressed concern about the substantial rise in unemployment since the last periodic report, the stark over-representation in unemployment figures of certain disadvantaged and marginalized groups and the low labour force participation and underemployment of women. CESCR also expressed concern about the large size of the informal economy and the large number of workers in the informal sector of the economy who are not covered by labour laws or the social protection system, in particular in rural and peripheral areas (E/C.12/IRQ/CO/5, 14 March 2024, para. 26). In this regard, the Committee observes that, according to ILOSTAT, in 2021, the labour force participation rate was 39.7 per cent (68.2 per cent for men and only 10.8 per cent for women), and the unemployment rate was 16.2 per cent (14.3 per cent for men and 28.3 per cent for women). The employment-population ratio was 33.2 per cent (58.3 per cent for men and 7.7 per cent for women). Regarding the share of informal employment, it was at 67.6 per cent (70.5 per cent for men and 45.4 per cent for women).

The Committee notes that the Government reiterates that it is preparing a new national employment policy, which includes measures related to employment and training. The Government indicates that a specialized team within the tripartite High Committee for the Planning and Employment of the Labour Force was created for this purpose. Regarding the measures taken to promote employment by the Employment Office, the Government once again refers to the provisions of the Labour Code that regulate its activities. The Committee notes with interest the launch of the digital Mihan platform to facilitate labour market matching, recognizing its potential contribution to achieving the objectives of Convention No. 122 through operationalizing employment services as core instruments of policy execution. In this context, the Committee recalls that Convention No. 122 establishes the overarching framework within which Iraq is to pursue an active, integrated policy aimed at achieving full, productive and freely chosen employment for all workers, as envisaged by Article 1. This key employment policy framework is necessarily supported by effective implementation mechanisms, notably the public employment service under Convention No. 88.

The Committee observes, however, that the Government does not provide information on the steps taken to address key challenges in the Iraqi labour market, such as the high levels of informality and the low participation and underemployment of women.

Lastly, the Committee notes the collaboration with the ILO on the issues covered by the examined instruments, including through the Decent Work Country Programme (DWCP) 2019–23, the Employment-Intensive Investment Programme, and the PROSPECTS Partnership. These initiatives focus on immediate and medium-term job creation (labour-intensive public works), support to small and medium enterprises and entrepreneurship, vocational training reform, social protection extension, and more robust labour market governance. The Committee observes that these efforts are coordinated with national recovery and reconstruction priorities but require greater evidence of effective integration and impact.

Vocational education and training (TVET). The Committee welcomes the detailed information provided by the Government on the responsibilities of the Vocational Training and Labour Department under Law No. 182 of 2018. These include identifying labour market needs in terms of occupations, types of work and required skills as well as developing the capacities and potential of jobseekers through their participation in training courses. However, the Committee notes that the Government has not provided information on the results achieved by the TVET project (2014–23), the current status of the adoption of the law on the national TVET council, or the frequency, nature and outcomes of consultations held with the social partners regarding vocational guidance, education, and training policies and programmes. In this respect, the Committee wishes to emphasize that employment policy and service delivery measures must be supported by sound vocational training and human resources development systems in compliance with Convention No. 142. The Committee underscores that a well-coordinated technical and vocational education and training system, responsive to labour market needs, is vital to enabling workers to qualify for jobs suited to their skills, a direct requirement under Article 1 of Convention No. 122 and a central objective of Convention No.142.

Paid educational leave. While noting the Government’s indication that it intends to denounce Convention No. 140, the Committee recalls that the obligations under this Convention remain until denunciation has become effective. In addition, the Committee underscores the role of paid educational leave under Convention No. 140 as an enabling condition for lifelong learning and continuous skills upgrading, which is indispensable to sustainable employment policy and effective labour market participation. It also highlights that the development and implementation of paid educational leave policies remain vital to support workers’ access to education and training, thereby effectively complementing the goals of Convention No.122 and Convention No.142.

In light of the body of interdependent and mutually supporting employment instruments referenced, the Committee once again requests the Government to provide information on the development, content and implementation of the national employment policy. It also requests information on how this policy coordinates public employment services (Convention No. 88) and aligns vocational training and human resources development programmes (Convention No. 142) with labour market needs. The Committee further requests information on specific measures taken to promote employment for groups in vulnerable situations, such as young persons, women, internally displaced persons, and persons with disabilities. The Government is also requested to provide specific examples of consultations held with the social partners and their participation throughout the employment policy process. This is in line with Article 3 of Convention No.122, which recognizes that effective employment policy formulation requires social dialogue and cooperation, as also mandated by Convention No. 88 and Convention No. 142.

Noting the information provided on the number of public employment offices throughout the country, the Committee requests the Government to provide information on the functioning and coverage of the public employment service network, including in the region of Kurdistan, as well as on cooperation mechanisms between public and private employment agencies, as required by Articles 4, 5 and 11 of Convention No. 88, emphasizing the service’s central role in implementing employment policies under Convention No. 122.

Regarding vocational education and training under Convention No. 142, the Committee requests the Government to provide information on reforms and initiatives undertaken to align vocational education and training with labour market requirements. This includes any efforts to support skills development, apprenticeships, recognition of prior learning, and effective job-to-livelihood transitions, especially through ongoing ILO technical cooperation. The Committee also requests information on the content and impact of the activities related to vocational training and human resources development, particularly on women, young persons, and persons with disabilities, in line with the obligations under Convention No. 142, given that such activities are indispensable for meeting the skills objectives of employment policy under Convention No. 122.

The Committee requests information on actions taken to improve and expand labour market information systems, including collection, analysis and dissemination of disaggregated statistical data to facilitate sound employment policy formulation, implementation and monitoring, as they constitute the backbone of policy design, implementation and review across all these Conventions. The Committee urges the Government to make substantial progress in this regard.

Regarding Convention No. 140, the Committee requests the Government to specify any measures taken or envisaged to promote the granting of paid educational leave consistent with Article 2 of the Convention, and to provide copies of any related legislative or policy documents. It also requests the Government to provide information on consultations held with the social partners as required by Article 5(1)(e) of Tripartite Consultation (International Labour Standards) Convention, 1976 (No. 144), relating to proposals for denunciation of ratified Conventions.

Finally, the Committee urges the Government to advance the integration and coordination of employment policy, employment services, vocational training and educational leave policies within a coherent national framework, supported by strong social dialogue and robust labour market information, to effectively address the country’s employment challenges.

Direct Request (CEACR) - adopted 2022, published 111st ILC session (2023)

Articles 1 and 2 of the Convention. Implementation of an active employment policy. Coordinating employment policy with poverty reduction strategies. The Committee notes the information provided by the Government in relation to cases or lawsuits brought by workers against employers with respect to the application of the provisions of the Convention. The Government also refers to the development of a hotline and an online complaints mechanism to enable workers to report violations of the labour legislation and file complaints. In respect of job creation and poverty reduction, the Government indicates that pursuant to section 6 of Labour Law No. 37 (2015), the State is required to adopt policies to promote full and productive employment. To this end, a High Committee for Planning and Employment of the Labour Force (the High Committee) was established on 15 August 2021, pursuant to Ministerial Order No. 1640 and in accordance with Instruction No. 11 of 2017. The High Committee is responsible for planning, formulation, implementation and follow-up in relation to the employment policy and vocational training programmes (section 17 I of the Labour Law). The Committee notes that the High Committee is currently developing a new national employment policy, which aims to ensure the integration of young adults into the labour market by providing them with training in skills which are in high demand. In respect of employment promotion, the Government indicates that the activities of the Employment Office are regulated under section 19 of the Labour Law which specifies that the employer is bound to inform the regional employment office of vacancies available and submit a request within 10 days to the Employment Office specifying the type of work offered and the qualifications required. The Employment Office may propose suitable candidates from the pool of registered jobseekers within 15 days, after which time the employer may proceed to hire a worker directly (section 21 of the Labour Law). The Committee notes with interest that the Ministry of Labour and Social Affairs and the ILO have signed the first Decent Work Country Programme (DWCP 2019-2023) for Iraq. The DWCP focuses on strengthening the country’s capacity to include the principles of decent work in its socio-economic policies aimed at achieving the United Nations Sustainable Development Goals (SDGs), as well as creating job opportunities in the private sector, combating the worst forms of child labour, improving governance and mechanisms for social dialogue. The Government indicates that the signature of the DWCP 2019-2023, together with the measures taken by the Ministry of Labour and Social Affairs, through its relevant offices, to implement the national employment policy and the poverty reduction strategy will contribute to the social and economic development of Iraq by furthering the application of international labour standards and national labour legislation, as well as promoting social dialogue, social justice and decent work. The Government is further requested to provide information on the progress made in the development of the new national employment policy and on the manner in which consultation with the social partners and their participation in this process is ensured.

Employment of women and young persons. The Committee notes the statistics provided by the Government, according to which, as of August 2020, there were 1,512,463 registered jobseekers in Iraq (1,281,470 men and 230,993 women). It further notes that, according to the DWCP, female labour force participation in Iraq, estimated at 20 per cent, is low. Iraqi women who do participate in the labour market are also more likely to be unemployed, under-employed or employed in part-time jobs. Young women appear to be facing particular challenges in finding employment. In 2016, 65 per cent of young women were unemployed, compared to 32 per cent of young men. With respect to employment opportunities for young persons, the Committee notes that, according to the DWCP, youth unemployment is around 36 per cent, compared to the overall national unemployment rate of 16 per cent. The youth participation rate (15-24 years) has also declined from 52.5 to 34 per cent since 2014. It further notes that, of seven million Iraqi young women and men, over 3.4 million are not in school and only 7 per cent have completed post-secondary education. As a result, many young Iraqis lack the skills necessary to find a job in a fragile, post-conflict economy. The Committee requests the Government to provide updated information, including statistical information disaggregated by age and sex, on the impact of employment policy measures taken by the High Committee in terms of job creation and integration of women, youth and persons with disabilities, into the labour market.In addition, the Committee requests the Government to provide information regarding measures taken to promote the employment of women, especially young women, whose participation in the labour force remains low compared to their male counterparts.

Education and training policies. The Government reports that vocational training and employment are regulated by the High Committee for Planning and Employment of the Labour Force. The Committee notes the statistical data provided by the Government, indicating that 323 persons have participated in training courses (100 male and 223 female). It further notes that the Government does not provide any information on the number of trainees who have found lasting employment after completing their training. The Government adds that coordination between training and employment programmes is currently underway within the occupational units and that an initial agreement has been reached on conducting an economic feasibility study on labour market needs and skills demands in general. The Government further indicates that effective coordination has been established between vocational guidance, training and employment programmes that are carried out in eight vocational training centres. In this regard, the Government refers to career training programmes, in particular in the health sector and food industry. In carrying out the programmes, coordination is ensured with the labour market actors in the local administrations to ensure that the programmes respond to the needs of the labour market. The Government reports that vocational guidance and training at four of the eight training programmes have been fully completed, and four others are still ongoing. It further notes that training programmes in the health sector, in particular the health administration, is one field that has attracted a high number of candidates and provided for the highest employment percentage of trainees in health institutions. The Committee also requests the Government to continue providing information on the impact of the coordination of vocational education and training policies with the specific needs of the labour market, particularly in terms of the lasting integration of jobseekers in employment. It also requests the Government to indicate the measures taken or envisaged to provide education and training to specific groups, such as underprivileged young women and persons with disabilities, with a view to improving their employability. The Committee further requests the Government to indicate the manner in which the social partners and other stakeholders concerned are consulted with respect to the development, implementation and review of education and vocational training programmes that meet the needs of the labour market.

Article 2. Collection and analysis of employment data. The Government indicates that the Ministry of Planning and its offices are responsible for providing unemployment figures and rates in Iraq. It adds that the only statistics currently available are related to the number of jobseekers, disaggregated by sex. The Committee requests the Government to provide detailed information on the measures taken to improve its labour market information system, including the manner in which the data collected is used in designing, implementing and reviewing employment policy measures. It also requests the Government to supply updated labour market information on the situation, level and trends of employment, unemployment and underemployment, disaggregated by age and sex. The Committee reminds the Government that it may avail itself of the technical assistance of the Office and hopes that it will be able to observe progress in this regard in the near future.

Article 3. Participation of the social partners in the formulation and application of employment policies. The Government indicates that the High Committee for the Planning and Employment of the Labour Force is a tripartite institution composed of representatives from relevant ministries, and the most representative workers’ and employers’ organizations. It operates under the chairmanship of the Minister of Labour and Social Affairs. The Government further indicates that the General Federation of Workers’ Unions in Iraq and the Iraqi Federation of Industries are members of the Tripartite Advisory Committee, which is responsible for the submission of the reports requested from the Government of Iraq and is provided with copies of the present reports. The Government adds that the lack of observations from workers’ and employers’ organizations is explained by the fact that the report is prepared by the Tripartite Advisory Committee. The Committee requests the Government to provide updated information in its next report on the manner in which account is taken of the opinions and experiences of the social partners within the High Committee for Planning and Employment of the Labour Force. The Government is invited to provide concrete examples in this regard.

Direct Request (CEACR) - adopted 2020, published 109th ILC session (2021)

The Committee notes that the Government’s report has not been received. It hopes that the next report will contain full information on the matters raised in its previous comments.

Repetition

Articles 1 and 2 of the Convention. Implementation of an active employment policy. Coordinating employment policy with poverty reduction strategies. In its previous comments, the Committee invited the Government to provide information on the impact of active employment policy measures taken to create jobs and reduce poverty. The Committee notes that the Government’s report does not contain information on this point. The Committee therefore reiterates its request that the Government provide updated information, including statistical information disaggregated by age and sex, on the impact of active employment policy measures taken in terms of job creation and poverty reduction. It also reiterates its request that the Government provide updated information on the impact of measures adopted to promote the integration into the labour market of the unemployed, including women, young persons and persons with disabilities.

Education and training policies. The Committee previously requested the Government to provide information on the manner in which it ensures effective coordination between training programmes and employment, and to provide statistical information on training programmes and on the number of participants obtaining lasting employment once the training is completed. The Committee notes the statistics provided by the Government indicating that the number of training centres in Baghdad and other governorates (except Kurdistan) have increased from 34 to 38 centres, and that 401 training workshops were held at the centres during the reporting period. The Government adds that 71 training curricula have been prepared for computer-based training, and that three programmes are being implemented in the training centres: Know About Business; Business innovation; and Life Skills. Referring to its 2014 comments on the implementation of the Human Resources Development Convention, 1975, (No. 142), the Committee once again requests the Government to provide information in its next report on Convention No. 122 indicating the manner in which it ensures effective coordination between its vocational guidance and training programmes and its employment programmes, and to provide detailed information on the content of training programmes, as well as statistical data disaggregated by age and sex on the number of participants obtaining lasting employment following completion of their training. The Committee also requests the Government to provide information on the measures taken or envisaged to ensure that vocational guidance and training educational curricula and training content are coordinated with existing and anticipated employment opportunities, to meet the current and evolving needs of the labour market.

Article 2. Collection and analysis of employment data. The Committee previously requested the Government to provide updated statistics on the employment situation and trends. The Committee notes the Government’s statement that the information is not available. The Committee therefore reiterates its request that the Government provide updated statistics, disaggregated by age and sex, on the situation and trends of employment, unemployment and underemployment in the formal and informal economies as soon as this information becomes available.

Article 3. Participation of the social partners in the formulation and application of policies. The Government indicates that pursuant to section 17 of the Labour Code No. 37 of 2015, the Ministry of Labour has prepared draft instructions regarding the creation of the High Committee for Planning and Employment of the Labour Force, a tripartite committee mandated to formulate public policy on employment and vocational training. The Committee requests the Government to provide updated information in its next report on the establishment and activities of the High Committee for Planning and Employment of the Labour Force.

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

The Committee notes that the Government’s report contains no reply to its previous comments. It hopes that the next report will contain full information on the matters raised in its previous comments.

Repetition

Articles 1 and 2 of the Convention. Implementation of an active employment policy. Coordinating employment policy with poverty reduction strategies. In its previous comments, the Committee invited the Government to provide information on the impact of active employment policy measures taken to create jobs and reduce poverty. The Committee notes that the Government’s report does not contain information on this point. The Committee therefore reiterates its request that the Government provide updated information, including statistical information disaggregated by age and sex, on the impact of active employment policy measures taken in terms of job creation and poverty reduction. It also reiterates its request that the Government provide updated information on the impact of measures adopted to promote the integration into the labour market of the unemployed, including women, young persons and persons with disabilities.

Education and training policies. The Committee previously requested the Government to provide information on the manner in which it ensures effective coordination between training programmes and employment, and to provide statistical information on training programmes and on the number of participants obtaining lasting employment once the training is completed. The Committee notes the statistics provided by the Government indicating that the number of training centres in Baghdad and other governorates (except Kurdistan) have increased from 34 to 38 centres, and that 401 training workshops were held at the centres during the reporting period. The Government adds that 71 training curricula have been prepared for computer-based training, and that three programmes are being implemented in the training centres: Know About Business; Business innovation; and Life Skills. Referring to its 2014 comments on the implementation of the Human Resources Development Convention, 1975, (No. 142), the Committee once again requests the Government to provide information in its next report on Convention No. 122 indicating the manner in which it ensures effective coordination between its vocational guidance and training programmes and its employment programmes, and to provide detailed information on the content of training programmes, as well as statistical data disaggregated by age and sex on the number of participants obtaining lasting employment following completion of their training. The Committee also requests the Government to provide information on the measures taken or envisaged to ensure that vocational guidance and training educational curricula and training content are coordinated with existing and anticipated employment opportunities, to meet the current and evolving needs of the labour market.

Article 2. Collection and analysis of employment data. The Committee previously requested the Government to provide updated statistics on the employment situation and trends. The Committee notes the Government’s statement that the information is not available. The Committee therefore reiterates its request that the Government provide updated statistics, disaggregated by age and sex, on the situation and trends of employment, unemployment and underemployment in the formal and informal economies as soon as this information becomes available.

Article 3. Participation of the social partners in the formulation and application of policies. The Government indicates that pursuant to section 17 of the Labour Code No. 37 of 2015, the Ministry of Labour has prepared draft instructions regarding the creation of the High Committee for Planning and Employment of the Labour Force, a tripartite committee mandated to formulate public policy on employment and vocational training. The Committee requests the Government to provide updated information in its next report on the establishment and activities of the High Committee for Planning and Employment of the Labour Force.

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

Articles 1 and 2 of the Convention. Implementation of an active employment policy. Coordinating employment policy with poverty reduction strategies. In its previous comments, the Committee invited the Government to provide information on the impact of active employment policy measures taken to create jobs and reduce poverty. The Committee notes that the Government’s report does not contain information on this point. The Committee therefore reiterates its request that the Government provide updated information, including statistical information disaggregated by age and sex, on the impact of active employment policy measures taken in terms of job creation and poverty reduction. It also reiterates its request that the Government provide updated information on the impact of measures adopted to promote the integration into the labour market of the unemployed, including women, young persons and persons with disabilities.

Education and training policies. The Committee previously requested the Government to provide information on the manner in which it ensures effective coordination between training programmes and employment, and to provide statistical information on training programmes and on the number of participants obtaining lasting employment once the training is completed. The Committee notes the statistics provided by the Government indicating that the number of training centres in Baghdad and other governorates (except Kurdistan) have increased from 34 to 38 centres, and that 401 training workshops were held at the centres during the reporting period. The Government adds that 71 training curricula have been prepared for computer-based training, and that three programmes are being implemented in the training centres: Know About Business; Business innovation; and Life Skills. Referring to its 2014 comments on the implementation of the Human Resources Development Convention, 1975, (No. 142), the Committee once again requests the Government to provide information in its next report on Convention No. 122 indicating the manner in which it ensures effective coordination between its vocational guidance and training programmes and its employment programmes, and to provide detailed information on the content of training programmes, as well as statistical data disaggregated by age and sex on the number of participants obtaining lasting employment following completion of their training. The Committee also requests the Government to provide information on the measures taken or envisaged to ensure that vocational guidance and training educational curricula and training content are coordinated with existing and anticipated employment opportunities, to meet the current and evolving needs of the labour market.

Article 2. Collection and analysis of employment data. The Committee previously requested the Government to provide updated statistics on the employment situation and trends. The Committee notes the Government’s statement that the information is not available. The Committee therefore reiterates its request that the Government provide updated statistics, disaggregated by age and sex, on the situation and trends of employment, unemployment and underemployment in the formal and informal economies as soon as this information becomes available.

Article 3. Participation of the social partners in the formulation and application of policies. The Government indicates that pursuant to section 17 of the Labour Code No. 37 of 2015, the Ministry of Labour has prepared draft instructions regarding the creation of the High Committee for Planning and Employment of the Labour Force, a tripartite committee mandated to formulate public policy on employment and vocational training. The Committee requests the Government to provide updated information in its next report on the establishment and activities of the High Committee for Planning and Employment of the Labour Force.

Direct Request (CEACR) - adopted 2014, published 104th ILC session (2015)

Articles 1 and 2 of the Convention. Implementation of an active employment policy. Coordinating employment policy with poverty reduction. The Committee notes the information provided by the Government in its report received in October 2013 concerning efforts of the Ministry of Labour and Social Affairs (MoLSA) to modify the institutional approach to employment. Consequently, the National High Commission for Employment and Vocational Training was set up under the chairmanship of MoLSA. With regard to the implementation of the National Employment Policy 2011–14, the Government indicates that some of its achievements include supporting small projects for numerous categories of unemployed persons, including persons with disabilities, supporting the private sector and providing institutional support to the vocational training centres and employment offices. With regard to poverty reduction, the Committee notes the information provided by the Government that 168 billion dinars (IQD) were allocated to the MoLSA under its poverty reduction strategy in order to provide small loans to targeted groups of the poor and socially vulnerable population to support small income-generating projects. The Committee invites the Government to provide information on the impact of its active employment policy in terms of job creation and poverty reduction. It also invites the Government to provide information on the impact of the measures adopted to promote the integration into the labour market of the unemployed, including women, young persons and persons with disabilities.

Education and training policies. The Committee notes the information provided by the Government concerning the expansion of training activities, including information on the number of training centres which has reached 34 in addition to three training centres that are under construction. It also notes that packages of training curricula were completed and additional ones are being developed. Moreover, the “Know About Business” programme was launched to provide the unemployed with skills and information to establish their own projects and encourage self-employment. In June 2013, there were 382 trainees who completed the programme. Furthermore, a training programme at work was launched with over a thousand private sector job and training opportunities available to individuals with lower qualifications. The Committee notes however that the programme has stopped, pending the promulgation of a special regulation. Referring to its comments on the application of the Human Resources Development Convention, 1975 (No. 142), the Committee invites the Government to provide in its next report on Convention No. 122 information on the manner in which it ensures effective coordination between training programmes and employment. Please also provide further details on training programmes and supply disaggregated data on the number of participants obtaining lasting employment once the training is completed. The Committee also requests the Government to provide information on the measures taken to ensure that educational curricula and training content is coordinated with existing and anticipated employment opportunities.

Article 2. Collection and analysis of employment data. The Committee notes the statistics provided regarding the situation of unemployment as at 31 July 2013. It notes in particular that 579,649 persons were registered at the employment centres, out of which 116,318 were illiterate. The Committee invites the Government to provide updated statistics, disaggregated as much as possible, on the situation and trends of employment, unemployment and underemployment in both the formal and the informal economy.

Article 3. Participation of the social partners in the formulation and application of policies. The Government indicates that the National High Commission for Employment and Vocational Training consists of more than 16 bodies which represent relevant ministries and employers’ and workers’ organizations. It adds that the National High Commission plays a guiding role in following up on the aims of the National Employment Policy. The Committee requests the Government to provide information on consultations held with representatives of employers and workers, including within the National High Commission for Employment and Vocational Training, on the formulation and implementation of employment policies and programmes.

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

Articles 1, 2 and 3 of the Convention. Implementation of an active employment policy. Participation of the social partners. The Committee notes the information provided by the Government in its reports supplied in September 2011 and March 2012. It notes the National Employment Policy (NEP) that was formulated by the Ministry of Labour and Social Affairs (MoLSA) with the assistance of the ILO and adopted in 2011, attached to the Government’s report. The Government indicates that during a roundtable held in 2011 in collaboration with the ILO, the National High Commission for Employment and Vocational Training made various recommendations regarding the priorities for the implementation of the NEP for the 2011–14 period. Recommendations focused on, inter alia, the coherence between the NEP implementation and the Poverty Reduction Strategy, the establishment of a legal framework for implementing the NEP, the coordination between relevant stakeholders, the organization of various promotional activities in collaboration with the ILO, the strengthening and modernization of employment-related and vocational training services. The National High Commission also encouraged the participation of social partners in the implementation of the NEP, as well as the free and independent election of members within the most representative employers’ and workers’ organizations. The Government indicates that in the Governorate of Baghdad there were 453,310 unemployed persons in the 2003–11 period. The Committee invites the Government to include information in its next report on the implementation of the NEP and its impact in terms of promoting full, productive and lasting employment. The Committee also requests the Government to provide information on the follow-up to the recommendations of the National High Commission for Employment and Vocational Training.

Coordination of education and training policy with employment policy. The Government indicates that in implementing the NEP, modern competency-based training programmes were developed to provide skilled manpower covering labour market needs. Referring to its comments formulated in 2009 on the Human Resources Development Convention, 1975 (No. 142), the Committee invites the Government to provide information in its next report on Convention No. 122 on the way in which it ensures effective coordination between the programmes of vocational training and employment. Please also provide further details on training programmes and supply disaggregated data on the number of participants in these trainings and of those obtaining lasting employment following their attendance of these programmes.

Promotion of small and medium-sized enterprises (SMEs). The Government indicates that a bill prepared by the MoLSA and pending Government approval encourages the establishment of SMEs. It further indicates that a programme launched by the MoLSA to provide loans at preferential rates for small projects in the Baghdad area, with the objective of poverty reduction and the empowerment of deprived social groups, was implemented between 2007 and 2008. The programme benefited approximately 73,500 of the 250,000 persons registered. Women comprised less than 10 per cent of the beneficiaries and the majority of beneficiaries were made up of illiterate persons, the vulnerable and the socially excluded. The Government indicates that the programme was expected to be expanded and cover all governorates (except Kurdistan) at a budget of US$612 million. The Committee invites the Government to include in its next report information on continuing measures taken to support the establishment of SMEs and their results in terms of reducing poverty and stimulating productive employment.

Measures to promote the employment of specific categories of workers. The Government indicates that, due to the current lack of funds, no additional projects may be implemented, which has led to the suspension of activities in almost the whole country. In its 2010 General Survey concerning employment instruments, the Committee recalled that member States should make the best possible effort, in relation to their level of development and economic capacity, to achieve and maintain full employment. This includes, among others, that targeted programmes are being deployed to overcome handicaps faced by vulnerable groups of workers and to remove labour market discrimination (paragraph 516 of the 2010 General Survey, also available in Arabic). The Committee invites the Government to include in its next report information on the impact of the measures adopted in cooperation with the social partners, representatives of the most vulnerable and marginalized groups of the active population and other relevant stakeholders at the national and international levels, to promote the integration into the labour market of specific categories of workers, such as women, young persons, older workers and workers with disabilities.

Article 2. Collection and analysis of employment data. The Committee notes that the statistics provided by the Government on unemployment and employment levels in the Governorate of Baghdad refer to the period 2003–11 as a whole. It also notes that among the 2011 recommendations of the National High Commission for Employment and Vocational Training some focused on the enhancement of the labour market information system within the public employment service and the preparation of a labour force survey in collaboration with the ILO. The Committee invites the Government to provide in its next report updated statistics, disaggregated as much as possible, on the situation and trends of employment, unemployment and underemployment in both the formal and the informal economy.

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

Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Committee notes the information provided by the Government in its report supplied in September 2009, in reply to the 2008 direct request. The Government indicates that it is working in coordination with the ILO, the social partners and a specialized technical team with the participation of university professors. The work of this team is intended to prepare a national employment policy and to implement a special framework for vocational education and training. The Committee invites the Government to include information in its next report on the progress achieved in the formulation and implementation of a national employment policy, and of the special framework for vocational education and training. The Committee also invites the Government to include updated information on the impact of the measures adopted for the creation of productive employment in the context of the Poverty Reduction Strategy.

The Committee notes the Private Sector Development Programme, prepared in coordination with several United Nations agencies, intended to establish a dynamic framework for action for the development of the private sector. The programme is essentially intended to develop and increase employment opportunities through the promotion of a legal environment that is conducive to the creation of enterprises, including small and medium-sized enterprises. In the General Survey of 2010 on employment instruments, the Committee emphasizes that the Job Creation in Small and Medium-Sized Enterprises Recommendation, 1998 (No. 189), provides a specific framework to ensure that small and medium-sized enterprises, as well as micro-enterprises, create jobs in compliance with international labour standards. In this respect, the Committee invites the Government to include information in its next report on the measures adopted in order to “create an environment conducive to the growth and development of small and medium-sized enterprises” (see Paragraph 5 of Recommendation No. 189).

Measures to promote the employment of specific categories of workers. The Government indicates that special funds have been allocated to grant loans to around 100,000 jobseekers, including young persons, graduates, displaced persons and families that have suffered damage. Similarly, 93,000 projects have been undertaken up to now in various regions of the country, which have generated over 120,000 jobs. The Government adds that the community rehabilitation programme intended for the most vulnerable categories of workers, such as the disabled and the widows and wives of disabled workers, is still being implemented, and that loans have been granted to these categories of workers to facilitate the launching of small-scale projects. The Government indicates that these projects are monitored to ensure their effectiveness and to provide economic support for them. The Committee invites the Government to include more detailed information in its next report on the impact of the measures adopted for specific categories of workers, such as women, young persons, older workers and workers with disabilities, in terms of their integration into the labour market.

Article 2. Collection and analysis of employment data. The Government indicates that efforts are being made in coordination with the Central Statistical Office to assess labour market needs in relation to vocational guidance and training. The Committee invites the Government to provide detailed statistics in its next report on the situation and trends of employment, unemployment and underemployment in both the formal and the informal economy.

Article 3. Participation of the social partners. The Government indicates that a meeting of the National High Commission for Employment and Vocational Training was held on 4–5 January 2009 to review its work and to prepare recommendations for submission to the Secretariat of the Council of Ministers which, in turn, transmits them to other ministries for necessary measures to be taken. The Committee invites the Government to indicate in its next report the recommendations made by the National High Commission for Employment and Vocational Training on the subjects covered by the Convention. It also requests the Government to provide additional information on the participation of the social partners in the design and implementation of employment policies.

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

The Committee notes the information provided in the Government’s report received in September 2008. The Government indicates that, in addition to support from the United Nations agencies, there are ongoing cooperation programmes, and it is receiving support from the ILO aimed at strengthening national capacities in employment and vocational training aimed at human capital development. The Committee looks forward to receiving information in the Government next’s report on the measures taken to develop and implement an active employment policy within the meaning of the Convention, with the assistance of the ILO and other international agencies, and the results thereof. The Government is also invited to include information on the following matters in its next report.

Articles 1 and 2 of the Convention. Labour market policies. The Government indicates that unemployed persons are registered at employment offices located throughout the country, and their information is compiled on a database. An employment programme is prepared for these jobseekers, by identifying job opportunities and providing small loans to facilitating the setting up of income generating projects. Efforts are also made to secure job opportunities for persons with special needs, and awarding grants to some categories of jobseekers for a specified period. The Committee requests the Government to provide information in its next report on the achievements of such employment programmes in terms of employment generation, and the manner in which the programmes are kept under review within the framework of a coordinated economic and social policy. The Government is also asked to provide information on how it intends to strengthen the employment offices in order to meet the needs of vulnerable categories of workers such as women, young people, older workers and people with disabilities.

Article 2. The Government is asked to provide more precise information in its next report on the efforts made to improve its capacity to assess the situation of, and trends in, employment, unemployment, and underemployment, both in the formal and informal economy.

Article 3. Participation of the social partners. The Government indicates in its report that there is an exchange of views on employment policies, between representatives from different Ministries and representatives of employers’ and workers’ organizations, through a higher national committee presided by the Minister of Labour and Social Affairs. The Committee would welcome further information on the consultations held with representatives of the social partners both at the stage of the formulation of employment policies and in relation to the implementation of the measures adopted under such policies.

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

The Committee notes that the Government, in its report received in June 2002, repeats the brief statement already sent in its previous communication. The Committee again asks the Government to provide information which will enable it to ascertain to what extent an active policy of promoting full, productive and freely chosen employment is formulated and applied in the framework of a coordinated economic and social policy and in consultation with all the persons affected, in accordance with Articles 1, 2 and 3 of the Convention. The Committee expresses the hope that the Government will not fail to submit a detailed report that responds to all of the points raised in the report form adopted by the Governing Body.

Observation (CEACR) - adopted 2001, published 90th ILC session (2002)

In its previous comments the Committee asked the Government to provide information which will enable it to ascertain to what extent an active policy of promoting full, productive and freely chosen employment is formulated and applied in the framework of a coordinated economic and social policy and in consultation with all the persons affected, in accordance with Articles 1, 2 and 3 of the Convention. The Committee notes the Government’s brief statement contained in the report received in October 2000. The Committee expresses the hope that the Government will not fail to submit a detailed report that responds to all of the points raised in the report form adopted by the Governing Body.

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

The Committee again notes that the Government's report contains no reply to previous comments. It hopes that the next report will include full information on the effect given to the Convention in reply to each question of the report form approved by the Governing Body. In particular it asks the Government to state the employment objectives set out in the plans and programmes mentioned, and detailed information on the measures taken to achieve them. The Committee hopes that the Government will provide in its next report information which will enable it to ascertain to what extent an active policy of promoting full, productive and freely chosen employment is formulated and applied in the framework of a coordinated economic and social policy and in consultation with all the persons affected, in accordance with Articles 1, 2, and 3 of the Convention.

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

The Committee notes that the Government's report contains no reply to previous comments. It hopes that the next report will include full information on the matters raised in its previous direct request, which read as follows:

The Committee notes the brief general information supplied by the Government in its report for the period ending June 1994 and the statistical data on employment sent separately. With reference to its previous comments, the Committee is bound to request the Government again to supply in its next report full information on the effect given to the Convention in reply to each question of the report form approved by the Governing Body.

In this respect, the Committee recalls that it specifically requested the Government to specify the employment objectives set out in the plans and programmes it mentions and to provide detailed information on the measures taken to achieve them.

The Committee hopes to find in the Government's next report information which will enable it to ascertain to what extent an active policy of promoting full, productive and freely chosen employment is formulated and applied in the framework of a coordinated economic and social policy and in consultation with all the persons affected, in accordance with Articles 1, 2 and 3 of the Convention.

Direct Request (CEACR) - adopted 1996, published 85th ILC session (1997)

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 general information supplied by the Government in its report for the period ending June 1994 and the statistical data on employment sent separately. With reference to its previous comments, the Committee is bound to request the Government again to supply in its next report full information on the effect given to the Convention in reply to each question of the report form approved by the Governing Body.

In this respect, the Committee recalls that it specifically requested the Government to specify the employment objectives set out in the plans and programmes it mentions and to provide detailed information on the measures taken to achieve them.

The Committee hopes to find in the Government's next report information which will enable it to ascertain to what extent an active policy of promoting full, productive and freely chosen employment is formulated and applied in the framework of a coordinated economic and social policy and in consultation with all the persons affected, in accordance with Articles 1, 2 and 3 of the Convention.

Direct Request (CEACR) - adopted 1995, published 83rd ILC session (1996)

The Committee notes the brief general information supplied by the Government in its report for the period ending June 1994 and the statistical data on employment sent separately. With reference to its previous comments, the Committee is bound to request the Government again to supply in its next report full information on the effect given to the Convention in reply to each question of the report form approved by the Governing Body.

In this respect, the Committee recalls that it specifically requested the Government to specify the employment objectives set out in the plans and programmes it mentions and to provide detailed information on the measures taken to achieve them.

The Committee hopes to find in the Government's next report information which will enable it to ascertain to what extent an active policy of promoting full, productive and freely chosen employment is formulated and applied in the framework of a coordinated economic and social policy and in consultation with all the persons affected, in accordance with Articles 1, 2 and 3 of the Convention.

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

The Committee notes with regret 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 would be grateful if the Government would supply full information in its next report on the application of the Convention with reference in particular to the following points:

1. The Committee notes the statistics (for 1989) supplied by the Government concerning the number of workers. It notes, however, that these statistics cover a total of 262,055 workers (including non-nationals) employed in enterprises in the private, mixed and cooperative sectors. It also notes that the statitical yearbook published by the Central Statistical Organization in 1988 gave a total of 943,938 persons employed in the socialist and mixed sectors and that, according to the results of the 1987 census, which were reproduced in the ILO's Yearbook of Labour Statistics, the total active population was 3,956,345 persons. The Committee would be grateful if the Government would supply the available statistics on the situation, level and trends of employment, unemployment and underemployment in all sectors of economic activity (Article 1 of the Convention). Please describe the measures that have been taken to collect and analyse relevant statistical data as a basis for deciding on measures of employment policy (Article 2).

2. The Government states that it gives effect to the provisions of the Convention through plans and programmes intended to increase the level of employment and to respond to the needs of particular categories of workers such as women, young persons and the disabled. Please describe the employment objectives set out in these plans and programmes and supply, with reference to the questions contained in the report form, detailed information on the measures that have been taken in order to achieve them. In particular, please describe the measures that have been taken to adjust the workforce to structural changes resulting from various factors and specify the difficulties that have been encountered in attaining the objectives of the Convention as set out in Article 1, paragraph 2 (a), (b) and (c).

3. The Committee notes the information concerning the activities of training centres and requests the Government to continue to supply information on the measures that have been taken to coordinate education and training policies with prospective employment opportunities.

4. Finally, please supply information on the manner in which representatives of the persons affected are consulted concerning employment policies (Article 3).

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 two successive reports from the Government (for the periods ending June 1990 and June 1991) and the information that they contain in reply to its previous direct request. It would be grateful if the Government would supply full information in its next report on the application of the Convention with reference in particular to the following points:

1. The Committee notes the statistics (for 1989) supplied by the Government concerning the number of workers. It notes, however, that these statistics cover a total of 262,055 workers (including non-nationals) employed in enterprises in the private, mixed and cooperative sectors. It also notes that the statitical yearbook published by the Central Statistical Organization in 1988 gave a total of 943,938 persons employed in the socialist and mixed sectors and that, according to the results of the 1987 census, which were reproduced in the ILO's Yearbook of Labour Statistics, the total active population was 3,956,345 persons. The Committee would be grateful if the Government would supply the available statistics on the situation, level and trends of employment, unemployment and underemployment in all sectors of economic activity (Article 1 of the Convention). Please describe the measures that have been taken to collect and analyse relevant statistical data as a basis for deciding on measures of employment policy (Article 2).

2. The Government states that it gives effect to the provisions of the Convention through plans and programmes intended to increase the level of employment and to respond to the needs of particular categories of workers such as women, young persons and the disabled. Please describe the employment objectives set out in these plans and programmes and supply, with reference to the questions contained in the report form, detailed information on the measures that have been taken in order to achieve them. In particular, please describe the measures that have been taken to adjust the workforce to structural changes resulting from various factors and specify the difficulties that have been encountered in attaining the objectives of the Convention as set out in Article 1, paragraph 2 (a), (b) and (c).

3. The Committee notes the information concerning the activities of training centres and requests the Government to continue to supply information on the measures that have been taken to coordinate education and training policies with prospective employment opportunities.

4. Finally, please supply information on the manner in which representatives of the persons affected are consulted concerning employment policies (Article 3).

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

The Committee notes the two successive reports from the Government (for the periods ending June 1990 and June 1991) and the information that they contain in reply to its previous direct request. It would be grateful if the Government would supply full information in its next report on the application of the Convention with reference in particular to the following points:

1. The Committee notes the statistics (for 1989) supplied by the Government concerning the number of workers. It notes, however, that these statistics cover a total of 262,055 workers (including non-nationals) employed in enterprises in the private, mixed and cooperative sectors. It also notes that the statitical yearbook published by the Central Statistical Organisation in 1988 gave a total of 943,938 persons employed in the socialist and mixed sectors and that, according to the results of the 1987 census, which were reproduced in the ILO's Yearbook of Labour Statistics, the total active population was 3,956,345 persons. The Committee would be grateful if the Government would supply the available statistics on the situation, level and trends of employment, unemployment and underemployment in all sectors of economic activity (Article 1 of the Convention). Please describe the measures that have been taken to collect and analyse relevant statistical data as a basis for deciding on measures of employment policy (Article 2).

2. The Government states that it gives effect to the provisions of the Convention through plans and programmes intended to increase the level of employment and to respond to the needs of particular categories of workers such as women, young persons and the disabled. Please describe the employment objectives set out in these plans and programmes and supply, with reference to the questions contained in the report form, detailed information on the measures that have been taken in order to achieve them. In particular, please describe the measures that have been taken to adjust the workforce to structural changes resulting from various factors and specify the difficulties that have been encountered in attaining the objectives of the Convention as set out in Article 1, paragraph 2 (a), (b) and (c).

3. The Committee notes the information concerning the activities of training centres and requests the Government to continue to supply information on the measures that have been taken to coordinate education and training policies with prospective employment opportunities.

4. Finally, please supply information on the manner in which representatives of the persons affected are consulted concerning employment policies (Article 3).

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 brief information contained in the Government's report. It requests the Government to supply a full report containing detailed information on the implementation of the Convention.

2. Please supply information on the situation, level and trends of employment, unemployment and underemployment, both in urban and rural areas, with regard to specific categories of workers, such as, women, young persons and disabled workers. Please supply the information requested previously on the plans and programmes that have been adopted or are being formulated, the employment objectives set out therein and the extent to which they are being achieved. Please indicate the measures taken in order to satisfy the needs of the specific categories referred to above.

3. In reply to its previous direct request, the Government indicates that the vocational training body has been abolished and that its duties have been entrusted to the labour and vocational training department of the Ministry of Labour. The Committee refers to its direct request on Convention No. 142 and requests the Government to supply detailed information in its next report on the activities of the vocational training centres set up in Baghdad and in the governorates, and, more generally, on the measures that have been taken to co-ordinate education and training policies with employment prospects.

Direct Request (CEACR) - adopted 1989, published 76th ILC session (1989)

1. The Committee notes the brief information contained in the Government's report. It requests the Government to supply a full report containing detailed information on the implementation of the Convention.

2. Please supply information on the situation, level and trends of employment, unemployment and underemployment, both in urban and rural areas, with regard to specific categories of workers, such as, women, young persons and disabled workers. Please supply the information requested previously on the plans and programmes that have been adopted or are being formulated, the employment objectives set out therein and the extent to which they are being achieved. Please indicate the measures taken in order to satisfy the needs of the specific categories referred to above.

3. In reply to its previous direct request, the Government indicates that the vocational training body has been abolished and that its duties have been entrusted to the labour and vocational training department of the Ministry of Labour. The Committee refers to its direct request on Convention No. 142 and requests the Government to supply detailed information in its next report on the activities of the vocational training centres set up in Baghdad and in the governorates, and, more generally, on the measures that have been taken to co-ordinate education and training policies with employment prospects.