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

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

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

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

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

Article 2. Collection and use of labour market information. Employment trends. The Government indicates that evaluation studies have been conducted on the active labour market program and projects, such as the following: (i) preparation of studies to assess the impact of legislation, including a study to motivate women to enter the labour market (flexible work system); (ii) evaluation of the project of supporting and establishing a nurseries project in the public and private sectors; and (iii) evaluation of public employment services. The Government indicates that, in cooperation with the European Union, a comprehensive concept paper for the labour market system was developed and used as the basis for work to develop a Labour Market Information System (LMIS) project. The Committee notes that an LMIS is currently being established, in collaboration with ILO and GIZ, which is included in the priorities of the vision of economic modernisation to obtain comprehensive and timely information on the labour market. The Government adds that the LMIS aims to prepare effective employment policies and strategies and make evidence-based decisions by investing resources in employment, education and training, and harmonising supply and demand for labour. The Committee notes the statistical data updated until 2022 submitted by the Government on unemployment rates of Jordanians divided by age groups, unemployment rate of Jordanians according to gender, Jordanian labour force by sex and economic participation (including employed and unemployed), Jordanian labour force by age groups and percentage distribution of employed Jordanians according to age groups. The Committee also notes that there has been a decrease in unemployment among men in the period 2021–22 and a continuous increase in unemployment among women in the period 2018–22. The Committee also notes from information published by the World Bank that Jordan’s unemployment increased to 22.3 per cent, remaining well above its pre-COVID-19 crisis average of 15.1 per cent (2012–19), with youth (46.1 per cent) and women (30.9 per cent) being the most affected. The Committee requests the Government to continue to provide detailed updated information on the state of advancement of the new Labour Market Information System, as well as an assessment of active labour market programmes and projects, including their impact on the design, implementation and review of employment policy measures. The Committee further requests the Government to continue to provide complete and updated statistics on the levels and trends of employment, unemployment and underemployment in the country, disaggregated by age and sex.

Education and training. The Committee notes that the Government has not provided the information requested under this point. The Committee reiterates its request to the Government to provide information on the results achieved through the implementation of the E-TVET Strategy, the challenges encountered, the lessons learned and on any plans to renew the strategy. The Committee also reiterates its request to the Government to provide information on the impact of the education and vocational trainings provided on labour market participation and the implementation of the national employment policy. In addition, the Committee reiterates its request to the Government to provide further information on the role of the social partners in the consultation process of the Vocational and Technical Skills Development Council in practice.

Specific categories of workers. In its previous comments, the Committee requested the Government to provide information on specific groups, including women, young persons, persons with disabilities, older workers, former inmates and refugees.

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

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

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

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

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

The Committee requests the Government to continue to provide information on measures taken to promote the employment of specific groups of workers, including women, young people, persons with disabilities and refugees, but also rural workers, older workers, and former inmates. The Committee requests the Government to include statistics on the employment rates of these groups of workers disaggregated by sex and age.

Article 3. Consultation with the social partners. In its previous comments, the Committee had requested the Government to provide information on the nature of the measures taken and the results achieved in the context of the DWCP 2018–22, to improve social partners’ contribution to the activities of the abovementioned bodies and to provide information on the consultations undertaken in the development, implementation and review of the new employment policy and its measures, in coordination with other economic and social policies. In its reply, the Government refers to the Labour Code, Section 43 with establishes the Tripartite Committee for Labour Affairs (TCLA), and the Regulation of the TCLA (Regulation No. 21 of 2010) issued on May 2010, in particular Section 3 related to the composition of the TCLA, and Section 6b establishing the tasks and powers of the TCLA. While taking note of this information, the Committee reiterates its requests to the Government to provide information on the concrete consultations carried out with a view to reviewing the outcomes of the expired employment policy and formulating and implementing the future one, in coordination with other economic and social policies.