Observation (CEACR) - adoptée 2025, publiée 114ème session CIT (2026)

Convention (n° 122) sur la politique de l'emploi, 1964 - Iraq (Ratification: 1970)

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.