1. law, govt and politics
2. legal issues
3. human rights

Decent Work Country Programme
Cambodia (2011-2015)
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Preface
The ILO has been a partner in Cambodia’s economic and social recovery since the early 1990s. It supports
the efforts of its tripartite constituents – Government, Workers’ Organizations and Employers’
Organizations – and other partners in development to expand opportunities for decent and productive
employment, to improve the effectiveness of social dialogue between employers and workers, to strengthen
and widen the scope and coverage of social protection, and to promote social justice and equity for all
groups in society.
The ILO works in Cambodia and around the world to promote Decent Work - productive work in conditions
of freedom, equity, security and human dignity – in order to reduce poverty and secure social justice.
Decent Work comprises four mutually-supporting components: (i) upholding fundamental rights at work;
(ii) ensuring adequate livelihoods, and creating more and better jobs for women and men; (iii) providing
social protection, (including the right to a safe work environment); and (iv) promoting social dialogue,
between employers, workers and government at the sectoral and national level as a framework for good
governance. Across all of these areas, efforts to promote and uphold the principles of gender equality and
non-discrimination are recognised as explicit prerequisites for the full realisation of this Agenda, and will
be mainstreamed throughout the work of each DWCP.1
The ILO partnership with the Royal Government of Cambodia (RGC) and its social partners for 2011-2015
focuses on three main pillars or priority areas: (1) improving Industrial Relations and Rights at Work; (2)
promoting an enabling environment for sustainable enterprise growth and decent job creation; and (3)
improving and extending social protection.
The Decent Work Country Programme for Cambodia (2011-2015) has been developed by the International
Labour Organization’s Country Office for Cambodia, Lao PDR, and Thailand (CO-Bangkok), in collaboration
with the Ministry of Labour and Vocational Training (MOLVT), the Cambodian Federation of Employers and
Business Associations (CAMFEBA), and Cambodian trade unions. The ILO would in particular like to thank
Mr David Williams for his work in developing this document.
While acknowledging the contributions of all mentioned, any errors or omissions found in the Decent Work
Country Programme will remain the responsibility of the International Labour Organization.
We, the undersigned, support the Decent Work Country Programme for Cambodia and will work together
to operationalize the programme. We shall constantly seek assistance from all the stakeholders and the
donor community towards achieving this shared vision for Decent Work in the world of work.
Signature: _________________________
Jiyuan Wang
Director
ILO Country Office for Cambodia, Lao PDR, and Thailand
Date:
Phnom Penh, Cambodia
1 This is in line with the 2008 ILO Declaration on Social Justice for a Fair Globalization, which notes that “Gender equality and nondiscrimination must be considered to be cross-cutting issues in the [four] strategic objectives” and that “Gender equality and nondiscrimination are critical to achieve decent work for all and are central to all four strategic objectives”.
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Executive Summary
Cambodia became a member of the ILO in 1969, however conflict and international isolation prevented it
from reaping the full benefits of this membership until the early 1990s. Since the restoration of peace in
1993, the ILO has been an active partner in the country’s economic, social and democratic recovery. Working
with the government, its social partners and other developmental actors, the ILO has played a key role in
international efforts to restore livelihoods, create lasting jobs, rebuild infrastructure and strengthen nascent
government institutions. Today its portfolio of assistance has expanded in line with new and ever more
complex development challenges the country faces. ILO work in Cambodia now spans a wide range of policy
and programmatic areas, including industrial relations, entrepreneurship and enterprise development,
occupational safety and health, and HIV and AIDS. To date, Cambodia has ratified all eight of the ILO’s core
conventions.2
Political stability, coupled with market reforms and pro-investment policies have helped fuel an
unprecedented economic boom in Cambodia which has in relatively short time transformed the physical and
economic landscape and made significant inroads to poverty reduction and livelihood improvement.
However, for the most part this growth has been narrow based (garments, construction and tourism have
been the main drivers of recent growth), something that has left the country –and its workforce- vulnerable to
outside shocks and raised questions over the solidity of its development foundations. The recent global
economic downturn, coupled with earlier food and fuel price crises, have provided illustrations of the
negative impacts exogenous shocks can have on working people, and particularly on those toiling in the lower
reaches of the socio-economic ladder.
Although it has emerged strongly from the recent recession, Cambodia faces manifold challenges to
development and Decent Work creation. Despite rapid economic growth, the economy has not generated
sufficient jobs to meet demand –a situation that is exacerbated by the lack of adequately skilled people
entering the labour market. In part owing to this, the majority in Cambodia still work in informal and/or
vulnerable employment, where wages are often low, hours long, and respect for decent conditions and
fundamental rights limited. Owing in part to a lack of social protection, many people cannot afford to be
jobless for long, and this often makes them highly vulnerable when shocks to their income or circumstances
occur. Specific groups face particular challenges too –notably women, who still face traditional barriers
blocking equal access to education and employment, and youth, who make up the bulk of the unemployed,
particularly in urban areas. Indigenous persons too face limitations in the labour market, many of which are
linked to shrinking land ownership, discrimination and deficits in access to education and training.
The Decent Work Country Programme (DWCP) provides the basis for the ILO’s contribution to the
Government’s Rectangular Strategy for Growth, Employment, Equity and Efficiency, which serves as the
foremost socio-economic policy agenda and political vision for the country’s development. Accordingly, the
2011-2015 DWCP addresses a wide range of labour and developmental concerns, including training and skills
development, employment generation (in both policy and practice), entrepreneurship and enterprise
development, social protection, local economic development, industrial relations and social dialogue, and
labour market governance.
The 2011 to 2015 Decent Work Country Programme was developed through multiple rounds of discussion
and consultation between the ILO and its tripartite constituents in the Cambodian government and in
employers’ and workers’ organisations. In this respect, it represents the collective will of these actors to
address critical challenges to the achievement of Decent Work for all Cambodians.
2
For a full list of ratified conventions, please see Annex 2.
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The current DWCP (2011-2015) focuses on three priority areas which also reflect the ILO’s commitment to
the United Nations Development Assistance Framework (UNDAF) in Cambodia. These areas are:
(1) Improving Industrial Relations and Rights at Work
(2) Promoting an enabling environment for decent employment growth, with a particular focus on young
people
(3) Improving and Expanding Social Protection
These priorities reflect both the main concerns of the tripartite constituents in Cambodia and the ILO’s
specific expertise and comparative advantage within the UN and multilateral system. Through its
interventions, the DWCP is supportive of the ILO’s global objective to promote Decent Work as a means to
better secure sustainable development, poverty reduction and social justice worldwide. Decent Work
comprises four mutually-supporting components, all of which are embraced in the envisaged assistance of
DWCP for Cambodia: (i) upholding fundamental rights at work; (ii) ensuring adequate livelihoods, and
creating more and better jobs for women and men; (iii) providing social protection, (including the right to a
safe work environment); and (iv) promoting social dialogue, between employers, workers and government at
the sectoral and national level as a framework for good governance. Across all of these areas, efforts to
promote and uphold the principles of gender equality and non-discrimination are recognised as explicit
prerequisites for the full realisation of this Agenda, and will be mainstreamed throughout the work of this and
every DWCP.
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Contents
Preface
2
Executive Summary
4
1.
Country Context
10
2.
DWCP links to national and UN development frameworks
12
3.
Working with tripartite constituents
17
4.
ILO’s prior work in Cambodia
18
5.
DWCP priorities and outcomes
19
CP PRIORITY 1: Improving Industrial Relations and Rights at Work
21
Outcome 1.1. Professional and technical capacities of social partners strengthened
25
Outcome 1.2. Improved mechanisms and processes for dispute resolution
27
Outcome 1.3. Social Dialogue is both more effective and more widely employed, including collective
bargaining agreements and their enforcement
28
Outcome 1.4. National labour standards reviewed, revised or developed in line with relevant
international labour standards and reported upon to international supervisory and monitoring bodies
29
Outcome 1.5 More effective application of equality and rights at work for discriminated and
vulnerable groups
30
CP PRIORITY 2: Promoting an enabling environment for decent employment growth, with a particular
focus on young people
32
Outcome 2.1. Development of a National Employment Policy and relevant institutional framework
for promoting equitable employment and protection
33
Outcome 2.2. Enhanced employability of men and women through improved skills development and
public employment services
34
Outcome 2.3. Improved MSME business and entrepreneurship skills and services
35
Outcome 2.4. Effective progress made to enhance enterprise productivity and competitiveness
37
CP PRIORITY 3: Improving and Expanding Social Protection
38
Outcome 3.1. Increased quality and coverage of social protection, particularly among vulnerable
groups
Outcome 3.2. Improved occupational safety and health in the workplace
43
45
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Outcome 3.3. Effective progress made toward the elimination of child labour, especially its worst
forms
46
Outcome 3.4. Enhanced delivery of targeted prevention and care programmes for HIV/AIDS in the
world of work
47
6.
Management and implementation framework
48
7.
Monitoring and Evaluation
49
8.
Risk Management
51
9.
Endorsement of the DWCP
52
10.
Annexes
53
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List of Abbreviations
AC
ACTEMP
ADB
ASEAN
BFC
CAMFEBA
CARD
CB
CBA
CBHI
CEDAW
DWCP
EO
EU
FDI
GDP
GMAC
GMAPS
HEF
ILO
ILS
IR
LAC
M&E
MDG
MIME
MOLVT
MSE
MSME
MOU
MOSAVY
MOWA
NEA
NPA-WFCL
NSDP
NSPS-PV
NSSF
NSSF-C
NEP
OHCHR
OSH
PES
PWP
RS
RGC
SPER
SME
TB
Arbitration Council
ILO Bureau for Employers’ Activities
Asian development Bank
Association of Southeast Asian Nations
Better Factories Cambodia
Cambodian Federation of Employers and Business Associations
Council for Agricultural and Rural Development
Collective Bargaining
Collective Bargaining Agreement
Community Based Health Insurance
UN Convention on the Elimination of all forms of Discrimination Against Women
Decent Work Country Programme
Employers’ Organisation
European Union
Foreign Direct Investment
Gross Domestic Product
Garment Manufacturers’ Association in Cambodia
Gender Mainstreaming Action Plans
Health Equity Fund
International Labour Organization
International Labour Standards
Industrial Relations
Labour Advisory Committee
Monitoring and Evaluation
Millennium Development Goals
Ministry of Industry, Mines and Energy
Ministry of Labour and Vocational Training
Micro and Small Enterprise
Micro, small and medium-sized enterprise
Memorandum of Understanding
Ministry of Social Affairs, Veterans and Youth
Ministry of Women’s Affairs
National Employment Agency
National Plan of Action on the Worst Forms of Child Labour
National Strategic Development Plan
National Social Protection Strategy for the Poor and Vulnerable
National Social Security Fund
National Social Security Fund for Civil Servants
National Employment Policy
UN Office of the High Commissioner for Human Rights
Occupational Safety and Health
Public Employment Services
Public Works Programme
Rectangular Strategy (for Growth, Employment, Equity and Efficiency)
Royal Government of Cambodia
Social Protection Expenditure Review
Small and medium sized enterprise
Tuberculosis
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TOT
TU
TVET
UN
UNCRPD
UNDAF
WFP
Training of Trainers
Trade Union
Technical and Vocational Education and Training
United Nations
UN Convention on the Rights of Persons with Disabilities
United Nations Development Assistance Framework
World Food Programme
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1.
Country Context3
Cambodia held its first post-war elections in 1993, since which it
has enjoyed relative political stability and an economic boom that
has transformed its physical and economic landscape and made
significant inroads to poverty alleviation and development. However, a
series of recent external shocks including the food and fuel price crisis,
the global economic downturn, and adverse weather conditions have
challenged and exposed this progress, not only undermining the
country’s ability to meet its MDG targets, but also raising questions
over the resilience and inclusiveness of its growth model to date.
Despite more than a decade of strong growth, around a quarter of
Cambodians still live in poverty, with inequality -particularly between urban and rural areas- on the rise.
Cambodia’s economic growth continues to be narrowly based and highly vulnerable to shifts in
external demand and capital flows –something no more acutely exposed than in the recent economic
downturn. Although key economic pillars have contributed to employment growth, these have been
insufficient alone to meet the needs of a young and fast growing labour force. This has led -among other
things- to decent work deficits and continued high rates of informal and under-employment. With the country
now emerging from its worst recession in decades, policymakers are increasingly recognising the need to
focus on broadening the country’s growth base, diversifying existing sectors and nurturing the growth of
others, as well as widening opportunities for the still-sizeable poor population to contribute to and reap the
benefits of economic growth. A combination of more “job-rich” growth and enhanced social protection would
enhance the welfare of millions of Cambodians while at the same time affording them better protection
against future adverse shocks.
Labour Market Developments and Challenges
The country’s labour force has undergone dramatic changes in the past decade. Although the overall
labour force participation rate increased slightly during this time, the proportion of women in the labour force
increased far more significantly, reducing the gender gap in labour force participation rates. In part this can
be attributed to the large number of unpaid female family workers (i.e. vulnerable employment), but it also
relates to the rise in formal wage employment for women in the leading garment sector. Women in Cambodia
enter the labour force at a younger age than men because men are typically encouraged to stay in education
longer –particularly in rural areas. The proportion of the labour force in the primary sector has fallen in
recent years in line with structural economic transition, and internal migration (mostly rural to urban in
nature) has increased, with the proportion of women migrants rising slightly.4
Although official unemployment in the country is low, a large proportion of those who do work are in
vulnerable employment, i.e. own account workers or unpaid family workers. This work, which
encompasses workers in the large informal economy and agricultural sector, makes up more than 80 percent
of total employment in Cambodia –an increase in absolute numbers from the late 1990s.5 Vulnerable
employment is characterised by a range of decent work deficits, including low earnings, poor access to social
3 Map
graphic source: CIA World Factbook 2011
NIS (2010) “Labour and Social Trends in Cambodia 2010.” National Institute of Statistics, Ministry of Planning, July 2010
5 Reference period is 1998 to 2008. While the absolute numbers of these workers rose during this period, the percentage out of
total employment fell slightly.
4
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protection and representation (in unions), weak job and income security and poor working conditions. In
Cambodia, young people and women are overrepresented among vulnerable workers.6
The widespread absence of formal social protection in Cambodia goes some way to explain why so
many people engage in low quality and vulnerable employment.7 For most Cambodians, unemployment
is simply not an option when the only way to meet basic social needs is by having a job. In 2011, the
government approved the country’s first National Social Protection Strategy, the focus of which will be on
enhancing access to and the quality of basic services such as health and income support for the poorest and
most vulnerable to external shocks.
Despite recent advances, labour productivity is lower in Cambodia than most of its neighbours. At its
current level it is comparable to Vietnam in 1993, a level itself three times lower than Thailand today.8 In the
garment sector, where productivity constraints have been long evident, this has been partially offset by low
wages, which together with solid labour compliance have kept the country relatively competitive even against
larger producers like China and India. Of particular concern going forward is the rate at which this situation is
improving: between 2001 and 2005, Cambodia experienced the slowest rate of increase in labour productivity
in manufacturing industries among ASEAN countries.9 Within the country, productivity gains have been
particularly weak in agriculture –the sector that continues to employ the bulk of working people.
Productivity challenges are in many ways linked to concomitant challenges in training and skills
development –the weaknesses of which in Cambodia are a legacy of the decimation of both the human capital
base and the education and training system in the 1970s and 80s. Given its current stage of development and
economic structure, strengthening the provision of technical and vocational education and training (TVET) is
a key immediate term priority for Cambodia. This should include new and ongoing efforts and reforms aimed
at developing a national TVET framework, adopting competency based skills standards, and strengthening the
capacity of training providers to deliver quality training that responds to actual labour market needs.
Cambodia has made important strides in advancing gender equality, particularly in terms of girls’
access to education. However, considerable gaps remain and mainstreaming gender across all policy
spheres is a formidable challenge –particularly in light of prevailing social attitudes and traditions to the
contrary. Women from poor and disadvantaged backgrounds, particularly in rural areas, remain vulnerable
to trafficking, domestic violence and forced labour. Meanwhile, in the formal economy, the special exposure
of the garment sector to the global economic crisis meant young women in particular were particularly hard
hit. Developing gender-responsive development programmes is a key priority of both the Cambodian
government and the UN, in recognition both of the moral need for gender equality and the important role
women can play as leaders of development processes. As it stands currently, Cambodia is lagging in its
progress toward the achievement of MDG 3 on gender equality and women’s empowerment.
Movement toward inclusive growth and development also faces other challenges in Cambodia.
Progress in protecting human rights and freedom of expression has been erratic and subject to periods of
backsliding in recent years, while concerns remain high about the independence and neutrality of the
country’s legal and judicial processes, particularly when it concerns powerful economic and political interests.
Land rights remain a foremost development challenge, as illegal land grabbing and forced evictions continue
to deprive poor communities of productive land for income generation. Similarly, the protection of the
country’s rich natural resource base has been undermined by economic interests and corruption. In the
6 Although
youth continue to dominate this group, their proportional share has fallen in recent years, particularly young women.
The National Social Security Fund (NSSF) for workers covered by the labour law (enterprises of 8 and more employees) was
created in 2008, and stands as a general exception to this rule.
8 UNDP (2009) “Cambodia Country Competitiveness: Driving Economic Growth and Poverty Reduction.” Discussion Paper 07,
Insights for Action
9 Ibid.
7
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labour field, despite considerable advances and a maturing industrial relations environment in some sectors,
freedom of association and rights to collective bargaining remain far from guaranteed. On a more positive
note, Cambodia enjoys a strong reputation for labour standards in its leading garment industry, something
that remained largely true during the economic downturn, despite widespread predictions to the contrary.
2.
DWCP Links to National and UN Development Frameworks
National Development Plans
The Rectangular Strategy for Growth, Employment, Equity and Efficiency (RS) is the overarching socioeconomic policy agenda of the Royal Government of Cambodia, setting out its long term vision for the
country’s development. This hopes to be achieved by strengthening peace, stability and social order,
promoting sustainable and equitable development, and cementing a democratic polity with full respect for
human rights and dignity. Good governance is at the core of the RS, since it is considered an absolute
prerequisite for all other aspects of socio-economic development. It’s four main growth components are thus:
(i) agricultural development, (ii) infrastructure rehabilitation and development, (iii) private sector
development and employment creation; and (iv) capacity building and human resource development. The
Rectangular Strategy was first launched in 2004, and was updated and refined again in 2008 with the same
core principles and goals.
The National Strategic Development Plan (NSDP) is the key medium term national development plan in
Cambodia, and serves as the main tool for the operationalization of the government’s Rectangular Strategy (it
also serves as Cambodia’s Poverty Reduction Strategy Paper). Developed by the Ministry of Planning in
consultation with various other ministries, development partners and civil society organisations, the NSDP is
also the principal reference point for the harmonisation and alignment of official development assistance to
Cambodia. As the roadmap for the implementation of the Rectangular Strategy, the NSDP’s key pillars are
matching with that document: namely, growth, employment, equity and efficiency.
Employment is a core pillar of the Rectangular Strategy, coming under Rectangle 3, which covers: (1)
strengthening private sector and attracting investments; (2) creation of jobs and ensuring improved working
conditions; (3) promotion of SMEs; and (4) creation of social safety nets for civil servants, employees and
workers. This focus is also reflected in the NSDP, which outlines priorities for private sector development and
employment, and elaborates in further detail strategic action to promote and secure this for socio-economic
development. It is through this focus that ILO finds its principal strategic alignment with the Decent Work
Country Programme.
UNDAF
The 2011 to 2015 United Nations Development Assistance Framework (UNDAF) provides a framework
for coordinated UN development assistance in keeping with the UN reform process and the commitments laid
out in the Paris Declaration on Aid Effectiveness (reaffirmed in the 2008 Accra Agenda for Action). The
UNDAF is anchored in and aligned with the Government’s Rectangular Strategy Phase II and the National
Strategic Development Plan (now extended to 2013). It builds on the achievements and progress made over
the last decade and leverages the UN's position as a respected development partner in Cambodia. The UN has
also adopted a Human Rights-Based Approach to its programmes and support in the country, as well as
committing to advocate specifically for marginalised and disadvantaged groups in UNDAF core programming.
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The UNDAF has identified five priorities that will form the core of the UN’s support to Cambodia between
2011 and 2015:
1.
UNDAF Outcomes: 2011-2015
Economic Growth and Sustainable Development
By 2015, more people living in Cambodia benefit from, and participate in, increasingly equitable, green,
diversified economic growth
2.
Health and Education
By 2015, more men, women, children and young people enjoy equitable access to health and education
3.
Gender Equality
By 2015, all women, men, girls and boys are experiencing a reduction in gender disparities and progressively
enjoying and exercising equal rights
4.
Governance
By 2015, national and sub national institutions are more accountable and responsive to the needs and rights of
all people living in Cambodia and increase participation in democratic decision making
5.
Social Protection
By 2015, more people, especially the poor and vulnerable, benefit from improved social safety net (SSN) and
social security programmes, as an integral part of a sustainable national social protection system
Expected ILO involvement in fulfilling UNDAF programmatic priorities covers a wide range of thematic
areas, including: climate change and green jobs; local development, entrepreneurship and small and medium
sized enterprise promotion; employment policies (including those with a specific focus on women, young
people and migrant workers); labour market information and employment services; business development
services; training and skills development (including life skills for at-risk and disadvantaged groups); women’s
empowerment and rights at work; dialogue, representation and participation in decision-making at work and
in policymaking; industrial relations and dispute resolution; human and labour rights; eliminating child
labour; and promoting and developing social protection.
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DWCP Alignment with national and UN development priorities
GOVERNMENT RECTANGULAR
STRATEGY
UNDAF OUTCOMES TO WHICH ILO IS ASSIGNED / ILO IS RELEVANT
RELATED ILO DWCP OUTCOMES
(Some ILO outcomes are aligned with more
than one UNDAF outcome)
RECTANGLE 3 – PROMOTING PRIVATE SECTOR DEVELOPMENT AND EMPLOYMENT GENERATION
Strengthening private sector and
attracting investment
Creation of jobs ensuring improved
working conditions
Promoting SMEs
Creation of social safety nets
Outcome 1: Economic Growth and Sustainable Development
By 2015, more people living in Cambodia benefit from, and participate in,
increasingly equitable, green, diversified economic growth
CP Outcome: Trade and Private Sector Development
More diversified economy in Cambodia with increased pro-poor
investment, trade and private sector development due to strengthened
national and local capacity.
CP Outcome 2.1. Development and effective
implementation of national employment policy,
incorporating the twin pillars of equitable
employment promotion and protection
CP Outcome 2.2. Enhanced employability of men
and
women
through
improved
skills
development and public employment services
CP Outcome: Employment and Local Development
Increased employability and productive and decent employment
opportunities, particularly for youth and women, through diversified local
economic development in urban and rural areas
CP Outcome 2.3. Improved MSME business and
entrepreneurship skills and services
Outcome 5: Social Protection
By 2015, more people, especially the poor and vulnerable, benefit from
improved social safety net (SSN) and social security programmes, as an
integral part of a sustainable national social protection system
CP Outcome 3.1. Increased quality and coverage
of social protection, particularly among
vulnerable groups
CP Outcome 2.4. Effective progress made to
enhance
enterprise
productivity
and
competitiveness
CP Outcome: Increase in national and sub-national capacity to provide
affordable and effective national social protection through improved
development, implementation, monitoring and evaluation of a social
protection system.
CP Outcome: Improved coverage of social security for both formal and
informal sector workers
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RECTANGLE 4 – CAPACITY BUILDING AND HUMAN RESOURCE DEVELOPMENT
Strengthening the quality of education
(1) "Education for All" – basic 9-year
education
(2) provide basic skills training to people in
rural areas to increase income;
(3) provide training or skill improvement to
factory workers in cooperation with
employers;
(4)
expand technical and vocational
training to provinces/ municipalities,
including
entrepreneurship
training
programme; and
(5) establish National Employment Agency,
and Job Centres in provinces/municipalities
Implementation of gender policy
Outcome 2: Health and Education
By 2015, more men, women, children and young people enjoy equitable
access to health and education
CP Outcome 2.2. Enhanced employability of men
and
women
through
improved
skills
development and public employment services
CP Outcome: Enhanced national and sub-national institutional capacity to
expand young people’s access to quality life skills including on HIV and
technical and vocational education and training (TVET)
Outcome 3: Gender Equality
By 2015, all women, men, girls and boys are experiencing a reduction in
gender disparities and progressively enjoying and exercising equal rights
CP Outcome: Women are progressively empowered to exercise their rights
to full and productive work with decent terms and conditions (based on ILO
criteria).
N.B. Gender concerns are mainstreamed
throughout the ILO DWCP. However, efforts to
reduce gender disparities will be most
pronounced in work under the following outcome
areas:
CP Outcome 1.2. Improved mechanisms and
processes for dispute resolution
CP Outcome 2.1. Development and effective
implementation of national employment policy,
incorporating the twin pillars of equitable
employment promotion and protection
CP Outcome 2.2. Enhanced employability of men
and
women
through
improved
skills
development and public employment services
CP Outcome 2.3. Improved MSME business and
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entrepreneurship skills and services
CORE STRATEGY – GOOD GOVERNANCE
Fighting corruption
Legal and Judicial reform
Public administration reform including
decentralization and de-concentration
Outcome 4: Governance
By 2015, national and sub national institutions are more accountable and
responsive to the needs and rights of all people living in Cambodia and
increase participation in democratic decision making
CP Outcome: Effective mechanisms for dialogue, representation and
participation in democratic decision-making established and strengthened.
CP Outcome: State institutions at national and sub-national levels better
able to protect citizens’ rights under the Constitution and provide effective
remedies for violations, in particular those relating to labour, children, land
and housing, gender based violence, indigenous people, people living with
HIV and people with disabilities.
CP Outcome 1.1. Professional and technical
capacities of social partners strengthened
CP Outcome 1.2. Improved mechanisms and
processes for dispute resolution
CP Outcome 1.3. Social Dialogue is both more
effective and more widely employed, including
collective bargaining agreements and their
enforcement
CP Outcome 1.4. National labour standards
reviewed, revised or developed in line with
relevant international labour standards
CP Outcome 1.5. More effective promotion of
the rights of vulnerable groups (empowerment
to claim rights?)
CP Outcome 3.3. Effective progress made
toward the elimination of child labour, especially
its worst forms
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3.
Working with tripartite constituents
In Cambodia, the ILO ensures that the core concerns of the Royal Government (RGC) –where they pertain to
the Organisation’s mandate and technical expertise- together with those of the employers’ and workers’
organisations are reflected in the design and implementation of its Decent Work Country Programme. Both
design and implementation of the programme rely heavily on the involvement of these parties (together
with other stakeholders and development partners), and their respective partnership toward the
achievement of Cambodia’s national development goals.
The Ministry of Labour and Vocational Training (MOLVT) is the main partner ministry of the ILO, and with
this, of the DWCP.10 The MoLVT’s work is focused on measures to improve industrial relations (including
through new and revised laws governing the labour market), developing a national employment strategy,
enhancing the quality and demand-side relevance of TVET and establishing stronger linkages between
training providers, students and the private sector, strengthening entrepreneurship skills for small
business growth, developing the National Social Security Fund, employment injury scheme and health
insurance scheme, and concerted action to eliminate child labour and improve the management of
international migration.
On social protection, the ILO also works closely with the Council for Agricultural and Rural Development
(CARD) which was entrusted with ensuring efficient inter-ministerial coordination for the development
and implementation of the national social protection strategy (NSPS) for the poor and the vulnerable.
The Cambodian Federation of Employers and Business Associations (CAMFEBA, see description below) and
the national trade union confederation groups are the core social partners with which the ILO collaborates
with in the design and implementation of its Decent Work Country Programme.
CAMFEBA was inaugurated in July 2000 and has since grown to become the country’s foremost
organisation representing employers. As of late 2009, CAMFEBA’s membership comprised 10 key
industry/business associations and 96 individual employer members, as well as a further 7 non-profit
organizations and individuals as Associate members. Together, this membership represents more than
1,000 enterprises across a range of economic sectors. The ILO works with CAMFEBA to strengthen its
capacity to serve and represent its members in policy forums and advocate –and lobby- effectively for their
interests. The main concerns of CAMFEBA are improving industrial relations, reform of the labour law and
the development of the forthcoming trade union law, and national industrial competitiveness and external
trade and investment policy.
Trade unions have grown rapidly since 1997 following official recognition in law of freedom of association.
Unions are structured largely according to a three-tier hierarchy: enterprise-level unions, union
federations, and union confederations, with an additional chamber that comprises three confederations.11
From 1997 to 2010, the MoLVT registered a total of 1,700 enterprise unions, together with nine
confederations12, 45 union federations, and 11 workers’ associations (covering for example informal
The ILO also works with a number of other ministries in the course of its work, including the Ministry of Commerce (MOC),
Ministry of Women’s Affairs (MOWA), Ministry of Rural Development (MRD), the Ministry of Social Affairs and Veterans And
Youth rehabilitation (MOSVY), Ministry of Industry, Mines and Energy (MIME), Ministry of Education, Youth and Sport
(MOEYS), Ministry of Public Works and Transport (MOPWT), Ministry of Tourism (MOT), Ministry of Interior (MOI), Ministry
of Planning (MOP).
11 Although individual unions may be collectively represented by larger federations and confederations, they remain for the
most part separate entities with their own financing, organisational structure and overall vision.
12 The nine registered confederations are the Cambodian Confederation of Trade Union (CCTU), the Coalition of Cambodian
Apparel Unions (CCAWDU), the Cambodian Confederation of Union (CCU), the National Union Alliance Chamber of Cambodia
(NACC), the Cambodia National Labour Confederation (CNC), the Cambodia Inheritance Confederation (CIC), the Cambodian
10
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workers, farmers and civil servants).13 Workers in Cambodia are unionised predominantly in the garment,
construction, transport, and hotel and tourism sectors. Agriculture, telecommunication, banking,
healthcare and teaching and education are potential areas for future unionization.
The main concerns of unions in Cambodia today are anti-union discrimination, weak employer compliance
with labour standards and the labour law (particularly with regard to employment contracts, overtime, and
dismissals), the struggle for a so-called “living wage” in low income sectors like garment manufacturing,
and a lack of political will and institutional support for social dialogue. ILO technical assistance to the union
movement seeks to overcome these challenges both by advocating better protection of workers’
fundamental rights and interests, especially through promotion of collective bargaining agreements,
organising non-unionised workers and supporting research and advocacy on a living wage, and by enabling
unions to engage more effectively in social dialogue to further the collective interests of their members.
4.
ILO’s prior work in Cambodia
To set the new DWCP in context it is instructive to reflect on the priorities and achievements of the last
country programme. The 2008-2010 DWCP identified three broad priority areas under which the bulk of
the ILO’s work in Cambodia was organised: (1) productive employment; (2) labour governance and rights;
and (3) social protection. The DWCP was also further adjusted in early 2009 so as to incorporate additional
short-term responses to help mitigate the impact of the global economic crisis. A brief summary of the
ILO’s work under this programme is outlined below.
1. Productive employment
To expand productive employment opportunities to all men, women and youth, especially in the rural
areas, ILO worked –and continues to work- with the MoLVT in particular to establish the institutional
preconditions and human skills and competencies required for the development of a national employment
policy –mostly through a mix of institutional capacity building, tailor-made training and policy advice. On
skills development and employability, it also provided technical and financial assistance to the
establishment of the National Employment Agency and its key functions vis-à-vis labour market
information collection and employment services (job centres).
In 2009, the ILO also added to its portfolio new measures to help constituents respond to the impacts of the
global economic downturn. This included an in-depth research component to better understand and design
policies to address the crisis in the garment sector, technical and financial support to the government’s job
centre initiative (to help support the newly retrenched in particular), and pilot demonstration schemes on
employment intensive infrastructure generation (which now forms an important component of the new
National Social Protection Strategy for the Poor and Vulnerable, NSPS-PV).
2. Labour Governance and Rights
ILO work on labour governance was aimed at improving the efficiency of labour market institutions and the
fair enforcement of labour standards, as well as strengthening the links between improved industrial
competitiveness and the safeguarding of decent working conditions in the country’s leading garment
industry.
Confederation for Workers' Rights (CCWR), and the Confederation of Union National Independence Cambodia (CUNIC), and
the National Labour Confederation (NLC).
13 There are, however, no accurate figures of the number of actually active unions in the country.
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Interventions in this regard included: (1) promoting industrial peace through revision of laws and
institutional strengthening (including revisions to the new trade union law, assistance to government
conciliation and mediation services, and capacity building for social partners to engage in effective
collective bargaining); and (2) continued support to the growth and competitiveness of the garment
industry through the ILO’s flagship “Better Factories Cambodia” programme, both in terms of on-going
monitoring of working conditions and by expanding its portfolio of training and management services into
areas like social protection (factory level), life skills, and greener production.
Working through technical cooperation projects primarily, the ILO also worked with the Cambodian
Government and its social partners to adopt and implement policies to improve and protect the rights of
children, women, migrant workers and indigenous peoples in Cambodia. Projects included the IPEC timebound project (child labour), ILO/IPEC Mekong Sub-Regional Project to Combat Trafficking in Children and
Women (ILO-TICW), the Support to Indigenous Peoples' Project, the Creative Industries Support
Programme, and the Promoting Women’s Entrepreneurship Development and Gender Equality -“WEDGE”project.
3. Social Protection
The ILO’s work in this area was framed largely by its inputs to the design and development of the now
nationally endorsed social protection strategy for the poor and vulnerable (NSPS-PV). Contributions here
focussed mainly on the public works component and elements of a basic social floor which together form
key pillars of the Strategy. It also provided support to the RGC and other stakeholders to draft legislation
conduct financial studies and support implementation as regards social safety nets and social insurance
benefits.
Other areas of intervention included safety and health in the workplace, where the ILO employed existing
national good OSH practices as a practical means to expand OSH protection in the private sector, and
HIV/AIDS, where under the DWCP the ILO expanded previous activities to develop workplace education
programmes (on HIV and AIDS), strengthen the knowledge base on the subject through research, and
support the development of national policy and enterprise-level interventions to prevent HIV infection and
combat discrimination (based on HIV status) in the workplace.
5.
Decent Work Country Priorities and Outcomes
The Decent Work Country Programme (DWCP) reflects the priorities of the tripartite constituents in
Cambodia, as expressed through several rounds of independent, bipartite and tripartite discussion and
consultation. It is from this collaborative spirit together with its emphasis on dialogue and consensusbuilding and alignment with national development priorities that the DWCP’s strength and legitimacy is
derived.
Development of the 2011-2015 DWCP began in late 2010 with an independent review of the 2008-2010
programme –an exercise aimed at assessing the ILO’s performance in Cambodia and identifying lessons
learned to improve the effectiveness of the next DWCP.14 This was followed by individual constituent
discussions (with ILO specialists) and a tripartite consultation workshop, the former designed to help
explain the role and importance of the DWCP and stimulate discussions over broad priorities, and the latter
for discussion and consensus building over proposed priorities, and with them, outcomes. Key outcomes
suggested by constituents were later refined by ILO specialists in Bangkok as part of an extensive internal
The assessment process, which involved both a desk review and wide-ranging constituent and stakeholder interviews
(using an assessment criteria devised by the ILO), reported a number of key recommendations aimed at improving the design
and delivery of ILO assistance, and with it, maximising the value-added the organisation provides to Cambodia’s wider
development goals.
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consultation process. Following this, a draft DWCP document was then produced by the ILO and submitted
for internal review and comments, before a revised final draft was produced and given to constituents for
review. Tripartite national endorsement of the finalised 2011-2015 DWCP took place in (November)
2011.15
DWCP Cambodia 2011-2015: Priorities and Outcomes
Agreed priorities and outcomes for the Decent Work Country Programme in Cambodia (2011-2015) are as
follows, together with their links to ILO global strategic priorities (in brackets)16
CP PRIORITY 1: Improving Industrial Relations and Rights at Work
Outcome 1.1.
Professional and technical capacities of social partners strengthened
(SPF 9 & SPF 10)
Outcome 1.2.
Improved mechanisms and processes for dispute resolution
(SPF 12)
Outcome 1.3.
Social Dialogue is both more effective and more widely employed, including collective
bargaining agreements and their enforcement
(SPF 12)
Outcome 1.4.
National labour standards reviewed, revised or developed in line with relevant
international labour standards and reported upon to international supervisory and
monitoring bodies
(SPF 18)
Outcome 1.5
More effective application of equality and rights at work for discriminated and vulnerable
groups
(SPF 17 & SPF 7)
CP PRIORITY 2: Promoting an enabling environment for decent
employment growth, with a particular focus on young people
Outcome 2.1.
Development of a National Employment Policy and relevant institutional framework for
promoting equitable employment and protection (SPF 1)
Outcome 2.2.
Enhanced employability of men and women through improved skills development and
public employment services
(SPF 2)
Outcome 2.3.
Improved MSME business and entrepreneurship skills and services (SPF 3)
Outcome 2.4.
Effective progress made to enhance enterprise productivity and competitiveness
(SPF 3 & SPF 13)
CP PRIORITY 3: Improving and Expanding Social Protection
Outcome 3.1.
Increased quality and coverage of social protection, particularly among vulnerable groups
(SPF 4)
Outcome 3.2.
Improved occupational safety and health in the workplace
(SPF 6)
Outcome 3.3.
Effective progress made toward the elimination of child labour, especially its worst forms
15 Please
see Annex 1 for a full timeline of DWCP consultation and development
These priorities were reached through consultation and negotiation with the ILO’s tripartite constituents. The Country
Programme Review, conducted in late 2010, identified three main priority areas among constituents: (1) Improved industrial
relations through better social dialogue and legal mechanisms; (2) Rights and social protection of vulnerable groups; and (3)
Enabling environment for employment creation.
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(SPF 16)
Outcome 3.4.
Enhanced delivery of targeted prevention and care programmes for HIV/AIDS in the world
of work
(SPF 8)
Cross-cutting themes
Green jobs
Although the ILO does not have a specific programme on Green Jobs (GJ) in Cambodia, it aims to conduct a
number of activities in the coming year that will contribute toward the gradual up-scaling of the Green Jobs
agenda in the country (and with it, a potential future full inclusion at the outcome level of the DWCP).
Under the current DWCP (2011-2015), efforts to mainstream Green Jobs will be made throughout the ILO’s
programme of assistance, with specific components most likely in skills development (i.e. the development
of skills standards for green jobs in priority sectors like tourism), employment (the design of the National
Employment Policy and in the creation of micro and small enterprises) and social protection (the creation
of green jobs in the public works programme component of the NSPS-PV).
A number of important initiatives and activities have already been undertaken in recent years that have
raised the profile of Green Jobs in Cambodia and increased political interest in the concept. A national
seminar in early 2011, for example, identified four priority sectors for the expansion of green jobs in the
country –namely agriculture, construction, tourism, and garments, with further discussions surrounding
the potential future inclusion of forestry (and particularly, Green Jobs for indigenous groups).
Furthermore, in the garment sector, where ILO has a strong presence through its Better Factories
Cambodia programme, the ILO has already undertaken pilot initiatives to improve energy efficiency and
cleaner production –work which has helped to underscore the relevance and potential greener production
(and related Green Jobs) has to be linked with existing ILO interventions and align with national economic
and development goals. In addition, the ILO is currently exploring financing options that would allow for
the development of a more comprehensive Green Jobs programme in the country, and has submitted two
recent project proposals for consideration by major donors.17
CP PRIORITY 1: IMPROVING INDUSTRIAL RELATIONS AND RIGHTS AT WORK
Background and main actors
Modern industrial relations (IR) in Cambodia essentially began after the restoration of (relative) peace in
1993, a time which saw the emergence of the first garment factories and with them, the first trade unions.
In these early years relations between workers and employers have largely been characterised by high
levels of distrust and conflict, particularly in the garment industry, where the union movement is largest
and most vocal. Although this industry has grown rapidly to become a pillar of the post war economy,
tensions in the IR environment have hindered investment and undermined the garment industry’s
reputation for adhering to international labour standards.
17 As of June 2011, the ILO had submitted one proposal to the Climate Adaptation Alliance Fund and another to the Global
Climate Adaptation Fund. The former involves promotional work and training and information sharing about green jobs with
constituents, as well as a comprehensive mapping of green jobs in the country and the development of demonstration
activities covering areas like skills development (in green jobs). The second proposal is closely related to the ILO’s previous
experience in employment intensive infrastructure promotion, and would include the integration of this work with new
methodologies for building climate-adaptation infrastructure at the local level. Efforts would be made to align and link this
work with the country’s National Climate Adaptation Action Plan, as well as respective national and UN development
frameworks.
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I.
Government
The main government office responsible for day to day IR issues is the Department of Labour Disputes in
the Ministry of Labour and Vocational Training (MoLVT). The department has played a generally positive
role in the development of the IR landscape in Cambodia, having been credited with advancing objectivity
and due process to the registration of (most) unions and certification of “most representative” unions. The
department has demonstrated growing effectiveness at resolving disputes, although improvements can be
made in building trust of workers and employers in the conciliation process. It has also made some
progress in mediating collective bargaining agreements, although more needs to be done in this regard to
make the process more structured and less ad hoc.
However understandings of basic IR principles can be uneven, particularly at the provincial level, and in
particular by officials from outside the MoLVT. Some government officials, for example, do not understand
that unions have the right to demand wages and conditions above what the law provides. In other cases,
provincial authorities may (literally) sit with the employers during collective bargaining. Capacity building
for provincial officials becomes increasingly important as investment and economic activity expands
beyond the three largest cities of Phnom Penh, Siem Reap and Kampong Som. The Arbitration Council, a
tripartite statutory body established in 2003 to resolve collective disputes (both on rights and interests),
also plays a key role in industrial relations.18 Its sustainability as an independent and impartial statutory
body will be a key challenge during this period. The government recognizes the important role the AC
plays in promoting fair industrial relations and has committed to maintaining its support for the institution.
II.
Employers
The Garment Manufacturers Association in Cambodia (GMAC) is the oldest and most important employers’
organization in the country, despite it only representing a single sector (admittedly the largest formal
sector). The Ministry of Commerce has decreed that garment factories that wish to export from Cambodia
must join GMAC, and be subjected to independent monitoring on labour law and working conditions by the
ILO’s Better Factories Cambodia (BFC) programme. GMAC provides a range of advisory services and
training to its 300+ members, covering such areas as import/export facilitation, taxation, labour law and
other regulations, and dispute resolution. Industrial relations practices in the industry vary from
enterprise to enterprise, with both good and bad practices evident
In addition to GMAC, CAMFEBA serves as the main constituent of the ILO in its dealings with the Cambodian
private sector.19 An umbrella organisation representing more than a 1,000 enterprises across numerous
sectors, CAMFEBA’s core objectives are to present a strong and unified voice for the business community,
promote good industrial relations, represent and lobby for its members in government policymaking, and
provide advice and capacity building services to strengthen the competitiveness and reputation of
Cambodian businesses –both domestically and abroad. It does this through a combination of consultancy
and advisory services, advocacy work, training and networking.
Various foreign, national, and provincial chambers of commerce and sectoral associations are also active in
Cambodia, but play a generally lesser role than CAMFEBA and GMAC in the overall industrial relations
landscape.
III.
Trade unions
The Arbitration Council is called for in the labour law and was established by the Ministry of Social Affairs, Labour and
Veterans and Youth Rehabilitation with support from the social partners and the ILO . Today it receives the bulk of its
funding from the World Bank.
19 CAMFEBA’s membership also includes garment factories that are members of GMAC.
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While certainly maturing, the trade union movement in Cambodia remains young and is still developing
skills and experience in both management and in negotiation and collective bargaining. Major challenges
unions face in the country include fragmentation and proliferation (particularly in the garment sector
where some factories have more than ten unions present), as well as personal and political rivalries -often
made worse by proliferation. Externally, many also face discrimination and non-recognition by employers,
political interference, and weak or non-existent legal enforcement.
Unions’ internal weaknesses are related in large part to low human capacity and weak financial viability,
but they also relate to a lack of vision, poor planning, and overwhelming male dominance at the senior
leadership level. In this regard, long standing ILO support has focused on improving core competencies –
namely education and training on a key labour issues related to International Labour Standards (ILS),
collective bargaining and negotiations, gender equality and leadership development. Furthermore, despite
the challenges have come successes; not least with regard to the increasing recent role unions have played
both in facilitating social dialogue and in influencing key legal processes (for example, helping to draft the
new Trade Union Law).
Key challenges in Industrial Relations and Rights at Work
Weak capacity of actors
Unions, and to a lesser extent employers organisations, face a number of critical capacity constraints that
limit their organisational effectiveness and role in furthering a harmonious industrial relations
environment. A common problem among the myriad of enterprise level unions, for example, is a lack of
adequate human and financial capacity, as well as poor (and male-dominated) leadership and weak overall
vision.20 On the employers’ side, there remain weaknesses in some quarters with regard to labour law
compliance and understanding of social dialogue and collective bargaining, while the like unions there
remain too few women at the higher echelons of these organisations. For CAMFEBA, expansion of
membership and continuation of new and relevant services, including IR and legal services, remain an
important strategic priority. For the government, the machinery of law enforcement remains weak and as
such protection of fundamental rights at work, including those of trade unions, is inconsistent and leads to
disruptions to industrial harmony.
Dispute resolution
The main manifestation of disputes in the formal sector is strikes, and this is particularly true in the
garment industry. In the sense that strikes should represent a last resort in mature IR environments, an
abundance of such often suggests weaknesses in the existing dispute resolution architecture. Strikes in
garment factories reached a high of around 100 in the year 2000 and have averaged around 82 per year
through 2008. In 2009 this fell to 59, partly as a consequence of the crisis (i.e. unions being apprehensive
to strike for fear of job losses), and have stayed around this level in 2010 and 2011, even as the industry
has rebounded sharply. This is generally seen to reflect a gradual improvement in the IR environment and
social dialogue in the industry. Leading causes of strike action include dismissals (particularly of union
leaders), non-renewal and abuse of short term contracts, and remuneration, particularly that of overtime
pay and the calculation of piece-rate payments. Strikes are also common over alleged harassment by
managers and factory closures. Almost all strikes fail to follow due legal process, namely conciliation and
arbitration, followed by strike vote and notice to the employer and ministry.
Dispute resolution procedures have proven effective in many cases, however. The Arbitration Council, for
example, resolves close to 70 percent of the disputes it hears. In addition in a landmark Memorandum of
20 In the garment sector, around nine out of every ten workers are in fact female, something which makes female
representation among related worker and employer bodies all the more important.
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Understanding (MOU) signed in September 2010, garment employers and unions vowed to use the AC’s
binding arbitration procedures on disputes over rights, violations of the law, and existing CBAs.21 While
this should improve the overall dispute resolution environment in Cambodia, effective implementation of
the agreement will be key.
In the absence of a designated labour court, labour disputes are currently overseen by municipal courts
distinguishing only between civil and criminal matters. This is set to change in the coming years following
a Prime Ministerial order to establish a labour court –something which is also in line with earlier
recommendations from the International Labour Office.
Social dialogue
This recently agreed MOU between unions and manufacturers in the garment industry provides an
important basis for improving labour relations in Cambodia, and reflects the growing maturity of the
industrial relations environment toward the use of dialogue to reach agreement on important issues.
Although now well established in a limited number of luxury hotels and the two major airports, genuine
collective bargaining in Cambodia is rare for a number of reasons, including a widespread lack of
understanding of the concept, union multiplicity (in the garment industry) leading to uncertainty over
representation (and with it, determining a representative bargaining partner), refusal by some parties to
bargain, and weak rule of law and legal enforcement. Between 2008 and 2010, around 15 high quality
agreements were reached that appear to be working well, and around 30 ‘high quality’ agreements are
currently active. According to 2010 data from the MoLVT, there were 190 CBAs -or equivalent conciliated
agreements- currently registered. However, many were negotiated by non-recognised bargaining agents
such as shop-stewards, which raises doubts over their quality.
However, to improve the situation in future, intensified efforts are required to promote the procedure to
determine most representative union in an enterprise, and for all parties to respect the outcome of that
procedure. The MOU explicitly calls for this with regard to the garment industry, and should over time, lead
to a reduction in multiple workplace claims from competing unions, an improvement in industrial
harmony, and eventually, a consolidation within the union movement.
Labour standards
Cambodia still faces frequent violations of labour and union rights, particularly harassment and unfair
dismissal of union leaders. Recognition of most representative status for unions remains a common point
of contention too, with many employers either struggling to identify appropriate bargaining partners or –in
some cases- refusing to accept most representative status altogether. On employment contracting, it is
clear that misuse of contracts is widespread, and this has seen continued –and in some sectors risingrecruitment of temporary workers in ostensibly “permanent” job positions. Restrictions on union
formation remain in place in the public sector (civil servants) and teaching.
Discrimination
Women, persons with disabilities, domestic workers and indigenous peoples face considerable
discrimination in employment in Cambodia, while migrant workers in particular face risks due to a lack of
knowledge (about migration, its risks and how to migrate safely and legally) and inadequate legal
protections both at the recruitment stage (in Cambodia) and in destination countries. While the
21 Other components of this agreement (which comes in the form of an official MOU) include: a commitment on both sides to
abide by the law; a pledge by minority unions not to interfere with the rights and decisions of the majority ones; and
agreement that there will be no lockouts, strikes or other claims during the term of a collective bargaining agreement (CBA).
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Government has ratified the eight conventions covering the fundamental principles and rights at work as
well as the UN’s Convention on the Elimination of all Forms of Discrimination against Women (CEDAW),
there is a need to further develop laws and policies in line with international standards, increase
institutional capacities to provide equitable services and raise awareness among government, employers,
workers and the public at large about equality in employment and respect for fundamental human and
workers’ rights of discriminated and vulnerable groups.
ILO Programme on Industrial Relations and Rights at Work
Outcome 1.1
Professional and technical capacities of social partners strengthened
Employers’ Organisations
The ILO’s assistance to employers’ organisations (EOs) will continue to focus primarily on CAMFEBA as the
main umbrella group for employers in the country. A key focus of its capacity building strategy under the
next DWCP will be on efforts to strengthen the ability of the organisation to respond to its members’ needs
in a variety of fields, including organisational management, research and analysis, policy advocacy and
lobbying, competitiveness and productivity, industrial relations, gender equality and non-discrimination.
All these activities will be set out under a biennial work plan which the ILO will develop in conjunction with
CAMFEBA, and which will outline baseline situations, expected outcomes, key performance indicators,
relevant outputs and time frames. Training and the development of practical tools and services will form
another major part of the ensuing assistance, and to facilitate this the ILO will look to demonstrate and
apply good practice experiences of other (more experienced) EOs in the region to strengthen the
knowledge base and capacities of CAMFEBA to develop both its internal management capacity and the
quality and range of its training, advisory and consulting services (some of which will be fee-paying to help
generate revenue for the organisation). In addition, the ILO will also provide support to CAMFEBA in
expanding its membership base and enhancing its ability to articulate employer concerns in media and
policy settings.
Trade Unions
The ILO programme to strengthen the capacity of unions will continue to centre on a number of key pillars
of assistance. The first will be education and training aimed at various beneficiaries within the union
movement, for example in ILS and the Trade Union law, collective bargaining and negotiations, and
communication and social dialogue. The second pillar will focus on the promotion of freedom of
association and collective bargaining, through among other things workshops, trainings, public awareness
campaigns, radio shows, and use of ILO supervisory machinery. Good practices in collective bargaining will
be collected and disseminated through publication, while a new more focused strategy to increase new
CBAs will be adopted with among enterprises.
The third strand of ILO assistance will continue to support union efforts to engage in more bipartite and
tripartite social dialogue (over issues like the Trade Union Law, minimum wage setting, labour disputes,
contracting, gender equality and non-discrimination), as well as in the establishment of a TU taskforce with
a mandate and capacity to lead the process of establishing a national social dialogue mechanism (most
likely a National Labour Advisory Council).
Finally, the ILO will provide technical assistance in union efforts to organise more workers, particularly
from currently underserved sectors like agriculture, transport, entertainment, telecommunication, banking,
and teaching and education. Here, interventions will also draw upon ILO’s experience in other countries
and will provide adapted materials that showcase effective organisation strategies.
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Throughout its country programme, trade unions will be engaged as a partner in the implementation of all
ILO projects and programmes, and they will increase the level of their participation and partnership with
ILO toward the achievement of the DWCP and Cambodian national development goals.
Joint Programme Strategy – Support to Employers’ and Workers’ Organisations
Employers
i.
Support CAMFEBA in conducting an on-going member needs assessment analysis (surveys, focus
groups, desk research) in order to respond to members' needs effectively
ii.
Develop and implement bi-annual work plan of ACTEMP technical assistance - in consultation with
CAMFEBA, outlining baseline situation, outcomes, key performance indicators, relevant outputs and
time frames
iii.
Assist CAMFEBA to further develop its internal technical and functional capacity by providing relevant
training, introducing new organisational tools and systems and leveraging the knowledge and
experience of more developed EO's in the region
iv.
Assist CAMFEBA to respond to members' demands by introducing new products and services and/or
improving an existing services and to generate necessary revenue to support the organisation
v.
Assist CAMFEBA to become more influential in the labour and social policy by enhancing their
research capacity and their lobbying capacity, by enhancing CAMFEBA's media profile and by
enhancing their representativeness (focusing on membership growth)
Unions
i.
Provide education and training on ILS and TU law, collective bargaining and negotiations,
communication and social dialogue, organizing skills, minimum wage setting, union unity, gender
equality, and decent work and DWCP to enhance the knowledge and competencies of union
beneficiaries
ii.
Promote freedom of association and collective bargaining through various activities and methods,
including workshops, trainings, public awareness campaigns, organising campaigns, and radio
programmes
iii.
Collect and disseminate the methods, strategies and practices of union organising and launch related
campaigns in agriculture, transport, entertainment, telecommunication, banking, and teaching and
education
iv.
Support unions to more effectively engage in more bipartite and tripartite social dialogue to discuss
the enforcement of the Trade Union Law, minimum wage setting, labour dispute settlement, and the
contract labour system
v.
Support the development of analytical research on issues related to on minimum wage, social
dialogue, ILS, the Labour Law, grievance handling procedures, collective bargaining, minimum wages,
and organising
Performance Indicators
Targets
1.1.1. Number of new products and services
launched by CAMFEBA (or improvements made to
existing products and services)
By 2015, at least 4 new products or services have
been launched or at least 4 existing services have
been improved
1.1.2. Number of policy position and
recommendation papers produced by CAMFEBA for
consideration by the Government
By 2015, at least 3 new comprehensive submissions
for policy consideration are submitted by CAMFEBA
to the government each year
1.1.3. Number of education and training programmes
conducted with unions and related stakeholders
By 2015, at least 60 education and training
programmes have been provided to union
beneficiaries on various key labour issues, including
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3000 local union leaders and 300 trainers through
TOT (40 to 60 per cent and at minimum 30 per cent
will be of either sex).
1.1.4. Number of union federations developing official
strategies and work plans for organising (new
members)
By 2015, every union confederation has developed
organising strategies and accompanying work plans
1.1.5. Number of new collective bargaining
agreements signed
By 2015, 30 new CBAs signed
1.1.6. Number of research or analytical studies
conducted and published / number of training
materials published
By 2015, at least one study on minimum wage
setting“ and one on ”union multiplicity and unity“
published
1.1.7. Number of forums of bipartite and tripartite
social dialogue participated in by unions on key
aspects of the labour law and industrial relations
Outcome 1.2
By 2015, trade unions engage in at least two bipartite
and tripartite consultation fora per year
Improved mechanisms and processes for dispute resolution
The Memorandum of Understanding on Improving Industrial Relations in the Garment Industry signed in
September 2010 contains a clause in which the union and employer parties to the agreement commit to
binding arbitration for rights disputes and no strike prior to arbitration. This voluntary agreement will
hopefully serve as a model and basis for continued improvements in dispute resolution, and should be at
least extended if not made permanent beyond its current expiry date of October 2011. In 2011, the MOLVT
will be encouraged to shorten the conciliation period for disputes arising under CBAs, as per the
recommendations of the MOU.
Alongside these higher level commitments, the implementation of which the ILO will stand ready to assist,
the Office will also work with constituents –namely the Ministry of Labour (MoLVT), GMAC, CAMFEBA and
union federations and confederations- to increase the use and effectiveness of workplace grievance
procedures to prevent small disputes from escalating, and with this, enhance mutual trust (between
workers and employers) and faith in internal (i.e. enterprise level) dispute management. On the
government side, the ILO will work specifically to boost the capacity of the MoLVT to promote workplace
grievance procedures.
Capacity building and training for provincial officials responsible for dispute resolution will also be a
priority under this DWCP, in particular with regard to dispute prevention, conciliation, arbitration, and
collective bargaining. MOLVT at the central level will be the lead partner, with ILO support.
The ILO will also undertake in the first year of the DWCP efforts to secure the continuation of the
Arbitration Council, in recognition of the important role it has played in furthering a more harmonious
industrial relations environment in the country. To these ends a strategy paper on the continuation of the
AC will be produced –jointly by the ILO and Arbitration Council Foundation- and submitted to potential
donors for consideration of funding.
Programme Strategy
27 | P a g e
i.
ii.
iii.
iv.
Provide technical assistance and guidance, where requested, to the Government and social partners
in the effective implementation of the MOU on Industrial Relations (September 2010)
Promote –through capacity building and promotional and awareness-raising activities- the increased
use and effectiveness of workplace grievance procedures to prevent escalation of small-scale disputes
Provide on-going training and capacity building for provincial officials, including on gender equality in
dispute resolution
Working with the Arbitration Council Foundation, produce a strategy paper on the case for sustaining
the Arbitration Council, and conduct donor outreach with a view to securing funding to extend its
tenure
Performance Indicators
Targets
1.2.1. Grievance procedures are recognised in
standard workplace rules/regulations
By 2013, MOLVT incorporates grievance procedures
into standard workplace rules with bipartite support
1.2.2. Workers and employers use grievance
procedures, dialogue and negotiations to prevent and
resolve disputes
By 2015, there is a 20% increase in the use of
grievance procedures
1.2.3. Continuation of independent and impartial
arbitration procedures through the Arbitration
Council
By 2013, external/internal funding secured for an
extension of the tenure of the Arbitration Council
1.2.4. Harmonisation between official record keeping
procedures for conciliation and arbitration
By 2014, MOLVT has harmonised record keeping
between Labour Disputes Department and Arbitration
Council
1.2.5. Length of dispute procedures in circumstances
where CBAs exist
By 2013, MOLVT agrees to shortened dispute
procedure in circumstances where CBA exists, in line
with September 2010 MOU
Outcome 1.3
Social Dialogue is both more effective and more widely employed, including collective
bargaining agreements and their enforcement
In addition to extending the MOU in the garment industry, collective bargaining shall also be promoted in
the tourism and construction sectors. To these ends, capacity building and training for MOLVT officials
shall be delivered, including the development of specific guidelines for how to concretely promote and
facilitate collective bargaining. Efforts will also focus on capacity building for the secretariat and members
of the tripartite Labour Advisory Committee (LAC) to more effective carry out their responsibilities (with
the support of the government). This includes more robust representation of members’ interest,
preparation of agenda items, and preparation for discussion and engagement.
Programme Strategy
i.
ii.
iii.
Promote and facilitate the expansion of collective bargaining agreements to additional sectors,
particularly tourism and construction, through regular and expanded training to workers and
employers
Devise and conduct capacity building and training for MOLVT officials, including the development of
guidelines on how to effectively conduct collective bargaining
Conduct capacity building activities with the secretariat and members of the tripartite Labour
28 | P a g e
Advisory Committee, to enhance the effective implementation of its mandate –namely a more robust
representation of members, stronger organisational management and planning, and more
comprehensive discussion and (tripartite) engagement
Performance Indicators
Targets
1.3.1. Availability of agreed official guidelines
promoting collective bargaining
By 2014, MOLVT guidelines on promoting CB have
been developed and adopted with bipartite support
1.3.2. Number of new CBAs registered in new
industries or sectors
By 2015, 5 new CBAs in new industries or sectors are
registered
Outcome 1.4
National labour standards reviewed, revised or developed in line with relevant
international labour standards and reported upon to international supervisory and monitoring bodies
The ILO’s country strategy with regard to international labour standards (and the alignment of national
standards therewith) will focus on four main areas of assistance. First, it will promote –through gap
analyses, tripartite awareness-raising and validation workshops – the ratification by 2015 of 2
International Labour Conventions, as selected by constituents out of the following 7 Conventions: the
Tripartite Consultations (International Labour Standards) Convention, 1976 (No. 144); the Indigenous
Peoples Convention, 1989 (No. 169); the Vocational Rehabilitation and Employment (Disabled Persons)
Convention, 1983 (No. 159); the Night Work Convention, 1990 (No. 171) – in connection with a
denunciation of the obsolete Night Work (Women) Convention, 1919 (No. 4); the Domestic Workers
Convention, 2011 (No. 189); the Promotional Framework on Occupational Safety and Health Convention,
2006 (No. 187); or the Maritime Labour Convention, 2006 .
The second area will involve technical assistance to the government to discharge its reporting obligations
under the ILO Constitution, including: (i) Article 19 questionnaire on social dialogue (2012); (ii) Article 22
reports on all ratified Conventions, in particular C. 87 & C. 98 in response to the conclusions of the
Conference Committee on the Application of Standards of 2010 and 2011; (iii) capacity-building (including
workshops, the development of materials and the strengthening of the legal framework) on the application
of C. 122 (employment policy) and C. 29 (forced labour of prisoners).
The third strand of the ILO programme strategy will focus on national labour law reform, in particular
capacity-building to apply forthcoming new legislation on labour relations.
Finally, the ILO will also utilise the next DWCP cycle to widen and improve its outreach activities connected
to international labour standards, in particular by engaging proactively with the UN country team, through
the provision of substantive advisory services to help the RGC meet its obligations under UN human rights
instruments.
Programme Strategy
i.
ii.
Work with constituents to identify and promote the ratification of 2 ILO Conventions, as selected by
constituents (to include gap analyses and awareness-raising and validation workshops)
Provide technical assistance to the government to report on and effectively apply ratified conventions, in
particular those pertaining to social dialogue and tripartism, child labour and non-discrimination. As
much as possible, assistance on reporting will be synchronized with technical inputs to help strengthen
29 | P a g e
labour law and other labour market governance institutions
Assist the government of Cambodia apply new labour relations legislation
Conduct outreach activities on the promotion of standards with key national stakeholders, including the
UN country team
iii.
iv.
Performance Indicators
Targets
1.4.1. Number of international labour Conventions
ratified and applied by Cambodia
By 2015, Cambodia has ratified and is applying at least 2
additional International labour Conventions
1.4.2. Reporting obligations under the ILO
Constitution discharged in a timely manner, in
particular the annual report on non-ratified
Conventions (“Art. 19 reports”) and reports on ratified
Conventions (“Art. 22 reports”)
By 2013, two Art.19 reports have been submitted and 80
percent of Art.22 reports have been submitted on time
Outcome 1.5
More effective application of equality and rights at work for discriminated and
vulnerable groups
The ILO strategy for promoting equality and rights of discriminated and vulnerable groups of workers
(women, persons with disabilities, migrant workers, domestic workers and indigenous peoples) centres on
three key pillars of assistance.22 First it will entail technical assistance and support to constituents in
developing national laws, prakas and policies in line with international legal instruments safeguarding the
fundamental rights of all workers to equality of opportunity and treatment in employment and social
protection. Secondly, the Office will work alongside constituents to increase equitable service delivery
(including skills development and training, public employment services, business development and
financial services) to discriminated and vulnerable groups of workers, and to develop and implement
specific measures to eliminate discrimination and exploitation (the latter of which is particularly pertinent
in the case of migrant workers). Finally, it will work on advocacy and awareness raising of the rights of
discriminated groups in the labour market, through which it will aim to facilitate stronger representation of
these groups in decision making in organizations (particularly workers’ and employers’ representatives)
and in governance mechanisms.
Programme Strategy
i.
ii.
iii.
Provide technical assistance and support to constituents in developing national laws, prakas and
policies in line with international legal instruments safeguarding the fundamental rights of all workers
to equality of opportunity and treatment in employment and social protection
Work with constituents to protect and increase equitable service delivery to discriminated groups of
workers, and to develop and implement specific measures to eliminate discrimination
Strengthen advocacy on the rights of discriminated groups, enabling their representation in decision
making in organizations and in governance mechanisms
Performance Indicators
Targets
22 Among those groups of workers listed, all are considered discriminated (in both the labour market and wider society),
except for migrant workers, whose difficulties stem less from discrimination than from poor information and inadequate
legal protections –both at the recruitment stage and in the destination country, where exploitation and decent work deficits
are widespread. At the same time, owing to cumulative results of discrimination throughout the life-cycle, women tend to be
overrepresented in certain types of low-skilled and low paying jobs as migrants (such as domestic work), which increases
their risk of exposure to gender-based violence.
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GENDER
MIGRANT WORKERS
PERSONS WITH DISABILITIES
DOMESTIC WORKERS
INDIGENOUS PERSONS
1.5.1 Explicit inclusion of gender equality issues
in national policies and action plans of ILO
constituents
From 2011 to 2015 Gender Mainstreaming Action
Plans (GMAPS) are designed, implemented and
evaluated by the MOLVT, the MIME and CAMFEBA
and 2 trade union federations carry out at least one
specific gender equality measure
1.5.2 Number of male and female leaders
among constituents, MOWA and gender
networks trained through TOT on rights
promotion and gender equality mainstreaming
strategies in employment, social protection and
industrial relations
By 2015, at least 100 female and 100 male leaders
have been trained on rights promotion and gender
equality mainstreaming strategies in employment,
social protection and industrial relations
1.5.3. Complaints mechanism and monitoring
procedures for recruitment of migrant male and
female workers established
By 2013, a formal national complaints mechanisms
in place and monitoring procedures for labour
recruitment established
1.5.4. Number of migrant resource centres
operational in providing advice and information
on safe migration
By 2012, migrant resource centres are established
in three provinces
1.5.5. Adoption of legal regulations to facilitate
the implementation of the government SubDecree on migrant sending
By 2013, regulations for the implementation of the
Sub-Decree on migrant sending have been adopted
1.5.6. Percentage of businesses meeting the
legal quota requirements for employing persons
with disabilities (who should make up 2% of the
firm’s workforce)
By 2015, 50 percent of formal sector businesses are
meeting the 2% quota requirement for employing
men and women with disabilities
1.5.7. Ratification of the UN Convention on the
Rights of Persons with Disabilities (UNCRPD)
By 2015, Cambodia has ratified the UNCRPD
1.5.8. Number of practical measures (e.g.
education and training, awareness/advocacy
campaigns, new legal provisions, policy
recommendations), implemented by key
Government ministries/departments and social
partners to promote decent work for domestic
workers
By 2015, the MOLVT, MOWA and social partners
implement at least one practical measure to
promote decent work for domestic workers
1.5.9. Number of government officials and
other stakeholders (including ILO social partners
and NGOs/indigenous peoples organisations)
receiving training using ILO tools on the rights
of indigenous peoples and on appropriate
policies that protect IP’s traditional lands and
economic resources
By the end of 2012, 65 persons from Government
institutions, social partners and NGOs/indigenous
peoples organisations (equitable representation of
women and men) have been trained
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1.5.10. Number of additional communities
recognised and registered by relevant
government authorities
By the end of 2013, a total of 121 communities
have received a letter of recognition from Ministry
of Rural Development, 70 of which have also
received a letter of registration from the MOI
1.5.11. Proportion of registered indigenous
communities having developed internal rules
for the sustainable use and management of
land and natural resources (in accordance with
the sub-decree on the procedure of registration
of indigenous communities’ land)
By the end of 2012, at least 25 communities have
developed internal rules for the sustainable use
and management of land and natural resources
CP PRIORITY 2: PROMOTING AND ENABLING DECENT EMPLOYMENT GROWTH,
WITH A PARTICULAR FOCUS ON YOUNG PEOPLE
The Employment Challenge
The employment challenge in Cambodia is characterised by a number of factors which together conspire to
hinder decent job creation and with it, restrain the progress of balanced growth and poverty reduction.
First is the country’s narrow economic base, which despite having driven growth rates in Cambodia into
double figures during the last decade, has been less impressive at providing adequate and diversified job
opportunities for the country’s fast growing labour force, comprised largely of young women and men.
Although sectors like garments have provided critical stimuli to the post-war economy as well as jobs for
hundreds of thousands of mostly poor Cambodians, their overall contribution to employment has been
small compared to the majority that remains in low productivity and subsistence agriculture. What’s more,
with only modest progress having been made toward economic diversification to date –both within and
beyond current sectors- the challenge of how to generate jobs for a labour force that will soon add around
300,000 new –mostly young- entrants every year is becoming an increasingly daunting one for the
country’s policymakers.
The second major challenge is the profound and growing mismatch between the skills of the labour force
and those demanded by employers in the labour market. This mismatch, which stems from systemic
weaknesses in the country’s education and training systems, has lead to labour market inefficiencies that
have both constrained the employability and earning potential of Cambodian men and women and
undermined the country’s wider national competitiveness vis-a-vis others countries. In an open economy
keen to attract FDI as a strategy for growth and development, this is a major weakness, and one that is
clearly reflected in Cambodia’s poor regional standings for labour and enterprise productivity. To address
this, attention needs to be placed not only on reform of the education and particularly technical and
vocational education and training systems (to better equip the future workforce with the skills and
competencies the labour market needs) but also on developing and widening access to public employment
services –which can provide both information and guidance to jobseekers and establish important linkages
and information flows between employers, workers, and training institutions.
The third challenge is that of vulnerable employment. As in much of developing Asia, official
unemployment in Cambodia remains low –a product of the fact most working age people cannot afford the
“luxury” of being unemployed or searching for the perfect job. However, while the majority of those able to
work are doing so, the quality of employment across large swathes of the economy remains low, and
usually insufficient to bring sustainable gains to living standards. According to the 2008 census, workers in
32 | P a g e
vulnerable employment, defined as those in unpaid family work and own account workers, make up more
than 80 percent of the employed in Cambodia –an absolute increase since 1998 but a decline in percentage
terms. The bulk of these workers can be found in agriculture (particularly unpaid family workers), but
there are also growing numbers in the urban informal sector, where unskilled migrants from poor rural
areas often find themselves.
Women and men engaged in vulnerable employment face a host of decent work deficits which undermine
their own social and economic mobility as well as the country’s progress toward balanced and inclusive
growth. Not only are they typically exposed to lower wages, longer hours, and poorer (and often more
dangerous or unhealthy) working conditions than those in other types of work, they also face poor job and
income security, obstacles in access to social protection and basic services, and weak or absent
representation through unions. Given that Cambodia’s recent impressive growth has failed to make
significant inroads to reduce the prevalence of this type of employment, it is clear that new policy
approaches are needed in the coming years to accelerate the transition away from vulnerable and into
more “decent” forms of employment.
ILO Programme on promoting and enabling decent employment
Outcome 2.1
Effective National Employment Policy and relevant institutional framework developed
for promoting equitable employment and protection
The process of developing a National Employment Policy (NEP) for Cambodia with a focus on youth will be
research and consultation based, and will be driven by tripartite partners and importantly, an InterMinisterial Steering Committee to oversee its implementation. This committee will be led by the MoLVT
and will form the main coordinating and advisory body at the national level in the execution of the NEP. In
this regard, the ILO will provide support to both the Ministry of Labour to actually establish and run the
committee and the committee members, to enhance their capacity to perform its key functions effectively.
While a number of prerequisites for the committee’s establishment are already in place, to actually
establish it will require additional legal provisions (namely a government decree). Once operational, the
committee will then meet to decide on the content of the NEP before finalising the strategy document,
together with an accompanying Action Plan for Employment. An initial round of consultations have already
taken place in this regard between workers and employers groups, and this will be followed with further
consultations during 2011 and early 2012 to enable them to provide effective inputs to the NEP. The data
from the 2012 Labour Force Survey (assisted by the ILO) will provide the basis of the supply side of the
NEP. A concept note for the strategy has been prepared as part of the EU-funded project on Social
Protection and Employment and additional in depth sectoral research is envisaged in order to develop clear
sector-level recommendations for employment policy (this research will also cover the gender dimensions
of the employment challenge in these sectors, and where necessary will make specific recommendations
aimed at overcoming barriers to gender equality in access to and quality of employment and other labour
market services). This will lead into the finalisation of the Policy and its endorsement (subject to a
government timeline) alongside the 5 year Action Plan for Employment.
Programme Strategy
i.
ii.
Provide technical support, inputs and guidance to government and social partners to strengthen the
data and information base on the labour force and sectoral dynamics of the employment challenge –
namely, the publication of the LFS and a number of diagnostic research studies
Provide technical support in the design and development of the National Employment Policy
document
33 | P a g e
iii.
iv.
v.
Support the establishment of a formal legislative framework for the NEP and an associated
coordinating body (i.e. an inter-ministerial steering committee)
Conduct capacity building of constituents on the NEP (through training primarily)
Adapt toolkit for mainstreaming employment into national economic and social policies to national
context and disseminate to constituents and key stakeholders.
Performance Indicators
Targets
2.1.1. Availability of Labour Force Survey and report
data
By end of 2012, the Cambodia Labour Force Survey
and Report is published and disseminated
2.1.2. Information base on sectoral employment
dynamics is increased
By 2012, diagnostic studies covering at least three
sectors are completed
2.1.3. Number and coverage of training courses
provided on elements and themes relevant to the
NEP, with a particular focus on young women and
men
By 2013, at least one inter-ministry training has been
conducted with officials from MoLVT and other
ministries/departments, together with at least one
similar training each for employers’ and workers’
organisations
2.1.4. Formal institutional mechanism for the
implementation of the NEP is established, with
relevant provisions made for equitable gender
representation within its membership
By 2013, an inter-ministerial steering committee for
decent work and the national employment policy is
established and operational, with 40 to 60 percent
membership of either sex, and with accompanying
monitoring responsibilities/obligations
Outcome 2.2
23
Enhanced employability of men and women through improved skills development and
public employment services
Cambodia plans to implement a comprehensive roadmap to human capital development which will see
increased investment in workforce skills as a strategy to expand employability and decent work
opportunities and with it, broaden the country’s growth potential(s). Part of this process will involve
strengthening the current TVET system through a revision and upgrading of skills standards, which in their
current state are not only too few in terms of occupational and sectoral coverage, but are also poorly
aligned with industry needs. Sectors earmarked for skills standards development in the coming years
include tourism, garments, and construction –all important sectors for future growth in Cambodia. In
addition, the development of public-private partnerships in TVET will also form an integral part of the plan,
as will improving both human capacity (i.e. teachers’ skills) and physical infrastructure (e.g. facilities and
equipment) in the TVET system and strengthening the National Training Board (which provides the main
institutional mechanism for coordinating and joint programming in TVET).
Public employment services (PES) in Cambodia will continue to cushion impacts on labour market
transitions for workers and enterprises. This means carrying out and strengthening their roles in the
provision of improved labour market information; job search assistance and placement services; and the
administration of a variety of labour market programmes. Its network of job centres will continue to
23 For optimum gender equity in the membership of this body, it must comprise between 40 and 60 percent of either sex, and
no less than 30 percent of one (i.e. male or female, meaning that no one sex shall make up more than 70 percent of the
membership). Explicit mention will also be made in the committee’s terms of reference of the need to mainstream gender
concerns across all functions, so as to promote gender equality in all aspects of the National Employment Policy.
34 | P a g e
provide improved services to jobseekers and employers through new and updated tools and labour market
information.
Throughout the next five years the ILO will continue provide technical assistance, advisory services,
sharing and adaptation of tools and capacity building assistance in both skills development and
employment services. It will also seek to assist the MoLVT and National Employment Agency (NEA) with
resource mobilisation from the donor community as a means to supplement existing government plans,
particularly for the expansion of employment services across the country.
Programme Strategy
i.
ii.
iii.
iv.
Provide technical assistance to the development of skills standards in key sectors, together with
appropriate mechanisms for testing and certification
Provide capacity building support to MoLVT and NEA to enhance their ability to collect, analyse and
report on labour market information
Support the NEA through training, advisory services and the development and adaptation of tools for
improved public employment services, particularly career counselling, identification of job profiles,
and the provision of job search assistance and placement services
Assist the NEA with resource mobilisation for the expansion and professionalization of public
employment services
Performance Indicators
Targets
2.2.1. Number of skills standards developed/adapted
in priority sectors of the economy
By 2015, at least 3 skills standards
developed/adapted in 2 priority sectors
(manufacturing and tourism)
2.2.2. Number of men, women and youth trained in
standardised skills for priority sectors
By 2015, there is a 20% increase in the number of
women, men and youth trained in priority sectors
2.2.3. Number of people trained, skills assessed and
certified
By 2015, there is a 20% increase in the number of
graduates assessed and certified per year
2.2.4. Number of jobseeker registration and
placements
By 2015, there is a 30% increase in jobseeker
registrations per year and a 20% increase in
placements per year (disaggregated by gender)
2.2.5. Number of NEA and job centre staff
trained by NEA in employment services and career
guidance and counselling
By 2015, there is a 30% increase in the number of
NEA and job centres’ staff trained
Outcome 2.3
Improved MSME business and entrepreneurship skills and services
Enterprise development is key to Cambodia’s future development, both in terms of sustaining decent job
creation and enabling the poor to rise above poverty. This is particularly true of the countryside, where
poverty is most highly concentrated and employment often most scarce. In this regard, the ILO will
continue to build on the work it has done to date to improve the sustainability, competitiveness and
responsible practices of Cambodian micro and small enterprises (MSEs, or MSMEs if medium-sized
enterprises are included), particularly in rural areas, through both training and capacity building activities
and the practical interventions of new and existing technical cooperation projects.
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In recognition of the key role women and youth entrepreneurs can play in driving socio-economic
development, and to maximise the potential for job creation through entrepreneurship, the ILO will also
utilise the DWCP cycle to build on earlier technical cooperation to widen access to relevant and genderresponsive business development and financial services, especially in underserved rural areas. Advice and
training will be provided to strengthen the technical, vocational, financial, and business skills of (potential)
women and youth entrepreneurs to enable them to establish competitive and sustainable enterprises.
Concomitant efforts at the policy level to strengthen the national and local policymaking context for
entrepreneurship will also form an important component of this work.
Specific support will also be extended to communities of indigenous persons through the existing Creative
Industries Support Programme –a joint UN programme (of which ILO is an implementing agency) aimed at
fighting poverty through the commercialisation –and preservation- of these communities’ cultural and
traditional products.24 In this regard, the ILO’s component will focus on expanding economic opportunities
through (a) greater land tenure security (which entails supporting the land-titling process through
community registration with the Ministry of Rural Development); (b) more widespread and culturally
appropriate business and economic services; and (c) the formation of producer groups for specific types of
artists and producers, and the provision of basic financial literacy and business skills to help improve their
employment and economic prospects.
ILO will build on its current work on microfinance impact assessment and social performance at the global
level in Cambodia. It will continue to strengthen the capacities of selected microfinance institutions to
develop innovative products or services such as savings, credit, insurance, or non-financial services in
order to better address the business and individual financial needs of their clients. ILO will aim to replicate
successful microfinance impact assessment methodologies and tools to promote responsible finance and
contribute to improving the decent work situation of client entrepreneurs.
Programme Strategy
i.
ii.
iii.
iv.
Work with social partners and other institutions to expand the availability of relevant business
development support services to all citizens, particularly rural women and youth (men and women)
Provide technical support and guidance to constituents and business associations to lobby for and
promote a conducive policy and institutional environment for enterprise development
Strengthen the institutional capacity of selected financial service providers to widen access to
diversified, sustainable and socially responsible financial and non-financial services
Provide technical assistance to expand economic opportunities among communities of indigenous
persons through greater land tenure security, more appropriate and accessible business development
services, and support to the establishment of viable producer groups
Performance Indicators
Targets
2.3.1. Number of institutions adopting and applying
gender-responsive micro and small enterprise (MSE)
development policies/strategies in rural areas
By 2015, at least 5 institutions have adopted and are
applying MSE development policies/strategies in rural
areas
2.3.2. Number of institutions adopting ILO tools for
MSME development in high growth sectors
By 2015, at least one national institution and two
business associations will adopt ILO tools for the
24 CISP is a joint initiative of UNESCO, UNDP, FAO, and ILO worth US3.3million (2008-2011). It is funded by the Spanish MDG
fund under its thematic window for Culture and Development, and is aimed at contributing to three of the country’s
Millennium Development Goals: MDG1 - Eradicate extreme poverty and hunger; MDG 3 - Promote gender equality and
empower women; and MDG 8 - Develop a global partnership for development. It operates in four provinces: Kampong Thom,
Mondulkiri, Rattanakiri and Preah Vihear.
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support and strengthening of local enterprises
2.3.3. Number of financial service providers
introducing innovative and socially responsible
financial or non-financial services to their clients
By 2015, at least 4 partner-microfinance institutions
have developed and introduced innovative savings,
loans, or insurance products or training services to
their clients
2.3.4. The number of IP communities with active
producer groups linked to markets and viable sectors
By 2015, at least 10 IP communities have established
producer groups with access to economic services
and links to productive markets
Outcome 2.4
Effective progress made to enhance enterprise productivity and competitiveness
The ILO’s work on enhancing workplace productivity and competitiveness in Cambodia shall centre on the
implementation of one or more of the following strategies. First, the ILO shall assist social partners to
better understand the importance and meaning of enterprise productivity by developing an "enterprise
productivity training manual," which will utilise –and adapt- existing ILO tools on business development,
together with new data and insights on the productivity challenge in Cambodia from recent ILO work,
particularly in the garment industry where its Better Factories Cambodia (BFC) programme has conducted
research and sought to build consensus with industry partners on strategic priorities and approaches for
productivity enhancement. Academic and practical insights on the issue should also be gathered from
other research, both inside and outside Cambodia, for a broader scope of options. These tools should then
form the basis of a new productivity training programme which social partners and other relevant
institutions can provide independently at the enterprise level. The ILO will offer assistance both in the
development of this programme and in guiding its delivery to enterprises.
Good practice approaches for improving productivity designed during the aforementioned stages should
also be translated into tangible interventions through the development of pilot programmes at the
enterprise level. In such instances, enterprises will be selected in a number of key sectors (and particularly
small and medium sized enterprises, in reflection of their predominance in terms of employment
generation in Cambodia) and supported to introduce new initiatives to enhance competitiveness and
productivity. Wherever possible, social partners should lead these pilots, with technical support and
guidance from the ILO.
In recognition of its manifold successes, the Government of Cambodia recently agreed with ILO to a formal
extension of the Better Factories Cambodia programme until 2014.25 The focus of the programme’s work in
the coming years will be to improve both its institutional and financial sustainability, in parallel with its
efforts to improve the quality of its core services (labour compliance monitoring/assessment, training and
advisory services) and extend coverage to currently unregistered factories, particularly subcontractors. In
addition, BFC will increasingly focus on developing comprehensive training and capacity building services
to promote a conducive working environment for improved industrial relations, increased productivity and
better overall industry competitiveness and worker wellbeing. The programme is also working together
25
In particular, BFC has conducted 2,679 monitoring visits between 2001 and 2010, which has boosted compliance with national
and international labour standards. Meanwhile, its Modular Training programme has been delivered to 61 factories and reached
2,457 participants, and its seminars on issues such as productivity, negotiation skills, and HR management have reached more than
1900 workers and managers across nearly 400 factories. 1,700 factory supervisors have received specific skills training, while nearly
60,000 production workers have received innovative training on the labour law and life in the factories through the “at the factory
gates” soap opera series.
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with the global Better Work Programme (BW), a joint initiative of ILO and IFC created based on BFC
experience, in order to diversify its services with a particular focus on quality enhancement.
Ultimately, it is recognised that productivity gains cannot be achieved in any sustainable manner without
being based on a foundation of consultation and consensus between workers and employers, as well as an
organisational focus on workplace cooperation, industrial harmony and protection of rights at work. In this
regard, ILO’s efforts at productivity enhancement shall seek to promote both tangible gains in value added
from the factors of production, together with the rights of workers to organise, influence management
decisions, and bargain freely over wages and working conditions.
Programme Strategy
i.
ii.
iii.
iv.
Develop a practical manual for enterprise productivity training, drawing both on academic and other
professional research into the productivity challenge and the practical experiences of the ILO in
Cambodia
Identify good practice approaches for productivity enhancement at the enterprise level
Design a training programme based on the content of the productivity manual, and provide support
to social partners to be able to deliver training to their members
In conjunction with social partners, devise pilot projects at the enterprise level to test and showcase
approaches for improving productivity and competitiveness in Cambodia. Document and publicise
successes
Performance Indicators
Targets
2.4.1. Enterprise productivity training manual used by
to social partners
By 2012, enterprise productivity training manual is
completed and disseminated among social partners
2.4.2. Number of tools for dialogue-based
productivity enhancement adopted
By 2015, at least 2 tools for dialogue-based
productivity enhancement adopted by CAMFEBA and
employed at enterprise level among its members
2.4.3. Number of enterprises launching pilot
initiatives/programmes based on ILO training and
tools to enhance workplace productivity
By 2015, at least 50% of enterprises having
participated in ILO training on productivity have
developed new pilot programmes/initiatives to boost
productivity
2.4.4. Number of export-licensed garment factories in
Cambodia covered by the BFC programme and
effectively monitored on compliance to national
labour law and international labour standards
By 2015, 100% of export-licensed garment factories,
including subcontractors, are effectively monitored by
the BFC programme
2.4.5. Number of export-licensed garment factories
that have received working conditions improvement
and/or productivity enhancement services
By 2015, 70% of export-licensed garment factories
have been provided with working conditions
improvement and/or productivity enhancement
services
38 | P a g e
CP PRIORITY 3: IMPROVING AND EXPANDING SOCIAL PROTECTION
Background and context
Government efforts at reducing vulnerability and alleviating poverty through social protection have
gathered pace since the early 2000s with a range of new initiatives and programmes aimed at extending
access to basic provisions like health and income support across various groups of society. These have
included social welfare payments for the elderly and disabled, food distribution schemes, public works
programmes (PWPs), health equity funds (HEFs) and community based health insurance (CBHI).
For the most part, however, such efforts have been ad hoc, geographically limited, and heavily reliant on
non-sustainable donor funding for their continuation. As such, overall coverage of social protection has
remained weak, with efforts further hampered both by poor coordination among implementing parties
(typically government ministries and related national bodies) and weak overall implementation capacity (a
product of both human capacity weaknesses and a lack of physical and financial resources). In 2005, the
ADB estimated total spending on non-health social protection in Cambodia was US$78 million -1.4 percent
of the country’s GDP.26
Cambodia faces manifold challenges in the field of social protection. These include basic health and
education issues like malnutrition, illiteracy and child labour to labour market inefficiencies like the
predominance of vulnerable employment (which constitutes the main income earner for more than 80
percent of working Cambodians) and the acute and growing mismatch between the labour force skills and
employers’ needs. Together with external economic and natural shocks (including food and fuel price
crises, external trade and demand instability and natural disasters affecting food production), these factors
conspire to trap millions of Cambodians in cycles of hardship, uncertainty and vulnerability.
Key indicators of vulnerability
Underweight children (% of total)
Child mortality (under 5 yrs)
Net school enrolment:
- Primary
- Secondary
- High school
Illiterate & non-primary educated population
(above 15 yrs)
Vulnerable employment (% of total employment)
28.8%
83 per 1000 births
94.8%
31.9%
19.4%
58.8%
82.5%
Source: National Social Protection Strategy for the Poor and Vulnerable, NSPS-PV (2011)
Until recently there has been no overarching policy framework that attempts to extend key aspects of a
basic social floor to all groups in Cambodia, and particularly those most excluded through poverty and
other access barriers. However, this has now changed with the introduction of the country’s first
comprehensive national social protection strategy, the NSPS-PV.
Major policy developments in social protection
Major policy developments
Target groups
Institution in charge
26 ADB (2007) “Scaling up of the social protection index for committed poverty reduction.” Cambodia Country Report, Volume
6, Halcrow China Limited, November 2007, p4
39 | P a g e
National Social Protection Strategy for the
poor and vulnerable (NSPS-PV)
•
•
Poor and vulnerable
Agricultural workers
Council for Agricultural and
Rural Development (CARD)
National Social Security Fund- implementation
of the employment injury scheme; design of
the health insurance scheme
•
Private sector employees
(under labour law)
National Social Security Fund for Civil Servants
(NSSF-C); design of the Health insurance for
civil servants
•
Civil Servants
Ministry of Labour and
Vocational Training (MOLVT) National Social Security Fund
(NSSF)
Ministry of Social Affairs,
Veterans and Youth (MoSAVY) –
NSSF-C
Drafting of the umbrella Law on Social Security
•
•
•
Civil Servants
Self Employed
SMES
MoSAVY
National Social Protection Strategy for the Poor and Vulnerable (NSPS-PV)
The National Social Protection Strategy for the Poor and Vulnerable, NSPS-PV was officially endorsed in
March 2011 and now forms the pre-eminent national policy tool for improving and expanding social
protection in Cambodia.27 The core vision of the NSPS-PV is for a country in which all Cambodians, but
especially the poor and vulnerable, benefit from effective social safety nets and social security as an integral
part of a sustainable, affordable and effective national social protection system. The main goal of the NSPSPV is that the most disadvantaged citizens are over the coming years increasingly protected against chronic
poverty and hunger, shocks, destitution and social exclusion, and benefit from greater investments in their
human capital. Under this goal, the NSPS has the following objectives:
1. The poor and vulnerable receive support including food, sanitation, water and shelter and the like,
to meet their basic needs in times of emergency and crisis.
2. Poor and vulnerable children and mothers benefit from social safety nets to reduce poverty and
food insecurity and enhance the development of human capital by improving nutrition, maternal
and child health, promoting education and eliminating child labour, especially its worst forms.
3. The working-age poor and vulnerable benefit from work opportunities to secure income, food and
livelihoods, while contributing to the creation of sustainable physical and social infrastructure
assets.
4. The poor and vulnerable have effective access to affordable quality health care and financial
protection in case of illness.
5. Special vulnerable groups, including orphans, the elderly, single women with children, people living
with disabilities, people living with HIV, patients of TB and other chronic illness, and the like,
receive income, in-kind and psycho-social support and adequate social care.
Achieving these objectives requires the scaling-up and harmonisation of existing social protection
programmes and the piloting of new interventions to fill the identified gaps. As a priority, the government
aims to roll out new Public Works Programmes to provide jobs and infrastructure assets in poor, mostly
rural communities –something in which based on its extensive experience and expertise the ILO expects to
play a key part. Further down the line (i.e. when funding sources and institutional arrangements are
assured), the government also expects to launch a conditional cash transfer scheme that links financial
benefits to educational and nutritional outcomes among children of poor families. In addition, the NSPS-PV
also aims to expand and improve the quality of community-based health insurance for low income groups
of society, and includes policies and programmes both to promote (better) occupational safety and health
and ensure complementary health and social welfare services for all those living with HIV/AIDS.
27 This
document was formulated with technical assistance from the ILO and other development partners
40 | P a g e
To implement the strategy, the RGC will consider structures and mechanisms of coordination to provide
policy support, monitoring and evaluation, information and knowledge management and capacity building.
The priorities are institutional arrangements, capacity building for coordination agencies at national and
sub-national level and functionalized cooperation together with a monitoring structure for medium- and
long-term implementation. For this, on-going social protection activities and new pilots will be assessed
and integrated into a more comprehensive national programme in order to bring various schemes under
one integrated programme, at least per objective.
Figure 1. Scope of the National Social Protection Strategy for the Poor and Vulnerable (NSPS-PV)
Social Protection
Labour
market
policy
Social Insurance
(Contributory)
Other
insurance
schemes
Community
-based
Health
Insurance
Social Safety Net
(Non-Contributory)
Public Work
Programs
(Cash or
food for
work)
Conditional
or Nonconditional
Cash or InKind
Transfer
Complementary
Social Welfare
Services
Social
Subsidy (to
facilitate
accesses to
public
utilities,
health,
education,
housing…)
Social Protection for the Poor and Vulnerable
Source: National Social Protection Strategy for the Poor and Vulnerable, NSPS-PV (2011)
Occupational Safety and Health
Cambodia faces considerable challenges in improving the occupational safety and health conditions of its
workforce –a product not only of the dominance of vulnerable (and often dangerous) employment, but also
of the lack of awareness and appropriate regulations and enforcement in the formal sectors. Perhaps
owing to better than average reporting systems, occupational accidents are most widely reported in the
country’s garment sector, where cases of fainting due to poor ventilation and excessive working hours
affect thousands of mostly women workers every year. Meanwhile, despite being an accident-prone
occupation, the number of reported accidents from the construction sector is still limited due to inadequate
reporting and non-disclosure of incidents. In 2009, the ILO estimated that more than 1,500 people were
killed by occupational accidents –four persons every day. According to union leaders, most occupational
accidents occur in construction sites and brick kilns, in the fishery sector, and in small enterprises that do
not have either the knowledge about or proper systems in place to protect workers from injury risks.
While the government has made significant strides in advancing the legal framework for the protection of
occupational safety and health in the workplace (a process that continues today), it recognises the on-going
need to strengthen workplace level awareness –particularly in underserved sectors like small business and
the informal economy- and to improve the quality and quantity of reporting and inspections so as to
establish a more comprehensive knowledge base for preventative measures and a more conducive
environment for the enforcement of OSH standards in the workplace.
Child Labour
41 | P a g e
Despite rapid recent economic growth and steady progress in both poverty reduction and access to
education, Cambodia still faces considerable challenges with regard to child labour. Primary school
enrolment in the country has risen more than 15 percent since 1997 to 91 percent, however for the bulk of
those attending school, working alongside their studies is a daily reality. In 2001 (the last year for which
reliable data is available), it was estimated that around 45 percent of five to 14 year olds in the country
were economically active (some 1.5 million children), and of these, around 16 percent (250,000 children)
were engaged in child labour.28 The country’s MDG target is to reduce this to 8 percent by 2015.
While ILO international labour standards allow light work alongside regular schooling (for children over
the age of 15), the bigger problem in Cambodia remains the more than 300,000 children trapped in the
worst forms of child labour –in jobs which include salt mines, factories, and sexual exploitation.29 This type
of work is completely unacceptable and has severe detrimental effects not just on child wellbeing
(including their physical, mental and educational development) but also on the country’s national
development, through the erosion of the future human capital base. The elimination of this type of work is
governed by ILO Convention 182, which has been ratified by Cambodia.
Since ratifying ILO Conventions No. 138 and 182, Cambodia has adopted a number of time-bound targets
and measures to reduce and eventually eliminate child labour. The country’s MDGs cover targets to reduce
child labour as an indicator for poverty alleviation. Specifically, the proportion of 5 to 17-year old working
children is targeted to fall from 16.5 percent in 1999 to 8 percent in 2015. These targets have also been
adopted by the government’s National Plan of Action on the Elimination of the Worst Forms of Child Labour
(NPA-WFCL) (2008-2012), and the government has also committed to the ILO’s global goal to eliminate all
the worst forms of child labour (WFCL) by 2016. These national and global targets are referred to as the
Cambodia’s Twin Goals on child labour.
With the help of the ILO-IPEC programme, Cambodia has made important strides in raising awareness of
child labour and mainstreaming its key challenges into key national policy frameworks, including the
National Social Protection Strategy (NSPS-PV, described above) and the Education Sector Plan. However,
more efforts are required, particularly with regard to the elimination of the worst forms of child labour,
which a recent study has indicated will need at least US$20 million a year to eliminate in line with the ILO
2016 goal.
HIV/AIDS
Cambodia is one of the few countries globally that turned back a large scale epidemic with an effective
national HIV/AIDS prevention program. The policy, which required condom usage among all sex workers,
was clearly successful from a public health perspective but it also entailed a number of human rights
abuses against sex workers. During the past several years, the government has taken a contrary stance and
has closed brothels in most cities, thus forcing the sex industry underground. This has significantly
hampered prevention programs in the industry and has led to a significant increase in new HIV infections
among sex workers. Recently, the government expressed interest in returning to the previous condom
program but adopting a more human rights based approach – something the ILO stands ready to support in
line with its global commitment to promote working conditions for sex workers and increased access to
HIV prevention, care, support and treatment services.
28 The ILO defines child labour as work that is mentally, physically, socially or morally dangerous and harmful to children,
and interferes with their schooling by: (i) depriving them of the opportunity to attend school; (ii) obliging them to leave
school prematurely; or (ii) requiring them to attempt to combine school attendance with excessively long and heavy work
(see www.ilo.org/ipec for more information).
29 The 2001 Cambodian Child Labour Survey found 250,000 children to be working in the Worst Forms of Child Labour
(WFCL). However, more recently, 2008 estimations from the Understanding Children’s Work Project (a joint initiative of the
World Bank, ILO and UNICEF) suggested there could be as many as 313,000 children in this type of work.
42 | P a g e
ILO Programme on improving and expanding social protection
Outcome 3.1
Increased quality and coverage of social protection
The ILO’s programme strategy for social protection will be centred on four core needs identified by an
earlier needs assessment. These are as follows:
1.
A coordination mechanism needs to be established at national and decentralized level to ensure the
effective and efficient implementation of the NSPS-PV
Over the period 2011-2015, the implementation of the NSPS will be tested with some programs (such as
health equity funds, HEFs) that need to be further expanded to cover 100 percent of the poor (instead of 77
percent today) and some experimental programs (such as cash transfers and public works programmes)
that need to be tested.
Under the 2011-2015 DWCP, the ILO will focus its attention on devising local level (i.e. in commune,
districts, and provinces) implementation strategies for the NSPS-PV, namely the development of a
coordinated Single Window Service (called “PEOPLE Service”) through which key tasks -like registration of
the beneficiaries, “profiling” through vulnerability and skills assessments, and information sharing, for
example- can be executed. As part of this service, which will be rolled out as a pilot in the next year, the ILO
will also support the government in establishing a database to monitor and evaluate implementation, as
well as ensuring the Window serves as an effective means to provide information and guidance on social
protection to its intended beneficiaries.
2.
The financial sustainability of investing in social protection needs to be demonstrated
Working through the ILO’s EU-funded project on linking social protection to employment, a social
protection expenditure review and modelling exercise will be finalized and will be applied in the final
design of new social protection schemes that should in the long run be financed through national resources.
The ILO will also train government officials from implementing ministries on modelling for costing
exercises, support the government’s related plan to conduct a fiscal space analysis and social protection
financing strategy (& budget reallocations), and document experiences and lessons learned from the initial
implementation of the Single Window Service (on a pilot basis)
3.
The benefit of investing in social protection needs to be demonstrated and the progressive graduation
from poverty to decent work supported
A core objective of the NSPS is not only to provide people with basic social protection that can alleviate
poverty but to ensure that these same people can graduate on a sustainable basis from poverty to higher
levels of income and social protection. Linking social protection to measures to increase employability
(through vocational training, access to public employment programs, support to entrepreneurship and
micro-enterprise growth, and job placement in the formal sector, for example- is an important means by
which this can be achieved, and in this regard forms another key component of the ILO’s DWCP programme
for social protection. Two approaches will be adopted in this regard: (1) ensuring that workers enrolled
under the NSPS-PV’s public works programmes have also access to health care –through automatic
registration into social health protection schemes, for example; and (2) using (certain) social protection
benefits as an incentive to increase the efficiency of employment services, and therefore to increase
employability. This may be done by providing additional transfers in cash to those families who register
43 | P a g e
under the training or PWP components, or by providing them with additional social services (counselling,
child care centres, and so on).
4.
The further implementation of social protection schemes needs to be continued and supported
The ILO will also provide technical assistance in the development or scaling up of basic social protection
schemes (health equity funds, School feeding programmes, and cash transfer schemes, for example) and
PWPs during the pilot testing phase of the implementation of the NSPS (2011-2015).
In particular, the ILO will also support the government in further developing social security schemes
through a proposed new health insurance scheme of the NSSF & NSSF-C and through the drafting of the
Social Security Law (that will cover civil servants and all workers that do not fall under the labour law).
Related to this, it will also help in the drafting of necessary legal documents, including Laws, Sub-Decrees,
Prakas and contracts (with service providers, for example); in the final design and costing of benefit
packages (using existing ILO-created modelling tools); in drafting implementation plans; and in
establishing and upgrading management information systems for the NSPS-PV.
Specific support to the Public Works Programme component
In the coming DWCP cycle, the ILO will assist the Council for Agricultural and Rural Development (CARD) to
develop an implementation strategy for the Public Works Programme Component (PWP) of the National
Social Protection Strategy for the Poor and Vulnerable (NSPS-PV). Part of this will necessarily involve
interventions to build institutional and technical capacities of local government units at the sub-national
level for improved PWP programme delivery. In addition, the ILO will also work with government and
other partners to develop and implement pilot activities to demonstrate specific PWP sub-components with
a geographical focus. It will collaborate closely with the core group on social protection, particularly the
ADB, World Bank and the World Food Programme (WFP), and will seek to mobilise additional financial
resources from bilateral and multilateral donors to support PWP programme delivery.
Programme Strategy
i.
ii.
iii.
iv.
v.
Support the government in establishing a coordination & monitoring mechanism for decentralised
implementation of the NSPS –namely through a Single Window Service
Help design a sustainable financing strategy of non-contributory social protection based on the
evaluation of the pilot testing phase
Provide on-going technical advice and assistance to the Single Window Service as it is pilot tested, and
develop linkages between the component schemes of the NSPS-PV and other employment related
services at the local level
Support the formal evaluation of the Single Window Service to draw lessons learned and support the
final design of the implementation plan of the NSPS
Design of contributory Social security legislation and schemes, as well as implementation of the
Health Insurance Scheme of the NSSF are supported
Public Works Programme Component
i.
ii.
Assist CARD to develop an implementation strategy for the PWP component of the NSPS-PV, including
provisions to strengthen capacities of local government units to deliver effective public works
programmes
Work with Government partners to develop and execute pilot PWP activities to demonstrate specific
components in different geographical areas
44 | P a g e
iii.
Engage with major funding agencies (such as the World Bank and ADB) supporting the NSPS-PV with a
view to securing longer term resource arrangements for PWP delivery
Performance Indicators
Targets
3.1.1. Social Protection Expenditure Review (SPER)
and modelling tool for calculating future social
expenditures are completed and submitted to
Cambodian counterparts
By 2011, SPER and modelling tool are completed and
submitted to Cambodian counterparts
3.1.2. Implementation plan of the NSPS is completed
By 2012, the implementation plan of the NSPS is
completed
3.1.3. Single Window Service for delivering key
functions of the NSPS-PV is pilot tested
By 2012, the Single Window Service has been/is being
piloted in at least 1 province
3.1.4. Health insurance scheme of the NSSF & NSSF-C
is piloted
By 2013, the health insurance scheme of the NSSF &
NSSF-C is piloted in at least one province
3.1.5. Draft Social Security Law and associated legal
documents are approved
By 2013, draft Social Security Law and associated legal
documents are approved
3.1.6. Number of workdays generated through the
public works programme (PWP) component of the
NSPS-PV
By 2015, 5 million workdays of employment
generated 142,000 rural workers through the PWP
component of the NSPS-PV
Outcome 3.2
Improved institutional and legal mechanisms for the promotion of Occupational Safety
and Health in the workplace
The Cambodian national OSH system requires wholesale improvements, particularly with regard to its
legislative framework, compliance assurance (including inspection and the system of reporting on
occupational accident and diseases), and advocacy and training in small enterprises, agriculture, and the
construction sector. Strengthening national OSH capacities based on effective targeting and the
development of a National OSH Programme will help both raise awareness of the importance of OSH in
national policy spheres and improve the overall OSH situation at the workplace level.
The ILO’s programme strategy for improving Occupational Safety and Health will centre on the provision of
technical assistance to the government and social partners to finalise and implement the second national
OSH programme, in line with the ILO Plan of Action (2010-2016) and the ILO Global OSH strategy and
promotional framework convention. Alongside this, the ILO will work to reinforce national OSH
competencies through the training of labour inspectors, strengthening the OSH legal framework, and
refining the system(s) for reporting on occupational accidents and diseases reporting systems. ILO will
also launch initiatives (i.e. pilot projects and/or training of local trainers) with government and social
partners to extend OSH protection to currently underserved workplaces in the SME, construction and
agricultural sectors, and will help social partners to develop national standards for recognition of industrial
accidents and diseases, together with relevant compensation schemes.
Much of this assistance will be provided with the financial backing of the ILO/Japan bilateral programme,
the continued support of which will help Cambodia to realise the effective implementation of OSH planning
and its penetration to smaller workplaces across all sectors of the economy. In addition to this, a broader
45 | P a g e
programme of action could be supported at the national level based on existing good OSH practices to
extend the protection in the aforementioned target sectors. Practical mechanisms to strengthen the
reporting system could come as part of a national social security and protection project.
Programme Strategy
i.
ii.
iii.
iv.
v.
Provide technical assistance to finalise and implement the Second National OSH Programme in
Cambodia
Reinforce national capacities in OSH through training of labour inspectors and technical support to
improve the legal framework (for OSH protection) and better report OSH accidents and diseases.
Launch pilot programmes to extend OSH provisions to underserved workplaces in key sectors
(particularly small businesses, agriculture and construction).
Provide technical assistance to develop national standards for recognition of industrial accidents and
diseases, as well as relevant compensation schemes.
Where possible and applicable, work with government and social partners to devise new technical
assistance projects to further enhance national capacities to strengthen and broaden the coverage of
OSH provisions in Cambodian workplaces.
Performance Indicators
nd
3.2.1. 2 National OSH Programme is adopted and
implemented
Targets
nd
By 2013, the 2 National OSH Programme has been
adopted and implementation is underway
3.2.2. Number of new OSH inspectors trained by
MoLVT using ILO tools
By 2015, there has been at least a 50% increase in
both the number of OSH inspectors trained and the
number of annual OSH inspections conducted
3.2.3. Number of workers and employers in small
enterprises, construction and agriculture that have
received practical OSH training from local trainers
By 2015, 1,500 workers and employers (combined)
have received practical OSH training
3.2.4. Adoption of prakas on OSH for construction
workers
By 2013, the government has adopted prakas on OSH
for construction workers
3.2.5. Proportion of enterprises registered on national
OSH reporting system/database are reporting OSH
data from their enterprise
By 2015, 70% of registered enterprises have reported
enterprise-level OSH data
Outcome 3.3
Effective progress made toward the elimination of child labour, especially its worst
forms
Working largely through the IPEC time-bound project (2008-2012) the ILO’s goal in Cambodia is to reduce
the number of children engaged in the worst forms of child labour (WFCL) in the country, and to over the
longer term eliminate the use of child labour altogether. The IPEC project’s objectives are to improve
national and provincial policy frameworks to support the achievement of National and ILO “twin goals” for
reducing child labour by 8 percent by 2015 and ending all WFCL by 2016; strengthen the capacity of
national institutions and key stakeholders, mobilize networks at the provincial and national levels to
effectively combat WFCL and increase public awareness; and withdraw and prevent targeted children from
WFCL in the 15 selected provinces through the development and implementation of models that can serve
as the basis for good practices for replication.
46 | P a g e
A recent analytical study of the resources required to eliminate the worst forms of child labour by 2016
noted that it was possible to do so with a resource commitment of US$60-90 million for the next six years.30
This study, combined with the upcoming National Child Labour Survey should provide a solid basis on
which to fine tune and formulate future programmatic directions for effective work to end child labour, and
most urgently the worst forms of child labour by 2016. Cambodia is also in a position to “fast track” this
effort given the extensive policy work and capacity building efforts to date. The key areas therefore to focus
on in the DWCP period include: (i) a clear and coherent policy and plan of Action to ending the WFCL by
2016 based on the findings of a national child labour survey, and one where linkages with complimentary
efforts related to education, social protection, and poverty reduction are factored in as major contributors
towards this effort; (ii) financing of the policy and plan of action through internal and external support
implying a significant resource mobilization effort by the constituents to realise this; and (iii) local level
capacity to implement action is effectively realised and executed.
Programme Strategy
i.
ii.
iii.
Support and advise the government in developing a comprehensive and coherent policy and plan of
Action for ending the worst forms of child labour by 2016 based on the findings of a national child
labour survey, and ensure that such frameworks are closely linked to complementary national
initiatives in the education, social protection and poverty reduction
Support constituents to mobilise external resources to fund the implementation of the Policy and Plan
of Action
Design and conduct capacity building for constituents at the local level to more effectively implement
action as per required in the national policy and action plan
Performance Indicators
Targets
3.3.1. Sound data on the nature and extent of child
labour available
By 2012, the National Child Labour Survey is
published and disseminated
3.3.2. 2nd National Plan of Action (NPA) on WFCL
2012-2016 formulated and approved and linked to
the National Social Protection Plan and the Education
Sector Development Plan
By 2012, the NPA is approved by the government, and
has clear linkages with the National Social Protection
Plan and the Education Sector Development Plan
3.3.3. Proportion of children aged 5-14 years engaged
in child labour
By 2015, the proportion of children aged 5-14 years
engaged in child labour is reduced to 8% nationally
Outcome 3.4
Enhanced delivery of targeted prevention and care programmes for HIV/AIDS in the
world of work
The ILO will work with tripartite partners, sex worker advocacy groups and the national AIDS commission
to develop a set of guidelines on managing HIV and AIDS programs in the entertainment sector. The
guidelines will draw on the key principles of ILO Recommendation 200 (on HIV and AIDS and the world of
work), which stress the need for access to occupational safety, HIV prevention, care and treatment for all
workers, including sex workers. As a second step, the ILO will assist entertainment establishments to form
an association under CAMFEBA to develop model policies and programs to improve delivery of HIV
prevention and care for entertainment workers. To reinforce enterprise level activities, the ILO will scale
30 UCW (2009) “Towards eliminating the worst forms of child labour in Cambodia by 2016: an assessment of resource
requirements.” Understanding Children’s Work, ILO, UNICEF, World Bank
47 | P a g e
up pilot activities with the Food and Services trade union to increase participation of entertainment
workers in tripartite negotiations focused on improving working conditions in this sector.
Programme Strategy
i.
ii.
iii.
Work with tripartite partners, sex worker advocacy groups and the national AIDS commission to
develop a set of guidelines on managing HIV and AIDS programs in the entertainment sector
Assist entertainment establishments to form an association under CAMFEBA to develop model
policies and programs to improve delivery of HIV prevention and care for entertainment workers.
To reinforce enterprise level activities, support the up-scaling of pilot activities with the Food and
Services trade union to increase the participation of entertainment workers in tripartite negotiations
for improved working conditions (including access to health care services)
Performance Indicators
6.
Targets
3.4.1. Availability of agreed guidelines on
occupational safety and health for entertainment
workers, with a core component on HIV/AIDS (in line
with ILO Recommendation 200)
By 2015, tripartite occupational safety and health
guidelines for entertainment workers are established
3.4.2. Establishment of an officially recognised
national body representing entertainment sector
business owners
By 2015, a new association of entertainment owners
is established to implement guidelines (in 3.4.1.
above), and is sanctioned by the Government and
National AIDS Commission
3.4.3. Number of entertainment workplaces
demonstrating policies and programs established in
line with OSH guidelines for the entertainment sector
By 2015, policies and programmes are established in
30 enterprises in line with OSH guidelines for the
entertainment sector
3.4.4. Number of entertainment workers joining
relevant trade unions and advocating for improved
working conditions
Between 2012 and 2015, at least 500 entertainment
workers have joined trade unions annually as new
members
Management and Implementation
As a framework to support and help assist the Cambodian government to meet its national development
goals, the effective implementation of the Decent Work Country Programme (as determined by the
achievement of the programme outcomes) requires steadfast commitment from all implementing partners
–namely, the ILO’s constituent partners in the government, workers’ and employers’ organisations- and
stakeholders (particularly development partners, civil society and wherever possible, the private sector), as
well as effective mechanisms for cooperation, consensus-building and participation at all levels and at all
stages of the process.
As a participatory development framework, the DWCP is designed so that the government and social
partners are simultaneously the key beneficiaries (together, obviously, with the groups they serve) and
implementers of its component interventions. In this respect, these parties will be expected to participate
fully in the implementation of the programme as well as monitoring and assessing its performance
throughout the course of the five year cycle. Although the government has necessary oversight over the
implementation of development programmes and policies in the country, the nature of the DWCP will mean
that governance mechanisms -such as project advisory committees and thematic working groups- will be
48 | P a g e
made up also of workers’ and employers’ representatives, in addition to government officials. Where
necessary, and as specifically outlined under Outcome 1.1 of the DWCP (under the industrial relations and
rights at work priority area), the ILO will take steps to strengthen the capacity of all constituents to
contribute effectively to these fora, in such areas as research and analysis and project design,
implementation and monitoring and evaluation.
Partner commitments and resource mobilisation
It is important to recognise that many of the activities outlined in the 2011-2015 DWCP represent joint
commitments between the ILO and the Royal Government of Cambodia, and that owing to resource
limitations on both sides (the Cambodian government is fiscally constrained and reliant on aid, and the ILO
is not a donor or funding agency), the achievement of some are based on assumptions of resource
mobilisation. Where funding gaps are identified, the ILO will make every effort to mobilise resources both
internally and from its partners in the UN and wider development community (both bilateral and
multilateral, and also including the private sector). It will also work with constituents to explore financing
partnerships within their own networks and beyond, so as to maximise the possibilities for achieving in full
the various components of the DWCP.
The ILO’s performance in Cambodia is also assessed by its contributions to the government’s national
development agenda and the UN’s strategic assistance framework in the country, UNDAF. A number of
activities envisaged in the DWCP will be implemented in partnership and/or cooperation with other UN
agencies, including project interventions on the extension of health insurance and entrepreneurship
development. ILO commitments to –and alignment with- the UNDAF in the country will be measured and
assessed under the UN’s annual review process and supplementary reporting obligations to the Cambodian
government.
Communication and Knowledge Sharing
Throughout previous country programmes the Decent Work Agenda has received strong support at every
level in Cambodia. However, to expand on this it is imperative for the ILO to communicate the Decent Work
message and its precepts to all target audiences in the country, including the wider public. The ILO must
engage in communication with its constituents and beyond to establish greater awareness and
understanding of Decent Work as a paradigm for bringing fairness and inclusiveness into the current model
of globalization, realizing Cambodia’s Millennium Development Goals, reducing poverty and promoting
sustainable development.
A key finding from the review of the Decent Work Country Programme (DWCP) for 2008-2010 was that the
level of communication and knowledge sharing was lacking. The ILO in Cambodia has now taken steps to
improve communication quality, frequency and methodology both internally and externally. Efforts are
being made to disseminate knowledge more effectively amongst DWCP stakeholders. Throughout the
process of developing the Decent Work Country Programme for 2011-2015, awareness-raining, knowledge
sharing and consultation with tripartite partners have been more frequent, more comprehensive and more
effective overall than it was throughout the development of the Decent Work Country Programme for 20082010. Resources are being mobilised to intensify efforts in communication and advocacy emphasised on the
Decent Work Agenda and the DWCP.
Also, as a response to recommendations outlined in the Decent Work Country Programme 2008-2010
review, the ILO in Cambodia has now developed a communications strategy focused on the DWCP. The
strategy builds upon the ILO’s strong presence and significant achievements in Cambodia as the basis of a
campaign to raise its public profile. This is extensive and encompasses awareness raising activities in the
immediate aftermath of the endorsement of the new DWCP in addition to on-going activities. Initial
49 | P a g e
proposed promotional activities following the endorsement of the DWCP include a publication of the signed
DWCP document, an evening speaker event on youth employment, a photo exhibition, a press conference,
an opinion piece on Decent Work for local media, a short promotional video, the updating of the DWCP
leaflet.
On-going communications activities in the strategy include the building and maintaining of effective media
relations, strong branding of the ILO and our messages, strengthening the ILO’s message through increased
use of the Internet and updating and expanding upon the ILO Cambodia’s promotional materials. A
quarterly e-newsletter has been developed which gives each of the ILO projects in Cambodia the
opportunity to put forward news and key information to stakeholders.
In addition, employers, trade unions and government are being approached in order to devise improved
methods of communication and information sharing between the ILO and its constituents. The level of
knowledge sharing and consultation with tripartite partners throughout the development of the Decent
Work Country Programme for 2011-2015 has been documented in detail through accounts given via
interviews and consultations for an upcoming report entitled Documenting the Development of Cambodia’s
Decent Work Country Programme 2011-2015. Other long-term communications activities include the
improving of our media response system, the upgrading of our booklet The Work of the ILO in Cambodia
and our leaflet Decent Work in Cambodia.
7.
Monitoring and Evaluation
Monitoring and evaluation of ILO interventions under the DWCP is an integral part of its internal
programme and budget review process, which takes place every two years (in line with organisational
planning and budgeting cycles). However, in line with earlier recommendations for stronger institutional
mechanisms to assess the value and success of ILO interventions, a new body will be created at the national
level to coordinate a formal monitoring and evaluation process.
It is envisaged that Monitoring and Evaluation (M&E) of the 2011-2015 DWCP will be conducted through
the upcoming Inter-ministerial Steering Committee on Decent Work, the establishment of which forms part
of Outcome 2.1 (on the establishment of a National Employment Policy). In addition to being the main
coordinating and advisory body at the national level in the execution of the NEP, this committee will also be
responsible for (a) coordinating and ensuring the timely fulfilment of Cambodia’s international reporting
obligations on ratified ILO conventions, and (b) monitoring and assessing progress on the implementation
of the DWCP, including the management of associated risks (like shortfalls in political will and resource
availability). Using the Results Based Management framework set out in this document (particularly the
performance indicators and targets, and related milestones), the steering committee will convene at least
once a year to review progress and outline challenges and recommendations for the successful
implementation of the DWCP (including revisions and adjustments to the programme where necessary). In
the intervening period before the establishment of the committee (scheduled for 2013), and in the event
that external factors delay this process further, the ILO will meet M&E obligations through a tripartite
annual meeting of employers, unions and government ministries.
The ILO will also conduct a detailed mid-term review of the DWCP cycle in 2013, in conjunction with the
government and social partners. This will assess progress toward the achievement of DWCP outcomes, as
well as address any need for adjustment or reorientation of related outcomes according to changing
practical realities or economic and political circumstances.
50 | P a g e
8.
Risk Management
As a framework programme covering multiple interventions and activities, the ability of the DWCP to
manage risks effectively will depend not only on framework-wide planning, but also on the strength of
individual risk management strategies at the project and outcome level. While the latter are more
comprehensively contained in project documents and biennial work plans, the former is based around
three main areas of identified risk.
(1) Political commitment from ILO constituents
The DWCP requires strong support from ILO constituents. Once the document has been endorsed, it shall
be the responsibility of these actors to lead (joint) efforts at awareness raising, capacity building, lobbying
for support for the programme within government bodies and among development partners. More
importantly, the constituents shall also assume full ownership of the programme and alongside ILO, will be
held accountable for its deliverables. While ILO will provide technical and financial support toward the
achievement of its objectives, the success of the programme will only be possible with the political
commitment and practical actions of the government, workers and employers.
(2) Capacity of the constituents to implement, monitor and evaluate
Although not entirely contingent on it, effective implementation and monitoring and evaluation of the
DWCP will be heavily influenced by the ability of constituents to establish organisational or administrative
structures to oversee the various components of these tasks. With constituents currently lacking the
capacity (both financial and human) to undertake this independently, the ILO is thus supporting the
establishment of an Inter-ministerial Steering Committee on Decent Work, which as mentioned will form
the primary administrative body for the monitoring and evaluation of the DWCP. Under the auspices of this
body, constituents will also be expected to conduct internal capacity building to ensure that local structures
in particular are in place to monitor and evaluate the progress of the DWCP at the output level. They will
also be responsible for outreach with all stakeholders of DWCP activities, who also have a role in making
constituents accountable for the programme’s deliverables.
(3) Resource mobilization
Resource mobilisation is a clear risk to the full and effective implementation of the DWCP, since a large
proportion of planned activities are contingent on as yet un-secured funding. To help mobilise funds for
the programme, the ILO will conduct comprehensive donor mapping exercise in Cambodia, as well as
pursue a new communication and engagement strategy with the major donors in the country. Central to
this will be the better communication of the ILO’s work in Cambodia and its key results to date, particularly
in relation to their contribution to aid effectiveness, national development plans and the Millennium
Development Goals, as well as more effective promotion of the organisation’s competitive niche in the
multilateral system (particularly the UN Country Team).
Should sufficient resources not be forthcoming in the first biennium of the programme (2012 to 2013), the
DWCP mid-term review will provide an opportunity to review resource mobilisation strategies with
constituents, and where necessary revise outcomes and re-programme assistance to best reflect the
prevailing financial constraints.
51 | P a g e
9.
Endorsement
Insert signatures.
Ministry of Labour and Vocational Training
CAMFEBA
Unions (list)
International Labour Organization
Anyone else we missed?
52 | P a g e
10.
Annexes
Annex 1: Timeline of DWCP consultation and design
53 | P a g e
Annex 2: ILO Conventions ratified by Cambodia
C. 4
Night Work (Women) Convention, 1919 (No. 4)
24.02.1969
C. 6
Night Work of Young Persons (Industry) Convention, 1919 (No. 6)
24.02.1969
C. 13
White Lead (Painting) Convention, 1921 (No. 13)
24.02.1969
C. 29
Forced Labour Convention, 1930 (No. 29)
24.02.1969
C. 87
Freedom of Association and Protection of the Right to Organise
Convention, 1948 (No. 87)
23.08.1999
C. 98
Right to Organise and Collective Bargaining Convention, 1949 (No. 98)
23.08.1999
C. 100
Equal Remuneration Convention, 1951 (No. 100)
23.08.1999
C. 105
Abolition of Forced Labour Convention, 1957 (No. 105)
23.08.1999
C. 111
Discrimination (Employment and Occupation) Convention, 1958
(No. 111)
23.08.1999
C. 122
Employment Policy Convention, 1964 (No. 122)
28.09.1971
C. 138
Minimum Age Convention, 1973 (No. 138)
Minimum age specified: 14 years
23.08.1999
C. 150
Labour Administration Convention, 1978 (No. 150)
23.08.1999
C. 182
Worst Forms of Child Labour Convention, 1999 (No. 182)
Source: ILOLEX. http://webfusion.ilo.org/public/applis/appl-byCtry.cfm?lang=EN&CTYCHOICE=1190&hdroff=1 (Accessed
21st August 2011).
+++END+++
54 | P a g e
Revisions made according to QAF comments on the Cambodia DWCP, 2011-2015.
20 Oct 2011
Based on the comments of the QAF, which were reviewed in full with the country director,
programme officer and technical consultant, the following major changes/revisions were made to
the DWCP document:
•
•
•
•
•
•
•
•
•
•
•
•
•
CP priorities have now been linked to global P&B outcomes and explicitly referenced in the
document.
ILO’s role as a lead or participating agency in the achievement of UNDAF outputs is now
clearly specified.
Gender recommendations (mostly concerning wording and terminology) have been
incorporated throughout the document.
A new section has been added (section 4) under the heading “ILO’s prior work in
Cambodia,” which responds directly to QAF concerns over the continuity and experience of
ILO’s interventions in the country.
Concerns about the low profile of “youth” employment issues have been rectified, see
Outcomes 2.1 – 2.3 (N.B. The national employment policy will have a special focus on youth).
Section 6: Management and Implementation has been revised to include a sub-section on
“resource mobilisation and partner commitments,” which sets out both an approach for
resource mobilisation and the responsibilities of the implementing partners.
Also added to section 6 is reference to the planned communication and knowledge sharing
strategy, which responds directly to the recommendations of the 2010 independent country
programme review.
Section 7: Monitoring and Evaluation has been strengthened with added information on the
roles and responsibilities of the proposed inter-ministerial steering committee, as well as the
mid-term review process for the DWCP.
Section 8: Risk Management is a new section, responding both to QAF concerns and
independent review findings.
The implementation plan has been improved (including reference to baselines, milestones,
and risks and assumptions, and responsible persons), but as with most other DWCP
documents, current cost estimations for the achievement of the outcomes are not available.
On funding, it has already been recommended by the consultant -and agreed in principle by
field staff and management in Bangkok- that a comprehensive donor scoping and mapping
exercise should be undertaken in Cambodia as a matter of priority. This is also mentioned in
Section 8 on risk management (resource availability is a major risk to this programmes).
The executive summery was added to give a brief note on the context and contents of the
DWCP.
The preface was added following the suggestion.
Please note: specific concerns made at the outcome and indicator levels have been taken up by
related specialists both in the field (i.e. project staff in Cambodia) and the ILO office in Bangkok (DWT
and RO), and revised where necessary and appropriate. All technical specialists involved in the
1
drafting of this document have had full opportunity to provide inputs and revisions and are
consequently satisfied with the document in its current form.
2
DWCPCAMBODIA
Indicators
Means of verification Baseline and start
(Data sources,
date
Targets
Year 1 2011
Year 2 2012
Milestones
Year 3 2013
Year 4 2014
Year 5 2015
Assumptions and
risks
Responsible
staff/entity
f
d RIGHTS AT WORK
CP PRIORITY 1: IMPROVING INDUSTRIAL RELATIONS
AND
Outcome 1.1. Professional and technical capacities of constituents strengthened
1.1.1 Number of new products and
services launched by CAMFEBA (or
improvements made to existing
products and services)
New products and/or
services (e.g manuals,
training materials,
training, legal services)
launched or existing
services improved
1.1.2. Number of policy position and Policy position papers
recommendation papers produced
by CAMFEBA for consideration by
the Government
By 2013: 6 model
CBAs developed
and published
By 2015, at least 4 new
products or services have been
launched or at least 4 existing
services have been improved
By 2015, at least 3 new
comprehensive submissions for
policy consideration are
submitted by CAMFEBA to the
government each year
Assumptions: ACTEMP
will continue to provide
strong and on-going
assistance to
CAMFEBA; ILO
assistance is timely,
appropriate and
effectively
applied/utilised by
CAMFEBA.
DR
Assumptions: ACTEMP
will continue to provide
strong and on-going
assistance to
CAMFEBA; ILO
assistance is timely,
appropriate and
effectively
applied/utilised by
CAMFEBA.
DR
1.1.3. Number of education and
training programmes conducted
with unions and related
stakeholders
Training materials
By 2015, at least 60 education
and training programmes have
been provided to union
beneficiaries on various key labour
issues, including 3000 local union
leaders and 300 trainers through
TOT (40 to 60 per cent and at
minimum 30 per cent will be of
either sex)
1.1.4. Number of union federations
developing official strategies and
work plans for organising (new
members)
Strategy and workplan
documents
By 2015, every union
confederation has developed
organising strategies and
accompanying work plans
1.1.5. Number of new collective
bargaining agreements signed
Official copies of
signed CBAs
By 2015, 30 new CBAs signed
1.1.6. Number of research or
analytical studies conducted and
published / number of training
materials published
Published analytical
studies / training
materials
By 2015, at least one study on
minimum wage setting“ and one
on ”union multiplicity and unity“
published
PA
By 2015, trade unions engage
in at least two bipartite and
tripartite consultation fora per
year
PA
1.1.7. Number of forums of bipartite
and tripartite social dialogue
participated in by unions on key
aspects of the labour law and
industrial relations
PA
By 2013: 6 model
CBAs developed
and published
Assumptions: cordial PA
labour-management
relationships
established for good
faith bargaining; the
labour law respected
and enforced
Outcome 1.2. Improved mechanisms and processes for dispute resolution
By 2013, MOLVT incorporates
grievance procedures into
standard workplace rules with
bipartite support
Assumption:
political will for
improved
procedures, and
employer and
worker buy-in for
these procedures
JR
1.2.2. Workers and employers use
grievance procedures, dialogue and
negotiations to prevent and resolve
disputes
By 2015, there is a 20%
increase in the use of grievance
procedures.
Assumption:
political will for
improved
procedures, and
employer and
worker buy-in for
these procedures
JR
1.2.3. Continuation of independent
and impartial arbitration procedures
through the Arbitration Council
By 2013, external/internal
funding secured for an
extension of the tenure of the
Arbitration Council
Assumption: funds
will be secured from
an external source
1.2.4. Harmonisation between official Official recongition of
harmonisation of
record keeping procedures for
record keeping from
conciliation and arbitration
MoLVT
By 2014, MoLVT has
harmonised record keeping
between Labour Disputes
Department and Arbitration
Council
Assumption:
Political will and
capacity to deliver
from MoLVT
JR
1.2.5. Length of dispute procedures Official dispute
in circumstances where CBAs exist procedures
By 2013, MOLVT agrees to
shortened dispute procedure in
circumstances where CBA
exists, in line with September
2010 MOU
Assumption:
MoLVT agrees to
shorten the
procedures in a
timely manner
JR
Assumption:
MoLVT produces
guidelines in a
timely manner
JR,PA
1.2.1 Grievance procedures are
recognised in standard workplace
rules/regulations
Standard workplace
rules
Outcome 1.3. Social Dialogue is both more effective and more widely employed, including collective bargaining agreements and their enforcement
1.3.1. Availability of agreed official
guidelines promoting collective
bargaining
Guideline documents
By 2014, MOLVT guidelines on
promoting CB have been
developed and adopted with
bipartite support
1.3.2. Number of new CBAs
registered in new or emerging
industries or sectors
Official records of
CBAs, copies of
signed CBAs
By 2015, 5 new CBAs in “new”
industries or sectors are
registered
JR/PA
Outcome 1.4. National labour standards reviewed, revised or developed in line with relevant international labour standards
1.4.1. Number of international labour
Conventions ratified and applied by
Cambodia
1.4.2. Reporting obligations under
the ILO Constitution discharged in a
timely manner, in particular the
annual report on non-ratified
Conventions (“Art. 19 reports”) and
reports on ratified Conventions
(“Art. 22 reports”)
Official progress
reports (dated); Art 19
and Art 22 reports
(dated)
By 2015, Cambodia has ratified
and is applying at least 2 new
International labour Conventions
TD
Assumption:
Political will for
ratification and
timely ratification of
selected
conventions
By 2013, two Art.19 reports
have been submitted and 80
percent of Art.22 reports have
been submitted on time
Assumption:
Government
commits time and
resources to the
reporting process
TD
NH
Outcome 1.5. More effective application of equality and rights at work for discriminated and vulnerable groups
1.5.1 Explicit inclusion of gender
equality issues in national policies
and action plans of ILO
constituents
Gender Mainstreaming
Action Plans; project
documents
From 2011 to 2015 Gender
Mainstreaming Action Plans
(GMAPS) are designed, implemented
and evaluated by the MOLVT, the
MIME and CAMFEBA and 2 trade
union federations carry out at least
one specific gender equality measure
Assumption: political
will for the inclusion of
gender concerns in
national policies; ILO
social partners have
the capacity, will and
resources to implement
related programmes
1.5.2 Number of male and female leaders
among constituents, MOWA and gender
networks trained on rights promotion and
gender equality mainstreaming strategies
in employment, social protection and
industrial relations
Training materials
By 2015, at least 100 female and 100
male leaders have been trained on
rights promotion and gender equality
mainstreaming strategies in
employment, social protection and
industrial relations
NH
Assumption:
availability and
appropriate
selection of leaders
by government and
social partners
(including the
gender balance)
1.5.3. Complaints mechanism and
monitoring procedures for
recruitment of male and female
migrant workers established
Published guidelines
for grievance
procedure and
monitoring guidelines
for recruitment
By 2013, a formal national
complaints mechanisms in
place and monitoring
procedures for labour
recruitment established
Assumption: timely MT,NB
acceptance and
institutionalisation
of complaints
mechanism and
monitoring
procedures by
government
1.5.4. Number of migrant resource
centres operational in providing
advice and information on safe
migration
project progress
reports (ILO
TRIANGLE project)
By 2012, migrant resource
centres are established in three
provinces
1.5.5. Adoption of legal regulations
to facilitate the implementation of
the government Sub-Decree on
migrant sending
Legal regulations
By 2013, regulations for the
implementation of the SubDecree on migrant sending
have been adopted
MT,NB
Assumption:
government's
eventual timeframe
for implementation
matches DWCP
timeframe
1.5.6. Percentage of businesses
meeting the legal quota
requirements for employing persons
with disabilities (who should make
up 2% of the firm’s workforce)
By 2015, 50 percent of formal
sector businesses are meeting
the 2% quota requirement for
employing men and women with
disabilities
EP
Assumption:
availability of as yet
unsecured external
resources
1.5.7. Ratification of the UN
Confirmation
Convention on the Rights of
documents of
Persons with Disabilities (UNCRPD) ratification
By 2015, Cambodia has ratified
the UNCRPD
Assumption:
political will for
ratification and
timely ratification
1.5.8. Number of practical measures
implemented by key Government
ministries/departments and social
partners to promote decent work for
domestic workers
By 2015, the MOLVT, MOWA
and social partners implement
at least one practical measure
to promote decent work for
domestic workers
1.5.9. Number of government
officials and other stakeholders
(including ILO social partners and
NGOs/indigenous peoples
organisations) receiving training on
the rights of indigenous peoples and
on appropriate policies that protect
IP’s traditional lands and economic
resources
By the end of 2012, 65 persons
from Government institutions,
social partners and
NGOs/indigenous peoples
organisations (equitable
representation of women and
men) have been trained
1.5.10. Number of additional
communities identified by MRD for
registration and registered
Official letters signed by
MRD and MoI; Reports
of IP organizations and
support organizations;
project
progress/monitoring
reports
1.5.11. Proportion of registered
indigenous communities having
developed internal rules for the
sustainable use and management of
land and natural resources (in
accordance with the sub-decree on the
procedure of registration of indigenous
communities’ land)
Printed/published
internal rules; project
progress/monitoring
reports
2010: 51 communities
have been recognised or
registered with
appropriate government
ministries (31 have a
letter of recognition from
Ministry of Rural
Development; 20 have a
letter of registration from
the Ministry of Interior)
By the end of 2013, a total of
121 communities (cumulative
from 2010 baseline) have
received a letter of recognition
from MRD, 70 of which have
also received a letter of
registration from the MOI
MT,NB
EP
NH
SY
Assumption:
availability of
suitable persons to
undergo training;
availability of funds
for implementation
By the end of 2011,
30 communities have
received letter of
recognition from
MRD
10 of which recieved
letter of registration
with MoI (noncumulative)
By the end of 2012, at least 25 By the end of 2011,
communities have developed 7 communities have
internal rules for the sustainable developed internal
use and management of land rules
and natural resources
Assumption: timely SY
identification and
completion of the
registration process
by MRD; availability
of funds
Assumption:
SY
communities are
willing to, and have
adequate resources,
support and
guidance to develop
internal rules;
availability of funds
CP PRIORITY 2: PROMOTING AND ENABLING DECENT EMPLOYMENT GROWTH, WITH A PARTICULAR FOCUS ON YOUNG PEOPLE
Outcome 2.1. Development of a National Employment Policy and relevant institutional framework for promoting equitable employment and protection
2.1.1 Availability of Labour force
survey and report data
LFS and report
By end of 2012, Cambodia
Labour Force Survey and
Report is published and
disseminated
SD
2.1.2. Information base on sectoral Published diagnostic
employment dynamics is increased studies
By 2012, diagnostic studies
covering at least three sectors
are completed
SD
Assumption:
availability of funds
and technical
resources (i.e.
consultants)
Training materials
2.1.3. Number and coverage of
training courses provided on
elements and themes relevant to the
NEP, with a particular focus on
young women and men
By 2013, at least one interministry training has been
conducted with officials from
MoLVT and other
ministries/departments,
together with at least one simila
training each for employers’ and
workers’ organisations
Assumption: presence
of inter-ministerial
coordination
mechanism/provisions
to ensure wide (crossministry, multistakeholder)
participation
By 2013, an inter-ministerial
steering committee for decent
work and the national employment
policy is established and
operational, with 40 to 60 percent
membership of either sex, and
with accompanying monitoring
responsibilities/obligations
SD
Assumption:
political will and
support (including
financial) for the
steering committee
2.1.4. Formal institutional
mechanism for the implementation
of the NEP is established, with
relevant provisions made for
equitable gender representation
within its membership
Official recognition of
institutional
mechanism /
published mandate
and membership list
SD
Outcome 2.2. Enhanced employability of men and women through improved skills development and public employment services
2.2.1. Number of skills standards
developed/adapted in priority
sectors of the economy
Official MoLVT reports
By 2015, at least 3 skills
standards developed/adapted in
2 priority sectors
(manufacturing and tourism)
CT
Official MoLVT reports
2.2.2. Number of men, women and
youth trained in standardised skills
for priority sectors
By 2015, there is a 20%
increase in the number of
women, men and youth trained
in priority sectors
Assumption: there CT
is adequate take-up
of training
institutions offering
courses in the
relevant skills
standards
2.2.3. Adoption of a suitable policy
or legislative measure concerning
the legal mandate for the
assessment and certification of
skills standards
Official MoLVT reports
By 2015, a decree or legislative
order is passed regarding the
assessment and certification of
national skills standards in
Cambodia
Political will to pass CT
such
policy/legislation is
forthcoming
2.2.4. Number of jobseeker
registration and placements
Official NEA reports
By 2015, there is a 30%
increase in jobseeker
registrations per year and a
20% increase in placements
per year (disaggregated by
gender)
Assumption: NEA
CT
conducts further
awareness raising
and establishes
further linkages with
private sector,
particularly in areas
where job centres are
located
By 2015, there is a 30%
increase in the number of NEA
and job centres’ staff trained
(against 2011 baseline)
CT
Project
monitoring/progress
reports
By 2015, at least 5 institutions
have adopted and are applying
MSE development
policies/strategies in rural areas
CB,AR
2.3.2. Number of institutions
Project
adopting ILO tools for MSME
monitoring/progress
development in high growth sectors reports
By 2015, at least one national
institution and two business
associations will adopt ILO tools
for the support and
strengthening of local
enterprises
CB
Project
2.3.3. Number of financial service
monitoring/progress
providers introducing innovative
and socially responsible financial or reports
non-financial services to their
clients
By 2015, at least 4 partnermicrofinance institutions have
developed and introduced
innovative savings, loans, or
insurance products or training
services to their clients
VB
2.3.4. The number of IP communities Project
with active producer groups linked monitoring/progress
reports
to markets and viable sectors
By 2015, at least 10 IP
communities have established
producer groups with access to
economic services and links to
productive markets
2.2.5. Number of NEA and job centre Official NEA reports
staff
trained in employment services and
career guidance and counselling
Outcome 2.3. Improved MSME business and entrepreneurship skills and services
2.3.1. Number of institutions
adopting and applying genderresponsive micro and small
enterprise (MSE) development
policies/strategies in rural areas
Outcome 2.4. Effective progress made to enhance enterprise productivity and competitiveness
2.4.1. Enterprise productivity
training manual available to social
partners
Published training
manual
2.4.2. Number of tools for dialogue- Published tools
based productivity enhancement
adopted
By 2012, enterprise productivity
training manual is completed
and disseminated among social
partners
Assumption: timely DR,CB
provision of
technical and
financial support
By 2015, at least 2 tools for
dialogue-based productivity
enhancement adopted by
CAMFEBA and employed at
enterprise level among its
members
Assumption:
DR,CB,PA
CAMFEBA approves
productivity tools and
is able to effectively
advocate for (and
advise on) their
application among its
members
2.4.3. Number of enterprises
launching pilot
initiatives/programmes based on
ILO training and tools to enhance
workplace productivity
Project
monitoring/progress
reports
By 2015, at least 50% of
enterprises having participated
in ILO training on productivity
have developed new pilot
programmes/initiatives to boost
productivity
2.4.4. Number of export-licensed
garment factories in Cambodia
covered by the BFC programme and
effectively monitored on compliance
to national labour law and
international labour standards
Project
monitoring/progress
reports, twice-yearly
synthesis reports
By 2015, 100% of exportlicensed garment factories,
including subcontractors, are
effectively monitored by the
BFC programme
DR,CB
By 2015, 70% of exportlicensed garment factories have
been provided with working
conditions improvement and/or
productivity enhancement
services
Project
2.4.5. Number of export-licensed
garment factories that have received monitoring/progress
reports
working conditions improvement
and/or productivity enhancement
services
CP PRIORITY 3: IMPROVING AND EXPANDING SOCIAL PROTECTION
Outcome 3.1. Increased quality and coverage of social protection, particularly among vulnerable groups
3.1.1. Social Protection Expenditure
Review (SPER) and modelling tool
for calculating future social
expenditures are completed and
submitted to Cambodian
counterparts
SPER document;
supplementary
documents for
modelling tool
By 2011, SPER and modelling
tool are completed and
submitted to Cambodian
counterparts
VS
3.1.2. Implementation plan of the
NSPS is completed
Official implementation
plan
By 2012, the implementation
plan of the NSPS is completed
VS
3.1.3. Single Window Service for
delivering key functions of the NSPS
PV is pilot tested
By 2012, the Single Window
Service has been/is being
piloted in at least 1 province
VS
Assumption:
sufficient donor and
government
resources are
available
3.1.4. Health insurance scheme of
the NSSF & NSSF-C is piloted
By 2013, the health insurance
scheme of the NSSF & NSSFC is piloted in at least one
province
VS
Assumption:
sufficient donor and
government
resources are
available
3.1.5. Draft Social Security Law and Copies of the draft law
associated legal documents are
and associated
approved
documents
By 2013, draft Social Security
Law and associated legal
documents are approved
Assumption:
political will and
timely approval of
the law
By 2015, 5 million workdays of
employment generated 142,000
rural workers through the PWP
component of the NSPS-PV
CD
Assumption:
sufficient donor and
government
resources are
available
Project
3.1.6. Number of workdays
generated through the public works monitoring/progress
programme (PWP) component of the reports
NSPS-PV
2011: zero
Outcome 3.2. Improved institutional and legal mechanisms for the promotion of Occupational Safety and Health in the workplace
3.2.1. 2nd National OSH Programme National OSH
is adopted and implemented
Programme Document
3.2.2. Number of new OSH
inspectors trained by MoLVT using
ILO tools
By 2013, the 2nd National OSH
Programme has been adopted
and implementation is underway
MoLVT records
Assumption:
availability of
government
resources to
support the desired
increase in
inspections
Training materials and
3.2.3. Number of workers and
reports
employers in small enterprises,
construction and agriculture that
have received practical OSH training
from local trainers
By 2015, 1,500 workers and
employers (combined) have
received practical OSH training
3.2.4. Adoption of prakas on OSH for Copy of prakas
construction workers
By 2013, the government has
adopted prakas on OSH for
construction workers
3.2.5. Proportion of enterprises
registered on national OSH
reporting system/database are
reporting OSH data from their
enterprise
OSH database
records; official reports
from enterprises
By 2015, 70% of registered
enterprises have reported
enterprise-level OSH data
Outcome 3.3. Effective progress made toward the elimination of child labour, especially its worst forms
By 2012, a training
package on the
WISCON manual
(Work Improvement for
Small Construction
sites) has been
adapted for Cambodia
and implemented
through at least one
training course
Assumption:
political will and
timely adoption of
prakas
Depends on project
approval / funds
VS
3.3.1 Sound data on the nature and
extent of child labour available
Published National
Child Labour Survey
Report
By 2012, the National Child
Labour Survey is published and
disseminated
SS
3.3.2. 2nd National Plan of Action
(NPA) on WFCL 2012-2016
formulated and approved and linked
to the National Social Protection
Plan and the Education Sector
Development Plan
Official published
versions of NPA,
NSPP and ESDP (or
equivalents)
By 2012, the NPA is approved
by the government, and has
clear linkages with the National
Social Protection Plan and the
Education Sector Development
Plan
SS
3.3.3. Proportion of children aged 5- Child Labour Survey
14 years engaged in child labour
2001 baseline =
16%; new baseline
expected in 2011
By 2015, the proportion of
children aged 5-14 years
engaged in child labour is
reduced to 8% nationally
Assumption:
external resource
availability
SS
Outcome 3.4. Enhanced delivery of targeted prevention and care programmes for HIV/AIDS in the world of work
Official (published)
3.4.1. Availability of agreed
guidelines
guidelines on occupational safety
and health for entertainment
workers, with a core component on
HIV/AIDS (in line with ILO
Recommendation 200)
By 2015, tripartite occupational
safety and health guidelines for
entertainment workers are
established
RH
RH
3.4.2. Establishment of an officially
recognised national body
representing entertainment sector
business owners
Documents conveying
the legal/official status
of new association
By 2015, a new association of
entertainment owners is
established to implement
guidelines (in 3.4.1. above), and
is sanctioned by the
Government and National AIDS
Commission
3.4.3. Number of entertainment
workplaces demonstrating policies
and programs established in line
with OSH guidelines for the
entertainment sector
Documents/reports on
enterprise level
policies and
programmes
By 2015, policies and
programmes are established in
30 enterprises in line with OSH
guidelines for the entertainment
sector
Assumption: OSH
guidelines are
recognised and
taken up by
employers in the
entertainment
sector
Between 2012 and 2015, at
least 500 entertainment workers
have joined trade unions
annually as new members
RH
Assumption:
adequate numbers
of entertainment
workers actually
want to join unions
Trade union
3.4.4. Number of entertainment
membership data
workers joining relevant trade
unions and advocating for improved
working conditions
KEY - RESPONSIBLE
PERSONS
CT
CARMELA TORRES
DR
DRAGAN RADIC
PA
PONG-SUL AHN
SD
SUKTI DASGUPTA
SY
SANDRA YU
VB
VALERIE BREDA
TD
TIM DE MEYER
CD
CHRIS DONNGES
JR
JOHN RITCHOTTE
NH
NELIEN HASPELS
EP
EMMANUELA POZZAN
RH
RICHARD HOWARD
CB
CHARLES BODWELL
SS
SIMRIN SINGH
MT
MAX TUNON
NB
NILIM BARUAH
VS
VALERIE SCHMIDT-DIABATE
AR
ANNEMARIE REERINK
RH
MEMORANDUM OF UNDERSTANDING
Whereas the Royal Government of Cambodia, the undersigned workers' and employers'
organizations, and the International Labor Organization (lLOJ, represented by the
International Labor Office freferred collectively as Parties), wish to collaborate in order to
promote and advance decent work in Cambodia.
Now therefore, the Parties hereby agree as follows:
1.
The Parties affirm their commitment to collaborate in the implementation of the Decent
Work Country Programme IDWCPJ, The following are agreed as priorities of the DWCP:
Priority 1: Improving industrial relations and rights at work;
Priority 2: Promoting an enabling environment for decent employment growth,
with a focus on young people;
Priority 3: Improving and expanding social protection;
2.
The ILO agrees to assist in the mobilization of resources and to provide technical
cooperation in the implementation of the DWCP, subject to its rules, regulations,
directives and procedures, the availability of funds and conditions to be agreed upon in
writing.
3.
In relation to the DWCP and to any activities of the ILO in the country, the Government
will apply, to the Organization, its property, personnel and any person designated by the
ILO to perform services for the ILO or to participate in ILO activities, the provisions of
the Convention on the Privileges and Immunities of the Specialized Agencies and its
Annex I relating to the ILO, as well as the provisions of the Revised Standard Agreement
concerning technical assistance signed on 28 August and 5 October 1956 between the
UN,lLO, FAO, UNESCO, ICAO, WHO, ITU, WMO and Cambodia, including exempting the
ILO from value added tax levied against goods, equipment works and services to be
used for official purposes.
4.
This Memorandum of Understanding (MpUl may be modified by agreement between
the Parties,
5.
Nothing in or relating to this MOU will be construed as constituting a waiver of
privileges and immunities enjoyed by the ILO.
The DWCP is attached to this MOU, In the event that the terms contained in the DWCP
document are incompatible with the terms of this MOU, including the provisions
referenced in article 3, then the MOU will govern and prevail,
7.
The original of the MOU has been written and signed in English. If this MOU is translated
into another language, the English version will govern and prevail.
This MOU, superseding all communications on this matter between the Parties, will
enter into force with effect from its signature by the authorized representatives of the
Parties,
For and on behalf of the Government
2O- 2 -
2olz
Minister of Labour and Vocational Training
For and on behalf of Employers' organization
29 - Z- 20t2
M
Fr
Fernando
an of CAMFEBA
behalf of
e3-2- 20lz
Mr.
Ath Thorn,
Re
tati
Cambodian Trade Unions
For and on behalf of the International Labor Office
Mr.
fiyuan Wa
"n-2-2o17
Country Director for Thailand, Cambodia and Lao PDR
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