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

Employment Policy Convention, 1964 (No. 122) - Cambodia (Ratification: 1971)

Articles 1 and 3 of the Convention. Formulation and implementation of an active employment policy. Consultations with social partners. The Government states that the Ministry of Labour and Vocational Training (MLVT) has been coordinating the implementation of the National Employment Policy (NEP) 2015–2025. The Government refers to the following legislation that structures the evaluation of the implementation of the NEP 2015–2025: Sub-Decree No. 93 on 12 May 2016, Sub-Decree No. 838, issued on 2 August 2016; Decision No. 021/16 dated 25 July 2016, Decision No. 055/19 dated 4 June 2019. The Committee notes that, apart from indicating the existence of four progress reports for the years 2017, 2018, 2019, and 2020, the Government does not provide any concrete information on the evaluation of the NEP 2015–2025. The Committee notes the Government’s indication that it is developing the next phase of the NEP, the NEP 2026–2035, based on the MLVT ’s decision No. 109/24 dated 12 August 2024, which established the Technical Working Group on the Study and Preparation of the NEP 2026–2035. The Committee also notes the public available information on the National Strategy on the Development of the Informal Economy 2023–2028, whose goals seek, inter alia, to create favourable conditions for the development of the informal economy, and ensure that those who have entered the system do not fall back into the informal economy. The Committee notes the observations in the last reports of the Special Rapporteur on the situation of human rights in Cambodia and different United Nations human rights bodies which, inter alia, report situations of persecution union leaders, human trafficking, forced labour or other forms of exploitation in Cambodia (documents A/HRC/45/51, 24 August 2020; A/HRC/48/79, 3 August 2021; A/HRC/51/66, 18 August 2022; A/HRC/54/75, 20 July 2023; A/HRC/57/82, 5 August 2024; CERD/C/KHM/CO/14-17, 30 January 2020; E/C.12/KHM/CO/2, 27 March 2023; CED/C/KHM/CO/1, 25 March 2024). The Committee further notes its recent comments on the application of the Fundamental Conventions in Cambodia. The Committee notes these systemic challenges are also referred to in the context of analyses by the World Bank (2024), which highlight that while labour force participation is high, “most of the labour force is trapped in low-skill, low-productivity jobs, primarily in agriculture and the informal sector”. The Committee notes with concern the recurrent observations from UN human rights bodies and its own comments on fundamental Conventions. The Committee urges the Government to provide detailed information on the specific, concrete measures being taken to address these issues, as they are fundamental to achieving the Convention No. 122 objective of ’freely chosen’ employment (Article 1) and ’full consultation’ with the social partners (Article 3). It requests the Government to explain how the new NEP 2026–2035 will explicitly integrate mechanisms to eradicate forced labour and ensure that social dialogue can take place in a climate free from intimidation. The Committee invites the Government to provide information on the impact of ILO-supported projects, such as the FABRIC programme, in strengthening industrial relations. Please provide a copy of the most recent progress report for the NEP 2015–2025 and explain how the lessons learned are informing the drafting of the new NEP 2026–2035 and the implementation of the National Strategy on the Development of the Informal Economy 2023–2028.

Article 2. Labour market statistics and information. The Committee notes the statistical data included in the Report of Cambodia Socio-Economic Survey 2021, provided by the Government. The Committee notes also the ILO Brief ‘Workers in the Cambodian informal economy – Insights into labour statistics from the 2019 LFS’ (March 2024), which observes alarming levels of informal employment in Cambodia, with 88.3 per cent of all workers engaged informally. The Committee requests the Government to continue to provide up-to-date information, including statistical data disaggregated by sex and age, on employment trends, including on employment, unemployment, visible underemployment and employment in the informal economy in Cambodia. Noting the alarming 88.3 per cent informal employment rate, the Committee requests the Government to provide specific information on the initial results of the National Strategy on the Development of the Informal Economy 2023–2028, and how it is being coordinated with the new NEP 2026–2035 to promote the transition to formality.

Education and training policies. The Committee notes the information provided by the Government on the implementation of the Technical Vocational Education and Training (TVET) Policy 2017–2025. The Government also refers to the Strategic Action Plan for TVET system modernization 2019–2023, and the Master Plan for the Development of TVET Institutions 2021–2025. The information provided by the Government includes the following updates: (1) there are facilities for training up to more than 60,000 people per year and it is planed that in 2026, the training capacity will increase to approximately 100,000 people per year; (2) in the period 2019–2023, the TVET provided skills training programs to 272,450 trainees (113,939 females); (3) the Government strengthened the implementation of Cambodian Qualifications Framework (CQF) and is in the process of drafting report on the ASEAN Qualifications Reference Framework (AQRF); (4) the Government strengthened the roles of private sectors in contributing to develop TVET by establishing four Sector Skills Councils and organized and signed memorandums of understanding (MOUs) with 326 factories. The Committee notes with interest the Government’s reference to the MLVT’s Strategic Development Plan 2024–2028, which includes as “Strategy 2” transforming the TVET system in response to the industrial revolution 4.0, digital economy and society and the green economy through five programs. The Committee also notes with interest also the Cambodia Skills Development Roadmap 2023–2035, which envisions transforming Cambodia’s labour force to meet the current and future labour market needs and consists of five strategic pillars: (1) strengthening the quality of TVET; (2) enhancing branding and outreach; (3) developing industry relevant TVET; (4) governance and leadership; and (5) funding and sustainability. The Committee notes these efforts in the context of analyses by the Asian Development Bank (2024), which identifies ’skills gaps’ as a key structural challenge, and the World Bank (2024), which notes the labour force remains ’trapped in low-skill, low-productivity jobs’. The Committee requests the Government to continue to provide information on the impact of the measures taken to promote education and training for the population in terms of the access of beneficiaries to lasting employment and on the measures taken or envisaged to coordinate education and training policies with prospective employment opportunities and their impact. The Committee further requests the Government to provide copies of the Strategic Action Plan for TVET system modernization 2019–2023, the Master Plan for the Development of Technical and Vocational Education and Training Institutions 2021–2025 and the MLVT’s Strategic Development Plan 2024–2028, as well as information on the impact of their implementation. Noting the establishment of four Sector Skills Councils (SSCs) and 326 MOUs with factories, the Committee requests the Government to provide information on the composition, mandate, and concrete contributions of the SSCs in ensuring that TVET curricula are industry-relevant and aligned with the new strategic plans.

Youth employment. The Government indicates that currently the MLVT is implementing vocational and technical training programs for targeted 1.5 million young people from poor and vulnerable families without paying tuition fees and receiving monthly stipends. The Ministry also signed MOUs with the Cambodian Chamber of Commerce and employers’ associations with a total of 18 MOUs to support vocational and technical training programs, especially the internship and job opportunities after the completion of the training. The Government indicates that currently, there are a total of 16,267 trainees (2,233 females) training under this programme. Moreover, the National Employment Agency contributes to the implementation of active labour market programme to support disadvantaged groups through: (1) coordinating study visit to potential employers for jobseekers with disabilities; (2) providing pre-employment training and soft skills; and (3) coordinating with local NGOs and employers to improve job opportunity for jobseekers with disability through minor workplace adaptation. The Committee requests the Government to continue to provide information on the impact of measures taken or contemplated to promote decent, productive, and sustainable employment for young persons, particularly for those belonging to disadvantaged groups (women, persons with disabilities and unskilled young people), and young persons working in agriculture or the informal economy.

While the Committee notes the launch of the flagship programme to train 1.5 million young people from poor families, it observes the initial enrolment of 16,267 trainees, of whom only 13.7 per cent (2,233) were young women. The Committee requests the Government to provide information on the identified barriers to scaling up this programme and, in particular, the specific measures being taken to ensure the equal participation of young women. It also requests information on the impact of the ILO-UN ’Decent Employment for Youth in Cambodia’ (DEY) programme. The Committee also requests the Government to provide up-to-date, detailed information on the impact of these measures on full employment for young persons, in particular out-of-school youth. The Committee further requests the Government to provide statistical data, disaggregated by age, sex, and economic sector, on trends in employment, unemployment, underemployment and informality among young persons.

Regional and rural development. The Government states that the Provincial NEP Committees have very actively implemented the NEP 2015–2025 by developing their respective provincial work plans. The Committee notes that the Government does not provide concrete information on that implementation. Consequently, the Committee reiterates its request to the Government to provide updated, concrete detailed information on the nature and impact of the activities of the Provincial Committees for leading, monitoring, and evaluating the implementation of the NEP at the provincial level. Given that 88.3 per cent of employment is informal and overwhelmingly concentrated in rural areas, the Committee urges the Government to provide concrete information on how these Provincial Committees are coordinating with the National Strategy on the Development of the Informal Economy 2023–2028 to promote decent work and productivity in the rural economy and refers to the guidance provided by the Transition from the Informal to the Formal Economy Recommendation, 2015 (No. 204).