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

Forced Labour Convention, 1930 (No. 29) - Lebanon (Ratification: 1977)

The Committee takes note of the observations of the Federation of Chambers of Commerce, Industry and Agriculture in Lebanon (FCCIAL), communicated with the Government’s report.

The Committee previously took note of the lack of adequate protection for migrant domestic workers in law and practice who continued to face abusive working conditions that amount to forced labour, such as passport confiscation, high recruitment fees, non-payment of wages, deprivation of liberty, and physical and sexual abuse. The Committee recalls that the Conference Committee on the Application of Standards (Conference Committee), at its 111th Session in June 2023, urged the Government to avail itself, without delay, of ILO technical assistance to ensure full compliance with its obligations under the Convention, and requested the Government to accept a direct contacts mission. The Committee notes that the mission has not yet been able to take place due to the difficult security situation prevailing in the country. It takes due note of the Government’s indication that the Ministry of Labour is anticipating the visit of the direct contacts mission and is committed to cooperating fully with it, as well as to advancing efforts to eliminate the forced labour practices affecting migrant domestic workers.

The Committee expresses the hope that the direct contacts mission will be carried out in the near future and will assist the Government in accelerating its efforts to eradicate the forced labour practices faced by migrant domestic workers, taking into account the recommendations of the Conference Committee and of the Committee’s comments below.

Articles 1(1) and 2(1) of the Convention. Vulnerable situation of migrant domestic workers to conditions of forced labour. (i) Legal protection. The Committee notes the Government’s information, in its report, that the draft Labour Code prepared in 2022 – which includes domestic workers in its scope of application – has yet to be approved, due to successive political, economic and social crises, including the frequent changes in governments. The Government further indicates that there is a proposed act to amend certain provisions of the Labour Code of 1946, which would include an amendment to section 8 and make the provisions of the Code applicable to “domestic workers and those deemed to be such, whether residing in individuals’ homes or not”. Finally, the Government indicates that the Minister of Labour (MoL) is examining the obstacles preventing the adoption of the revised Standard Unified Contract (SUC) of 2020 – which would allow workers to terminate their contract without the consent of their employer – and will follow up on the matter with the State Shura Council.

While taking due note of the difficult circumstances prevailing in the country, the Committee once again urges the Government to take the necessary measures to ensure that migrant domestic workers are afforded adequate legal protection, through their inclusion in the scope of application of the Labour Code. The Committee further urges the Government to pursue its efforts to identify and address the obstacles impeding the adoption of the revised Standard Unified Contract (SUC) of 2020, with a view to allowing domestic workers to terminate their employment at reasonable intervals or upon giving appropriate notice during the contract period, without requiring their employer’s consent.

The Committee takes note of the Government’s indication that coordination is under way with the General Directorate of General Security to establish a joint mechanism to implement Order No. 1/1 of 5 January 2023 concerning the regularization of the status of women migrant domestic workers who perform jobs other than those specified in the work permit and are in breach of their conditions for residency and employment. The Committee requests the Government to indicate the progress made in establishing the joint mechanism responsible for the implementation of Order No. 1/1 and report on the measures taken by this mechanism to regularize the status of migrant domestic workers who are in breach of their residency and employment conditions, as well as on the results achieved.

(ii) Monitoring of recruitment agencies. The Committee notes the Government’s information that a new Decision No. 74/1 of 1 July 2025 was adopted to regulate the conditions for establishing a recruitment agency and the recruitment of foreign female domestic workers. The Decision introduces stronger worker protection through such measures as greater monitoring requirements, reporting and enforcement, and the faster imposition of penalties for agencies and employers, than its predecessor (Decision No. 41/1 of 11 May 2022). Section 27 of Decision No. 74/1 prohibits recruitment agencies from requesting any money, in-kind benefits, or other direct or indirect material payments from domestic workers. In addition, recruitment agencies must refrain from and prevent any employee or person under their authority from subjecting the domestic worker to any form of psychological, physical or sexual abuse or coercion, and file a complaint against such persons with the competent court. Failure to comply with this obligation will result in measures ranging from placing a black mark on the record of the agency to the MoL revoking their license without warning. Moreover, the Department of Labour Inspection, Prevention and Safety (DLIPS) and the regional departments in the governorates are responsible for monitoring the work of recruitment offices, conducting periodic inspection visits to verify the offices’ compliance with the conditions and regulations, or conducting inspections based on a complaint (section 31). Inspectors are now required to submit a detailed report on the conditions of the offices once every six months. The Minister of Labour has the right to revoke the license of any office in certain cases, including when it is proven that the office violated the provisions of this decision or the applicable regulations.

The Committee notes the FCCIAL‘s observation that while foreign workers enjoy protection from their embassies, local employers are required to pay fees to recruitment agencies without any safeguards. According to the FCCIAL, this situation underscores the need for stronger regulation of recruitment agencies, which often engage in collusion and worker smuggling.

The Committee therefore strongly encourages the Government to continue its efforts to strengthen oversight of recruitment agencies,to ensure that recruitment is conducted in a fair, transparent, and lawful manner, and that recruitment fees are not charged to migrant workers, in order to protect migrant workers and prevent practices that may lead to situations of forced labour. It once again requests the Government to provide information on any violations committed by these agencies – particularly cases involving the imposition of recruitment fees on domestic workers – and on the penalties imposed, including suspensions or licence revocations.

(iii) Access to justice. The Committee notes the Government’s indication that the DLIPS is responsible for investigating complaints involving domestic workers. The Committee notes in this regard that, under section 27 of Decision No. 74/1, recruitment agencies must report to the MoL any violations against domestic workers or breaches of employment contracts, and section 29 requires agencies to notify the MoL when employers fail to comply with contractual terms. Complaints or appeals from workers, employers or agencies are filed with the DLIPS or the regional labour offices, which then forward them to the competent Ministry departments with recommendations. The MoL may also refer cases to the Public Prosecutor when information suggests possible human trafficking or other criminal offences.

The Government indicates that, in 2024, 69 complaints concerning women migrant workers were submitted: (1) 31 were made by an employer against domestic worker recruitment agencies, following which seven agencies have been prohibited from operating; (2) 31 were filed by embassies, consulates, associations and trade unions, the bulk of which concerned employers’ failure to pay women migrant workers their wages of which eight were referred to the competent judiciary; and (3) seven were made by women domestic workers themselves against recruitment agencies, with one referred to the competent judiciary. The Government further indicates that, in cases such as non-payment of wages or proven exploitation, domestic workers may be authorized, through coordination with the General Directorate of the General Security, to change employers without requiring the original employer’s consent.

The Committee strongly encourages the Government to continue to ensure that migrant domestic workers can easily and safely lodge complaints and obtain effective remedies when their rights are violated. In this regard, the Committee requests the Government to provide more detailed information on: (i) the measures taken to ensure that domestic workers are made fully aware of the existence of the available complaints mechanisms; (ii) the actions taken in response to the complaints lodged and the remedies granted to domestic workers; (iii) the outcomes of cases referred to the judiciary; and (iv) specific examples of situations in which domestic workers were permitted to change employers due to violations of their rights.

(iv) Labour inspection and working conditions of domestic workers. The Committee previously emphasized that the effective imposition of penalties for labour rights violations is essential for combating forced labour, as such practices often involve multiple breaches of labour legislation that must be appropriately sanctioned. While domestic workers remain excluded from the Labour Code, the Committee recalls that the 2009 Standard Unified Contract, which contains specific protections for domestic workers, is in force and must be effectively monitored.

The Committee notes the Government’s indication that the capacity of labour inspectors, social workers and relevant MoL units has been strengthened through training on Anti-Trafficking Act No. 164 of 2011, enabling them to better identify indicators of trafficking among migrant domestic workers. However, the DLIPS continues to face significant challenges, including a lack of clarity over their competence overseeing the employment of domestic workers and shortages in human, financial and material resources.

The Committee strongly encourages the Government to continue reinforcing the capacity of labour inspectors, and of any other competent enforcement bodies, to ensure the effective monitoring of the working conditions of domestic migrant workers. It requests the Government to continue to provide information on the measures taken in this regard, as well as on the number of inspections carried out concerning domestic workers, number and nature of violations detected, and the penalties imposed for such violations. 

Article 25. Penal sanctions for the exaction of forced labour. The Committee previously noted that the General Directorate of General Security (GDGS) is responsible for investigating complaints involving domestic workers and, under the supervision of the competent public prosecutor, may initiate court proceedings and take the necessary administrative measures against individuals who commit abusive acts against domestic workers.

The Committee notes with regret the Government’s indication that no response has been received from the Ministry of Justice regarding sanctions imposed on employers who subject domestic workers to abusive practices or conditions amounting to forced labour. The Committee recalls that Article 25 of the Convention requires Member States to ensure that the exaction of forced labour is punishable by penal sanctions and that such penalties are really adequate and strictly enforced.

The Committee once again strongly urges the Government to take the necessary measures to ensure that cases involving forced labour of migrant domestic workers are effectively investigated and prosecuted. The Committee once again requests the Government to provide information on the measures taken to strengthen the capacity and coordination of law enforcement bodies, including the GDGS and public prosecutors, to proactively investigate situations that could amount to forced labour, regardless of the complaints of the victims, in order to ensure that those who impose such practices are prosecuted and sanctioned. Please provide information on any investigations and prosecutions initiated and the number, nature and outcomes of convictions, including the penalties imposed.

The Committee is raising other matters in a request addressed directly to the Government.