Managing conflicts and disasters: exploring collaboration between employers' and workers' organizations

X Managing Conflicts
and Disasters:

Exploring Collaboration between
Employers’ and Workers’ Organizations



� Managing Conflicts
and Disasters:

Exploring Collaboration between
Employers’ and Workers’ Organizations

Cover photo © ILO/Crozet M.,​ Sri Lanka

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First published 2020

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Managing conflicts and disasters:
Exploring collaboration between employers’ and workers’ organizations.- Geneva: ILO 2020.

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Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations 3
Contents

Contents

Preface.. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Acknowledgements. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Acronyms. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
01 – Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
02 – Conflict, post-conflict, and fragile settings.. . . . . . . . . . . . . 13
03 – Disaster settings. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
04 – Population displacement. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
05 – Concluding reflections. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
Bibliography. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32

4 Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Preface
Social dialogue- Tunisia © ILO/Crozet M.

Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations 5
Preface

Preface

The Nobel Peace Prize for 2015 was awarded to the Tunisian National Dialogue Quartet for its
“decisive contribution to building democracy in Tunisia in the wake of the Jasmine Revolution
of 2011.” The Quartet, comprised of ILO social partners – the Tunisian General Labour Union
and Tunisian Confederation of Industry, Trade and Handicrafts – along with the Tunisian
Human Rights League and Tunisian Order of Lawyer was formed when the country’s efforts
to introduce democracy were in danger of failing amid social unrest. Through social dialogue
and cooperation, the Quartet became the driving force to advancing peaceful democratic
development in Tunisia and an exemplary example of strong cooperation between social
partners and civil society organizations.

Globally, employer and business membership organizations (EBMOs) and workers’
organizations contribute to achieving solutions and building social cohesion and rule of law.
Partnership between social partners leads to good governance, peace and stability and can
boost economic and social progress. Even when countries experience disruptive situations
such as a natural disaster, conflict or social unrest, the individual and collective efforts of social
partners can positively work towards improved stability and inclusive economic, social and
political development.

This publication looks at the role that employers and workers, through their respective
organizations, play in crisis situations arising from conflict and disaster. It explores the
leadership function that EBMOs have deployed to maintain an environment for continued
economic activity and the key role that workers’ organizations take to assist workers, in
particular those who have been made vulnerable by a crisis. The report importantly examines
how EBMOs and workers’ organizations have collaborated through social dialogue and
other means of collective action to promote peace, prevent crises, enable recovery and build
resilience.

While actors of the international community are effortlessly working towards achieving
the Sustainable Development Goals (SDGs), violent conflict and natural disasters are on
the rise and worryingly recognized as one of the biggest obstacles to achieving the SDGs.
About 2 billion people currently live in fragile and conflict-affected situations and poverty is
increasingly concentrated in these settings. This is contrary to the pledge contained in the
2030 Agenda to leave no one behind.

It is our hope that this report inspires social partner organizations globally on the unique and
complementary role they play and can play in complex situations of disaster and conflict,
including emergency situations such as pandemics like COVID-19. Intensified collaboration
between EBMOs and workers’ organizations before, during and after a crisis situation can
critically fill a governance gap, rejuvenate employment and job creation, and improve labour
market governance. The ILO will continue to harness our organization’s strength - our
normative mandate and tripartism - and channel our resources to support this shared agenda.

Finally, this report reflects our organization’s journey to better document partnership between
social partner organizations. Joint efforts between EBMOs and workers’ organizations are
essential to addressing the challenges of our time, and the lessons of collaboration need to be
shared. We will continue to pursuit knowledge together and apply that knowledge in support
of our constituents.

Deborah France-Massin Maria Helena Andre
Director Director
Bureau for Employers’ Activities (ACT/EMP) Bureau for Workers’ Activities (ACTRAV)

6 Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Acknowledgements

Acknowledgements

The contributions of employer and business membership organizations and workers’ organizations
were instrumental to the development of this report. In particular, we extend our appreciation to the
Bahamas Chamber of Commerce and Employers Confederation, Confédération Générale des Entreprises de
Côte d’Ivoire, Federation of Kenya Employers, Jordanian Chamber of Industry, Confédération Générale des
Entreprises de Côte d’Ivoire, Japanese Trade Union Association, General Federation of Jordanian Trade
Unions, Central Organization of Trade Unions (Kenya), General Federation of Nepalese Trade Unions,
All Nepal Trade Union Federation, and the Pakistan Workers’ Federation for taking the time to share
insights on their organizations’ role and efforts to rebuild peace and stability.
The interviews and the drafting of the report were conducted by Oliver Jütersonke from the Centre on
Conflict, Development and Peacebuilding of the Graduate Institute of Geneva with input from Emilio
Rodrguez and Sina Zintzmeyer. We thank the research team for their contributions, expertise and
thoughtful collaboration.
Thanks also to ILO colleagues who provided peer review and technical contributions. From the Bureau
for Employers’ Activities, Julie Kazagui, Vanessa Phala, and Gary Rynhart supported this effort. From the
Bureau for Workers’ Activities, Mohammad Mwamadzingo, Nezam Qahoush, and Inviolata Chinyangarara
offered their time and input.
ILO colleagues from the Coordination Support Unit for Peace and Resilience also reviewed and enriched
the report. We thank Eva Majurin, Federico Negro, Elisa Selva, and Nieves Thomet for their time and
important contributions.
Finally, the ILO team that led and coordinated the research needs to be acknowledged. We express
deep appreciation to Jae-Hee Chang, Senior Programme and Operations Officer of the ILO Bureau for
Employers’ Activities and Claire La Hovary, Senior Specialist on International Labour Standards and Legal
Issues of the ILO Bureau for Workers’ Activities for their fruitful partnership.

Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations 7
Acronyms

Acronyms

ANTUF All Nepal Trade Union Federation

BCCEC Bahamas Chamber of Commerce and Employers Confederation

CECC Canterbury Employers’ Chamber of Commerce (New Zealand)

CGECI Confédération Générale des Entreprises de Côte d’Ivoire

CIPC Commission Indépendante Permanente de Concertation (Côte d’Ivoire)

COTU Central Organization of Trade Unions (Kenya)

CPA Comprehensive Peace Agreement (Nepal)

EBMO Employer and Business Member Organization

FKE Federation of Kenya Employers

GDP gross domestic product

GEFONT General Federation of Nepalese Trade Unions

GFJTU General Federation of Jordanian Trade Unions

JCI Jordanian Chamber of Industry

JTUC-RENGO Japanese Trade Union Association

JTUCC Joint Trade Union Coordination Centre (Nepal)

IDMC Internal Displacement Monitoring Centre

IDPs Internally displaced persons

IEBC Independent Electoral and Boundaries Commission (Kenya)

ILO International Labour Organization

NEMA National Emergency Management Agency (Bahamas)

NRC Norwegian Refugee Council

PWF Pakistan Workers’ Federation

SHTA The Sint Maarten Hospitality & Trade Association

UEMOA West African Economic and Monetary Union

UNHCR United Nations High Commissioner for Refugees

WB World Bank

8 Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Introduction

01 iLC 2017 © ILO/Crozet, Pouteau

Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations 9
Introduction

Introduction

This report looks at the potential for collaboration particularly in areas affected by conflict, disaster
between employer and business membership and other humanitarian emergencies.2 What is
organizations (EBMOs) and workers’ organizations the role of EBMOs and workers’ organizations in
in crises arising from conflicts and disasters. tackling these challenges?
By zooming in on a variety of country contexts,
it explores initiatives and policies that seek ILO Recommendation Employment and Decent
to maintain an environment for continued Work for Peace and Resilience, 2017 (No. 205)
employment, decent work, and commercial – hereafter R205 – offers a starting point.3 It
activity. It also looks at efforts to build resilience in provides ILO member States, EBMOs, and workers’
situations of conflict and/or major destruction by organizations with guiding principles and strategic
natural and human-made disasters. In particular, approaches for engagement in conflict and
the report examines how EBMOs and workers’ disaster situations.4
organizations have taken action and cooperated in
a variety of ways through social dialogue to prevent X Reference is made throughout
crises, promote peace, and enable recovery. In this report to the text of R205.
doing so, the study provides insights into the While R205 is addressed to
roles played by EBMOs and workers’ organizations member States, it was adopted by
in these contexts, and how such collaboration tripartite constituents and calls for
in crisis situations could be strengthened and action from all to be implemented.
replicated elsewhere.
The Recommendation’s focus is broad, including
The ILO was established in 1919, by the Treaty the role of employment, income generation,
of Versailles that put an end to World War I, with decent work, and the creation of sustainable
the aim of building an institution that could help enterprises. Its objective is to strengthen social
prevent social tensions from breaking into open dialogue, international cooperation and the role
conflict. A hundred years on, the aspirations of EBMOs and workers’ organizations in reducing
are still the same. Goal 16 of the United Nations the impacts of crisis arising from conflicts
Agenda 2030 for Sustainable Development aims and disasters. Finally, even if the ILO has the
to “promote peaceful and inclusive societies for mandate and the instruments to work on peace
sustainable development, provide access to justice and resilience, both in fragile and post-conflict
for all and build effective, accountable and inclusive situations, too often, full, productive and freely
institutions at all levels.”1 Moreover, the ILO chosen employment and social dialogue are
Centenary Declaration on the Future of Work was seen as a secondary consideration to the policy
adopted with the understanding that persistent discussions on peacebuilding and recovery.
poverty, inequalities and injustices, conflict,
disasters and other humanitarian emergencies
constitute a threat to advances in economic and
social progress and to securing shared prosperity
and decent work for all. It further recognises that
decent work is key to sustainable development,
addressing income inequality and ending poverty,

1 F or a detailed commentary on each section of the Recommendation see: ILO-ACTRAV: Workers’ Guide to Employment and
Decent Work for Peace and Resilience Recommendation (No. 205) (Geneva, ILO, 2019).

2 See Preamble and Para. II A xvii. 187 ILO member States adopted the Centenary Declaration in June 2019.

3 ILO: Employment and Decent Work for Peace and Resilience Recommendation (N°205), 2017.

4 See: https://www.ilo.org/global/topics/employment-promotion/recovery-and-reconstruction/r205/lang--en/index.htm.
For a summary of R205 see: ILO-ACTRAV: Recommendation N°205 on Employment and Decent Work for Peace and Resilience:
What Role for Trade Unions? ILO ACTRAV Policy Brief (Geneva, ILO, 2018). Available at: https://www.ilo.org/wcmsp5/groups/
public/---ed_dialogue/---actrav/documents/publication/wcms_646852.pdf [accessed 19 Nov. 2019].

10 Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Introduction

Nevertheless, many of today’s violent conflicts
relate to group-based grievances arising from
inequality, non-respect of human and labour
rights, exclusion, lack of participatory mechanisms
and dialogue as well as feelings of injustice.5

X Conflict has not been defined in Recommendation No. 205. For the purpose of the
Recommendation, it includes “armed conflicts” as well as “non-armed conflicts”. It
covers many diverse situations, including situations of violence that destabilise societies
and economies.

X Disaster means a serious disruption of the functioning of a community or a society at
any scale due to hazardous events interacting with conditions of exposure, vulnerability
and capacity, leading to one or more of the following: human, material, economic and
environmental losses and impacts.

X Resilience means the ability of a system, community or society exposed to hazards
to resist, absorb, accommodate, adapt to, transform and recover from the effects of
a hazard in a timely and efficient manner, including through the preservation and
restoration of its essential basic structures and functions through risk management.

Source: ILO: Employment and Decent Work for Peace and Resilience Recommendation (N°205), 2017 and ILO:
Provisional Record No.13-2(Rev.), ILC 2017, paras 144-150.

The purpose of this report is to showcase X R205 calls on member States
specific examples where EBMOs and workers’ to ensure consultation and
organizations have taken proactive action to work encourage[s] active participation
together to respond to conflict and disaster crises. of employers’ and workers’
This collaboration might focus on building peace, organizations in planning,
on the prevention of conflicts and catastrophes implementing and monitoring
or on being better prepared for the next crisis. It measures for recovery and resilience
might also be about ensuring a quicker and more (para 8 (d)) and acknowledges
effective response to an event, or a more coherent the vital role of employers’
recovery and reconstruction period. In all these and workers’ organizations
activities, EBMOs and workers’ organizations have in crisis responses (para 25).
important roles to play, as will be illustrated in
the following sections using a number of country
examples.

5 See ILO, Handbook how to design, monitor and evaluate peacebuilding results in jobs for peace and resilience programmes
(Geneva, ILO, 2019).

Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations 11
Introduction

Image of soldier (armed forces) (DRC) © ILO/Crozet M.

In terms of its approach, this report is based on from COVID-19. Overall, the aim has been to
extensive desk research as well as interviews. showcase innovative ways in which EBMOs and
Interviews with EBMO representatives were workers’ organizations have contributed to the
conducted from Geneva between April and management of conflicts and disasters. The aim
October 2019, notably with individuals from the was not to provide a comprehensive account or
Bahamas, Côte d’Ivoire, Jordan, Kenya and Sint attain global geographic coverage.
Maarten. The study also draws on extensive
notes and interview data drawn from the authors’ The report is divided into five sections, including
participation in a series of regional workshops and this introduction. The second section will focus on
training events convened by the ILO’s Bureau for conflict contexts and the third on disasters. The
Workers’ Activities (ACTRAV) throughout 2018. fourth section will then briefly discuss an issue
This included insights from workers’ organizations that is common to both conflicts and disasters:
based in Africa, Asia and Latin America. This population displacement. A fifth and final section
report also briefly looks at early responses of will present a few concluding reflections from the
social partners to the crisis situation arising analysis.

12 Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Conflict, post-conflict, and fragile settings

02 Fireman, Kyrgyzstan © ILO/Pirogov V.

Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations 13
Conflict, post-conflict, and fragile settings

Conflict, post-conflict, and fragile settings

Conflicts in various forms – from large-scale illustrates how a society can move from relative
military confrontations to rebel insurgencies, peace and stability to a crisis situation marked
election violence or popular uprisings, for by political or communal tensions that might
instance – continue to rage in societies around escalate into violence and ultimately armed
the world. These conflicts have a profound conflict. If stakeholders are unable to prevent an
impact on employment and income-generating escalation to outright conflict through diplomacy
opportunities, and on decent work. They lead to a and dialogue, then efforts shift to organizing
breakdown of the rule of law, destroy livelihoods, an effective response. This response includes
displace populations, and disrupt education. peace talks and ceasefire agreements as well as
Conflicts also tend to lead to an expansion of the humanitarian activities to help those caught up in
informal economy, a collapse of social protection the fighting. Hopefully the conflict can be resolved
and a rise in criminal activities such as trafficking. quickly, leading to a political settlement among the
Vulnerable populations, including vulnerable conflict parties and the start of peacebuilding and
youths, persons with disabilities, and the elderly, reconstruction efforts. If no lasting agreement can
are especially affected. be found, violent conflict might once again ignite,
leading to a new cycle.
It is useful to think of peace and conflict in
terms of cycles, as shown in figure 1. This figure

Figure 1. The conflict management cycle

Response
Conflict

De-escalation Conflict Escalation
Management of violence
Recovery
Preparedness
Settlement
(or relapse) Societal
Tension

Peace
Prevention

Source: ILO-ACTRAV: Workers’ Guide to Employment and Decent Work for Peace and Resilience Recommendation (No. 205)
(Geneva, ILO, 2019).

14 Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Conflict, post-conflict, and fragile settings

This section will discuss how EBMOs and workers’ enabling a four-month extension of the chômage
organizations can play key roles in every stage technique, with the obligation for the employer
of the conflict cycle, using examples from Côte having to pay at least one-third of the salary during
d’Ivoire, Kenya, Nepal and Sri Lanka – four that period. Moreover, employers and employees
countries that have experienced often lengthy worked together to find rotation systems between
periods of large-scale violence. chômage technique and full employment to ensure
that the smallest possible number of workers
The first example is Côte d’Ivoire, a West African had to be laid off, while maintaining the working
country that was long regarded as a model of capacity needed by the employers at all times.
economic development and political stability. In
2002, Côte d’Ivoire was effectively split into two, The constructive collaboration between employers
with the south remaining under the control of the and workers via the CIPC is an example of how
incumbent president and the north run by armed- solutions can be found in times of violent political
rebel groups linked to the political opposition. turmoil. The CIPC allowed employers and workers
Increasing levels of violence, insecurity and to effectively lobby the government based on
business uncertainty took a heavy toll on the solid and jointly developed solutions– and not just
economy. In 2003, the country witnessed its lowest representatives of the Ministry of Labour but the
GDP per capita in the period between 1972 and political executive as a whole. During repeated
2005.6 episodes of political violence between 2006 and
2011, the CIPC also led discussions to increase the
As a consequence of the violence, workers were minimum wage, which was seen as an important
temporarily laid off with the hope they would gesture towards citizens. When the Ivorian labour
be re-employed once the crisis had passed. This law was eventually revised in 2015, the more
temporary lay-off, called chômage technique or flexible legislation of the chômage technique with
technical unemployment, was limited by Ivorian two months of no pay followed by a possible four-
labour law to a maximum period of two months. month renewal with partial pay, was anchored into
After that, workers had to be either fully brought the law.
back to work or definitively laid off. When it
became clear that the 2002 crisis was not going to In sum, the case of Côte d’Ivoire shows how the
end any time soon, Ivorian workers’ organizations existence of an effective communication channel
and the Confédération Générale des Entreprises de between EBMOs and workers’ organizations – in
Côte d’Ivoire (CGECI) began collaborating through this case the CIPC – can be a key vehicle in certain
the Commission Indépendante Permanente de conflict situations. It is here that the harmful
Concertation (CIPC). consequences of violent conflict for businesses
and workers can either be prevented or at least
X One of the strategic approaches mitigated in duration and intensity through
noted by R205 is to promote constructive dialogue between both social
social dialogue and collective partners.
bargaining (para 8 (i)).
A second example is Kenya, another economic
The CIPC is a bipartite forum consisting of engine on the African continent that has
representatives of the workers’ and employers’ experienced significant political violence in
organizations created in 1995. Its first objective was recent years, particularly during election periods.
to draft proposals and solutions regarding labour- The most serious episode was in 2007, when
related issues between employees and employers, supporters of the two main political candidates,
to be submitted for government approval. When the incumbent President, Mwai Kibaki (Party
the chômage technique problem was brought of National Unity-PNU) and the leader of the
before the CIPC during the 2002 crisis, employees opposition, Raila Odinga (Orange Democratic
and employers jointly came up with a mechanism Movement-ODM), violently clashed as a result of
alleged voting manipulation. The demonstrations
and manifestations soon evolved into widespread
violence in a climate of ethnic tensions, human

6 N ’Zue, Felix (2006). ‘State – Business Relations and Economic Growth: Empirical Evidence from Côte d’Ivoire’, Revue Ivoirienne
des Sciences Économiques et de Gestion. 10, pp.72-90.

Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations 15
Conflict, post-conflict, and fragile settings

rights violations, socio-economic inequalities and contributed to a reduction of conflicts in the
political grievances.7 workplace and to the prevention of comparable
outbreaks of violence in subsequent election
In the weeks following the disputed presidential periods – although more empirical research would
election of 2007, members of the Central need to be conducted to corroborate these claims.
Organization of Trade Unions (COTU) travelled
continuously throughout the country, alleviating X R205 recalls the importance of
tensions wherever possible and preventing a good governance and combatting
further escalation of violence. corruption and clientelism (para 7(c)).

X In responding to crisis situations, In preparation for the 2013 presidential election,
R205 insists on the creation the FKE supported public debates among the
of an enabling environment candidates in the media ahead of the vote. It
for the establishment, restoration also conducted backchannel conversations with
or strengthening of employers’ and politicians, prestigious leaders and the media to
workers’ organizations (para 24 (b)). moderate their discourse during their campaigns.
Beyond that, FKE leaders met with representatives
According to interviews conducted, COTU’s positive of the security sector, including private security
standing in society gave it significant political companies, to have them commit to non-violence.
authority with the new coalition government of It also coordinated activities with the Independent
Kibaki and Odinga that was formed on the basis Electoral and Boundaries Commission (IEBC)
of a power-sharing agreement signed in February in order to assess voting preparations. The
2008. The organization was subsequently able to initiative went as far as publicly supporting the
influence the formulation of the new Constitution judiciary during the election to guarantee the
of Kenya 2010, in which are enshrined the right transparency and neutrality of the institution in
to freedom of association for all and the effective periods of electoral dispute. These initiatives and
recognition of the right to collective bargaining and programmes, although often not institutionalized,
the right to strike. This was the result of effective produced important lessons that were considered
social dialogue. in subsequent election periods. During the 2017
presidential elections, the violence was minimal in
In parallel, the business community was actively comparison to the 2007/2008 elections, and when
involved in helping to respond to the crisis. In disputes between the two political contenders
the face of a sudden economic slowdown, the threatened to trigger violence, the FKE raised its
Federation of Kenya Employers (FKE) developed voice to encourage political leaders to tone down
various projects to prevent hostilities and to their discourses.
address grievances among different ethnic groups
in companies and factories. FKE’s members also Taken together, the initiatives and programmes
communicated messages on violence prevention initiated in Kenya over the past decade once
to their employees. These emphasized the fact more highlight the important role that EBMOs
that by conducting acts of violence within the and workers’ organizations can play in preventing
workplace, workers were jeopardizing their violence and responding to crises when they occur.
livelihoods. Since group identity and ethnicity Just as in Côte d’Ivoire, and despite on-going
were used for electoral politics, the goal has been differences among unions and tensions within
to work with labour unions in order to turn the the tripartite set-up, such collaboration has the
workplace into a place of common ground. potential to bring about long-lasting legislative
and constitutional change to the overall benefit
According to FKE officials interviewed, the positive of Kenyan society. In 2012, the FKE produced an
history of social dialogue with the unions has Employer’s Manifesto to provide a framework

7 J. Austin and A. Wennmann: “Business engagement in violence prevention and peacebuilding: The case of Kenya”, in Conflict,
Security and Development, 2017, Vol. 17, No. 6, pp. 451–472; Commission of Inquiry into Post Election Violence: Kenya: Report
of the Commission of Inquiry into the Post Election Violence (CIPEV), (Government Printers, Nairobi, 2008).

16 Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Conflict, post-conflict, and fragile settings

for discussion about the country’s future. The because some unions sided with EBMOs and
Manifesto stresses that the role of employers against ANTUF during the negotiations. This
is not only to search for economic and profit- new labour legislation is generally regarded as a
making aspects of doing business but also to “win-win result” for both workers and employers.
“uphold the constitution, remain apolitical and
non-partisan, and use the workplace as a platform X R205 states that Members should,
for peacebuilding”.8 These concepts within the in consultation with employers’
Manifesto illustrate the scope of the organization’s and workers’ organizations, review,
goals and the lasting impact the electoral violence establish, re-establish or reinforce
of 2007-2008 has had on the business community labour legislation (para 23 a).
as a whole.
Nepalese EBMOs, in turn, were also keen to avert
The cases of Nepal and Sri Lanka, two countries socio-economic stagnation at both the regional
that have experienced long civil wars, are and national levels. The fragility of state institutions
examples of EBMOs and workers’ organizations impedes business opportunities, and, hence, the
seeking to resolve differences and disputes within creation of decent jobs that are key drivers for
their organisations and across conflict lines. In peacebuilding and development.10 During the
Nepal, a major breakthrough was achieved when conflict, EBMOs tried to intervene and promote
the All Nepal Trade Union Federation (ANTUF) initiatives to lessen the effects of the protracted
decided in 2019 to merge with the General crisis between the Nepalese Government and the
Federation of Nepalese Trade Unions (GEFONT). Maoist insurgents. For example, they held discreet
The ANTUF was aligned with the Maoists who negotiations with unions on key issues, including
had waged decades of armed conflict against the agreement on a higher minimum wage in 2003.
Government. Despite an agreement among the In 2005, a number of EBMOs, including the Nepal
four major workers’ organizations in 2006 on the Chamber of Commerce and Industry and the Hotel
back of the Comprehensive Peace Agreement (CPA) Association of Nepal, created the National Business
signed between the Government and the Maoist Initiative for Peace with the aim of supporting
insurgents in 2005, the post-insurgency period and encouraging peace and dialogue among the
was marked by violent rivalry among the unions. warring parties.
To some, including at the ILO, “it appeared that the
conflict was moving from the political sphere to the In order to thrive in any setting, businesses require
workplace”.9 Employers commonly had to deal with a stable environment and public institutions that
multiple unions simultaneously and with disputes can deliver consistent policy and rules in order
and strikes that were driven by inter-union rivalry. to maintain investors’ interest, clients’ approval
Poor industrial relations thus made for a very and workers’ confidence. In Sri Lanka, where the
difficult business environment in which investment Government had been fighting Tamil rebels in the
dried up. It was only with the establishment of the northern and eastern regions of the country since
Joint Trade Union Coordination Centre (JTUCC) in 1983, the business sector faced similar challenges
2007 and the attendance of ANTUF at the 2007 to those experienced in Nepal due to the escalation
International Labour Conference, that a path of the conflict at the end of the 1990s and in the
towards greater unity among Nepal’s major early 2000s.11 After the bombing of Colombo’s
workers’ organizations eventually emerged. It
nonetheless took a further ten years until the
Labour Act of 2017 was finally signed, not least

8 Federation of Kenya Employers: The Employer’s Manifesto: Employers call for an improved business climate for growth and job
creation from the next Government (Nairobi, FKE, 2012).

9 For a detailed analysis of the Nepalese case see: ILO-ACT/EMP: The role of the social partners in the Nepal peace process
(Geneva, Bureau for Employers’ Activities-International Labour Office, 2019). Available at: https://www.ilo.org/wcmsp5/
groups/public/---ed_dialogue/---act_emp/documents/publication/wcms_711811.pdf [accessed 19 Nov. 2019].

10 F or a detailed guide on the role EBMOs can play in fragile settings in Asia see: ILO-ACT/EMP, Enterprise creation, employment
and decent work for peace and resilience: The role of employer and business membership organizations in conflict zones in Asia,
Bureau for Employers’ Activities, Working Paper No. 15, International Labour Office, 2016. Available at: https://www.ilo.
org/wcmsp5/groups/public/---ed_dialogue/---act_emp/documents/publication/wcms_581077.pdf [accessed 19 Nov. 2019].

11 D . Miriyagalla: Case Study, Business and peace in Sri Lanka: The roles of employer and business member organizations (Geneva,
Bureau for Employers’ Activities-International Labour Office, 2016).

Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations 17
Conflict, post-conflict, and fragile settings

airport and the ensuing economic standstill in Nella Fernández talks to the miners at East Kalimatan, Indonesia © ILO/Cassidy K.
2001, EBMOs stepped up the pressure on the
Government to achieve an end to the conflict
through peace negotiations.

X R205 calls on member States,
in consultation with the most
representative employers’ and
workers’ organizations, to support
sustainable enterprises to ensure
business continuity in order to
maintain and expand the level of
employment and enable the creation
of new jobs and income-generation
opportunities (para 11 (d)).

As part of a bipartisan initiative, EBMOs drafted The cases of Nepal and Sri Lanka illustrate the
a ten-point document signed by all chambers of potential of workers’ and employers’ organizations
commerce and employers’ organizations to lobby to work collaboratively across conflict lines and
the president and the opposition leader to end the initiate peace dynamics from a perspective that
war.12 EBMOs also created the J-Biz initiative with is different to the traditional political negotiation
the aim of leveraging collective advocacy efforts to approach. In so doing they also have the potential,
reach a negotiated resolution to the conflict. A key despite the many challenges involved in seeking
component of the private sector’s strategy was the to rebuild social dialogue in post-conflict settings,
Sri Lanka First Initiative,13 which led to a ceasefire to make a concrete contribution to reconciliation
agreement in 2002. As a result, the trade embargo following the end of armed violence.
on goods in the North was lifted and the island’s
main highway was reopened. The ceasefire failed
to hold, however, and the conflict resumed until
2009, when the Sri Lankan Government defeated
the Tamil rebels militarily.

The influence of Sri Lanka’s unions, by contrast,
has been fading according to many analysts – not
least because of difficult relations with the post-
conflict government. At the same time workers’
organizations, notably the Sri Lanka Nidahas
Sewaka Sangamaya, have been trying to rebuild
ties with unionists in the North. Union membership
numbers are gradually rising in former Tamil-held
areas, although much effort in trust-building and
reconciliation is still required in order to convince
workers to rejoin organizations based in Colombo.

12 I bid., p.18.
13 I bid., p.19.

18 Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Disaster settings

03 Image of woman small commerce shop, Nepal © ILO/Crozet M.

Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations 19
Disaster settings

Disaster settings

X Mitigation refers to the lessening or minimizing of the adverse impacts of a hazardous
event. The adverse impacts of hazards, in particular natural hazards, often cannot be
prevented fully, but their scale or severity can be substantially lessened by various
strategies and actions. Mitigation measures include engineering techniques and
hazard-resistant construction as well as improved environmental and social policies
and public awareness.

X Preparedness is the knowledge and capacities developed by governments, response
and recovery organizations, communities and individuals to effectively anticipate,
respond to and recover from the impacts of likely, imminent or current disasters.
Preparedness is based on a sound analysis of disaster risks and good linkages with early
warning systems, and includes such activities as contingency planning, the stockpiling
of equipment and supplies, the development of arrangements for coordination,
evacuation and public information, and associated training and field exercises. These
must be supported by formal institutional, legal and budgetary capacities. The related
term “readiness” describes the ability to quickly and appropriately respond when
required.

Source : United Nations Office for Disaster Risk Reduction, https://www.undrr.org/terminology/ [accessed
10 Feb. 2020].

As with “conflict”, the term “disaster” covers a wide Figure 2 shows the cyclical nature of many
range of events ranging from natural hazards disasters. It is similar to the cycle we used for
(storms, earthquakes or floods), environmental conflicts in the previous section: we continuously
hazards (climate change), biological hazards monitor the weather, geological ac tivit y,
(epidemics), to anthropogenic hazards (industrial environmental degradation and so on, in the
accidents). All of these and many more disrupt the hope that we can detect the signs of a disaster as
day-to-day activities and routines of societies and early as possible. The better prepared we are, the
cause massive human and economic costs.14 While more likely it is that we can quickly respond to any
developed countries possess more resources and emergency that arises and thus possibly mitigate
have greater reconstruction capacities, disaster its effects.15 The next steps are to stabilize the
events can harm less developed countries situation by focusing on damaged infrastructure
much more, delaying reconstruction efforts and affected populations, before moving on to
and potentially further weakening state and long-term reconstruction and increased resilience.
societal institutions. Some of these incidents are
preventable, while for others, preparation is the
key to mitigating their effects. This is why we
talk of disaster “management”: since we cannot
guarantee that disasters will not occur, how can
we use our available resources to make us more
resilient when they do?

14 United Nations Office for Disaster Risk Reduction (UNDRR): The 2019 Global Assessment Report on Disaster Risk Reduction
(Geneva, UNDRR, 2019). Available at: https://gar.unisdr.org/report-2019 [accessed 19 Nov. 2019].

15 See also Section XII of ILO Recommendation No. 205.

20 Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Disaster settings

Figure 2. The disaster management cycle

Response
Disaster Event

Stabilization Disaster Emergency
Management
Recovery Preparedness

Restoration Early signs

Normalcy
Mitigation

Source: ILO-ACTRAV: Workers’ Guide to Employment and Decent Work for Peace and Resilience Recommendation (No. 205)
(Geneva, ILO, 2019)

In theory, EBMOs and workers’ organizations have and January 2011, the Canterbury Employers’
an enormous role to play in disaster management. Chamber of Commerce (CECC) played a key role
If EBMOs can collaborate with business leaders, in recovery operations in the badly affected city of
including small and medium-sized enterprises, Christchurch.
about being better prepared for storms,
earthquakes or flooding, for instance, the damage X R205 suggests, as one of the strategic
caused can be minimized. Moreover, given the approaches to enable recovery and
large numbers of union members, the potential build resilience, developing the capacity
for mobilizing workers to provide an immediate of governments, including regional and
response is equally as big. Two examples from New local authorities, and of employers’ and
Zealand and Japan illustrate this. workers’ organizations (para 8 (k)).

In the aftermath of the two major earthquakes
that struck New Zealand in September 2010

Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations 21
Disaster settings

The CECC became a founding member of “Recover and the swift (re)integration of populations
Canterbury”, a multiagency public-private initiative into the labour market, as well as more long-
that sought to help businesses in the region term reconstruction projects around social
to survive and recover, liaise with government infrastructures and sustainable livelihoods.
agencies and companies and keep the economy
of the region running in the post-disaster period. While the above examples testify to the positive role
Participation in this initiative permitted the CECC of both EBMOs and workers’ organizations, there
to develop lessons learned and best practices for are few illustrations of significant collaboration
facing future challenges, such as training in risk between these two groups in disaster settings.
management, collaboration with state and private And yet, social dialogue in the workplace is an
agencies, constant communication with members essential tool, and there are obvious merits to their
to facilitate policies and claims, and support to combined involvement in being better prepared
companies in developing crisis management for disasters and contributing to a timely response.
plans. By 2013, when the initiative ended, “Recover
Canterbury” had assisted 7,000 businesses, X R205 insists that Members
disbursed US$5 billion in grants and helped to save should strengthen international
more than 600 jobs.16 cooperation, including through the
voluntary and systematic exchange
Equally impressive, but from the perspective of of information, knowledge, good
workers’ organizations, is the Japanese Trade Union practices and technology for
Association (JTUC-RENGO) and its effective role in promoting peace, preventing and
preparing for and responding to disaster events. mitigating crises, enabling recovery
Japan frequently suffers from heavy storms and and building resilience (para 47).
typhoons, and in 2011 had to deal with the very
serious industrial accident at the Fukushima
nuclear power plant that was caused by a massive
earthquake measuring 9.0 on the Richter scale.

X R205 states that Members should, Joint fact-finding missions could be an important
in consultation with employers’ activity in this regard: One hundred days after
and workers’ organizations, build Typhoon Haiyan struck the Philippines in 2013,
resilience through actions such representatives of employers’ and workers’
as risk management, including organizations joined a high-level government
contingency planning, early warning, delegation, convened by the ILO, to visit Japan’s
risk reduction and emergency Iwate Prefecture, one of three prefectures severely
response preparedness (para 41 (b)). hit by the 2011 earthquake and tsunami. The aim
of this mission was to learn from the Japanese
Union workers volunteering in the immediate recovery experience.
aftermath of such terrible events have been an
important part of the overall response. RENGO’s Despite such promising examples, building trust
decentralized presence at the level of Japan’s 47 relationships between EBMOs and unions remains
prefectures ensures a very rapid mobilization of a major challenge in many places: interviews with
workers to help with flood control, debris removal representatives from workers’ organizations in
and organization of shelters. The association’s some countries have shown how the absence
sophisticated disaster information sharing and of workers who were mobilized for emergency
emergency information conveyance systems are disaster relief was at times taken by employers
key logistical supports. The subsequent recovery as a reason for laying them off afterwards.
period involves both short-term job creation Government relations – which in crisis situations
go well beyond the Ministry of Labour – are an
additional challenge noted by many. But there are
valuable contributions and constructive stories to
be told: two of them come from the Bahamas and

16 For a detailed account of the initiative see: Recover Canterbury Management Team: A city rebuilds: The Recover Canterbury
story (Christchurch, Recover Canterbury, 2013).

22 Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Disaster settings

Sint Maarten in the Caribbean and another from As more than 80 per cent of the country’s GDP
Pakistan. currently depends on weather conditions (60 per
cent of GDP comes from the tourist industry, 10
Located at the confluence of the Caribbean per cent from agriculture and 10 per cent from
Sea, the Gulf of Mexico and the Atlantic Ocean, fishery),17 the Bahamas Chamber of Commerce
the Bahamas and Sint Maarten are part of a and Employers Confederation (BCCEC) is an
chain of scenic islands that are popular tourist active member of NEMA. In terms of prevention,
destinations. The islands are also situated along the BCCEC’s initiatives have focused on early
strategic shipping lines: freighters, oil tankers warning and readiness. For example, the BCCEC
and cruise liners navigate past sunny beaches conducted a training workshop in 2017 to enable
and luxury resorts. Yet each year the region is its members to develop business continuity
beset by natural disasters such as hurricanes, plans, and conduct risks and business impact
violent storms, flooding and landslides. In 2016- assessments of natural disasters. Additionally,
2017 alone, hurricane Matthew swept through employers, workers, and NEMA have organized
the Bahamas while hurricanes Maria and Irma (a and participated in workshops and conferences
Category V storm) hit the region, including Sint to facilitate cooperation and provide expertise in
Maarten, in quick succession, causing very severe the case of grave contingencies. Together with
damage: reconstruction was still on-going when the coordination and collaboration of NEMA and
the next hurricane struck. In 2019, the Bahamas workers’ organizations, this has allowed employers
witnessed the most powerful storm in history with and firms to generate the conditions for an
hurricane Dorian leaving catastrophic damages. adequate response to forthcoming disasters.
According to interviews conducted for this study, In particular, the various parties have sought to
climate change is, moreover, leading to rising sea implement “Business Continuity Plans”, specifically
levels, with devastating consequences for coastal in the shipping industry due to its importance for
communities and the livelihoods of local residents. the country’s economy.18

The Government of the Bahamas through the In Sint Maarten, recovery and reconstruction
Advisory Council of the National Emergency efforts following Hurricane Irma in 2017 have
Management Agency (NEMA) works to meet these involved various stakeholders, both national and
challenges. international.

X R205 underlines the importance X In preparing for and responding to crisis
to take into account the promotion situations, Members should strengthen
of full, productive, freely chosen cooperation and take appropriate
employment and decent work steps through bilateral or multilateral
which are vital to promoting peace, arrangements, including through the
preventing crises, enabling recovery United Nations system, international
and building resilience (para 7 (a)). financial institutions and other regional
or international mechanisms of
coordinated response. Members should
make full use of existing arrangements
and established institutions and
mechanisms and strengthen them,
as appropriate (R205, para 42).

17 World Bank, “World Economic Indicators”, https://databank.worldbank.org/source/world-development-indicators
[Accessed 20 June 2020].

18 I n early September 2019 Hurricane Dorian hit The Bahamas generating widespread damages in the economy of the
country. See Inter-American Development Bank (IDB). Assessment of the Effects and Impacts of Hurricane Dorian in
the Bahamas. http://idbdocs.iadb.org/wsdocs/getdocument.aspx?docnum=EZSHARE-1256154360-486 [Accessed 30 Jan.
2020]. Due to the timeframe of this research, it has not been possible to follow up and assess the developments on the
ground, especially the role of workers’ and employers’ in disaster management and recovery.

Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations 23
Disaster settings

The storm destroyed around 36 per cent of Besides affecting jobs and incomes, disasters
the Sint Maarten’s infrastructure, residential often cause existing social protection systems
and non-residential buildings, and equipment to break down. Specific response mechanisms
infrastructure and caused US$2.5 billion in need to be put in place in advance to alleviate the
economic losses, particularly in the tourism disproportionate impact on the poor and most
industry.19 In 2017, Sint Maarten’s GDP shrunk by vulnerable. In Pakistan, cash-based transactions
8.4 per cent.20 The Sint Maarten Hospitality & Trade using ATM cards were first tested following the
Association (SHTA), which became an employers’ 2005 earthquake in the country.
organization in 2010, has been collaborating with
national and international authorities as well as X In responding to crisis situations,
workers’ organizations in efforts to reconstruct Members should as quickly as
the infrastructure of Sint Maarten and to build possible seek to ensure income
resilience. For example, in the aftermath of security,… develop, restore and
Hurricane Irma, SHTA’s general managers enhance comprehensive social
discussed the impact of the storm and proposed security schemes and other
strategies to re-open business and reconstruct social protection mechanisms,…
the economy with the support of the ILO. SHTA and seek to ensure effective access
members further addressed the legislative to essential health care and other
requirements to assist employers understand basic services… (R205, para 21).
their rights and obligations during and after a
natural disaster. The SHTA has produced a manual Such rapid response mechanisms can provide a
on disaster management with the participation crucial safety net for households and affected
of 55 hotels, and has provided feedback in the communities when income flows have broken
design of the Sint Maarten National Recovery and down in the wake of a disaster. What is needed
Resilience Plan, which was established with the for such a response to be effective, however, is
financial and political support of the Netherlands a comprehensive database of affected workers
and the technical expertise of the World Bank.21 and their households – and it is here that workers’
In this context, the SHTA also launched the Sint organizations and EBMOs have much to offer. Given
Maarten Innovation, Initiatives and Industries the frequency of natural disasters in Pakistan,
Linkup Event (SMILE) in November 2018, aimed at members of the Pakistan Workers’ Federation
reducing the impact of hurricanes on companies (PWF) have been very active in this sector, being
and their employees. With the participation of the involved in damage assessments, survey work
Windward Islands Federation of Labour (WIFOL) to identify those most in need of immediate
and a particular focus on small and medium-sized assistance and the provision of basic food, water
enterprises, the annual event centres around and shelter. According to PWF representatives, the
workshops, training activities and networking scope of what unions have managed to achieve in
to increase the involvement of companies in this field is due in large part to their good relations
reconstruction efforts funded through World Bank with the Employers’ Federation of Pakistan and in
tenders. particular the Workers Employers Bilateral Council
of Pakistan, which has provided an essential
dialogue platform.

19 CEDIM Forensic Disaster Analysis Group (FDA): Hurricane Irma – Report No. 1, Focus on Caribbean up until 8th September 2017;
Economic Commission for Latin America and the Caribbean (ECLAC)-Caribbean Development and Cooperation Committee-
CDCC (2018). ‘Irma and Maria by Numbers’ FOCUS, March 2018, pp.1-16. See also: Sint Maarten National Recovery and
Resilience Plan: A Road Map to Building Back Better (World Bank, 2018).

20 Government of Sint Maarten, Department of Statistics, Press Release, 15 October 2018. Available at http://www.stat.gov.
sx/press_release/National_Accounts/GDP_2017_Estimate.pdf [Accessed 30 June 2019]

21 Other stakeholders include the Central Bank of Curacao and Sint Maarten, KPMG, the Netherlands and Sint Maarten Red
Cross, the United Nations Development Programme (UNDP) and the UN Children’s fund (UNICEF).

24 Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Disaster settings

Image of TU meeting Pakistan – close to “dialogue” © ILO/Crozet M.

It is worth mentioning the importance of fostering The goal has been to bring the private sector
collaboration with international stakeholders in and humanitarian actors together to improve
order to strengthen disaster management. In crisis preparedness. This approach is based on
Côte d’Ivoire, the CGECI launched a Humanitarian the insight that companies are in most cases the
Platform in 2017 in response to an increasing first actors to be present in a crisis region and
number of disasters, including floods and drought they provide humanitarian aid by supplying food,
periods that were adding to the political challenges drinking water and electricity to their employees.
discussed above. The Humanitarian Platform has been created with
the support of the United Nations Office for the
X R205 calls on Members to cooperate Coordination of Humanitarian Affairs and the
to promote development assistance Ivorian Red Cross to involve the private sector
and public and private sector more purposefully in humanitarian responses.
investment in crisis response for the One of the objectives of the platform has been
creation of decent and productive to develop a common workplan with the aim
jobs, business development and of integrating crisis prevention, management
self-employment (para 44). and reconstruction into the way companies
work (production cycles, business policies and
strategies, and so on). In this regard, the private
sector was involved in preparedness activities
for the Ebola virus outbreak that was raging in
neighbouring countries. Companies mobilized

Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations 25
Disaster settings

resources for prevention and were ready to take massive job losses in the short and medium term.
action in the event that Ebola hit Côte d’Ivoire. The Joint responsibility is needed for dialogue to foster
CGECI is also looking beyond its borders by using stability”.22
the network of employers’ organizations convened
– together with workers’ organizations – through At the regional level, the European social partners
the Conseil du Travail et du Dialogue Social (CTDS) – Business Europe, European Trade Union
of the West African Economic and Monetary Confederation, European Centre of Enterprises
Union (UEMOA) to share their experience of with Public Participation and SMEUnited – for
the Humanitarian Platform with other member example issued a joint statement in response
countries. to COVID-19 on 16 March 2020. Amongst other
areas, social partners encouraged “Member
Situations of crises extend to pandemics like States’ spending and investment particularly to
COVID-19, which is a new infectious disease caused reinforce staff, equipment and means for national
by the most recently discovered coronavirus in health services, social protection systems and
Wuhan, China in December 2019. COVID-19 has, other services of general interest”, called for the
in many parts of the world jeopardized the health mobilization of “unused structural funds and
and safety of people, and put immense pressure other EU funds to support Member States in
on businesses, jobs, and livelihoods. It has ensuring financial and income support for workers
created considerable uncertainties as countries affected by unemployment of suspension from
go into lockdown, close their borders, and take work, including non-standard workers and self-
decisions to only allow essential business to employed”, and underlined the need to ensure
operate. Businesses in certain sectors remain in “credit access and financial support for enterprises,
full operation with workers at the frontline while especially all types of SMEs, affected by lockdown
others are closed down temporarily and are, with and emergency measures, with a coordinated
their workers, in financial difficulties. Urgent intervention from the EU budget, the European
action and policy coherence are needed to ensure Central Bank, the European Investment Bank, and
business continuity, and to tackle the health and national promotional banks”.23
working conditions of workers and the difficult
reality they find themselves in. Attention is needed Many other efforts of bipartite social dialogue
for (1) workers that are at the frontline (such as and joint social partner responses in response to
health workers, cleaners, delivery personnel); (2) COVID-19 have been documented across the world
workers that are in businesses that are offering including in Belgium, Latvia, Morocco, Pakistan,
essential services (such as grocery shops and Spain, Sweden and Uganda re-confirming that
pharmacies); (3) workers that have no or little social partners have a key role to play in mitigating
protection in terms of labour rights and social risks and responding to situations of crises.
protection; (4) workers who lose their job more
generally.

Social partners globally, regionally and nationally
are coming together with joint responses with a
view to safeguarding sustainable enterprises,
employment and livelihoods based on strong
social dialogue. The International Organisation
of Employers and the International Trade Union
Confederation issued a joint statement on 23
March 2020 stressing in particular “in the strongest
terms the important role that social dialogue and
social partners play in the control of the virus
at the workplace and beyond, but also to avoid

22 S ee, Joint Statement on COVID-19 by International Organisation of Employers and International Trade Union Confederation,
available at https://www.ituc-csi.org/IMG/pdf/20200323_joint_ioe-ituc_statement_on_covid-19.pdf [accessed on 23 March
2020].

23 S ee, Joint Statement on COVID-19 emergency by European social partners, available at https://www.etuc.org/en/document/
european-social-partners-joint-statement-covid-19 [accessed on 23 March 2020].

26 Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Population displacement

04 Clerk stocking shelves at a Hero supermarket in Jakarta, Indonesia © ILO/Cassidy K.

Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations 27
Population displacement

Population displacement

A common feature of conflicts and disasters is In Chile, for example, it was the Multigremial de
the displacement of people who flee their homes la Salud (the association that gathers the various
and communities. Some are displaced within their unions in the health sector) that, together with
country’s territory – so-called internally displaced the Chilean Government, launched an initiative
persons (IDPs) – while others cross international to teach creole to medical practitioners and
borders. According to the International related staff following the death of a Haitian man
Organization for Migration’s World Migration in the emergency room due to his inability to
Report 2020, there are currently almost 272 million communicate with the hospital personnel. Haiti
international migrants globally (around 3.5 per cent continues to suffer from political instability, high
of the world’s population). The term “migration” levels of violence and serious natural disasters
encompasses a broader category of people such as the 2010 earthquake. As a result, millions
that goes beyond those considered refugees or of Haitians have sought to leave their home
otherwise forcibly displaced. Many people choose country over the past decade, with the growing
to move across international borders voluntarily. Haitian community in Chile numbering more
But beyond the prospects of higher wages and a than 105,000 people.24 Unions have been active
better life, a major factor driving these movements in seeking to integrate them into the job market,
is undoubtedly the threat or onset of conflicts and while also helping to ensure that they are provided
disasters. with basic public services.

Initiatives to deal with incoming populations, In Kenya, it has been notably the FKE that has
whatever their status, have been spearheaded by embarked on efforts to integrate incoming
unions in some cases, and by EBMOs in others. populations into the job market. Beyond the
political violence discussed above, the country has
X R205 emphasises the need to ensure also been dealing with climate-related challenges
respect for all human rights and that have given rise to droughts and floods, food
the rule of law, including respect shortages, cattle raiding and growing regional
for fundamental principles and disparities.25 Droughts and floods have a drastic
rights at work and for international impact on employers and workers due to increases
labour standards, in particular in the costs of living and production, the disruption
those rights and principles to work and the ensuing tensions between workers
relevant to employment and and employers with the potential to trigger ethnic
decent work (R205, preamble). disputes for scarce natural resources. The Internal
Displacement Monitoring Centre estimated the
number of IDPs in Kenya in 2018 at around 160,000
people, particularly due to these climate-related
phenomena and low-intensity but continuous
ethnic violence.26

24 J . Charles, “How Chile is coping with an influx of Haitian migrants”, in Miami Herald, 30 March 2018. Available at: https://
www.miamiherald.com/news/nation-world/world/americas/haiti/article201431154.html [accessed 10 Aug. 2019].

25 A . Linke et al.: “The consequences of relocating in response to drought: Human mobility and conflict in contemporary
Kenya”, in Environmental Research Letters, 2018, Vol. 13, No. 9, pp. 1-9; M. Kilavi et al.: “Extreme rainfall and flooding over
Central Kenya including Nairobi City during the long-rains season 2018: Causes, predictability, and potential for early
warning and actions”, in Atmosphere, 2018, Vol. 9. No. 12, pp. 1-30.

26 I nternal Displacement Monitoring Centre, “Country Information”, 2019. Available at: http://www.internal-displacement.
org/countries/kenya [accessed 2 July 2019].

28 Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Population displacement

Beyond IDPs, the United Nations High refugees currently live in Jordan, most of them
Commissioner for Refugees (UNHCR) estimates from Syria but also from Iraq and Yemen.29
that more than 450,000 refugees and asylum-
seekers currently live in Kenya, most of them One challenge facing the JCI has been the design
coming from Somalia, South Sudan and the and implementation of measures to incorporate
Democratic Republic of Congo.27 Again, the FKE refugees into the Jordanian job market without
has been active on this front, with its initiatives limiting opportunities for its own labour force in
focusing primarily on providing training and skills, the process.
not only to find employment for refugees in Kenya
but also to prepare them for their reintegration X R205 highlights that Members
into their countries of origin one day. As a member should consult and engage
of Business Africa, the FKE has identified migration employers’ and workers’
as one of the key components of its agenda for the organizations and other relevant
years ahead.28 stakeholders with respect
to the access of refugees to
X R205 calls on member States to labour markets (para 35).
support the livelihoods, training and
employment of internally displaced Refugees have been working in Jordan in both the
persons, with a view to promoting formal and informal labour markets.30 With the
their socio-economic and labour support of the ILO, collaborative projects involving
market integration (para 14 (a)). the JCI, the General Federation of Jordanian
Trade Unions (GFJTU), the Ministry of Labour and
Even when a country is not suffering from conflicts other state agencies, international donors and
and disasters on its own territory, EBMOs and NGOs have been implemented in the country to
workers’ organizations are often at the forefront regularize migrant workers and refugees while
of efforts to deal with the inflow of people trying promoting economic growth. In particular, the
to flee neighbouring states where such events JCI and the GFJTU have collaborated in the design
are occurring. Jordan is a case in point, with and roll-out of programmes to manage the Syrian
conflicts raging along its borders with Iraq, Syria refugee crisis. In 2016, the Jordanian Government
and the Occupied Palestinian Territory as well as committed to issue 200,000 work permits to Syrian
regionally in Lebanon and Yemen. The Jordanian refugees by 2021 through the Jordan Compact, a
Chamber of Industry (JCI) has been participating in multi-party international initiative.31 Joint JCI-
various projects to tackle the massive movements GFJTU projects have included coaching, training
of people, including IDPs, migrants and refugees and vocational courses in different sectors and
seeking to flee the dramatic consequences of the issuing of work permits with the aim of finding
turbulence and find new opportunities abroad. suitable and decent jobs for both Syrians and
According to the UNHCR, an estimated 680,000 Jordanians.

27 UNHCR, “Kenya Fact Sheet”, 2019. Available at: https://www.unhcr.org/ke/kenya-operation-monthly-factsheets [accessed
10 0/06/2019].

28 B usiness Africa, Business Africa Employers Confederation Annual Report 2018. Available at: https://www.businessafrica-emp.
org/annual-reports/ [accessed 10 July 2019].

29 U NHCR, “Jordan Fact Sheet”, May 2019. Available at: https://reliefweb.int/sites/reliefweb.int/files/resources/69826.pdf
[accessed 19 Nov. 2019].

30 U NHCR, “Jordan Fact Sheet”. The UNHCR keeps up-to-date information about the situation of Syrians refugees in Jordan
at https://data2.unhcr.org/en/situations/syria/location/36. See also: V. Barbelet, J. Hagen-Zanker and D. Mansour-Ille:
The Jordan Compact: Lessons learnt and implications for future refugee compacts, Briefing Papers – February 2018 (London,
ODI, 2018); Norwegian Refugee Council, Jordan Fact Sheet, September 2019. https://www.nrc.no/globalassets/pdf/
fact-sheets/2019/q3/factsheet_ jordan_sep2019.pdf [accessed 20 October 2019].For detailed information about the ILO
programmes in Jordan see: https://www.ilo.org/beirut/countries/jordan/lang--en/index.htm [accessed 20 June 2019].

31 G overnment of Jordan: The Jordan Compact: A New Holistic Approach between the Hashemite Kingdom of Jordan and the
International Community to deal with the Syrian Refugee Crisis, 2016. Available at: https://reliefweb.int/report/jordan/jordan-
compact-new-holistic-approach-between-hashemite-kingdom-jordan-and [accessed 10 May 2019]. For an analysis and
review of the evolution of the Jordan Compact see also: V. Barbelet, J. Hagen-Zanker and D. Mansour-Ille: The Jordan
Compact: Lessons learnt and implications for future refugee compacts, Briefing Papers – February 2018 (London, ODI, 2018);
International Rescue Committee, The Jordan Compact: Evidence Based Policy Review – April 2017. Available at: https://www.
rescue.org/report/jordan-compact-evidence-based-policy-review-april-2017 [accessed 10 May 2019].

Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations 29
Population displacement

Nepal © ILO/Crozet M.

Vocational training (for instance, in the carpentry its Partnership for improving prospects for host
business) and subsequent support to find jobs communities and forcibly displaced persons
have been at the core of the initiatives. These (PROSPECT) programme that deals with forced
programmes, which seek to promote social displacement in eight countries in the MENA region
cohesion and peaceful co-existence, have so far and the East/Horn of Africa. Commitment and
created more than 130,000 jobs in the agricultural, cooperation of social partners have been secured
manufacturing and infrastructure sectors.32 from the onset of the programme and they have
been consulted in the preliminary missions and
Finally, the ILO has been fostering more concrete involved in joint visits to camps, for example.
collaboration between employers and workers’
organizations through

32 I LO: ILO Response to the Syrian Refugee Crisis in Jordan: Programme of Support to the Jordan Compact. Progress Report 2018
(Geneva, ILO, 2019). See also: ILO programmes in Jordan at: https://www.ilo.org/beirut/countries/jordan/lang--en/index.
htm [accessed 20 June 2019).

30 Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Concluding reflections

05 Islamabad : Over 200 victims in the collapse of the Margalla Towers building
during the earthquake of 8th October 2005, Pakistan © ILO/Crozet M.

Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations 31
Concluding reflections

Concluding reflections

If effective bipartite action across EBMOs and Additionally, EBMOs may face difficulties with
workers’ organizations is already a challenge in retaining membership and representing business
the best of times, one might argue, conflicts and interest as the economic structure and the formal
disasters make that challenge greater. Being economy may be damaged. Enterprise activities
equipped with strong institutional capacities may also focus on quick gains rather than
and an enabling legal framework based on the longer-term investment leading to the erosion or
principles of freedom of association in such downscaling of the private sector and high levels
settings is thus a key tenet for using constructive of informal employment.
social dialogue and contributing to social cohesion.
Yet one could also argue that it is in such crisis For both EBMOs and workers’ organizations,
settings that the potential for actors in the world transnational cooperation is key, either through
of work to make a significant contribution is at learning from experiences in comparable settings
its highest. All have a vested interest in peace or by collaboration through regional forums. For
and stability. What is more, EBMOs and workers’ workers’ organizations, long-term collaborations
organizations have a huge mobilization potential include the well-established Baltic Sea Trade Union
through their members: either to lobby for Network involving 22 organizations with over 20
legislative and constitutional changes in favour million members, and the Organization of African
of business continuity and the workforce, or to Trade Union Unity, 73 affiliates in 53 countries
act swiftly and effectively when humanitarian with a combined membership of over 25 million
assistance and reconstruction efforts are required. workers. For EMBOs, comparable forums include
the network of employer organizations of UEMOA.
One theme that stands out in the preceding
analysis is that workers’ organizations tend to be Another commonality of the cases discussed
far more fragmented than EBMOs, and in times of above is the spontaneous action taken by EBMOs
war are often split along conflict lines. Promoting and workers’ organizations and – the fact that
cooperation within workers’ organizations would they mobilized without waiting to be given a
therefore appear to be a vital precondition for formal mandate. This proactive way of intervening
sustaining peace. In disaster settings, a lack of may serve as an inspiration for organizations
coordination also stands in the way of a swift and around the world to think about the risk profile
effective response. of their country context and their potential role
in preventing, responding to or contributing to
A further theme related to the potential for recovery in the event of conflict or disaster. If such
workers’ organizations to mobilize is the fact that, reflections involve bipartite collaboration, the
in many conflict-affected “fragile” countries, unions results may be even stronger.
are limited to only a few sectors such as the civil
service and are absent in the sectors where most There are many opportunities for the world of work
of the peacebuilding is needed to dispel tensions to feature in efforts to act in the face of crises. Some
and promote inclusivity. If workers employed by of these, including the establishment of dialogue
foreign-owned companies, for example, or those platforms, strengthening economic relations and
in the small and medium-sized sector or informal promoting joint ventures have been touched upon
economy are not represented, large parts of by this report. But most importantly, perhaps, is
the population cannot be targeted for effective the continuity of the bipartite exchanges beyond
lobbying or mobilization. periods of crisis. Given the cyclical nature of many
conflicts and disasters, it is important to establish
Similarly, the capacity of EBMOs vary widely. and foster trust relationships in times of peace and
Some have experience and existing functions stability. Only then can mechanisms be put in place
or mandates to provide valued services needed that can prevent or at least weaken the effects of
by enterprises in disaster or conflict zones and crises when they do occur, and make sure that
partner with workers’ organizations as mediators social dialogue is at the heart of common efforts
in the peace process while others have limited to build peaceful and inclusive societies for current
capacity to undertake even basic services. and future generations.

32 Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
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