Information Services of ILO Regional Office for Arab States

Mission Reports & Studies

ILO Multidisciplinary Mission to Iraq

28 April - 5 May 2000

CONTENTS

I. INTRODUCTION
I.1. Objective of the Mission
I.2. Programme of the Mission and Meetings held

II. RECENT TRENDS AND CHALLENGES
   II.1. Geography and Population
   II.2. Economics and Social Trends
           a. Employment Policies
           b. Unemployment
           c. Employment of Women
           d. Economic Development
           e. Economic Insecurity
           f.  Food Insecurity
           g. Health, Sanitation and Social Insecurity

III. UN PRESENCE IN IRAQ

IV. PROPOSED ILO PROGRAMMES
   IV.1. Promotion of Employment
           a. Rehabilitation of Target Groups
           b. Skills Development
   IV.2. Social Protection
           a. Occupational Safety and Health
           b. Social Security
   IV.3. Social Dialogue
           a. Labour Administration
           b. Employers' Organizations
           c. Workers' Organizations
   IV.4. Fundamental Principles and Rights at Work
           a. Child Labour
   IV.5. Gender, Employment Generation and Capacity Building
   IV.6. The International Training Center of the ILO in Turin

V. RECOMMENDATIONS

I. INTRODUCTION

I.1. Objective of the Mission

Upon the request of the Regional Director of the ILO Regional Office for Arab States (ROAS), a Multidisciplinary Mission was fielded to Iraq from 28 April to 4 May 2000. The seven-member Mission included six specialists from ROAS/Arab Multidisciplinary Advisory Team (ARMAT), and one specialist from ILO, Geneva; and was led by Mr. Nabil Watfa. It covered the following areas of expertise:

Occupational Safety and Health;

Vocational Rehabilitation;

Skills Development;

Labour Administration;

Child Labour and Information;

Gender Issues; and

Programming.

In preparation for the Mission, other areas were also identified in prior consultation with the Iraqi Ministry of Labour and Social Affairs (MoLSA) and the tripartite partners. These included the fields of income generation, cooperatives, the development of small and medium-sized establishments, social security as well as, employers' and workers' activities. However, given the difficulty of assembling such a large team at the same time, the Mission is expected to be followed by future individual missions. The involvement of technical units from Headquarters is essential.
The main objective of the Mission was the assessment of the needs of Iraq in the areas of ILO's competence in consultation with the social partners; and the development of a programme of action outlining the Office's potential role in the overall development of the country.
In specific, the objectives of the Mission included the following:

(a) Review of the short-term needs and actions required in areas of priorities as identified in consultation with the tripartite partners and the implementation of technical and advisory activities within the framework of ROAS' RBTC during the biennium 2000/01;
(b) Development of a longer term programme of work through the formulation of new technical co-operation projects in areas identified with the tripartite partners, taking into consideration the capacity and capabilities of the ILO in executing such a programme.

I.2. Programme of the Mission and meetings held

The Mission's programme was drafted in consultation with MoLSA. It included meetings with H.E. the Minister for Labour and Social Affairs, the Planning Commission, the Ministry of Health, the Central Statistical Organization, the Iraqi Industries Federation, the General Federation of the Iraqi Trade Unions and the General Federation for Iraqi Women. Meetings were also held with a number of UN agencies including United Nations Development Programme (UNDP), UN Office of the Humanitarian Co-ordinator in Iraq (UNOHCI), World Health organization (WHO) and the United Nations Children's Fund (UNICEF). Visits were also paid to several sites of the ILO Community Based Re- habilitation (CBR) project, and to vocational training centers and the street children center.
A special feature of the Mission was the organization of five round-table meetings in the areas of vocational rehabilitation, skills development, occupational safety and health, gender issues and child labour. The five events, which gathered an audience of close to 160 national counterparts and a number of UN officials, were inaugurated by an introductory session during which the Mission leader presented the ILO and its Strategic Objectives in the presence of H.E. the Minister, the President of GFITU, the UNDP Resident Representative and other dignitaries. The event was widely covered by satellite and national TVs, radio and the press.

II. RECENT TRENDS AND CHALLENGES

II.1. Geography and Population

Iraq borders the Arabian Gulf and Kuwait to the south, Saudi Arabia to the south and south west, Turkey to the north and Iran to the east. It has a total area of 437,072 sq. km. and consists of eighteen governorates ^*. According to a 1997 census, Iraq's population reached 22.4 million. Present estimates set the figure at 24 million. During the years 1980-90, the population growth rate averaged 3.6% annually. This rate dropped due to the severe economic conditions following the UN imposed sanctions in 1990. Migration from the rural areas to Baghdad and its surrounding governorates accounted for more than 31% of the population at the time of the 1997 census. This registered an urban population growth of 5.2% per year between 1960 and 1992.

II.2. Economic and Social Trends

a. Employment Policies
In pursuit of its socialist development plans, Iraq adopted a full employment policy since 1968. This meant that the public sector had to provide jobs for each and every individual regardless to market forces, priorities, or other criteria. The result was over employment in the public sector and a deprivation of the private sector from indigenous manpower including the skilled and young university graduates. Whilst this policy created a climate of economic imbalance including, among other symptoms, inflation tendencies and lower productivity; the national economy showed no signs of ill health since the nationalization of oil was accompanied by a rise in its world prices. Available reserves in gold and hard currencies have also contributed to sustain the strength of the Dinar. With a mounting income from oil revenues, the government managed to keep inflation under control to maintain stable price levels. However, the involvement in a long war with a strong neighbor such as Iran and the mounting military expenditure; economic growth slowed down. In 1987, Iraq launched its "economic revolution" by abandoning its full employment policies in the quest for socio-economic development. Private sectors flourished through wider access to available national skills. Although the trade balance showed a deficit up to 1989 due to the burdens of the war, it started to show recovery in 1990. By then, there was a high demand for migrant labour, especially in the construction sector. In the period leading to the Gulf war, Iraq employed more than 4 million migrant workers, with close to 75% from Egypt and Sudan. The official figures of the financial remittances by migrant labour to their families back home was set at one billion US Dollars per month.

b.   Unemployment
      In general terms, unemployment in Iraq became a dominant feature of the economy following the war in 1991. By 1992, 14% of the labour force were employed in agriculture, 19% in industry, and 67% in the service sector, according to UN estimates.
      Although unemployment data is not available, the rate is estimated to range between 50% and 60%. There are indications that the number of those out of work increased dramatically since 1990. Close to 70% of the highly skilled and professional labour force turned into mediocre work in search for basic living. Although no data exists on the size and conditions of employment in the informal sector, it is estimated that employment in this sector has substantially increased. Harsh living conditions were also responsible for the return of the retired into the labour market to make up for social benefits which disappeared after the war. The pre-occupation of the skilled parents in minor and marginalized work changed the perception of school children towards the university education which their unemployed parents had earned, encouraging them to drop out from school, and to infiltrate the labour market. This in turn led to the problem of child labour.

c. Employment of Women
Prior to 1991, women constituted 23% of the work force, which is high compared to neighboring countries in the Arab Region and reflects a positive environment for women workers. A majority of these women workers were middle level professionals mainly in the public sector. It is expected that this rate is an under-estimation of women's actual economic contribution in the informal economy, especially in the agricultural sector. The economic sanctions have influenced women's economic contribution in several ways. On the one hand their share in public sector employment increased. For example, at the time of the Mission women workers accounted for 75% of MoLSA's work force. The reason behind this is that there was a male drop-out from public sector employment for better opportunities in the private or informal sectors, since average wages are between $5-7 per month. This was not the case for women who preferred the relative economic security of the public sector. On the other hand, home based income generating activities for women increased tremendously for other groups of women as a result of the deteriorating standards of living in general.

d. Economic Development
As the 1991 war erupted, economic activities were paralyzed for a period of six months. This was due to the severe damage caused to the country's infrastructure including services such as electric power, sewage system, telecommunication and close to 80% of the countries industrial enterprises. According to the UNDP Human Development Report (1995), the GDP fell from 13,863 million Dinars in 1990 to 3,548 million in 1991 (74.4%). The 85% decline in oil production following the sanctions was the major contributing factor for this fall. At the end of this decade, the 1999 UNDP Human Development Report ranked Iraq at 125 out of 174 on the Human Development Index compared to a rank of 91st out of 160 countries at the end of the decade in 1991. Under the Oil-for-Food Programme, estimates put the GDP levels at 25% in 1997 and 17% in 1998. Economic development stands now at a virtual halt. The UN economic sanctions which were imposed on Iraq continue to exert direct and indirect effects on the economic, health, social and cultural aspects of the country, as outlined in different sections of this report.

e. Economic Insecurity
Neither the rise in world oil prices to a record high level, nor the increase in the ceiling of oil sales under Phase VI of the Oil-for-Food Programme provided a remedy to the present income per capita of USD500 (compared to USD3,500 ten years ago). Hyper inflation, unemployment, and a decline in the Dinar's value by more than six thousand folds following the 1991 sanctions have pre-occupied the Iraqi people with the mere struggle to search for basic daily needs. The USD145 billion debt which Iraq faced after its 1980-88 war with Iran, and the mounting cost resulting from the 1991 UN imposed sanctions, are more than the country's USD15 billion in annual oil production can pay back in twenty years following the lifting of sanctions. Therefore, development plans based on post sanction scenarios are an exercise in futility.

f. Food Insecurity
The worst drought which hit Iraq this century and the ensuing record low water levels of the Tigris and Euphrates rivers, coupled with the lack of agricultural machinery, added more insult to injury to food production. The Food and Agricultural Organization (FAO) estimates decreases of 68% and 67% for wheat and barley production compared to the 1998 levels in some parts of Iraq. Chickpeas and lentils productions have also dropped by 48% and 64% respectively. The World Food Programme (WFP) had distributed 534,385 million tons of food, an increase of 37% over the same period two years ago.

g. Health, Sanitation and Social Insecurity
According to UNICEF, infant mortality has more than doubled in Iraq over the last ten years of UN imposed sanctions. Past health problem such as diarrhea, malnutrition, diphtheria and cholera are reappearing. Hospital care reached appalling levels. The quality of drinking water has reached threatening proportions. The social services in a country which once enjoyed an enviable welfare system have collapsed. The size of the reporting on the above subjects could be voluminous, but that is not the main theme of this report.

III. UN PRESENCE IN IRAQ

The UN Security Council Resolution (SCR) 986 (1995) aims at addressing the provision of basic cillilian needs such as food, medicine, health, water sanitation, electricity, agriculture, education, resettlement, mine-related activities, oil production and communication. To implement SCR 986, the Government of Iraq concluded a Memorandum of Understanding (MoU) with the UN, stipulating that the Government prepare a distribution plan for the use of the oil sales allowed for under the SCR to provide for the essential civilian needs referred to above. The oil sales allowed for under SCR 986 amounted to US$2 billion every six months, and later on enhanced to US$ 5.2 billion. A number of UN agencies have established and expanded their operations in Iraq in order to participate in the implementation of the Oil-for-Food Programme which was based on SCR 986. Coordinated by the UN Office of the Humanitarian Coordinator in Iraq (UNOHCI), six-month distribution plans have so far been implemented by the Government. The UN agencies and programmes involved are the Food and Agriculture Organization (FAO), HABITAT, UNDP/United Nations Department of Economic and Social Affairs (UNDESA), UNESCO, UNICEF, United Nations Office for Project Services-Iraq (UNOPS), World Food Programme (WFP) and WHO. Following the withdrawal of the Iraqi administration from the governorates of Erbil, Dohuk and Suleimaniyah, UNDP/DESA executed the programme on behalf of the Government. The presence in Iraq, of an organization which was established to promote social justice in the wake of war and social chaos, can not be more pertinent.

IV. PROPOSED ILO PROGRAMMES

Within the framework of assisting the Iraqi people in the quest for social and economic development, the Mission, in consultation with the Iraqi Ministry of Labour and Social Affairs, and the employers' and workers' organizations; has developed a number of recommendations that include a set of prescribed actions, and a number of project proposals.

IV.1. Promotion of Employment

One of the pre-occupying problems facing the Iraqi crippled economy is the need for the creation of remunerative and decent employment opportunities. Job opportunities simply do not exist. The level of skills is extremely low and education and training have been severely curtailed, a situation which contributed to an unemployment rate which is estimated to range between 50% and 60% (para. II.2 (b)). Consequently, the employment sector has experienced a shift from relative affluence to the borderline of minimum acceptable livelihood.

a. Rehabilitation of Target Groups

Present System of Vocational Rehabilitation
      The magnitude of the disability problems in Iraq has to be seen within the context of the socio-economic, health and educational environments which have been devastated by the wars and economic sanctions referred to in previous sections of this Report. In such an environment, the disability prevalence rate is expected to be far more than the internationally accepted prevalence rates of 10%. Based on this conservative rate, the number of disabled persons in the age group 14-45 years old in Iraq, will be estimated as 500,000.
      MoLSA is entrusted with the responsibility of rehabilitation services in accordance with Social Welfare Law (No. 126) of 1980 and Public Law (No. 29) of 1987. The Ministry provides special education and rehabilitation service through 49 centers, 12 cooperatives, all of which were established before 1990; and eight vocational training units. Iraq's rehabilitation services have come to a stand still since 1990.
      At present, there are five vocational rehabilitation centers providing training for more than 400 trainees, and 12 cooperatives providing sheltered employment for an equal number of disabled persons. The vocational training centers provide training in skills such as carpentry, electrical work and welding. The premises of these centers are old and in need of maintenance. Most of the equipment used for training is out- dated and needs replacement. Transportation services are irregular due to the frequent breakdown of old buses. These constraints hinder the rehabilitation process seriously. In fact without the little support which has been provided to these centers through the ILO/UNDP project on Community Based Rehabilitation (CBR), the centers would have been closed.
      In summary, the present vocational rehabilitation services are faced with numerous problems including poor infrastructure, limited number of facilities and severe shortages of raw materials and training equipment. Problems also include the absence of the prospect of job opportunities, which has been further compounded by the high unemployment rate of 50% to 60%. In addition, the growing numbers of the disabled and the scarce financial resources, along with demoralized staff of rehabilitation centers have also contributed to the crisis.

Previous Assistance
The ILO/UNDP project referred to above became operational in 1995. It aimed at introducing a CBR strategy to enhance vocational training and employment opportunities for people with disabilities. The main emphasis was put on providing small loans for income generation activities. The project succeeded in training more than 30 community workers and provided finance for 120 income generating projects. In addition, it helped exiting vocational centers through the provision of equipment, raw material and revision of training curricula. Based on the achievement of the project and the request of the Ministry, the UNDP agreed to its extension until the end of 2000 with the necessary additional funding.

Proposed Action
In order to improve the quality of existing rehabilitation services, and to enhance Iraq's capacities in this field, the following measures should be considered:

Development of a national scheme for Comprehensive Community Based Rehabilitation (CBR). In the meantime, this CBR scheme should not replace the existing vocational centers, but could provide a gradual transfer aiming at total social and economic integration of disabled persons into their local communities. This requires enabling projects specifically designed to achieve this objective.

Improving the existing vocational rehabilitation facilities by the creation of a vocational rehabilitation unit at MoLSA; the inclusion of training on new occupations following an assessment of the market demands; the provision of in-service training to enhance the professional skills of the staff of existing centers; introduction of academic and social components into the training curricula; appointment of an employment officer for each center; and the application of modular training.

Upgrading of the programmes which are designed for special education graduates. In this regard, UNESCO's technical assistance could be sought.

Three project ideas have been developed to respond to present needs and to post sanctions scenarios.

b. Employment and Income Generation through Skills Development.

Analysis of the Situation
      Economic growth, employment intensity of growth and the rate of growth of the labour force are important remedies for the promotion of employment including self-employment. More important is the quality of the work force in terms of knowledge base and skills. Hence, investment geared towards Vocational Education and Training (VET), and other policies for the development of human resources, will eventually improve the employment prospects and income generating activities of the labour force and contribute to better livelihood. More specifically, a number of aggravating factors stand out as barriers in boosting skills development.
      First, the Vocational Education and Training sector has almost come to a standstill due to the fact that demand for skills development has become second priority for survival, especially since there are no jobs available in the formal sector of the economy. Secondly, existing vocational training centers operated under the MoLSA have been severely hit by the economic sanctions, and the ensuing financial constraints set by the government, including the lack of maintenance of the outdated training equipment and the use of outdated training curricula. Thirdly, the teaching and training staff need to have their pedagogical, methodological and technical competencies upgraded.
      The activities of the UN agencies which aim at sustaining livelihoods in Iraq do not pay special recognition to the merits of employable skills in enhancing income generating activities. This should be taken into account in developing a National Vocational Education and Training System. Training for employment should also be integrated into a labour market policy. The linkage between training as a tool, and employment generation should be emphasized. The integration of equality between men and women in training and employment could also receive better recognition. Moreover there is a pressing need to reform and develop the vocational training delivery system to train and retrain the unemployed, youth and adults.
      Accordingly, a comprehensive long-term strategy for the development of the VET system in Iraq needs to be designed and implemented, in order to serve as the basis to achieve the following objectives:

Enhancing the relevance of training;

Improving the cost-effectiveness of training;

Increasing accessibility and the quality of training;

Ensuring the financial sustainability of the VET system.

The Mission agrees that the focus of ILO assistance in supporting the skills development strategy of the MoLSA should be on developing the employability, self-employment and income generating activities of the unemployed youth, adults and most vulnerable groups, especially women. This will be achieved through increasing the access to training opportunities, enhancing the quality of training programmes and the development of a flexible employment job oriented training delivery system. A technical support strategy should aim at:

Establishing a national capacity for competency-based modular training design and delivery;

Strengthening the existing vocational training capacity through the development of three vocational training centers;

Strengthening the Training of Trainers Programme.

The programmes and projects will focus on institutional capacity building at national and regional levels, and skills training at the local level. Particular attention will be given to strengthening existing vocational training centers to ensure that training is flexible, competency-based, job oriented and demand driven.
The above strategy is essentially a consistent and fully integrated approach with the other project ideas identified by the multidisciplinary members of the Mission.

Proposed Action
Based on the above analysis, a Vocational Education and Training system needs to be developed in Iraq based on effective implementation of identified reforms and on enhanced institutional development. Competency-based Training (CBT) using market-like mechanisms to increase efficiency with less government involvement should also be developed. The funding and implementation of the programmes and projects referred to above should be pursued.

IV.2. Social Protection

a. Occupational Safety and Health

Analysis of the Situation
Occupational safety and health in Iraq is a responsibility which is shared by both the MoLSA and the Ministry of Health (MOH). Whilst MoLSA is entrusted with the enforcement of the Labour Code (No. 71) of 1987 including the chapter on the safety and health regulations (No. 22) for 1987; MOH's role is technical and advisory in nature, a task which it accords to its National Center for Occupational Health and Safety.
The Center referred to above was created in 1980 following the recommendation of an ILO advisory mission in 1978. After its establishment, the Center became one of the more advanced in the region. Under the present sanctions, the capabilities of close to twenty five highly qualified professionals are being restricted due to the lack of training and to the acute shortage of equipment and supplies. Its efforts in establishing sound safety and health systems at the enterprise levels have faded out because the present situation necessitated the re-setting of priorities. However, MoLSA remains committed to the promotion of safety and health since the unemployment situation is compelling people to engage in occupations which are previously not known to them, and discouraging at the same time enterprises from investments in occupational safety and health. The increasing dependence on agriculture has also led to the exposure of more people to agrochemical, mechanical and biological hazards. The collection, compilation and analysis of statistics on occupational safety and health accidents and diseases have also suffered under the prevailing situation. However, whilst twelve, thirty and seven occupational injuries in the Baghdad area were reported by the Labour Inspection Division of MoLSA for the years 1998, 1999 and 2000 respectively; the figures are certainly gross underestimates based on unofficial reporting and notification. This is particularly true considering the presence of sixteen inspectors who operate in Baghdad, and thirty two who operate in the remaining governorates.

Proposed Action and Expected Results
      In order to remedy the situation of occupational safety and health in Iraq, the Mission proposes the development of a technical co-operation project. The project will aim at revamping the occupational safety and health capabilities at both MoLSA and MOH with special attention to the Center for Occupational Health and Safety. This will constitute part of a plan of action aimed at upgrading the capabilities of close to fifty inspectors who work at MoLSA.
      The plan of action should result in the development and implementation of a sound safety and health policy which fosters tripartism and is guided by recognized international standards. Such a policy should in principle be comprehensive enough to involve coordination between all related Ministries and other Government agencies.
      In addition, an improved system of data collection and analysis will draw trends which are valuable in the efforts aimed at reducing the rates of occupational accidents and diseases. Technical cooperation between neighboring countries and collaboration with UN and other international bodies should also be achieved and sustained.
      ILO's response to the Iraqi request for urgent assistance in safety and health will continue within the framework of the implementation of a technical cooperation project in this field. ROAS' Arab Multidisciplinary Advisory Team intervention should increase with support from the ILO Labour Protection Department IFP on SafeWork.

b. Social Security
The social and welfare status which Iraq enjoyed prior to the UN imposed sanctions was one of the most advanced in the region. The present social security system needs revamping due to the negative impact of the prevailing conditions. However, pending a more detailed analysis by an ILO mission to Iraq in this field, a study on the system should be considered. Such a study should aim at the weaknesses of social security in Iraq, and its finance situation. The extension of social protection to workers in small enterprises and those in the informal sector should also be looked into.

IV.3. Social Dialogue

Despite the prevailing hardship, tripartism remains deep-rooted in Iraq. Both the employers' and workers' organizations stand out as strong partners, which is a guarantee for the implementation of national action plans. Particularly important is the high hope each of the social partners places on the ILO and its role in promoting social justice.

a. Labour Administration
Based on the discussions held with senior officials, a project document concerning the rehabilitation and enhancement of the institutional capacity of MoLSA has been developed. In the meantime, the following activities are strongly proposed to be implemented during the current Biennium:

Survey on the employment and working conditions in the informal sector. The study will focus on the analysis of the phenomena, challenges and policy issues.

Survey on manpower and structural changes in the labour market. Due to the lack of information on manpower and employment, this survey constitutes a priority and will provide the planners with appropriate indicators for the formulation of the employment strategy. This survey could be implemented in partnership with UNDP/Baghdad.

A tripartite workshop to be organized on the implementation of the new law on labour relations and collective bargaining: training activities, capacity building and methodology and approaches of implementation.

A workshop to be organized on the implementation of the law related to the organization of private industrial services and policy for the development of this sector.

Diagnosis of the labour administration system: current situation and proposals for the enhancement of the human resources and institutional capacity of the Ministry. (This activity will be implemented within RAPLA programme on September 2000).

b.   Employers' Organizations
      The Iraqi Federation of Industries (IFI) became independent after its split from the Federation of Chamber of Commerce and Industry in 1987. Based on available statistics, there are around 24000 small industrial enterprises which are registered with IFI. It is estimated that 80% of these have collapsed following the UN imposed sanctions. The rest of these establishments operate at lower capacities.
      Except for the invitations to participate in employers' activities in the region; ILO's assistance to IFI has been almost absent since 1991. The preliminary findings of the Mission indicate that there is a need to undertake a general survey to assess the situation of industries on sectoral bases. More details could be elaborated upon following a mission by the Specialist on Employers' Activities.

c. Workers' Organizations
Established in 1928, the General Federation of Iraqi Trade Unions (GFITU) has had a long history in support of tripartism, and a crucial role in promoting industrial relations. It boasted one of the more advanced Workers' Education Institute in the region until 1991 when the UN sanctions were imposed. At present it requests assistance in a number of areas including the following:

Survey of the present workforce in Iraq;

Strengthening the Workers' Education Institute;

Support to the library and the workers' cultural centers;

Attention to the problem of working children;

Provision of training for women workers in home-based income generating skills.

A more comprehensive account of the status of GFITU and its needs will be presented following the mission of the Specialist on Workers' Activities to Iraq.

IV.4. Fundamental Principles and Rights at Work

An ILO member State since 1932, Iraq has so far ratified 64 Conventions. Included in this number are six of the seven Core Conventions. Efforts to ratify the Convention concerning the Worst Forms of Child Labour (No.182), 1999, are underway. However, the monitoring of application of ratified Conventions is no more one of the Government's priorities given the impact of the UN imposed sanctions on the basic livelihood of the Iraqi people.

a. Child Labour

The extent of the problem
      As the economic situation deteriorated since early 1990, children who were considered to be the most favored group in the post 1968 revolution period, were the hardest hit by the sanctions. This is evident by most indicators such as infant mortality rates, school dropouts and the large number of working and street children. Infant mortality rate which was 61.7 per 1000 live births in 1990, rose to 111 per 1000 in 1994. According to the UNDP Human Development Report of 1995, it would take 70 years to achieve the target rate of 70 per 1000. The education sector was equally hit by the economic sanctions and the 1991 war which resulted in the destruction of 4157 elementary and secondary schools, eight universities, fourteen technical institutes and twenty public libraries and theatres. Though reconstruction by the Iraqis started quiet early after the cessation of the war in 1991, much of the material needed is not available due to the sanctions. Iraq, prior to the sanction, had made a sizeable investment in the education sector, according to data available by both UNICEF and UNESCO. Elementary education had been and continues to be free and compulsory in Iraq.
      The sanctions also contributed to the decline in the standards of education since up-to-date scientific books are not available, and those involved in the education process are isolated from any developments that took place during the past ten years in their fields of study or interest. School enrollment rates witnessed a sharp decline and the number of dropouts increased specially among girl students. The dropout rate reached 3% for elementary schools and 6.8% for secondary schools during 1994-95. This was caused by many factors including the increased inflation rates, decrease in living standards, the rise in transportation costs and unavailability of schooling facilities. This education situation combined with the social and economic conditions explained earlier have led to a large percentage of children who are entering the labour market in an attempt to supplement the earnings of their parents. The low perception of school children towards higher education referred to under 2.2 (b) above, has further encouraged them to seek employment in hazardous occupations for daily shifts as long as 12 to 13 hours. Except for traditional family farming, child labour is less common in rural areas where agricultural produce provided a relatively more decent income.
      Though there are neither studies nor statistics on the number, concentration or the situation of working children; an increase in the number of working and street children and juvenile delinquency cases has been reported. The figures collected from juvenile court cases show that the number increased from 2600 in 1991 to 4420 in 1996. The collapse of the socio-cultural fabric of the society, due to the economic situation and the sanctions, has also led to an increase in the number of female headed households and working and street children.

Past Experience
Past experience in combating child labour in Iraq does not exist. At present, the only viable efforts are those of MoLSA's "Al-Rahma" Center for street children, a programme launched jointly with UNICEF nine months ago. Like similar centers in other Arab countries, the "Al-Rahma" takes care only of children with court sentences. The Center also lacks teaching, training and recreational facilities.

Proposed Strategy
      To combat child labour in Iraq, ILO as well as other UN agencies need to combine efforts in addressing major economic and social predicaments which face the Iraqis. The needs of the social partners should also be addressed and their motivation and awareness raised. Based on IPEC's philosophy, the strategy should engage MoLSA as its main counterpart in order to ensure its commitments. Employers' and workers' organizations should also be involved.
      An important element of any IPEC intervention should concentrate on the improvement of the conditions of working children by providing them with non-formal education, and if possible mainstream them into formal education. This should coincide with the provision of health care, counseling and the provision of some sort of recreational activities. Initially, children in hazardous conditions would be the main targets for the IPEC action programme. Families of working children will be the indirect beneficiaries. This programme should include the mobilization of the media and other concerned groups such as teachers, social workers, researchers and artists in order to participate in a campaign that will be launched jointly by IPEC and the social partners.
      The round table discussions which were held on child labour during the Mission were attended by a large number of representatives of the social partners who stressed a number of recommendations including:

A rapid assessment study on child labour in Iraq with the objective of defining the scope of the problem and the age groups involved as well as the conditions of work;

Provision of assistance to the social partners especially the Council of Child Care;

Capacity building of the staff involved in combating child labour at MoLSA and other social partners;

An immediate visit by IPEC and ROAS to Iraq with the objective of compiling a thorough assessment of the child labour problem in the country;

Awareness raising among the general public concerning the phenomenon in Iraq;

Concerted joint action by IPEC, UNICEF and UNESCO.

A technical co-operation project, as well as a study are proposed for action.

IV.5. Gender, Employment Generation and Capacity Building

Context and Analysis of Problem
In the years preceding the 1991 United Nations imposed sanctions, Iraq had made headway in promoting gender equality. Women in public sector employment shared equal opportunity with men as stipulated by the Labour Code, and enjoyed to other benefits relating to maternity protection and social security. A commitment to promote gender equality is further demonstrated by Iraq's welfare state social programmes which identify women as main beneficiaries. The bridging of the gender gaps in primary and tertiary education, and the number of women who reached decision making positions in Government institutions are other areas of substantial achievements.
In fact, Iraq stands as one of the countries of the Arab region that have ratified the highest numbers of ILO Conventions relating to equality of opportunity and protection for women workers. Iraq is also one of the earliest Arab countries which had ratified the International Convention on the Elimination of Discrimination Against Women (CEDAW).

Impact of Sanctions on Women
According to several reports, the UN imposed economic sanctions on Iraq had adversely affected the accomplishments made in empowering women. The macro effect of Iraq's economic collapse meant a breakdown of Iraq's welfare state and were vulnerable groups, including women, were main beneficiaries. Iraq's decreasing institutional capacity in public administration and in the provision of social services and securities has also affected men and women in different ways. This is in addition to the effects at the micro level and the impoverishment of the Iraqi population in general. In this regard, it is important to address gender specific implications and vulnerabilities since women's economic contribution, resourcefulness and coping mechanisms, particularly in household management; are essential to the survival of poor families in times of crises. Another reason for looking at gender specific impact of the sanctions is that despite women's considerable roles in family welfare, women tend to be persistently more vulnerable in terms of poverty levels and access to viable income opportunities.

Main Problems to be Addressed
      Within the above mentioned conditions, several problems can be identified but three will be highlighted for the specific objective of this report. First, the international agenda on gender equality had witnessed great strides in the past decade. The Beijing Platform for Action, as an example, had provided a clear framework for the promotion of gender equality at the global level. The implementation and follow-up of the Action plan has brought about the institutionalisation and mainstreaming of gender concerns in many national contexts. Despite Iraq's commitment to the promotion of gender equality, its isolation and deteriorating institutional capacity caused it to lag behind in terms of these developments at the international arena. Therefore, the first problem to be addressed is Iraq's institutional capacity to address gender issues at the national level as well as its ability to follow-up and implement international Conventions and agendas. In short, Iraq lacks the capacity to implement Beijing's Action Plan, CEDAW and ILO standards related to gender equality. It also needs to strengthen the integration of gender concerns in national level policy, planning and programming.
      The second problem to be addressed is women's increasing burden of poverty. One of the most vulnerable groups identified are female-headed households. Indeed, evidence suggests that the number of women who head their households is substantial in Iraq as a result of two decades of war and economic sanctions which caused widowhood, male out- migration or abandonment. It is expected that these households tend to be poorer especially as social welfare programmes have declined. Efforts need to address the specific needs of this vulnerable group of women and improve their living standards which will in effect ensure the survival of their families.
      The third problem to be addressed is the available employment opportunities for young women graduates. The breakdown of the educational and training system as a result of the isolation and diminished financial capacity of training institutions, has caused the deskilling of the Iraqi population since new graduates, both men and women, lack modern employable skills. Indeed, the past achievements reached in bridging the gender gaps in the tertiary education is currently threatened as a result of the downfall of the system in general. It is important to redress this issue through providing young women graduates with technical modern skill training that will facilitate their entry into the labour market. The employability of young women graduates is of great importance since family safety nets are collapsing and age at marriage is increasing. This means that more and more women will need viable employment opportunities.

Proposed Strategy and Key Elements
In view of the situation described above, the proposed strategy for interventions is to adopt a two-pronged approach. The institutional framework at the national level should be strengthened in order to enable it to address gender issues in national policies and programmes in parallel to gender-specific interventions targeting specific groups of women for gainful employment opportunities and economic empowerment. The targeted interventions aim to address vulnerable groups of women, specifically their immediate needs and priorities. However, given Iraq's situation where many groups of women are in need of assistance, the selected groups of women are intended as models or pilot schemes, which could be replicated to other groups of women in the longer term. The proposed strategy includes the following areas for technical cooperation activities:

Strengthening the technical capacity of the National Committee for the strategy on the advancement of women;

Promoting Self Employment for Women Headed Households;

Fellowship Programme to Establish National Capacity for Competence-Based Modular Curricula Design and Delivery by Training Institution under the GFIW.

Expected Results
The proposed strategy is comprehensive. It addresses the multi-faceted and interlinked areas of macro level gender mainstreaming in policy, planning, and monitoring; hand in hand with the micro level interventions that aim to increase viable and sustainable employment opportunities for specific target groups. Since these interventions are coherently linked, it is feasible that the expected results will be the following:

strengthening of the institutional capacity for effective gender mainstreaming at the national development planning and programming levels;

improved institutional capacity to follow-up the implementation of the Beijing Platform of Action, CEDAW and ILO standards relating to gender equality;

increased employability of young women workers through market relevant and modern skill training;

economic empowerment of female headed households through the provision of the training and support for promoting self employment;

capacity building of MoLSA to address the interlinked areas of gender poverty and employment.

IV.6. The International Training Center of the ILO in Turin

Given the Iraqi constituents' appreciation and recognition of TURIN's Center, its role in implementing the training components of future activities is envisaged. The Center's involvement is expected in the following areas:

Rehabilitation of target groups;

Skills development;

Occupational safety and health;

Labour administration;

Employers' and workers' activities;

Child labour;

Capacity building and employment generation for women.

The Center's training inputs have been identified more specifically in the following proposed projects:

Strengthening the existing Train the Trainer Institute under MoLSA;

Rehabilitation and enhancement of the institutional capacity of MoLSA;

Development of occupational safety and health in Iraq;

Strengthening the national committee for the strategy on the advancement of women;

Promoting self-employment for women headed households;

Creation of national capacities for community development.

The scope and definition of these activities will be determined by the design of the various projects of which they will form an integral part. In addition to the above, the International Training Center will offer customized training activities to respond to the specific needs of the ILO social partners in Iraq.

V. RECOMMENDATIONS

Based on the above, and in the interest of a summary, the Mission proposes the following:

(a) Intensified Activities: Iraq's share in ARMAT's work plans for the 2000/01 Biennium to be intensified;
(b) Allocation of Special Fund: Special ILO funding of US$200,000 to be allocated for the current biennium in order to implement the programmes proposed; as well as the activities proposed under the different sections of the Report;
(c) Partnership with UNDP: Formalization of a "partnership" relationship to be considered with UNDP/Baghdad for the purpose of funding and implementing technical cooperation activities in Iraq;
(d) Fund Raising: Efforts to be intensified for securing the necessary funding for the ten projects;
(e) Fielding of ILO Specialists: ILO specialists to be fielded to Iraq in the areas of employment generation, co-operatives, development of small and medium-sized enterprises, informal sector, crisis response and reconstruction, social security as well as employers' and workers' activities. These areas have been identified as priorities based on discussion with counterparts. TURIN's involvement is also anticipated;
(f) ILO Presence in Iraq: ILO's visible presence in Iraq, in view of the pertinence of the Organization's mandate to the prevailing situation, to be considered.

^* Al Anbar, Al Basrah, Al Muthanna, Al Qadisiyah, An Najaf, Abril, As Sulaymaniyah, At Ta'mim, Babil, Bahgdad, Dahuk, Dhi Qar, Diyala, Karbala', Maysan, Ninawa, Salah ad Din, Wasit.

Updated by RR Approved by KM/MC Last update: 4 February 2003.