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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
Copyright © International Labour Organization 2020
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
Contents 3
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
Preface 5
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
Acronyms 7
Acronyms
ANTUF All Nepal Trade Union Federation
BCCEC Bahamas Chamber of Commerce and Employers Confederation
CECC Canterbury Employers’ Chamber of Commerce (New Zealand)
Confédération Générale des Entreprises de Côte d’Ivoire
CGECI
Commission Indépendante Permanente de Concertation (Côte d’Ivoire)
CIPC
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, PouteauManaging Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Introduction 9
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,
ILO Recommendation Employment and Decent
it explores initiatives and policies that seek
Work for Peace and Resilience, 2017 (No. 205)
to maintain an environment for continued
– hereafter R205 – offers a starting point. 3 It
employment, decent work, and commercial
provides ILO member States, EBMOs, and workers’
activity. It also looks at efforts to build resilience in
organizations with guiding principles and strategic
situations of conflict and/or major destruction by
approaches for engagement in conflict and
natural and human-made disasters. In particular,
disaster situations.4
the report examines how EBMOs and workers’
organizations have taken action and cooperated in
a variety of ways through social dialogue to prevent
crises, promote peace, and enable recovery. In
doing so, the study provides insights into the X Reference is made throughout
roles played by EBMOs and workers’ organizations this report to the text of R205.
in these contexts, and how such collaboration While R205 is addressed to
in crisis situations could be strengthened and member States, it was adopted by
replicated elsewhere.
tripartite constituents and calls for
The ILO was established in 1919, by the Treaty action from all to be implemented.
of Versailles that put an end to World War I, with
the aim of building an institution that could help
prevent social tensions from breaking into open
conflict. A hundred years on, the aspirations The Recommendation’s focus is broad, including
are still the same. Goal 16 of the United Nations the role of employment, income generation,
Agenda 2030 for Sustainable Development aims decent work, and the creation of sustainable
to “promote peaceful and inclusive societies for enterprises. Its objective is to strengthen social
sustainable development, provide access to justice dialogue, international cooperation and the role
for all and build effective, accountable and inclusive of EBMOs and workers’ organizations in reducing
institutions at all levels.”1 Moreover, the ILO the impacts of crisis arising from conflicts
Centenary Declaration on the Future of Work was and disasters. Finally, even if the ILO has the
adopted with the understanding that persistent mandate and the instruments to work on peace
poverty, inequalities and injustices, conflict, and resilience, both in fragile and post-conflict
disasters and other humanitarian emergencies situations, too often, full, productive and freely
constitute a threat to advances in economic and chosen employment and social dialogue are
social progress and to securing shared prosperity seen as a secondary consideration to the policy
and decent work for all. It further recognises that discussions on peacebuilding and recovery.
decent work is key to sustainable development,
addressing income inequality and ending poverty,
1 or a detailed commentary on each section of the Recommendation see: ILO-ACTRAV: Workers’ Guide to Employment and
F
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 S ee: 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
specific examples where EBMOs and workers’ X R205 calls on member States
organizations have taken proactive action to work
to ensure consultation and
together to respond to conflict and disaster crises.
This collaboration might focus on building peace,
encourage[s] active participation
on the prevention of conflicts and catastrophes of employers’ and workers’
or on being better prepared for the next crisis. It organizations in planning,
might also be about ensuring a quicker and more implementing and monitoring
effective response to an event, or a more coherent measures for recovery and resilience
recovery and reconstruction period. In all these
(para 8 (d)) and acknowledges
activities, EBMOs and workers’ organizations have
important roles to play, as will be illustrated in
the vital role of employers’
the following sections using a number of country and workers’ organizations
examples. in crisis responses (para 25).
5 S ee 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
Introduction 11
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
The report is divided into five sections, including
notes and interview data drawn from the authors’
this introduction. The second section will focus on
participation in a series of regional workshops and
conflict contexts and the third on disasters. The
training events convened by the ILO’s Bureau for
fourth section will then briefly discuss an issue
Workers’ Activities (ACTRAV) throughout 2018.
that is common to both conflicts and disasters:
This included insights from workers’ organizations
population displacement. A fifth and final section
based in Africa, Asia and Latin America. This
will present a few concluding reflections from the
report also briefly looks at early responses of
analysis.
social partners to the crisis situation arising12 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
Conflict, post-conflict, and fragile settings 13
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
Escalation
De-escalation
of violence
Conflict
Recovery Preparedness
Management
Settlement Societal
(or relapse) 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
mitigated in duration and intensity through
X One of the strategic approaches constructive dialogue between both social
partners.
noted by R205 is to promote
social dialogue and collective A second example is Kenya, another economic
bargaining (para 8 (i)). engine on the African continent that has
experienced significant political violence in
recent years, particularly during election periods.
The most serious episode was in 2007, when
The CIPC is a bipartite forum consisting of
supporters of the two main political candidates,
representatives of the workers’ and employers’
the incumbent President, Mwai Kibaki (Party
organizations created in 1995. Its first objective was
of National Unity-PNU) and the leader of the
to draft proposals and solutions regarding labour-
opposition, Raila Odinga (Orange Democratic
related issues between employees and employers,
Movement-ODM), violently clashed as a result of
to be submitted for government approval. When
alleged voting manipulation. The demonstrations
the chômage technique problem was brought
and manifestations soon evolved into widespread
before the CIPC during the 2002 crisis, employees
violence in a climate of ethnic tensions, human
and employers jointly came up with a mechanism
6 ’Zue, Felix (2006). ‘State – Business Relations and Economic Growth: Empirical Evidence from Côte d’Ivoire’, Revue Ivoirienne
N
des Sciences Économiques et de Gestion. 10, pp.72-90.Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Conflict, post-conflict, and fragile settings 15
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
tensions wherever possible and preventing a
further escalation of violence. X R205 recalls the importance of
good governance and combatting
corruption and clientelism (para 7(c)).
X In responding to crisis situations,
R205 insists on the creation
of an enabling environment In preparation for the 2013 presidential election,
the FKE supported public debates among the
for the establishment, restoration
candidates in the media ahead of the vote. It
or strengthening of employers’ and also conducted backchannel conversations with
workers’ organizations (para 24 (b)). politicians, prestigious leaders and the media to
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
for peacebuilding”. 8 These concepts within the X R205 states that Members should,
Manifesto illustrate the scope of the organization’s
in consultation with employers’
goals and the lasting impact the electoral violence
of 2007-2008 has had on the business community and workers’ organizations, review,
as a whole. establish, re-establish or reinforce
labour legislation (para 23 a).
The cases of Nepal and Sri Lanka, two countries
that have experienced long civil wars, are
examples of EBMOs and workers’ organizations
seeking to resolve differences and disputes within Nepalese EBMOs, in turn, were also keen to avert
their organisations and across conflict lines. In socio-economic stagnation at both the regional
Nepal, a major breakthrough was achieved when and national levels. The fragility of state institutions
the All Nepal Trade Union Federation (ANTUF) impedes business opportunities, and, hence, the
decided in 2019 to merge with the General creation of decent jobs that are key drivers for
Federation of Nepalese Trade Unions (GEFONT). peacebuilding and development.10 During the
The ANTUF was aligned with the Maoists who conflict, EBMOs tried to intervene and promote
had waged decades of armed conflict against the initiatives to lessen the effects of the protracted
Government. Despite an agreement among the crisis between the Nepalese Government and the
four major workers’ organizations in 2006 on the Maoist insurgents. For example, they held discreet
back of the Comprehensive Peace Agreement (CPA) negotiations with unions on key issues, including
signed between the Government and the Maoist agreement on a higher minimum wage in 2003.
insurgents in 2005, the post-insurgency period In 2005, a number of EBMOs, including the Nepal
was marked by violent rivalry among the unions. Chamber of Commerce and Industry and the Hotel
To some, including at the ILO, “it appeared that the Association of Nepal, created the National Business
conflict was moving from the political sphere to the Initiative for Peace with the aim of supporting
workplace”.9 Employers commonly had to deal with and encouraging peace and dialogue among the
multiple unions simultaneously and with disputes warring parties.
and strikes that were driven by inter-union rivalry. In order to thrive in any setting, businesses require
Poor industrial relations thus made for a very a stable environment and public institutions that
difficult business environment in which investment can deliver consistent policy and rules in order
dried up. It was only with the establishment of the to maintain investors’ interest, clients’ approval
Joint Trade Union Coordination Centre (JTUCC) in and workers’ confidence. In Sri Lanka, where the
2007 and the attendance of ANTUF at the 2007 Government had been fighting Tamil rebels in the
International Labour Conference, that a path northern and eastern regions of the country since
towards greater unity among Nepal’s major 1983, the business sector faced similar challenges
workers’ organizations eventually emerged. It to those experienced in Nepal due to the escalation
nonetheless took a further ten years until the of the conflict at the end of the 1990s and in the
Labour Act of 2017 was finally signed, not least early 2000s.11 After the bombing of Colombo’s
8 F ederation 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 or a detailed analysis of the Nepalese case see: ILO-ACT/EMP: The role of the social partners in the Nepal peace process
F
(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].
or a detailed guide on the role EBMOs can play in fragile settings in Asia see: ILO-ACT/EMP, Enterprise creation, employment
10 F
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 . Miriyagalla: Case Study, Business and peace in Sri Lanka: The roles of employer and business member organizations (Geneva,
D
Bureau for Employers’ Activities-International Labour Office, 2016).Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Conflict, post-conflict, and fragile settings 17
airport and the ensuing economic standstill in
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)). Nella Fernández talks to the miners at East Kalimatan, Indonesia © ILO/Cassidy K.
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
Disaster settings 19
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 nited Nations Office for Disaster Risk Reduction (UNDRR): The 2019 Global Assessment Report on Disaster Risk Reduction
U
(Geneva, UNDRR, 2019). Available at: https://gar.unisdr.org/report-2019 [accessed 19 Nov. 2019].
15 S ee 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
Emergency
Stabilization
Disaster
Recovery Preparedness
Management
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 bet ter prepared for storms,
earthquakes or flooding, for instance, the damage
caused can be minimized. Moreover, given the X R205 suggests, as one of the strategic
large numbers of union members, the potential
approaches to enable recovery and
for mobilizing workers to provide an immediate
response is equally as big. Two examples from New build resilience, developing the capacity
Zealand and Japan illustrate this. of governments, including regional and
local authorities, and of employers’ and
In the aftermath of the two major earthquakes
that struck New Zealand in September 2010 workers’ organizations (para 8 (k)).Managing Conflicts and Disasters: Exploring Collaboration between Employers’ and Workers’ Organizations
Disaster settings 21
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
While the above examples testify to the positive role
of the region running in the post-disaster period.
of both EBMOs and workers’ organizations, there
Participation in this initiative permitted the CECC
are few illustrations of significant collaboration
to develop lessons learned and best practices for
between these two groups in disaster settings.
facing future challenges, such as training in risk
And yet, social dialogue in the workplace is an
management, collaboration with state and private
essential tool, and there are obvious merits to their
agencies, constant communication with members
combined involvement in being better prepared
to facilitate policies and claims, and support to
for disasters and contributing to a timely response.
companies in developing crisis management
plans. By 2013, when the initiative ended, “Recover
Canterbury” had assisted 7,000 businesses,
disbursed US$5 billion in grants and helped to save X R205 insists that Members
more than 600 jobs.16 should strengthen international
Equally impressive, but from the perspective of cooperation, including through the
workers’ organizations, is the Japanese Trade Union voluntary and systematic exchange
Association (JTUC-RENGO) and its effective role in of information, knowledge, good
preparing for and responding to disaster events.
practices and technology for
Japan frequently suffers from heavy storms and
typhoons, and in 2011 had to deal with the very
promoting peace, preventing and
serious industrial accident at the Fukushima mitigating crises, enabling recovery
nuclear power plant that was caused by a massive and building resilience (para 47).
earthquake measuring 9.0 on the Richter scale.
Joint fact-finding missions could be an important
X R205 states that Members should, activity in this regard: One hundred days after
in consultation with employers’ Typhoon Haiyan struck the Philippines in 2013,
representatives of employers’ and workers’
and workers’ organizations, build organizations joined a high-level government
resilience through actions such delegation, convened by the ILO, to visit Japan’s
as risk management, including Iwate Prefecture, one of three prefectures severely
contingency planning, early warning, hit by the 2011 earthquake and tsunami. The aim
risk reduction and emergency of this mission was to learn from the Japanese
response preparedness (para 41 (b)). recovery experience.
Despite such promising examples, building trust
relationships between EBMOs and unions remains
Union workers volunteering in the immediate a major challenge in many places: interviews with
aftermath of such terrible events have been an representatives from workers’ organizations in
important part of the overall response. RENGO’s some countries have shown how the absence
decentralized presence at the level of Japan’s 47 of workers who were mobilized for emergency
prefectures ensures a very rapid mobilization of disaster relief was at times taken by employers
workers to help with flood control, debris removal as a reason for laying them off afterwards.
and organization of shelters. The association’s Government relations – which in crisis situations
sophisticated disaster information sharing and go well beyond the Ministry of Labour – are an
emergency information conveyance systems are additional challenge noted by many. But there are
key logistical supports. The subsequent recovery valuable contributions and constructive stories to
period involves both short-term job creation be told: two of them come from the Bahamas and
16 or a detailed account of the initiative see: Recover Canterbury Management Team: A city rebuilds: The Recover Canterbury
F
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 W orld 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
Disaster settings 23
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
workers’ organizations in efforts to reconstruct X In responding to crisis situations,
the infrastructure of Sint Maarten and to build Members should as quickly as
resilience. For example, in the aftermath of
possible seek to ensure income
Hurricane Irma, SHTA’s general managers
discussed the impact of the storm and proposed security,… develop, restore and
strategies to re-open business and reconstruct enhance comprehensive social
the economy with the support of the ILO. SHTA security schemes and other
members further addressed the legislative social protection mechanisms,…
requirements to assist employers understand and seek to ensure effective access
their rights and obligations during and after a
to essential health care and other
natural disaster. The SHTA has produced a manual
on disaster management with the participation basic services… (R205, para 21).
of 55 hotels, and has provided feedback in the
design of the Sint Maarten National Recovery and
Resilience Plan, which was established with the Such rapid response mechanisms can provide a
financial and political support of the Netherlands crucial safety net for households and affected
and the technical expertise of the World Bank.21 communities when income flows have broken
In this context, the SHTA also launched the Sint down in the wake of a disaster. What is needed
Maarten Innovation, Initiatives and Industries for such a response to be effective, however, is
Linkup Event (SMILE) in November 2018, aimed at a comprehensive database of affected workers
reducing the impact of hurricanes on companies and their households – and it is here that workers’
and their employees. With the participation of the organizations and EBMOs have much to offer. Given
Windward Islands Federation of Labour (WIFOL) the frequency of natural disasters in Pakistan,
and a particular focus on small and medium-sized members of the Pakistan Workers’ Federation
enterprises, the annual event centres around (PWF) have been very active in this sector, being
workshops, training activities and networking involved in damage assessments, survey work
to increase the involvement of companies in to identify those most in need of immediate
reconstruction efforts funded through World Bank assistance and the provision of basic food, water
tenders. and shelter. According to PWF representatives, the
scope of what unions have managed to achieve in
this field is due in large part to their good relations
with the Employers’ Federation of Pakistan and in
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 8 th 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 ther stakeholders include the Central Bank of Curacao and Sint Maarten, KPMG, the Netherlands and Sint Maarten Red
O
Cross, the United Nations Development Programme (UNDP) and the UN Children’s fund (UNICEF).You can also read
