How to Work with Trade Unions?
Identifying potential effective partners
3.1 Any decision to work with trade unions will have to be taken in the local context - the role trade unions play in the local social, political and economic systems and institutions and the dynamics of pro-poor change.
Improving our own awareness of the role of local trade unions might include:
- mapping local labour organisations;
- producing a short guide to trade union contacts and competencies in country;
- mapping the ratification of ILO's core standards and local tripartite (labour, employers, government) structures;
- ensuring labour movements are considered in all our analytical and background studies and that we understand their links to other parts of civil and political society - eg political parties, faith groups
3.2 In the Summary, within the section on Identifying potential effective partners, a number of questions are suggested to help identify appropriate trade union partners. Some of these questions are discussed in more detail below.
Which trade unions should we be talking to?
3.3 Not all trade unions are free or democratic some are controlled by political parties, corporations or criminals. Government and/or employer interference in union matters is not uncommon. This curtailed freedom of association hinders the exercise of trade union functions. However, we should not necessarily dismiss entirely working via trade unions that are not fully free and democratic if closer collaboration could offer an opportunity to support change.
3.4 In some countries more than one national trade union federation exists. While dealing with the most representative or ‘official’ union is important, it may also be appropriate to reach out to other groups as well. There may be difficulties and tensions in working with non-official unions and, in some countries such as China, there may be some difficulties arising form working with the official trade union movement.
Advice on who to talk to can be provided by
Foreign
and Commonwealth Office and the
British TUC
What is the local political context?
3.5 In many countries direct action by workers has been a significant factor in claiming rights from employers but it has also been important in struggles for political change. The relationship between trade unions and the state is important factor in the union’s capacity to advocate and mobilise for poverty reduction. Governments set the legal framework in which trade unions are allowed to operate. Lack of legislation or limited legislation impedes the formation of independent trade unions. Some governments may prevent certain groups of workers from unionising (eg workers in export processing zones, public services or the armed forces). Labour laws may only apply to the formal economy, making it difficult to organise workers in the informal economy. Government also set the institutional framework for trade union participation in national policy debate such as PRP consultations.
How closely do trade union agendas overlap with DFID’s?
3.6 Trade Unions’ primary responsibility is to its membership rather than international development and poverty reduction. However in many countries trade unions may be important ‘drivers for change’. They can be legitimate and credible partners in development but, as democratic institutions, trade unions determine their own policies and priorities which may not always accord with those of DFID.
How representative of the poor?
3.7 The legitimacy of trade unions as civil society organisations derives from their being democratic, mass membership organisations, which give a voice to ordinary workers. However, unions in many countries have historically represented only a small proportion of the workforce, and this membership has tended to be male workers employed in the formal economy. The exclusion of most workers in the ‘informal economy’, who tend to be the very poorest workers of whom the majority are typically women, has been recognised as a key challenge for trade unions.
3.8 In responding to this challenge, trade unions point not only to developments taking place in organising the informal economy but also to the different role played by unions in the South in contrast to Northern labour institutions. In the absence of political parties representing labour, unions maybe perceived to be the ‘voice of workers’ at large, whether they are affiliated by membership or not. This role typically combines representation and campaigning and the provision of advice on workplace issues and labour rights.
3.9 Many developments have taken place in fostering protection and advocacy for the most vulnerable groups, not simply by means of established unions organising these workers, but by workers organising themselves. However, these developments have relied on the availability of extra capacity, for instance by working with international development agencies.
Are poor women workers represented?
3.10 Drawing its membership from the
formal male dominated sectors of the economy the trade union movement has a
traditional culture of male domination with few women in leadership roles.
However this is not universally the case and it is increasingly being challenged
from within the established labour movement (ITUC's
Decent
Work Decent Life for Women campaign)
and in developing countries by the development of a more ‘informal’ labour
movement growing out of women’s organisations and community associations.
How willing are trade unions to work with our existing partners?
3.11 Some unions remain highly sceptical about the intentions of the international financial institutions. In the past WB/IMF advocated adjustment programmes, which trade unions had little space to influence, and which severely impacted on union membership. They are wary of committing their limited resources to consultation processes which ultimately may have little impact on policy decisions.
3.12 Trade unions in many developing countries may have limited ties with other civil society organisations. Trade unionists see themselves as belonging to representative, democratic and accountable organisations and they do not necessarily attribute the same qualities to other organisations. It may be helpful in some instances to reach out to trade unions separately rather than subsuming them under the civil society banner.
Are their policies aligned with UK policy?
3.13 Historically, trade unions have come about because of the difference in interests between workers and employers. Weighing up and advocating economic and political interests is at the centre of union activity. However the trade union movement is based on principles of social justice and equity, not just self-interest. There are many instances where these principles have led them to act in the interest of a wider constituency than their own members. Nonetheless, trade unions are democratic institutions that determine their own policy. They may not necessarily support the implementation of economic reform even if they are the programmes of a democratically elected government. They may oppose changes in law or policy which DFID believes are pro-poor.
3.14 While sensitive to the local political context, such differences need not prevent DFID working with trade unions in areas where our policy objectives do overlap - for example combating HIV/AIDS through work-place based projects.
What capacity do they have to deliver?
3.15 Engaging with unions at national level can be helped by their structured nature. National union federations provide a first point of contact for country offices. The respective national unions can provide sector level information. Through regional and international bodies, local organisation are linked into global processes and their research and advocacy resources.
3.16 However, unions in most developing and transition countries have limited human and financial capacity. Their income is dependent on membership fees. Few are likely to have the resources to fund research and analysis necessary to formulate alternative development scenarios or monitor Government implementation of PRS. Similarly they are likely to have limited capacity to develop or support contacts with workers in the informal economy.
3.17 If trade unions are to be effective partners in eliminating poverty, resources will be necessary to help them extend their support to the very poorest and build their capacity to contribute to policy development process.
Identifying opportunities to strengthen poverty elimination outcome by supporting or influencing trade union policies and activities?
Bringing trade unions into the development debate
3.18 Since 2003 TUC has implemented two strategic agreements funded by DFID
aiming to build the build the capacity of UK affiliate unions to further
international development: the through raising their member's awareness,
building partnerships with unions in the South and engaging DFID on policy.
The
current Strategic Framework Partnership[ Arrangement runs until June 2009.
Since 2005 UK trade unions have met the Secretary of State three times a
year to discuss development policy. At country level we can:
- invite trade unions to relevant conference, seminars, receptions and other events;
- establish a regular (perhaps annual) meeting between DFID (perhaps jointly with other development agencies) and trade unions in each country of operation;
- provide trade unions with information about DFID policies and programmes;
- facilitate dialogue and collaboration with other civil society organisations;
- facilitating trade union participation in policy processes both at national PRS level and sector level.
Consultation with trade unions
3.19 We need to ensure that trade unions are consulted both as part of civil society and in area of their core activities:
- on the development of Regional and Country Assistance Plans and reviews;
- on how improvements in labour standards can help poverty reduction;
- when working on measures that will have social or labour market consequences;
- when working around the development of new employment;
- on specific issue/sectors e.g. consult and work with teaching trade unions when developing and implementing human development programmes;
- to seek union input on work on democracy and governance.
Collaboration
3.20 This might take a number of forms including education and advocacy campaigns that utilise trade union structures to help communicate on development education issues:
- work alongside trade unions, employers and the ILO when seeking to combat child labour and implement other core labour standards;
- work with trade unions on broad human rights questions;
- working on wider labour standards issues such as health and safety;
- work with trade unions on women's rights issues, through training, development of leaders;
- support trade union efforts on education of members and their families in core health areas, eg HIV/AIDS;
- support to innovative projects in support of informal economy workers;
- supporting collaborative initiatives with business and NGOs to develop corporate social responsibility, ethical trade and fair-trade.
Capacity building
3.21 Trade union human and financial resources are stretched. We need to be aware of the burden imposed on organisations by additional consultation or monitoring processes. We might also consider:
- staff development, for example in development education training;
- supporting trade union efforts to build capacity to contribute to PRSP and other policy processes;
- development of trade union capacity to bid for and manage civil society funding schemes.
Funding Mechanisms for working with Trade Unions
3.22 In the UK, some trade unions have successfully competed for funding from the Development Awareness Fund and the UK Trade Union Congress has a Strategic Grant Agreement to support development awareness amongst its affiliated unions.
3.23 UK based trade unions supporting project work with sister organisations in developing countries can compete for the Civil Society Challenge Fund.
3.24 At country or regional level a number of DFID offices are developing programmes to support civil society. We need to ensure that trade unions are aware of these facilities and able to compete for funding. Examples include:
- Uganda Civil Society Umbrella Programme;
- Southern Africa Civil Society Sector Programme;
- India Poorest Area Civil Society Programme;
- Tanzania Civil Society Programme.
What lessons have we learned so far?
3.25 Feedback from DFID experience so far is very limited. We would like to expand this section with your input.
- As membership based organisation trade unions are different from many non-governmental organisations. The DFID Uganda Civil Society Umbrella Programme is revising its selection criteria as they found that it had inadvertently discriminated against trade unions by marking down applications with an exclusive focus on benefits to their members. While this was appropriate for many of the NGOs it is not for membership organisations like trade unions.
- It may be necessary to reach out to unions separately rather than subsuming them under the civil society banner, with invitations made to the leadership (General Secretary or President). Trade unions are not necessarily part of the development networks of international organisations and civil society. Their links with government may be with ministries of labour rather than those for planning or finance.
