Pre-union organizing: From migrant women’s group to the Myanmar Domestic Workers Association
0-1 Original language
English
I-1 Name of the initiative
Pre-union organizing: From migrant women’s group to the Myanmar Domestic Workers Association
I-2 Geographical coverage
MMR
I-2-A Region/country
Myanmar
I-2-R Region
Asia and the Pacific
I-2-T Geographical scope
Country
I-3-A Initiative start date
2022
I-4 Leading entity/organization
Social and solidarity economy (SSE) entity
I-5 Collaborating entities/organizations
Employer and Business Membership Organization
I-5 Collaborating entities/organizations
Workers' organization
I-5 Collaborating entities/organizations
Civil society, including NGOs
I-6 Has the ILO been involved in the initiative?
Yes
I-7 Is there collaboration with other agencies of the United Nations System or other partners?
Yes
II-1 Justification of the initiative
Despite their critical role in sustaining families, societies, and economies, domestic workers remain largely undervalued, under protected, and underrepresented. Their exclusion from labour and social security laws is rooted in a lack of recognition of domestic work as work, and of domestic workers as care workers within care policies. One of the key factors behind this exclusion globally is the lack of access to freedom of association, namely their representation through trade unions. Establishing a trade union can be difficult in certain contexts. In these cases, pre-union organizing can be an important first step towards representation. In the case of Myanmar specifically, the principle of freedom of association has not been observed (see GB.349/INS/14), and registration as a union is not legally authorized . While awaiting the political window, strengthening and formation of organizations without legal recognition is the only option to build worker organizations.
II-10 Focus on other branches of economic activity
Human health and social work activities
II-11 Focus on certain categories of enterprises or economic units according to their size
Micro enterprises
II-11 Focus on certain categories of enterprises or economic units according to their size
Medium enterprises
II-11 Focus on certain categories of enterprises or economic units according to their size
Social enterprises
II-11 Focus on certain categories of enterprises or economic units according to their size
Other SSE entities (associations, mutual societies, foundations, self-help groups)
II-12 Focus on specific status in employment
Employees
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Domestic workers
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Workers in the informal economy
II-14 Focus on specific groups of population / persons prioritized in the initiative
Women
II-14 Focus on specific groups of population / persons prioritized in the initiative
Migrants or forcibly displaced persons
II-15 Has the initiative been developed through effective social dialogue processes and inter-institutional coordination mechanisms?
Other consultations
II-2 Objectives and description of the initiative
The goal of this initiative is to enhance the competence and confidence of Myanmar women domestic workers, wherever they are, enabling them to maintain their resilience, address their rights, adapt to diverse economic and social settings. Pre-union organizing to build strength before registering as a union is crucial in any setting, and in Myanmar, it importantly readies workers for formally unionizing when democracy returns in the future. In 2023, domestic workers in Myanmar established the country’s first domestic worker association. For several years prior, ILO’s TRIANGLE in ASEAN programme had been supporting Three Good Spoons (TGS), a non-profit social enterprise, in hosting a women’s group of domestic workers, many of whom are returnee and prospective migrants. The group met during extraordinarily difficult times post-coup in Myanmar, and with much conviction about the need for their movement and activism, formalized into a membership-based association: the Myanmar Domestic Workers Association (MDWA). The Association is composed of 350 dues-paying members and has an elected leadership. The Association focuses on skills training and capacity building for domestic workers, information and support on migration, and advocacy around social security. The ILO has also provided capacity building to the leaders of MDWA and Three Good Spoons and MDWA regarding safe migration, ILO Domestic Workers Convention, 2011 (No. 189) and other topics related to care work and domestic work. The ILO also includes them in regular ILO migration network meetings to exchange updated information and public campaigns on policy changes. Three Good Spoons is also now a member of the Association for Women’s Rights in Development (AWID).
II-3 Type of initiative
Training/capacity building
II-3 Type of initiative
Advocacy/campaign/awareness-raising
II-3 Type of initiative
Other (specify)
II-4 Which of the Rs in the 5R Framework for Decent Care Work guides this initiative?
Representation of care workers
II-5 Which is the main policy area of the 5R Framework for Decent Care Work does the practice focus on?
Labour Protection policies
II-6 Which other policy areas of the 5R Framework for Decent Care Work does the practice focus on?
Care policies
II-6 Which other policy areas of the 5R Framework for Decent Care Work does the practice focus on?
Skills policies
II-6 Which other policy areas of the 5R Framework for Decent Care Work does the practice focus on?
Social Protection policies
II-6 Which other policy areas of the 5R Framework for Decent Care Work does the practice focus on?
Migration policies
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Mainstream care into relevant public policies
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Promoting active labour market policies, education and training, upskilling and re-skilling, skills recognition and skills certification
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Addressing the undervaluation of care work by raising public awareness
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Preventing and addressing all forms of discrimination against care workers
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Ensuring effective access to labour protection and social security, including through labour inspection, for all care workers
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Promoting the voice and representation of, and consulting with, care worker organizations, organizations of employers of care workers and unpaid family carers
II-8 Which beneficiaries in the care economy does the practice focus on?
Paid care workers (nurses, domestic workers, teachers, childcare workers, personal assistants, etc.)
II-9 Geographical scope
Urban and rural
III-1 In a short paragraph, summarize the main results and impacts obtained
The newly born Association is empowering current members to recruit new members, sharing knowledge, and advocating for domestic workers’ rights at home and overseas. From 15 founding members of a women’s group, it actively expanded its membership through knowledge-sharing sessions and networking activities. Within the first year of ILO TRIANGLE in ASEAN’s support, the group grew to 50 members and established a network of Myanmar domestic workers, not only in Myanmar, but also migrants who are currently in Thailand, Singapore, Japan, Cambodia, Gulf Countries and Indonesia. In October 2023, the Association held its first association meeting, where the members developed the Terms of Reference of the association and the organizational structure, as well as elected their leaders. Despite safety and security challenges, the members are building a strong and active association which supports and empowers domestic worker peers.The Myanmar Domestic Worker Association runs trainings and holds discussions on Myanmar and country of destination laws and policies, which protect or exclude domestic workers from labour rights and social security. The Association trains participants on international standards, especially the Domestic Workers Convention, 2011 (No.189) as well as the Violence and Harassment Convention, 2019 (No.190). Ms Bridjit Thu, the chair of the Association said, “It is never easy to establish a labour organization, but it is harder to organize domestic workers. The lack of recognition of domestic work as work with entitlements to legal protections makes us more vulnerable. ILO Convention No. 189 provides decent work for domestic workers. We want our employers to respect the ILO Convention and provide our labour rights. Also, our skills should be recognized and there should be more skills trainings for young domestic workers particularly for those migrating to new environments.”
III-2 Explanation of the innovative element of the initiative for advancing decent work in the care economy
The Association began as a women’s group of Three Good Spoons skills training course alumni – domestic workers who had completed various courses and stayed connected through social networking and in-person meetings when possible. Unlike traditional approaches, which often lack ongoing support and community building, this initiative provided a common experience that not only enhanced their job market prospects but also empowered them to claim their rights at work.One innovative element of this initiative is the emphasis on skills certification and continuous learning. For example, Naw Day Bright, a domestic worker in Singapore, shared how the "License to Stir" training in Myanmar played a key role in securing her current employment. Presenting her skills certificate during the job interview helped her obtain a higher salary and all legal entitlements. Additionally, she continues to engage in further training sessions and discussions to enhance her skills, demonstrating the initiative's commitment to lifelong learning and professional development.Another innovative aspect is the creation of a Facebook group network for employers, which has 2,600 members. This platform not only disseminates information on labour rights, but also serves as a job matching platform, enhancing both rights at work and rights to work. This dual approach of supporting both workers and employers fosters a more holistic and sustainable model for decent work.Furthermore, the formation of the Myanmar Domestic Workers Association (MDWA) within this ecosystem, which promotes rights among employers as well, significantly advances decent work in Myanmar. This is particularly crucial in a context where the rule of law, especially labour law, has deteriorated since the 2021 coup. By integrating community support, continuous training, and employer engagement, this initiative stands out from traditional methods and effectively promotes decent work in the care economy.
IV-1 What were the main challenges or difficulties during the design and implementation? How were they faced/ addressed?
The formation of a workers’ association in both an informal and hard-to-reach sector, not to mention in an environment highly hostile to worker organizing under the military-controlled government, has been a big achievement.
IV-2 Lessons learned and good practices, including room and opportunities for improvement
Lesson learned 1: Membership of a migrant women’s group or association is fluid, and activities need to be adjusted to this reality.When migrant domestic workers return to Myanmar, some move again to find employment. As one domestic worker leader says: “Some members of the group have gone abroad to work as domestic workers. But they have stayed connected with us through our group chat messaging and they follow the activities on our Facebook page.” In other cases, women decide that they will stay to look after elderly parents or their children. The Association identified a core group who were able to attend most regularly to maintain the continuity of the group, while also being open to new membership at any time. Lesson learned 2: Joining a women’s group or association must be relevant and beneficial for migrants.Migrant women, for a variety of reasons, may be reluctant to join an organized group. In practical terms, women have multiple demands on their time, with paid and unpaid work. Using their precious free time to attend regular meetings can be another demand on them. Any previous experiences of being tricked in the migration process may have taught them to be wary of offers from unknown people or groups. Some women also worry about negative reactions from husbands, employers or the community. It is important for women to be informed about the organizers of the group, the purpose behind its formation, and the specific benefits they will gain from membership. The Association uses a snowball technique where domestic workers already involved in the organization make contact via message or phone with domestic workers they or their friends already know. They spend time introducing the Association, their activities and what they have gained from being part of the Association and how it has benefited them.
IV-3 Key conditions for success
This group was born out of a social enterprise domestic worker training programme that also fostered a sense of group belonging, and made efforts to keep in touch and continue to promote the workers and their rights after the training programme finished. The social enterprise offered more than just training, and that has borne a multiplier effect of strengthening workers, as well as employers, creating rights knowledge and norms, as well as the possibility for formation of the Myanmar Domestic Workers Association (MDWA) .
IV-4 Key conditions for sustainability
Foster pre-union organizing through the formation of workers’ associations, especially in environments hostile to unions.Consolidate workers’ power and establish the practice and norm of free association.Aim for associations to eventually register as trade unions, despite potential legal and political obstacles.Ensure women are informed about the different options for formalizing their group (e.g., loose, formal, registered, unregistered, consensus or majority decision-making, dues-paying or not).Offer training about the legal implications, cultural changes, benefits, and drawbacks of various options.
IV-5 Potential for transferability, expansion and replicability in other countries and contexts
It is rare for skills training to foster the conditions for freedom of association, which is what happened in this case. This model should be promoted to socially minded skills training centres. There is a high chance of unionizing and pre-union success in a sector where training may be one of the only chances for workers to come together and meet.
V-1 Sources of information and documents used on the characteristics of the initiative, including links to websites, news items, toolkits, policy documents or reports
Empowering Domestic Workers: The Inaugural Journey of the First Myanmar Domestic Worker AssociationLessons learned: Building migrant women’s groups and networksFor women, by women: Guidance and activities for building women migrant workers’ networksMigrant workers’ rights to freedom of association and collective bargaining