Independent unions and employers remain divided. "How can a factory with 25 unions survive?" asked Van Sou Ieng, chairman of the Garment Manufacturers Association in Cambodia (GMAC), adding that it was "incomprehensible to expect an employer to negotiate a dispute with 25 different union leaders. A law was necessary to rein in the country's unions, Van Sou Ieng said. According to GMAC, last year there were 3,166 unions for the more than 500,000 workers employed in the country's 557 garment and textile exporting factories, and 58 footwear factories. Though garment production is already Cambodia's largest industry, which accounts for 26.2 percent of the country's Gross Domestic Product, Van Sou Ieng said without the trade union law, foreign investors will not come to do business".