Human Resources Development Convention, 1975 (No. 142) - Portugal (Ratification: 1981)

Direct Request (CEACR) - adopted 2019, published 109th ILC session (2021)

The Committee takes note of the observations of the Confederation of Portuguese Industry (CIP) received on 10 August 2018. The Committee invites the Government to provide its comments in this respect.

Articles 1–4 of the Convention. Formulation and implementation of policies and programmes of vocational guidance and vocational training. The Committee notes with interest a series of measures undertaken by the Government to enhance the qualifications and competitiveness of its workforce in terms of matching supply and demand of skills, which take into account the economic situation and demographical changes that have influenced labour market trends. The Committee notes that the 2018 National Reform Programme (NRP) identified the qualification of the Portuguese people as a priority in terms of national economic and social development. The Government launched the Qualifica Programme on 6 March 2017, within the framework of the NRP. The Qualifica Programme provides a set of flexible tools for adults with low qualifications that include: (i) skills assessments; (ii) adapted and flexible courses of learning; and (iii) recognition and certification of competencies. The Programme consists of: (a) a network of specialized Qualifica centres which provide guidance for adults seeking training or certification of acquired competencies; (b) the Qualifica Passport, a tool for recording qualifications and skills acquired throughout adult life; and (c) the Qualifica Portal, through which users may access information on how to obtain qualifications through means other than higher education. The Committee also notes the establishment of the National Credit System for Vocational Education and Training in 2017. With respect to the impact of these measures, the Government points to an increase in the economic growth rate to 2.7 per cent in 2017, as well as to the improvement in the education and training dropout rate, which fell from 20.5 per cent in 2012 to 12.6 per cent in 2017. The Government adds that the rate of young people with at least secondary educational level rose from 67.8 per cent in 2012 to 78.5 per cent in 2017. The Committee notes that the employment rate stood at 53.7 per cent in 2017, with higher employment rates recorded for people at the secondary and post-secondary levels (67.6 per cent in 2017). It also notes that the unemployment rate fell from 16.2 in 2013 to 8.9 per cent in 2017, with the unemployment rate for people who had attained higher education levels being consistently lower, falling from 12.6 per cent in 2013 to 6.5 per cent in 2017. A series of vocational guidance and training measures targeted young persons and the long-term unemployed, which the Government considers contributed to lowering unemployment rates for these target groups. The youth unemployment rate fell from 38.1 per cent in 2013 to 23.9 per cent in 2017 and the unemployment rate for long-term unemployed persons dropped from 10 per cent in 2013 to 5.1 per cent in 2017. In this context, the Committee refers to its comments under the Employment Policy Convention, 1964 (No. 122), in which it notes the measures designed to raise the qualifications of the labour force with a view to reducing unemployment, in particular among young persons with low levels of qualification and long-term unemployed persons. In its observations, the CIP expresses the view that the policies and programmes put into place by the Government are in compliance with the Convention and have had positive effects on the promotion of vocational education and training for young people as well as adults, both employed and unemployed. The CIP considers that, despite this progress, human resources development in Portugal could be further improved and should remain a permanent priority of the Government. The Committee requests the Government to continue to provide updated information, including statistical data disaggregated by age and sex on the impact of the vocational guidance, education and training policies and programmes implemented.

Article 5. Cooperation with the social partners. The Government indicates that the social partners are engaged in the coordination of the National Qualification System, participating in a wide range of councils and boards of human resources development bodies. In its observations, the CIP indicates that the competent bodies consult the social partners when drafting and monitoring human resources development policies and programmes. The Committee requests the Government to continue to provide updated information on the manner in which the representative organizations of employers and workers are consulted in the formulation and implementation of vocational training and vocational guidance policies and programmes and the outcomes of such consultations.

Observation (CEACR) - adopted 2017, published 107th ILC session (2018)

The Committee notes the observations of the General Confederation of Portuguese Workers–National Trade Unions (CGTP–IN) and the General Workers' Union (UGT), transmitted with the Government’s report. The Committee requests the Government to provide its comments in this respect.

Articles 1–4 of the Convention. Formulation and implementation of policies and programmes of vocational guidance and vocational training. The Committee notes with interest the set of measures undertaken by the Government with a view to developing the workforce and adapting it to the requirements of the labour market. The Government refers, among other measures, to the adoption in October 2013 of the Cross-cutting Training Programme for job activation and jobseeking techniques, which sets out the activities to be implemented by the Employment and Vocational Training Institute (IEFP) to improve the employability of unemployed people and to provide them with support in relation to entrepreneurship. It also refers to the implementation of the Youth Guarantee Programme since January 2014, which includes coordinated strategies and guidelines concerning vocational guidance, vocational training and employment for young people under the age of 30 who are not in education, employment or training (NEET). The Programme includes, among its objectives, the development of vocational guidance structures and systems, as well as the promotion of education and training at different qualification levels to improve the skills profiles of young people. In March 2014, 241 Centres for Qualification and Vocational Education (CQEP) were established in different educational institutions to bridge gaps between education, training and employment. The CQEP provides information and personalized guidance to youth and adults, including vocational training, certificates which have double validity (educational and vocational) and related educational opportunities. In 2015, the Qualification Needs Anticipation System (SANQ) was created to provide a comprehensive analysis of skills supply and demand with the aim of defining training options and updating the National Catalogue of Qualifications. Based on the cited analyses, the SANQ developed the Portal of Qualifications, which provides information to various interested parties with regard to vocational training and other educational opportunities, as well as in relation to their employment prospects. The Government adds that measures were carried out to reduce school drop-out rates, including dissemination activities on the education and vocational training system to encourage youth participation. In this regard, the Committee notes that, according to the 2015 Education and Training Monitor of the European Commission, Portugal has significantly reduced its early school leaving rate, and tertiary education attainment has greatly improved. Enrolment in vocational education and training has continued to increase and a first set of new short-cycle higher technical courses (TeSP) were launched during the 2014–15 academic year. In its observations, the UGT indicates that investment dropped with respect to continuing vocational training and retraining, as well as recognition and validation of competencies acquired. In addition, the UGT indicates that there is widespread non-compliance on the part of employers, who do not observe the workers’ right to 35 annual hours of vocational training. The UGT adds that this has had a significant impact due to the large number of adults in the labour market that have not completed secondary education. The UGT also points out that the IEFP lacks the necessary human resources to ensure its proper functioning. Finally, the CGTP–IN indicates that the CQEP does not function properly due to its limited number and lack of staff. The UGT adds that it is necessary to provide vocational training services for the employed through the public employment services, and to develop a statistical information system in relation to vocational training. The Committee requests the Government to continue to provide updated information, including statistical data disaggregated by age and sex on the impact of the policies and programmes implemented in relation to vocational guidance and training.

Article 5. Cooperation of the social partners. In reply to the Committee’s previous comments, the Government indicates that employers’ and workers’ organizations participate in the Standing Committee for Social Dialogue of the Economic and Social Council with regard to the formulation of policies and programmes of vocational guidance and vocational training. Furthermore, the social partners participate in the adoption of the strategic action plan of the IEFP and of the Vocational Training and Employment Centres through their respective Advisory Councils at the regional and local levels. Finally, the Government indicates that the social partners are members of the Coordinated Committee charged with the implementation and evaluation of the Youth Guarantee Programme. In its observations, the CGTP–IN requests the reestablishment of the National VET Council, which was the body responsible for the formulation, coordination and implementation of vocational training policies and programmes. The CGTP–IN and the UGT further indicates that the social partners are consulted within the cited bodies, but they do not have the capacity to influence the policies and programmes of vocational guidance and vocational training. The Committee requests the Government to provide more specific information on the manner in which the representative organizations of employers and workers have been consulted in the formulation, implementation and monitoring of vocational training and vocational guidance policies and programmes.

Observation (CEACR) - adopted 2016, published 106th ILC session (2017)

The Committee notes that the Government’s report has not been received. It is therefore bound to repeat its previous comments.

Repetition

Vocational guidance and training policies and programmes closely linked with employment. Collaboration of the social partners. The Government indicates that, in the framework of the follow-up to the protocol agreement on the Economic Adjustment Programme signed in May 2011 between Portugal, the European Commission, the European Central Bank and the International Monetary Fund, it is planned to continue taking measures to combat low school enrolment rates and early school drop-outs, and to improve the quality of secondary and vocational education, with a view to increasing the effectiveness of the education sector, improving the quality of human capital and facilitating its matching with labour market needs. The Government reports that measures were agreed to in the context of the Tripartite Agreement for Growth, Competitiveness and Employment of 22 March 2011, particularly to develop opportunities for dual certification intended to reduce early drop-outs and school failure and to reinforce the support provided for guidance as a means of improving skills levels. The Tripartite Commitment to Growth, Competitiveness and Employment was concluded in January 2012. On the subject of the Tripartite Agreement for Growth, Competitiveness and Employment, the UGT indicates that, although the social partners agreed on its relevance, delays in the implementation of measures intended to improve the system of the certification of vocational skills have been noted, particularly with regard to recognition, validity and certification. Moreover, the UGT argues that the Government’s decision to suspend the operation of “new opportunities centres” that are not financially self-sufficient has had the effect of ending several activities without offering real alternatives for those affected, which would appear to be a matter of greater concern in light of the fact that the new network of 120 “vocational qualification and education centres” will only be fully operational at the beginning of 2015. The UGT considers that Government responses for the training of the unemployed have been inadequate, particularly in view of the lack of adequate articulation with the reinforcement of employability. Finally, the UGT observes that levels of participation and involvement of the social partners are inadequate in the formulation and promotion of measures and instruments potentially covered by the Convention. The Committee refers to the comments made in the context of the application of the Employment Policy Convention, 1964 (No. 122), and the tripartite discussion held in June 2013 in the Conference Committee, and invites the Government to provide detailed information in its report on Convention No. 142 on the manner in which the cooperation of employers’ and workers’ organizations is secured in the formulation and implementation of vocational guidance and training policies and programmes (Article 5 of the Convention). It invites the Government to provide information in its report on the impact of the measures taken to coordinate education, training and employment policies and on the results of the measures adopted to promote links between education, training and employment.

The Committee hopes that the Government will make every effort to take the necessary action in the near future.

Observation (CEACR) - adopted 2014, published 104th ILC session (2015)

Vocational guidance and training policies and programmes closely linked with employment. Collaboration of the social partners. The Committee notes the Government’s report for the period ending May 2013, and the observations made by the General Workers’ Union (UGT) attached to the report received in January 2014. The Committee also notes the information provided by the Employment and Vocational Training Institute and the National Agency for Skills and Vocational Education on the programmes that are being implemented, and by the Strategy and Studies Cabinet of the Ministry of the Economy and Employment on the vocational training programmes promoted by employers’ organizations. The Government indicates that, in the framework of the follow-up to the protocol agreement on the Economic Adjustment Programme signed in May 2011 between Portugal, the European Commission, the European Central Bank and the International Monetary Fund, it is planned to continue taking measures to combat low school enrolment rates and early school drop-outs, and to improve the quality of secondary and vocational education, with a view to increasing the effectiveness of the education sector, improving the quality of human capital and facilitating its matching with labour market needs. The Government reports that measures were agreed to in the context of the Tripartite Agreement for Growth, Competitiveness and Employment of 22 March 2011, particularly to develop opportunities for dual certification intended to reduce early drop-outs and school failure and to reinforce the support provided for guidance as a means of improving skills levels. The Tripartite Commitment to Growth, Competitiveness and Employment was concluded in January 2012. On the subject of the Tripartite Agreement for Growth, Competitiveness and Employment, the UGT indicates that, although the social partners agreed on its relevance, delays in the implementation of measures intended to improve the system of the certification of vocational skills have been noted, particularly with regard to recognition, validity and certification. Moreover, the UGT argues that the Government’s decision to suspend the operation of “new opportunities centres” that are not financially self-sufficient has had the effect of ending several activities without offering real alternatives for those affected, which would appear to be a matter of greater concern in light of the fact that the new network of 120 “vocational qualification and education centres” will only be fully operational at the beginning of 2015. The UGT considers that Government responses for the training of the unemployed have been inadequate, particularly in view of the lack of adequate articulation with the reinforcement of employability. Finally, the UGT observes that levels of participation and involvement of the social partners are inadequate in the formulation and promotion of measures and instruments potentially covered by the Convention. The Committee refers to the comments made in the context of the application of the Employment Policy Convention, 1964 (No. 122), and the tripartite discussion held in June 2013 in the Conference Committee, and invites the Government to provide detailed information in its report on Convention No. 142 on the manner in which the cooperation of employers’ and workers’ organizations is secured in the formulation and implementation of vocational guidance and training policies and programmes (Article 5 of the Convention). It invites the Government to provide information in its report on the impact of the measures taken to coordinate education, training and employment policies and on the results of the measures adopted to promote links between education, training and employment.

[The Government is asked to reply in detail to the present comments in 2016.]

Direct Request (CEACR) - adopted 1993, published 80th ILC session (1993)

The Committee notes the detailed information supplied by the Government in its report. It notes with interest the adoption of Legislative Decree No. 401/91 of 16 October 1991 respecting vocational training, and the new provisions respecting the vocational rehabilitation of the disabled, apprenticeship and continuing training. The Committee also appreciates the information provided in reply to its previous direct request on the technical and vocational training activities of the Ministries of Industry and Energy, Education and Agriculture. It requests the Government to continue to supply full information in its future reports on the developments which have occurred and the results which have been achieved in all the fields covered by the Convention by forwarding the relevant extracts of reports, studies and inquiries, and statistical data (Part VI of the report form).

Direct Request (CEACR) - adopted 1988, published 75th ILC session (1988)

The Committee takes note of the detailed information supplied by the Government concerning the measures taken to provide comprehensive information on the opportunities open to young persons, the disabled and adults as regards vocational training (Article 3 of the Convention). It also notes with interest that the Institute of Employment and Vocational Training (IFEP) and the National Apprenticeship Committee (CNA) comprise bodies in which co-operation with the social partners is ensured (Article 5). The Government states that the IFEP is preparing a "general law on vocational training", and that it intends to set up a permanent training system for adults. The Committee hopes that the new measures will take full account of the provisions of paragraphs 2 to 5 of Article 1, and Article 4. It requests the Government to continue to supply full information on the effect of the measures implemented and on the new measures taken or contemplated. The Government is also asked to provide the information requested previously on occupational and technical education carried out under the auspices of the Ministry of Education, the Ministry of Industry and Energy (Institute for Assistance to Small and Medium-Sized Industrial Enterprises, the Technical Training Centre of the National Engineering and Industrial Technology Laboratory) or the Ministry of Agriculture (regional agricultural vocational training centres) (Article 2).