Employment Policy Convention, 1964 (No. 122) - Georgia (Ratification: 1993)

Direct Request (CEACR) - adopted 2021, published 110th ILC session (2022)

The Committee takes note of the supplementary information provided by the Government in light of the decision adopted by the Governing Body at its 338th Session (June 2020). The Committee proceeded with the examination of the application of the Convention on the basis of the supplementary information received from the Government as well as on the basis of the information at its disposal in 2019.

The Committee takes note of the observations received from the Georgian Trade Unions Confederation (GTUC) on 2 October 2020.

Articles 1 and 2 of the Convention. Implementation of an active employment policy in coordination with poverty reduction. The Committee notes the Government’s response to its previous comments. In particular, the Committee notes the comprehensive statistics provided by the Government in its reports on the implementation of the State Programme for Employment Promotion Service Development 2016–18 and the State Programme for Professional Training and Retraining and Qualification Upgrading of Job Seekers. The Committee also notes with interest that the Government has developed, with the support of the Office, the National Strategy for Labour and Employment (NSLEP) 2019–23 and its Action Plan 2019–21, which sets out a vision for systemic and strategic reforms, as well as for a series of labour and employment measures to be implemented over the course of the next 5 years. The Government reports that the NSLEP 2019–23 focusses on improving active labour market policies and employment services, with particular attention to promoting equal participation in the labour market. In this regard, Goal 3 of the NSLEP 2019-23 is to promote the involvement of women and specific disadvantaged groups in the labour market through targeted social and inclusive employment policies. The Government also refers to the adoption of the Law on Employment Promotion of 1 July 2020, which regulates, inter alia, the work of state institutions related to employment promotion. According to the observations of the GTUC, Georgia is still facing high unemployment rates, including high rates of youth unemployment and other challenges, such as income inequality, high poverty rates linked to unemployment and high numbers of self-employed persons. The latter often have such low levels of income that they do not consider themselves as “employed”. The Committee notes, according to the National Statistics Office of Georgia (GEOSTAT) publication “Indicators of the Labour Force (Employment and Unemployment)”, 2021, the overall employment rate was 42.1 per cent in the fourth quarter of 2019, compared to 39.8 per cent in the fourth quarter of 2020. The overall unemployment rate in the country for the fourth quarter of 2019 was 16.6, rising to 20.4 per cent in the fourth quarter of 2020. The Committee requests the Government to provide detailed information on the nature and impact of the measures taken in the implementation of the NSLEP 2019–23 and its Action Plan 2019–21, to tackle the challenges identified in the labour market, including statistics on employment, unemployment and poverty rates, disaggregated by age and sex.

Impact of COVID-19. The Committee notes the measures taken by the Government to mitigate the impacts of the pandemic, including the provision of temporary unemployment benefits for private sector formal wage workers and self-employed persons, as well as disadvantaged groups. In this respect, the GTUC observes that the lack of flexible jobs in the country has contributed to the unemployment rate during the pandemic. The Committee requests the Government to provide further information, on the impact of the response and recovery measures taken to promote inclusive and sustainable employment during the pandemic, including information on the challenges encountered and lessons learned.

Regional development. The Committee previously requested information on the impact of various government programmes for regional development. The Committee notes the observations of the GTUC, which refer to low productivity in the agricultural sector (8 per cent of GDP is attributed to 38 per cent of the employed population) and emphasizes the need for training and retraining programmes for agricultural workers. The Committee further notes the statistics provided by the Government, including in respect of 1,900 projects completed through the Village Support Programme, as well as the establishment of seven new vocational educational institutions and ten new municipalities added to the existing network, in the context of vocational training and education reforms to improve geographical access and municipal coverage. In response to the Committee’s previous comments on the adoption of a new regional development strategy, the Government indicates that the Regional Development Programme of Georgia (RDP) 2018–21 was approved by Governmental Decree No. 1292 in June 2018 and is currently being implemented. The priorities of this programme include the provision of support to small and medium-sized enterprises (SMEs), growth-oriented sectors of the economy and export promotion, including support to strategic sectors such as tourism and agriculture, and improving human resources. The Committee requests the Government to provide information, including disaggregated statistical data, on the impact of measures taken to promote balanced regional development, including in the context of the RDP 2018–21, in terms of creating lasting, sustainable employment and improving labour productivity. The Committee further requests the Government to provide information on any measures taken or envisaged, including training and retraining programs, to increase productivity in the agricultural sector. The Government is also requested to provide information on the results of these measures.

Specific categories of workers. In response to its previous comments on the impact of active employment measures targeting disadvantaged groups, the Committee notes the statistics provided on the number of jobseekers, including women and young persons, employed as a result of their participation in the State Programme for Professional Training and Retraining and Qualification Upgrading of Job Seekers 2016–18. With regard to women’s employment, the GTUC observes that from 2006 to 2019, men’s economic activity exceeded that of women by an average of 19 per cent. The GTUC indicates that women drop out of the workforce, as a result of low wages. The Committee notes in this respect that the NSLEP 2019–23 also refers to issues faced by women in the labour market, including the gender pay gap, and provides that special attention will be paid to women’s involvement in employment programmes. With respect to the employment of young persons, the Committee notes the information provided on the activities and programmes of various public authorities and institutions responsible for promoting youth employment. In particular, it notes the “National Youth Policy Action Plan 2015-2020”, which is currently under evaluation, and the development of public-private partnerships (PPP) in youth vocational education and training (VET). The Government indicates that the number of Work-Based Learning (WBL) programs being implemented through PPP has increased. The GTUC observes that the unemployment rate is especially high among youth, reaching 30.3 per cent among the 20-29 age group in 2019. The Committee notes that, according to the ILOSTAT database, the youth unemployment rate stood at 39.4 per cent in 2020, and the share of youth not in employment, education or training stood (NEET) reached 28.5 per cent. It notes in this regard that the NSLEP 2019–23 provides for measures to reduce the proportion of NEET youth to 22.8 per cent by 2023. The Committee also notes the information provided by the Government on measures taken to promote the employment of persons with disabilities, including special programmes focusing on the integration of persons with disabilities and youth with special needs in social activities through the Children and Youth National Centre, and programmes of the Department of Employment. The Committee also notes that both the NSLEP 2019–23 and the RDP 2018–21 provide for measures aimed at promoting the integration of specific groups in vulnerable situations into the labour market, including through provision of vocational training for ethnic minorities. Recalling the Committee’s 2014 comments under the Equal Remuneration Convention, 1951 (No. 100), concerning the occupational segregation of women and its contribution to the gender pay gap, the Committee requests the Government to provide information on the concrete measures taken to combat the persistence of occupational segregation on the basis of sex (both vertical and horizontal) and to increase the labour force participation rate of women in the labour market. The Committee further requests the Government to provide detailed information on the manner in which the development of public-private partnerships and other programmes providing education and vocational training for youth has increased young people’s access to full, productive and freely chosen employment. The Committee also requests the Government to provide information on the measures envisaged or adopted to reduce the unemployment rate of young people (20-29 age). The Government is further requested to provide information on the nature and impact of measures taken, including in the context of the NSLEP 2019–23 and the RDP 2018–21, on the employment of specific groups of workers, including persons with disabilities, rural workers and older workers.

Article 3. Participation of the social partners. Noting the information provided by the Government in respect of consultation with the social partners, the Committee invites the Government to continue to communicate information in this regard, as well as information on consultations with representatives of those concerned by the measures to be taken.

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

Articles 1 and 2 of the Convention. Implementation of an active employment policy in coordination with poverty reduction. In its previous comments, the Committee invited the Government to provide information on the results of the implementation of the United Nations Development Assistance Framework (UNDAF) 2011–15 in terms of employment creation and poverty alleviation. In response, the Government reports that, to promote the national policy on employment and poverty reduction, the Ministry of Labour, Health and Social Affairs (MLHSA), together with other ministries, launched various programmes aimed at promoting the employment of specific groups of workers, including young persons and persons with disabilities. The Committee notes that various measures have been taken by the Government as part of its efforts to develop and implement an active employment policy, including the Action Plan on the National Strategy for the Formation of the Labour Market 2015–18, whose main objective is to facilitate the effective functioning of the labour market and seeks to improve the legal framework in the area of labour and employment. The Government has also implemented measures on education and training, including (i) the “Concept on the Development of Publicly Available Services for Continuing Professional Counselling and Career Planning in Georgia 2015–17 and Action Plan for its Implementation”, which seeks to provide continuous professional counselling and career planning; (ii) the “Active Policy Strategy for Labour Market and Action Plan 2016–18”, whose main aim is to contribute to the population’s labour integration and labour market opportunities; (iii) the Vocational Education Reform Strategy, whose objective is to fit vocational education programmes into meeting the labour market needs and to create a flexible vocational training system; and (iv) the “Capacity Development for Employment Support Services and the National Programme for Vocational Training – retraining of Jobseekers”. The Government also reports that as of 2016, steps have been taken to develop and implement a labour market information system to monitor the labour market, evaluate the impact of programmes implemented and ensure coordination between the vocational education system and labour market needs. The Government reports that the Labour Market Analysis Division Unit has been established in the MLHSA, which is responsible for ensuring the collection and exchange of labour market information between state agencies. In respect of information regarding employment trends, the Committee notes that, according to the ILO statistical database, in 2016, the unemployment rate in the country stood at 11.8 per cent. The Committee requests the Government to provide information on the impact of the abovementioned policies and programmes. It also requests the Government to provide information on the measures taken or envisaged to coordinate education and training policies with prospective employment opportunities. The Government is also requested to provide updated statistical data on trends in employment, unemployment and underemployment, disaggregated by age and sex.

Particular categories of workers. The Government indicates that one of the main points of focus of its “Active Policy Strategy for Labour Market and 2016–18 Action Plan” is to improve the situation of persons vulnerable to decent work deficits. In this context, the Government refers to the implementation of the Employment Assistance Programme for Persons with Disabilities, which provides incentives aimed at assisting persons with disabilities to access employment in the open labour market. In respect of young persons, the Government refers to the National Youth Policy which seeks to promote equal opportunities for young people, improving their living conditions and facilitating their mobility. The Committee requests the Government to provide more detailed information on the activities and impact of active employment measures targeting workers vulnerable to decent work deficits, including young persons, persons with disabilities, rural workers and those in the informal economy. It also requests the Government to provide statistical data on the levels of employment, unemployment and underemployment of these particular categories of workers.

Regional development. The Committee notes the different programmes launched by the Government to provide training for people living in regions and municipalities, including the National Youth Policy and the “Concept on the Development of Publicly Available Services for Continuing Professional Counselling and Career Planning in Georgia 2015–17 Action Plan”, which provides financial support for education and mobility and access to career planning and counselling services, respectively. The Committee refers to its previous comments and requests the Government to provide more ample information on the impact of the Village Support Programme on regional development and on the outcome of the New Economics Opportunity Programme 2011–15. It also requests the Government to provide information on the adoption of a new regional development strategy to contribute to achieving balanced regional development focused on the creation of lasting, sustainable employment. The Committee also requests the Government to provide statistics on the impact of the National Youth Policy and the Concept on Development of Publicly Available Services for Continuing Professional Counselling and Career Planning in Georgia 2015–17 Action Plan in the context of regional development.

Article 3. Participation of the social partners. The Government reports that it has no information in respect of consultative formal meetings celebrated between the Ministry of Economy and Sustainable Development, the Ministry of Regional Development and Infrastructure, the Ministry of Agriculture of Georgia and other relevant stakeholders. It adds that the Tripartite Commission of Social Partners was established by Ordinance No. 258 of 7 October 2013 to develop activities in this regard. The Committee requests the Government to provide information on the nature and frequency of consultations held between its ministries, social partners and relevant stakeholders concerning the formulation and implementation of employment policies and programmes. It also requests the Government to provide detailed information on the composition, mandate and activities of the Tripartite Commission of Social Partners, including whether it is consulted on the development and review of employment policies and programmes.

Direct Request (CEACR) - adopted 2013, published 103rd ILC session (2014)

Articles 1 and 2 of the Convention. Implementation of an active employment policy in coordination with poverty reduction. The Committee notes the Government’s report received in September 2013 which includes detailed information in reply to its 2011 direct request. The Government indicates that the main goals of the United Nations Development Assistance Framework (UNDAF) 2011–15 are to promote inclusive development and poverty alleviation through economic policies, including trade and investment; improved access of vulnerable groups to decent work opportunities; and good quality health, education, justice and other essential social services. The Government also provides further information on the intended outcomes of the UNDAF. The Committee notes that the unemployment rate decreased from 16.3 in 2010 to 15.1 and 15 per cent in 2011 and 2012, respectively. It also notes that unemployment is particularly high for young people in the age groups 15–19, 20–24 and 25–29, reaching, respectively, 36.9 per cent, 32.2 per cent and 25 per cent in 2012. In reply to the Committee’s previous comments on the collection and use of statistics, the Government indicates that employment-related statistics are used to create, plan and analyse the employment and labour strategies and policies. The Government reports that a household survey was carried out in many regions of the country under the Jobseeker Registration Programme, resulting in 390,213 jobseekers registered in the relevant database. On the issue concerning education and training, the Committee refers to its comments on the application of the Human Resources Development Convention, 1975 (No. 142). The Committee invites the Government to include in its next report information on the results of the implementation of the UNDAF 2011–15 in terms of employment creation and poverty alleviation in the country. Please also continue to provide disaggregated statistics on the nature and trends of employment.

Particular categories of workers. The Government indicates that the Action Plan on Gender Equality 2011–13 aims to integrate the gender equality principle in economic and employment policies and eliminate gender-related stereotypes. The Government indicates that 60.4 per cent of men and 46.2 per cent of women were economically active in 2011, and the unemployment rate was 13.1 per cent for women and 16.7 per cent for men. Women’s representation in small businesses is similar to that of men; however, women are proportionally less well represented in medium and large enterprises. Moreover, women’s share of privatized businesses is significantly lower than that of men. The Government indicates that the Vocational Education and Training (VET) Strategy and Action Plan 2013–20 include policies to meet the needs of particular categories of workers, such as women, young persons, older workers and workers with disabilities. The Committee invites the Government to provide in its next report information on the impact of the employment measures adopted in meeting the needs of particular categories of workers, such as women, young persons, persons with disabilities and older workers. Please include statistical data on the levels of employment, unemployment and underemployment of these categories of workers.

Regional development. The Government indicates that it plans to revise its regional development strategy in 2016 and set new priorities in this field. The Government mentions several regional projects aiming to generate and support employment. The Committee notes in this regard the New Economic Opportunities (NEO) project 2011–15, which is expected to target ten municipalities and benefit around 70,000 households considered as vulnerable. Moreover, the Ministry of Regional Development and Infrastructure implements an annual Village Support Programme under the supervision of local municipalities and in order to provide employment to the local population. The Committee invites the Government to provide in its next report information on the adoption of a new regional development strategy that intends to contribute to achieving a balanced regional development focused on employment creation, in both agriculture and non-agriculture sectors. It also invites the Government to include information on the results obtained in the implementation of the NEO project and the Village Support Programme in terms of employment creation at the regional and local levels.

Participation of the social partners. The Government provides in its report information on the Tripartite Social Partnership Commission, created in 2009, and indicates that the Commission only recently started its formal activities. The Government reports that in July 2011 a Memorandum of Understanding on Social Partnership was signed by the Ministry of Education and workers’ and employers’ organizations in order to improve the matching between vocational education and labour market demands. The Committee invites the Government to provide in its next report detailed information on the consultations held with employers’ and workers’ organizations concerning the formulation and implementation of employment policies and programmes.

Direct Request (CEACR) - adopted 2011, published 101st ILC session (2012)

Articles 1 and 2 of the Convention. Implementation of an active employment policy in coordination with poverty reduction. The Committee notes the Government’s report received in September 2011 including information in reply to its previous direct request. The Government indicates that generating sustainable employment growth and alleviating poverty fall into its main priorities. According to the National Statistics Office of Georgia, the unemployment is still high but has decreased slightly over the last year dropping from 16.9 per cent in 2009 to 16.3 per cent in 2010, which amounts to a total of 316,000 unemployed persons. The share of the population below the poverty line increased from 8.4 in 2008 to 9.9 in 2009 and remained stable in 2010. The Government further asserts that special employment programmes were carried out by municipalities across the country, including the capital Tbilisi, in order to enhance employment. Several activities were hence conducted, including registration of jobseekers in a comprehensive and regularly updated database as well as consultation with businesses and stakeholders so as to reduce mismatches between supply and demand for jobs. About 50,000 jobseekers are currently registered, 500 of whom were employed as a result. The USAID programme 2008–11 also trained more than 5,500 persons in 2011, 67 per cent of whom were subsequently employed. Additionally, the Government reports the launching of the United Nations Development Assistance Framework 2011–15 (UNDAF), which aims at reducing poverty by creating employment and income generation opportunities. The Committee requests the Government to include in its next report further information on measures taken to implement an active employment policy designed to promote full, productive and freely chosen employment as well as disaggregated statistics on the nature and trends of employment. Please also indicate the outcomes of the UNDAF in terms of both employment generation and poverty alleviation.

Vocational training and education. The Government indicates that research carried out by the World Bank in 2008 showed that an unqualified workforce was the main factor of unemployment. A survey published in 2011 also revealed that education is deemed the most important reform to be conducted by the country. Accordingly, reforms in general and higher education were made so as to develop it, such as introducing a teacher qualification examination and investing substantial funds in school infrastructures. As for vocational education, several projects were implemented in collaboration between state institutions, private sector and international partners. The project “support for the vocational education and training sector of Georgia” was implemented in collaboration with the European Union. It is intended to enhance the vocational and training system (VET) in accordance with priorities set in the national VET strategy 2009–12 approved by the Government in 2009, with a view to creating a new vocational education system that would be compatible with European educational standards. The Committee observes that several reforms were consequently undertaken, the latest of which was conducted in September 2010 and led to the modernization of professional education centres. The Committee invites the Government to provide information in its next report on the results of the reforms undertaken as well as an evaluation of the impact of the VET strategy in terms of fostering both vocational training and education.

Particular categories of workers. The Government states that the rate of women admitted into higher educational institutions has been increasing steadily over the years and reached 59 per cent in 2010; even in the technical fields where men are traditionally more represented, the number of women admitted also increased significantly. The Committee notes that 62 per cent of total state grants were provided to women in 2010, and that the law on gender equality was also enacted in 2010 with a view to developing a comprehensive framework for gender equality. The Committee further notes that in order to ensure an effective education for the most vulnerable part of the population, 10 per cent of state education grants are annually allocated to students affiliated to vulnerable groups such as those from a poor social background, migrants and persons with disabilities. The Parliament also approved legal amendments aimed at encouraging minorities to attend higher education by offering them preferable conditions. The Committee invites the Government to provide further information on the steps taken to encourage and support the employment level of particular groups of workers such as women, young persons and workers with disabilities, as well as an evaluation of the results thereof obtained.

Regional development. The Government refers to the creation in 2009 of the Ministry of Regional Development and Infrastructure, which is responsible for implementing the regional development policy as well the local self-government reform in Georgia. The Committee notes the adoption of a comprehensive strategy on regional development for Georgia for 2011–17 in collaboration with the European Union, within the scope of the regional development sector policy support programme. The strategy aims to define the vision and the way for the optimal exploitation of development potential of the regions in Georgia by, inter alia, developing a mechanism for the efficient management of the infrastructure systems responsible for providing various public services, improving professional development of the human resources employed in the municipal development sphere and infrastructure systems management and developing regional environmental policy to support sustainable employment in the regions. The Committee further notes the different projects that were set up within the framework of both the Economic Stimulus Package and the Joint Need Assessment (JNA), which led to the construction of roads, schools, water supply infrastructures and houses through employment intensive work. The Committee invites the Government to provide information in its next report on the employment outcomes of the comprehensive strategy on regional development of Georgia as well as on the projects implemented within the framework of the Economic Stimulus Package together with the JNA to promote employment in rural areas. Please also indicate the results of the activities conducted by the Ministry of Regional Development and Infrastructure in terms of enhancing both regional and local development and employment.

Collection and analysis of statistics. The Committee notes that the data collected by the Statistical Office (Saqstat) are thoroughly used in order to formulate the Government’s employment policy. Accordingly, the Parliament adopted a law on official statistics in 2009 pursuant to which the Saqstat became an independent legal entity of public law that seeks to coordinate the statistical work carried out by its regional offices and other governmental agencies. According to the new law, the Saqstat is to receive all statistical data from administration authorities and the citizens are now constrained to participate in the Census. The Committee wishes to continue to receive information on the progress made to obtain accurate labour market data and how it is being used to formulate and review employment policies.

Participation of the social partners. The Government recalls that, in 2009, a tripartite roundtable was held in Tbilisi between the ILO delegation, representatives of the Government, the Georgian Trade Union Confederation (GTUC) and the Georgian Employers Association (GEA) that led to the creation of a Tripartite Social Partnership Commission. Its statute was adopted in 2010 with a view to allowing the social partners to share their views on labour and social issues, notably concerning employment policies. The Committee also notes that the social partners were actively involved in the formulation of the vocational development strategy since seven social partnership thematic groups were set up in 2010 in order to prepare proposals on the strategy. The Committee further observes that a secretariat of the Tripartite Commission was also established to support effective cooperation between social partners in the sphere of labour issues and employment policies. The Committee invites the Government to continue to provide information on the consultation of the social partners in the Government employment policy-making process within the framework of the Tripartite Social Partnership Commission.

Direct Request (CEACR) - adopted 2009, published 99th ILC session (2010)

1. Articles 1 and 2 of the Convention. Implementation of an active employment policy in coordination with poverty reduction. The Committee notes the Government’s report received in September 2009 including the replies to the matters raised in its 2008 direct request. According to the Department of Statistics of Georgia, the poverty level stood at 24.6 per cent in 2004 and 22.1 per cent in 2008. The Committee notes that, in January 2008, the Government adopted the Georgia without Poverty Programme for 2008–12 which names employment among the top priorities, as well as the development of the private sector, the promotion of investments and the further increase of the effectiveness of the social aid system. The Government reports that employment policy expenditures (active and passive measures) have more than doubled during the 2005–07 period. The Committee notes the various programmes aimed at job creation such as the Cheap Credit Programme, implemented since 2008, and the 100 New Agro Enterprises Programme, launched in 2007–08. The Government indicates that the number of beneficiaries of these two programmes exceeds 36,200 persons. The Committee further notes that the State Employment Agency was reformed into the Social Service Agency. The Government indicates that the objective of unemployment reduction and poverty alleviation is far beyond the capacity of a single agency, the Social Service Agency under the monitoring of the Ministry of Labour, Health and Social Affairs. Therefore, the Ministry of Labour together with the Ministry of Economic Development and the Ministry of Education and Science coordinate employment-related affairs and implement vocational educational and training programmes. The Committee invites the Government to continue to provide information on the impact of active labour market measures taken to overcome poverty, and on the steps taken to ensure that employment policy considerations, which are central to poverty reduction efforts, are placed at the heart of macroeconomic and social policies.

2. Vocational training and education. The Government indicates that it implements various programmes in cooperation with international partners and development agencies, such as the UNDP, the EU and the Swiss Agency for Development and Cooperation. In this regard, the Government reports that the Development of Vocational Training Infrastructure Programme was launched in 2008, and its goals include the establishment of at least 50 professional education centres in Georgia. The programme contributes to the reduction of structural unemployment caused by structural changes of the economy and by the mismatch of jobseekers’ qualifications to those demanded in the labour market. The Government further reports that the Vocational Training and Retraining Programme aims to enhance professional skills and help the unemployed to meet the changing requirements of the labour market. The Committee notes that 113,800 persons took part in this programme and received on-the-job training in more than 1,400 enterprises. Among the beneficiaries of the programme, women comprised 65 per cent of the total participants, which is 7 percentage points higher than in 2006. The Committee also notes that the Governing Council of the National Agency of Professions is comprised of representatives of the Government, trade unions and employers who work together on the elaboration of professional educational standards. The Committee invites the Government to include in its next report further data on the measures taken in the area of vocational training and education including information as to how the social partners contribute to the development and implementation of such measures.

3. Special measures in respect of vulnerable categories of workers. The Government indicates that the Ministry of Justice introduced a pilot project to train and employ persons with disabilities in the Public Register Agency. The Ministry of Labour, Health and Social Affairs is also planning to start a new project in order to support the full integration of persons with disabilities in the labour market. The Committee once again asks the Government to provide in its next report detailed information on how employment policies are pursued to meet the needs of particular categories of workers such as women, young persons, older workers and workers with disabilities, and the results of such policies.

4. Regional development. The Government reports that one of its main priorities is to ensure regional development through the implementation of infrastructure projects. For this purpose, in 2009 the Ministry of Regional Development and Infrastructure was established and is responsible for elaborating the regional development policy, state administration of transport sphere, implementation of state policy in the field of transportation, roads, etc. The Committee notes that the Government elaborated the Economic Stimulus Package which sets out the infrastructure projects that will be financed. In its report, the Government also refers to the Donor’s Conference for Georgia which was held in Brussels in October 2008 and indicates that an important part of the financial assistance will be allocated to a wide array of infrastructure projects, such as the Regional and Municipal Infrastructure Development Project, and the Secondary and Local Roads Project. The Government also indicates that, before this Conference, it prepared a joint needs assessment (JNA) document. The Committee asks the Government to continue to provide information on regional and local employment programmes implemented in the framework of the Economic Stimulus Package, with a view to promoting productive employment, particularly in rural areas. The Committee also asks the Government to provide information on the impact of the infrastructure projects implemented in the framework of the JNA on productive employment.

5. Collection and analysis of statistics. The Government reports that currently a reform of the National Statistics System of Georgia is being undertaken in cooperation with the UNDP. The main goals of this reform include: to increase independence, reliability and quality of statistics, and to increase the compliance of methodology with recognized international standards. The Committee invites the Government to provide information concerning the activities undertaken by the National Statistics System of Georgia. In this regard, please provide statistics concerning the size and distribution of the labour force, the nature and extent of unemployment and underemployment and trends therein. The Committee would also welcome receiving information on how such data is used in the Government’s employment policy-making process.

6. Article 3. Participation of the social partners in the formulation and application of policies. The Government reports that it has a firm intention to improve the social dialogue and is involved in various cooperation formats with the relevant parties. The new format of the regular meeting of the representative of trade unions, employers’ associations and the Ministry of Labour, Health and Social Affairs was established in order to ensure good communication, a platform for exchange of views on various issues and coordinate future activities in the sphere of employment policy and labour issues, social policy and others. The Committee asks the Government to provide further information on the effective consultations held with the representatives of the social partners on the matters covered by the Convention, as established in Article 3.

Direct Request (CEACR) - adopted 2007, published 97th ILC session (2008)

The Committee takes note of the information provided in the Government’s report, received in September 2007, including such information provided in response to the Committee’s 2006 direct request.

1. Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Committee notes that despite strong economic progress and GDP growth, poverty increased during 2004–05 as a result of increasing unemployment. This is attributed to public sector reforms which increased the number of jobseekers in the labour market. The effect of rising unemployment led to an increase in the incidence of overall poverty from 35.7 per cent in 2004 to 39.4 per cent in 2005. The Government attributes the reduction in the workforce experienced between 1999 and 2004 to increased emigration, reporting that, in the 1990s, between 800,000 to 1 million people left Georgia. The Government states that this trend is changing, and more persons are returning to Georgia.

2. Coordination of employment policy with poverty reduction. The Committee notes the information contained in the International Monetary Fund’s (IMF) Country Report No. 06/361, on Georgia’s progress report on its Economic Development and Poverty Reduction Programme, provided by the Government in its report. The IMF report notes that despite strong GDP growth, poverty increased during 2004–05 as unemployment continued to rise, with unemployment rates reaching 13.8 per cent in 2005. The IMF report attributes this trend, in part, to the public sector reforms which resulted in the redundancy of a number of civil servants. This, coupled with the weakness in the social assistance system, contributed to an increase of overall poverty from 35.7 per cent in 2004 to 39.4 per cent in 2005. The IMF report notes that while poverty declined in the first quarter of 2006 to 33.6 per cent, a solid trend toward poverty reduction has yet to be established. The Committee welcomes receiving, in the Government’s next report, more information on the active employment measures pursued as part of the Government’s efforts to overcome poverty, and such steps taken to ensure that employment policy considerations, which are central to poverty reduction efforts, are placed at the heart of macroeconomic and social policies.

3. Employment services. The Government reports that the Social Assistance and Employment State Agency scaled down its employment-related activities in 2005 as it had sought to focus on its social assistance programme. The Agency did, however, reprise its employment-related activities in 2006 and thereafter. The Committee notes that reform is presently under way to combine the social service and other services responsible for implementing social policy as a single agency. The Committee welcomes receiving further information on the efforts to streamline the social service and social policy implementing services as a single agency, and requests that the Government also provide information on how its overall and sectoral development policies are pursued in a coherent manner which ensures that there is work for all available for and seeking work.

4. Vocational training and education. The Committee takes note that a new employment programme was implemented in 2006, which was allocated a budget of 24 million GEL (approximately US$14.5 million). The Government indicates that, on the basis of a labour market survey, it identified the need to address the overall low skill level of the workforce in the country, and the reduction in qualifications caused by long-term unemployment. To this end, the Social Assistance and Employment State Agency has sought to train jobseekers in light of the needs of employers. As compared to previous years, 2006 witnessed the implementation of a wide-scaled vocational training programme in workplaces. The Government reports that in 2006, the Agency registered more than 100,000 new jobseekers, 50,000 of whom were involved in the training programme. It is estimated that 15–20 per cent of the participants in the training programme were employed after the training.

5. The Government reports that in 2007, a Law on Vocational Training was passed. To this end, 11 new vocational training centres were opened, with the capacity to train 6–8,000 young persons and adults. The training curriculum is to be guided by the Ministry of Education and Science. Furthermore, a National Agency of Professions is to be established in 2007, the Governing Council of which will comprise representatives from the Government and social partners, to provide directions on vocational education. The Committee requests the Government to keep it informed of the steps taken to implement the new Law on Vocational Training, and corresponding results on the labour market. The Committee would also welcome receiving information as to how social partners contribute to the development and implementation of vocational education policies, and other employment-related policies, through such, and other, mechanisms as the Governing Council of the National Agency of Professions.

6. Particularly vulnerable categories of workers. The Committee notes that the Tbilisi Municipality implemented an employment programme for the young generation in 2006–07, which was attended by 5,000 young persons. The Committee requests that the Government provide more information, in its next report, on how employment policies are pursued to account for the particular circumstances of women, young persons, older workers and workers with disabilities, and the results of such policies.

7. Regional development. The Committee notes that, under the five-year agreement on the Millennium Challenge Programme concluded between the Governments of Georgia and the United States, efforts are being made to overcome poverty through economic development. The Government reports that the programme is made up of two components: the regional infrastructure rehabilitation project, and the enterprise development programme. To this end, the Government reports on the regional infrastructure development project which aims to improve regional and municipal service delivery by providing grants to eligible government entities for the development of the following sectors of infrastructure: water supply and sewerage; irrigation and drainage; gasification; local roads; and solid waste treatment. The Committee also notes the development of the Samtskhe-Javakheti road rehabilitation project which aims at improving transportation for trade and entrepreneurial activity in the region. The Committee asks the Government to continue to supply information on regional and local employment programmes implemented with a view to promoting full and productive employment, particularly in rural areas. In addition, the Committee reiterates its request for information on the legislative measures taken to encourage entrepreneurship and reintegration into the labour market of workers affected by privatization.

8. Collection and analysis of statistics. The Committee notes that the Statistics Department under the Ministry of Economic Development conducts quarterly household surveys, thus serving as the main source of statistical information. The Government reports that discussions are currently under way with the World Bank for the purpose of undertaking a wide research of the national labour market, in order to analyse its situation and to develop effective programmes. The Committee invites the Government to keep it informed of activities undertaken to gather statistics concerning the size and distribution of the labour force, the nature and extent of unemployment and underemployment and trends therein. The Committee would also welcome receiving information on how such data is used in the Government’s employment policy-making process.

9. Article 3. Participation of social partners in the formulation and application of policies. The Government refers to the consultations with social partners in relation to vocational education. It further indicates that no other tripartite commission currently exists. Nevertheless, the Ministry of Labour collaborates closely with the social partners on the questions of improving political and legislative reforms. In this respect, the Committee stresses the importance of the tripartite consultations required by the Convention to generate productive employment and improve security for jobseekers. It asks the Government to report in detail on the consultations held with the representatives of the social partners and the progress achieved regarding the requirement for consultation on the matters covered by the Convention, as established in Article 3.

Direct Request (CEACR) - adopted 2006, published 96th ILC session (2007)

1. Implementation of an active employment policy. The Committee notes the Government’s report received in August 2005, which states that achieving the objectives of full and productive employment continues to pose difficulties in Georgia on account of the current economic crisis. It notes, however, the Government’s stated goal of accelerating economic development and improving living standards through the elaboration and implementation of active labour market policies. In this context, it notes that funding for the annual Programme for the Social Protection of the Unemployed and Employment Promotion was reduced by half in 2004 (4 million to 2.1 million lari), with some of these funds being set aside to cover the programme’s debts from the previous year. The Committee also notes that, between 1990 and 2004, the number of employed persons in Georgia fell by roughly 1 million people. The Committee therefore asks the Government to provide detailed information on the design and implementation of active measures to generate employment, including measures to promote employment among vulnerable categories of persons, such as women, young persons, older workers and disabled workers (Article 1, paragraph 1, of the Convention). The Committee also refers to its previous comments and asks the Government to indicate the procedures for making employment policy decisions and how these decisions are regularly reviewed within the framework of a coordinated economic and social policy (Article 1, paragraph 3, and Article 2(a)).

2. Coordination of employment policy with poverty reduction. The Committee notes the Government’s progress report prepared in January 2005 on its Economic Development and Poverty Reduction Programme (EDPRP), in which it states that unemployment is the main cause of poverty in the country. The Government is asked to provide detailed information in its next report on the measures adopted in the context of the EDPRP to ensure that employment, as a key element of poverty reduction, is placed at the heart of macroeconomic and social policies. Please also include information on the employment creation outcomes as a result of EDPRP implementation.

3. Employment services. The Committee notes from the Government’s report that 44,973 jobseekers were registered with the National Employment Service in 2004, marking a 62 per cent decrease in the number of registered people indicated by the Government in its previous report. Of the nearly 45,000 jobseekers, only 3,202 were able to find work in 2004, while only another 1,518 were eligible for unemployment benefits. The Committee also notes that, in 2004, the NES publicized 5,818 job vacancies, of which only 19 per cent were in the private sector. It further notes that at the end of 2004, the employment reforms undertaken by the Government included the reorganization of the National Employment Service into a new entity called the State Social Assistance and Employment Agency. The Committee asks the Government to provide detailed information in its next report on the operation of this new agency and, in particular, how this reform will improve the agency’s ability to provide more job opportunities for those willing and able to work. It also refers the Government to the Committee’s 2005 comments on the Employment Service Convention, 1948 (No. 88), and the Private Employment Agencies Convention, 1997 (No. 181), the implementation of which should contribute to making a more effective employment policy.

4. Collection and analysis of statistics. The Committee notes that the State Social Assistance and Employment Agency is responsible for the collection of labour market statistics. The Committee reminds the Government that the collection of data and analysis of the labour market should be the basis for the formulation of employment policy. The Committee hopes that in its next report the Government will further describe the measures taken in this respect and that it will be able to include information on the size and distribution of the labour force along with the level and trends of employment, unemployment and underemployment (Article 2).

5. Education and vocational training. The Committee notes that according to data presented by the Government, 776 unemployed people benefited from vocational training in 2003 through the Programme for the Social Protection of the Unemployed and Employment Promotion. Noting that the State Social Assistance and Employment Agency will contribute to the training and retraining of jobseekers, the Government is asked to provide information in its next report on the measures taken to match education and training policies with prospective employment opportunities. The Committee further asks the Government to indicate how it intends to broaden the availability of and participation in these training programmes. Please also continue to include statistical data on the number of vocational training participants and their success in finding employment.

6. Regional development. The Committee notes from the Government’s EDPRP progress report that most of the country’s unemployed are found in the agricultural sector. Given this situation, the Government plans to support job market diversification and the availability of alternative employment opportunities in rural areas. Recalling its previous comments, the Committee again asks the Government to provide information in its next report on regional or local employment programmes implemented with a view to promoting full and productive employment, particularly in rural areas. In addition, please provide information on the employment impact of the modernization of the transportation system, and the legislative measures taken to encourage entrepreneurship and reintegration into the labour market of workers affected by privatization.

7. Participation of the social partners in the formulation and application of policies. The Government indicates in its report that special advisory committees for setting regional and local employment policies in consultation with the social partners still do not exist. The Government is therefore requested to keep the Committee informed of the creation of these regional committees. Recalling its previous comments, the Committee further asks the Government to provide more details in its next report on the work and outcomes of the National Employment Council’s deliberations, particularly in relation to the development and implementation of policies designed to promote full, productive and freely chosen employment. Please also indicate how the social partners and other persons concerned are involved in the elaboration and implementation of the country’s EDPRP (Article 3).

Direct Request (CEACR) - adopted 2004, published 93rd ILC session (2005)

The Committee notes that the Government’s report has not been received. It must therefore repeat its previous comment which read as follows:

1. The Committee notes the Government’s first report on the application of the Convention. From the information contained in this detailed report, it notes that the establishment of a socially oriented market economy is a priority for the social and economic development of the country. It further notes that the 2002-03 Programme of Cooperation between the ILO and the Government of Georgia states that at the time of elaboration of the state employment policy and of planning the concrete measures according to this policy, the ILO and social partners in Georgia will be guided by the principles and regulations of Convention No. 122. Employment also figures as the first of the measures to be implemented by the Ministry of Health, Labour and Social Protection in the Matrix of Social and Economic Policy of the 2000 Poverty Reduction and Economic Growth Programme (PREGP) of Georgia. The Committee would appreciate continuing to receive in the Government’s reports further indications on the design of an active policy designed to promote full, productive and freely chosen employment (Article 1, paragraph 1, of the Convention). Please also provide information on the effects noted or expected on employment as a result of implementation of the PREGP of Georgia.

2. Article 1, paragraph 3, and Article 2(a) of the Convention. In its report, the Government recognizes the distortions in the labour market and the difficulties confronting it. The share of the Georgian population below the poverty line reached 60 per cent in 1999, with more than 2.5 million citizens living on less than US$2 per day. The high level of unemployment contributes to the high poverty rate. The Committee asks the Government to provide information in its next report on decision-making procedures and on employment policy measures, and on how they are reviewed regularly within the framework of a coordinated economic and social policy.

3. The Committee trusts that the Government will also provide in its next report information on regional or local employment programmes implemented with a view to promoting full employment. Please provide information on the impact on employment of the modernization of the transport system, and legislative measures taken in order to encourage entrepreneurship and reintegration to the labour market of the workers affected by privatization. Please also include information on the promotion of productive rural employment.

4. Article 3. The Government provides information in its report on the establishment of a National Employment Council whose functions would cover, among others, providing an expert opinion and initiating national, regional, special and sectoral employment programmes. A special commission has been set up, and has started functioning within the Ministry of Labour, whose functions include the conclusion of general and sectoral agreements between the social partners. The Government states its attachment to relations and active cooperation between the social partners. The Committee would appreciate receiving more details on the National Employment Council. Please also indicate how the social partners and other persons concerned are involved in the process of the elaboration and implementation of the PREGP.

5. Collection and analysis of statistics. The Committee notes that, according to data from the State Department of Statistics, the unemployment rate in Georgia reached 12.6 per cent in September 2000. The number of people registered in the unemployment centres reached 116,900, which represents a 13.8 per cent increase over the previous year. It further notes that regular publication of statistical data and materials is envisaged by the Employment Act. In its report, the Government regrets that no systematic study of the labour market in Georgia has been undertaken so far either for the country as a whole or at a regional level. The Committee recalls that the collection of data and analysis of the labour market should be the basis for the formulation of employment policy, which should be decided and kept under review within the framework of a coordinated economic and social policy. The Committee hopes that in its next report the Government will further describe measures taken in this respect.

6. Education and training. The Committee refers to its 2003 direct request on the application of the Human Resources Development Convention, 1975 (No. 142), and requests the Government to include in its next report information on measures adopted to coordinate education and training policies with prospective employment opportunities.

7. Employment service. The Government indicates in its report that the operation of the employment service was transferred in full to the Central State Employment Fund. The Committee would appreciate receiving in the Government’s next report information on the operation of the Central State Employment Fund and the impact of the employment services to provide assistance to job search, training and retraining or public work programmes for unemployed workers.

8. The Government indicates in its report that the current economic crisis has been so profound and comprehensive that it has resulted in a wide gap between workforce supply and demand. It also reports that there has been massive emigration (with 800,000 persons emigrating, mostly to the Russian Federation) such that the country is losing highly qualified specialists of prime working age. Because of emigration, the number of those who join the workforce each year is decreasing: the labour force in 1991-98 declined from 3,161,000 to 3,034,000, with the number of men dropping by seven per cent while the number of women dropped by 1.5 per cent. Women workers now make up 51.8 per cent of the labour force. The gender and age structure of the economically active population, its professional and qualification composition and the pattern of mobility have all been distorted. The Committee refers to its 2002 direct request on the Discrimination (Employment and Occupation) Convention, 1958 (No. 111), and requests that the Government refer, in its next report on the application of Employment Policy Convention, 1964 (No. 122), to the measures taken to promote employment of vulnerable categories of persons (such as women, migrant workers, unqualified workers and self-employed persons).

Observation (CEACR) - adopted 2003, published 92nd ILC session (2004)

1. The Committee notes the Government’s first report on the application of the Convention. From the information contained in this detailed report, it notes that the establishment of a socially oriented market economy is a priority for the social and economic development of the country. It further notes that the 2002-03 Programme of Cooperation between the ILO and the Government of Georgia states that at the time of elaboration of the state employment policy and of planning the concrete measures according to this policy, the ILO and social partners in Georgia will be guided by the principles and regulations of Convention No. 122. Employment also figures as the first of the measures to be implemented by the Ministry of Health, Labour and Social Protection in the Matrix of Social and Economic Policy of the 2000 Poverty Reduction and Economic Growth Programme (PREGP) of Georgia. The Committee would appreciate continuing to receive in the Government’s reports further indications on the design of an active policy designed to promote full, productive and freely chosen employment (Article 1, paragraph 1, of the Convention). Please also provide information on the effects noted or expected on employment as a result of implementation of the PREGP of Georgia.

2. Article 1, paragraph 3, and Article 2(a) of the Convention. In its report, the Government recognizes the distortions in the labour market and the difficulties confronting it. The share of the Georgian population below the poverty line reached 60 per cent in 1999, with more than 2.5 million citizens living on less than US$2 per day. The high level of unemployment contributes to the high poverty rate. The Committee asks the Government to provide information in its next report on decision-making procedures and on employment policy measures, and on how they are reviewed regularly within the framework of a coordinated economic and social policy.

3. The Committee trusts that the Government will also provide in its next report information on regional or local employment programmes implemented with a view to promoting full employment. Please provide information on the impact on employment of the modernization of the transport system, and legislative measures taken in order to encourage entrepreneurship and reintegration to the labour market of the workers affected by privatization. Please also include information on the promotion of productive rural employment.

4. Article 3. The Government provides information in its report on the establishment of a National Employment Council whose functions would cover, among others, providing an expert opinion and initiating national, regional, special and sectoral employment programmes. A special commission has been set up, and has started functioning within the Ministry of Labour, whose functions include the conclusion of general and sectoral agreements between the social partners. The Government states its attachment to relations and active cooperation between the social partners. The Committee would appreciate receiving more details on the National Employment Council. Please also indicate how the social partners and other persons concerned are involved in the process of the elaboration and implementation of the PREGP.

5. Collection and analysis of statistics. The Committee notes that, according to data from the State Department of Statistics, the unemployment rate in Georgia reached 12.6 per cent in September 2000. The number of people registered in the unemployment centres reached 116,900, which represents a 13.8 per cent increase over the previous year. It further notes that regular publication of statistical data and materials is envisaged by the Employment Act. In its report, the Government regrets that no systematic study of the labour market in Georgia has been undertaken so far either for the country as a whole or at a regional level. The Committee recalls that the collection of data and analysis of the labour market should be the basis for the formulation of employment policy, which should be decided and kept under review within the framework of a coordinated economic and social policy. The Committee hopes that in its next report the Government will further describe measures taken in this respect.

6. Education and training. The Committee refers to its 2003 direct request on the application of the Human Resources Development Convention, 1975 (No. 142), and requests the Government to include in its next report information on measures adopted to coordinate education and training policies with prospective employment opportunities.

7. Employment service. The Government indicates in its report that the operation of the employment service was transferred in full to the Central State Employment Fund. The Committee would appreciate receiving in the Government’s next report information on the operation of the Central State Employment Fund and the impact of the employment services to provide assistance to job search, training and retraining or public work programmes for unemployed workers.

8. The Government indicates in its report that the current economic crisis has been so profound and comprehensive that it has resulted in a wide gap between workforce supply and demand. It also reports that there has been massive emigration (with 800,000 persons emigrating, mostly to the Russian Federation) such that the country is losing highly qualified specialists of prime working age. Because of emigration, the number of those who join the workforce each year is decreasing: the labour force in 1991-98 declined from 3,161,000 to 3,034,000, with the number of men dropping by 7 per cent while the number of women dropped by 1.5 per cent. Women workers now make up 51.8 per cent of the labour force. The gender and age structure of the economically active population, its professional and qualification composition and the pattern of mobility have all been distorted. The Committee refers to its 2002 direct request on the Discrimination (Employment and Occupation) Convention, 1958 (No. 111), and requests that the Government refer, in its next report on the application of Convention No. 122, to the measures taken to promote employment of vulnerable categories of persons (such as women, migrant workers, unqualified workers and self-employed persons).