Employment Policy Convention, 1964 (No. 122) - Austria (Ratification: 1972)

Direct Request (CEACR) - adopted 2022, published 111st ILC session (2023)

The Committee notes the observations made by the Federal Chamber of Labour (BAK) and the Austrian Federal Economic Chamber, transmitted together with the Government’s report.

Articles 1 and 2 of the Convention. Employment trends and active labour market measures. The Committee notes the information provided by the Government regarding the implementation of employment plans and measures at the federal and Länder-levels, as well as the employment measures envisaged under the Austrian Federal Government Programme 2020-2024 (the Government Programme), which focuses on improving the labour market access of persons aged 50 and above. The Committee notes that the overall employment rate of persons aged 20 to 64 continued to grow in the pre-COVID-19 period, reaching 76.8 per cent in 2019 (close to the national target established for Austria in the 2020 Europe Strategy of 77-78 per cent). Nevertheless, the employment rate declined to 72.4 per cent (76.7 per cent for men compared to 68.1 per cent for women) in 2021 as a consequence of the pandemic. The unemployment rate in 2021 reached 5.4 per cent (5.5 per cent for men and 5.2 per cent for women). In this respect, the Committee notes the detailed information provided by the Government on the series of measures taken to mitigate the impact of the COVID-19 pandemic on the labour market. The Government indicates that, in 2020, it adopted labour market measures aimed at preserving the highest number of jobs possible, investing a total of €8.5 million to this end. The labour market policy interventions and incentives developed and introduced in collaboration with the social partners included a short working-hours (Kurzarbeit) scheme, supporting 1.2 million workers (43 per cent men and 57 per cent women) and resulting in the preservation of some 200,000 jobs. In its observations, the BAK emphasizes that the employment benefits for workers who could not use the short working-hours model and were made redundant should be extended to nine months and increased to meet their basic living costs. The Committee further notes the pro-active measures implemented since October 2020, including training programmes which were rolled out together with enterprises in the areas of health and social care, metal works, environment and sustainability, as well as digitalization. Lastly, the Committee notes that the BAK expresses its concern in relation to a new algorithm-based strategy developed by the Austrian Public Employment Service (AMS). The BAK highlights that the digitalization of AMS services could alienate those unemployed persons not familiar with IT-tools, subsequently leading to the segmentation of the unemployed work force, pushing already disenfranchised groups closer to the margins of the labour market. The BAK calls for the provision of further support for persons that are particularly vulnerable to decent work deficits, such as women, long-term unemployed persons and migrants who lack access to the primary labour market. The Committee requests the Government to continue to provide updated detailed information, including statistical information disaggregated by sex, age and migration status, on the nature and scope of measures taken under employment programmes and their impact on the promotion of full, productive and freely chosen employment. It also requests the Government to continue to provide updated information on employment trends, disaggregated by sex, age and migration status.

Older workers. The Government indicates that the employment rate of persons aged between 55 and 64 continued to increase from 43.8 per cent in 2013 to 54.7 per cent in 2020 (62.7 per cent for men and 47 per cent for women), including during the height of the COVID-19-pandemic. With the objective of keeping workers in paid work for longer, the Government Programme envisages the expansion of age-appropriate employment options through integration subsidies and targeted improvements to part-time work for older employees, in the form of a semi-retirement scheme. Since 1 January 2019, the minimum qualifying age for the part-time semi-retirement scheme has been gradually increased from 53 years to 55 years for women and 58 years to 60 years for men. The Government reports that, between 2019 and 2020, 82,100 persons participated in the scheme. In addition, the Government indicates that the programmes implemented to reintegrate older workers in employment on a part-time basis was extended to federal public servants. In addition, the Fit2work prevention programme was launched, which offers early advice and support to people and business on work and health-related issues in the event the worker experiences health problems. The prevention programme benefited over 145,000 persons and over 3,000 enterprises up to December 2020. The Government also refers to the implementation of a new support format for people with multiple obstacles that prevent them from entering the workplace (BBEN), with the objective of increasing their employment opportunities. The BBEN targets persons who have been registered in the AMS for at least two years and meet two of the following three criteria: they are 45 years or above, suffer from a health condition, and did not continue in education beyond statutory school-leaving age. In 2020, 30,432 persons, 43 per cent of whom were women, participated in the BBEN scheme. Moreover, the 50+ employment initiative was continued and expanded to include wage subsidies, work-based qualification programmes and temporary employment in social enterprises for unemployed persons above 50 years of age. In addition, as part of the Springboard programme, 50,000 long-term unemployed persons, many of whom are over the age of 50 and/or have health conditions are offered a combination of initial advice and skills-based job matching tailored to their individual needs, in addition to preparatory training for work between 1 July 2021 and 31 December 2022. The Committee notes that, in its observations, the BAK questions the efficiency of the programmes for older persons who are long-term unemployed, such as the Springboard programme, as the programme offers no job guarantee. It therefore requests the Government to create more jobs in those areas with higher social demand, such as care work, which are often neglected due to the smaller profit margins involved. The Committee requests the Government to continue to provide detailed updated information on the nature, the scope and the impact of the active labour market measures adopted or envisaged targeting older workers, with a particular focus on the long-term unemployed and other disadvantaged groups of older workers, particularly those vulnerable to intersectional discrimination.

Education and training. The Committee notes the information provided by the Government with respect to the set of measures undertaken in the area of vocational education and training, including the continued implementation of the on-the-job training for the unemployed (AQUA), a programme which enabled 4,754 persons to take up apprenticeships as part of work-based training in 2020. Also in 2020, an additional 72,983 people, of which 15 per cent suffered from a health condition, took part in a “training course for skilled workers”. The Government also refers to the implementation of the Skilled Worker Intensive Training (FIA) programme, which offers apprenticeships in construction, carpentry, metalworking, IT and electricity to unemployed persons with few or no qualifications. In addition, as of 1 January 2019, training courses for workers with low and medium-level qualifications and jobseekers in careers where there is high demand for labour (health and social care, the metalworking industry and others) have been funded through the skilled worker grant (FKS). In this respect, the BAK points out that, while the future skilled worker grant should include a stipend for skilled workers, educational leave and part-time work, the current stipend should be used to cover the shortage of skilled workers, particularly in the health and care sector. In addition, the BAK emphasizes that, in order to ensure their sustainable participation in the labour market, jobseekers should be entitled to continuing education. The Committee requests the Government to continue to provide detailed updated information on the nature, scope and impact of the programmes and measures taken in the area of education and training and their relation to prospective and sustainable employment opportunities.

Youth employment. The Committee observes that, between 2019 and 2020, the unemployment rate of persons aged 15 to 24 increased from 8.5 per cent to 10.5 per cent, while the employment rate decreased from 51.6 per cent to 50.2 per cent. The Government indicates that it places particular focus on the employment of young persons in its labour market policy. In this respect, it allocated €831 million in 2020 to support the transition of young persons into work. Future dual vocational training projects will also cover digitalization and innovation, sustainability, climate protection and resource efficiency, inclusion and diversity, internationality and mobility and new forms of training networks and the establishment of start-ups. The Government also refers to the implementation of new initiatives aimed at young persons under the age of 18, such the AusBildung bis 18 (education up to 18), which enables all young people to complete a vocational training course in addition to compulsory schooling, to better prepare them for future labour market needs. It also refers to the Jugendcoaching (youth coaching) programme for those young persons that have completed compulsory education. The programme has a particular focus on young persons whose mother tongue is not German.The latter group is also targeted in the AusbildungsFit (Ready for Education and Training) programme, which provides support to young persons requiring more time and assistance to prepare for their first vocational training after having left school. The Committee further notes the amendment to the Federal Act on the Vocational Training of Apprentices, which introduced, inter alia, a regular review of training regulations to ensure that they are up to date, the mandatory involvement of enterprises in the apprenticeship schooling system, part-time apprenticeships due to health reasons, or to accommodate child care. The Government reports that 108,416 persons were participating in an apprenticeship in 2020. The Committee nevertheless notes the observations of the BAK, indicating that a significant number of apprenticeship slots remain vacant. It calls upon the Government to continue implementing measures to facilitate young persons’ access to and participation in apprenticeships. The Committee requests the Government to continue to provide detailed updated information on the vocational education measures and active labour market policies targeted at young persons.

Women. The Committee notes that in 2021, more women than men were in diverse forms of working arrangements, such as part-time, freelance and temporary agency work, with 55 per cent of women and only 17 per cent of men being in such forms of employment. The percentage of women in part-time employment was 49.6, compared with 11.6 for men. The Committee further notes that 5.7 per cent of men in paid employment were in managerial positions (compared to 3.3 per cent of women). Even with the same level of education, women were more likely to be in middle-level positions than men. In this context, the Government indicates that its policies and programmes aim at improving women’s employment prospects, overcoming gender-based segregation, promoting higher vocational qualifications and supporting women’s return to work. The Government refers to a set of programmes aimed at promoting the participation of women in the labour market, such as the Return-to-Work programme, in which a total of 37,438 women participated in 2020, and the Women in Crafts and Technical Occupations programme (FiTprogramme), which encourages women to complete a training in crafts and in which 6,959 women participated in 2020. The Government also refers to the implementation of the flexible apprenticeship programme “Competence with System”, through which an apprenticeship may be split into individual modules, which can be completed during breaks in seasonal employment. The Committee requests the Government to continue to provide updated detailed information on the nature and impact of measures adopted or envisaged to promote the participation of women in the labour market, including on measures fostering their participation in regular employment across all sectors and at all levels.

Persons with a migration background. The Government refers to the cooperation of the AMS with women’s and migrants’ counselling centres to provide assistance to migrant women through offering German courses and other integrative measures. Persons entitled to asylum are in addition supported through competence checks to assess knowledge and skills, which particularly benefit women who lack formal training. The Committee notes the statistical information provided by the Government concerning the number of persons with migration backgrounds and persons with refugee status that benefited from the support measures implemented during the reporting period. Other measures implemented to support migrants and persons with asylum status included the celebration of a job fair held by the Federal Government in cooperation with the AMS, the Austrian Integration Fund, the Federation of Austrian Industries and the Austrian Economic Chamber for 1,000 persons with asylum status. The Committee also notes the implementation of the Mentoring for Migrants programme initiated by the Austrian Federal Economic Chamber, as part of which 2,400 mentors in the economy paired up with qualified migrants to assist them in entering the Austrian labour market. The Committee notes with interest the implementation of the b-mobile programme, under which persons with asylum status located in the east of the country were placed in apprenticeships in the west, where the current skills shortage in tourism offers prospects. The BAK observes that, while migrant women face particular hardships, persons with a migration background in general are more affected by unemployment and calls for measures to address this issue. The Committee requests the Government to continue to provide information on the nature, scope and impact of the measures adopted for the use of the labour potential of persons with a migration background, and in particular women, to help them integrate sustainably into the labour market.

Persons with disabilities. The Committee notes that, according to statistical information from the Austrian Economic Chamber, in 2020, the unemployment rate of persons with disabilities aged 15 to 65 stood at 8.4 per cent, significantly higher than the overall national unemployment rate. The Committee nevertheless notes that at the same time their labour participation rate was more than 60 per cent and thus well above the EU-average of 47 per cent. The Government indicates that the National Labour Market Policy Programme (BABE) Disability Training-Employment for 2014–17 has been extended until 2030. The Committee notes the Government’s indication that the employment support measures implemented are adapted to the needs of persons with disabilities and take into account factors such as age, life paths and the specific form of the individual’s disability. Building on this, all Government programmes recognize the inclusion of persons with disabilities as an interdisciplinary question and endeavour to provide this group with access to all general labour market and other support programmes. The Committee notes that, while the BAK observes that acquiring relevant qualifications and completing vocational training are essential for the permanent integration of persons with disabilities into the labour market, the AMS should offer individually tailored qualification opportunities for persons with disabilities. The Committee requests the Government to continue to provide updated detailed information, including statistical data disaggregated by sex and age, on the nature and impact of measures taken to promote employment opportunities for persons with disabilities in the open labour market, including information on the development and continued implementation of the National Labour Market Policy Programme (BABE) Disability Training-Employment beyond 2021.

Direct Request (CEACR) - adopted 2018, published 108th ILC session (2019)

The Committee notes the observations made by the Federal Chamber of Labour (BAK), transmitted together with the Government’s report.

Articles 1 and 2 of the Convention. Employment trends and active labour market measures. In its previous comments, the Committee requested the Government to provide information on employment measures targeting workers in vulnerable situations, such as low-skilled workers, persons with disabilities and immigrant workers, and on the involvement of the social partners in the development of such measures. The Committee notes the information provided by the Government on the adoption of the seventh National Reform Programme (NRP) in April 2017, which includes labour market measures to achieve the national targets established in the framework of the Europe 2020 strategy. The Government indicates that these measures are being implemented in close cooperation with the Länder, regions and local communities, as well as the social partners and relevant stakeholders. Austria’s national goal is to increase the employment rate among women and men aged 20–64 to 77–78 per cent. In this regard, the Government indicates that the employment rate among those aged 20 to 64 was 74.8 per cent in 2016. Nevertheless, the Committee notes that, according to the European Commission 2017 Country Report on Austria, most of the jobs created in recent years are part-time (full-time employment has increased only recently) and a majority of new positions are in low-wage sectors. The cited report further indicates that employment has increased more slowly than the labour supply. This has led to an increase in the unemployment rate, which reached 6.1 per cent in the second and third quarters of 2016, slightly above its previous peak in 2004. The Government indicates that factors contributing to the increase in the labour supply include increasing immigration flows from abroad (including refugees and those with subsidiary protection status), a rising employment rate among older workers due to the reforms to early retirement and invalidity pensions, and the increasing labour force participation of women. Furthermore, the Committee notes from the cited report that, while expanded and targeted policies to get people into work are delivering good results, finding employment remains a challenge for older workers, low-skilled workers and people with a migrant background (especially women born outside the EU). Moreover, significant gender inequalities persist in the labour market. The Government indicates that, to address these challenges, the active employment policy resources were again significantly increased in 2017 with the aim of assisting the target groups of older workers, women and persons with a migration background. In addition, resources of up to €120 million a year were made available from 2017 to assist long-term unemployed persons in securing employment. In its observations, the BAK maintains that further efforts are necessary to combat long-term unemployment. The Committee requests the Government to provide updated information, including statistical information disaggregated by sex and age, on the measures taken or envisaged under the National Reform Programmes and their impact on the promotion of full, productive and freely chosen employment. It also requests the Government to provide information on employment trends, disaggregated by age and sex, and on the procedures for deciding on and reviewing employment measures implemented within the framework of an overall economic and social policy.

Education and training. In reply to the Committee’s previous comments, the Government indicates that the skilled workers’ grant has been reintroduced for a limited term the AQUA (on-the-job qualifications) project has been continued, with the aim of encouraging people to obtain higher levels of skills in occupations where there are skills shortages and to obtain qualifications through training. Both initiatives provide for the participation of 6,500 beneficiaries between 2017 and 2018. In its observations, the BAK welcomes the strong focus of the labour market policy on continued efforts to raise training standards among the working population, especially among young people, older workers and workers with few or insufficient skills. It adds that this focus has had one of the most significant and consistent knock-on effects on employment promotion. The BAK requests the establishment of a second training opportunity to give workers and jobseekers the possibility of changing career paths, and the further development of the existing education benefits into an education grant in the amount of a living wage to which workers should be legally entitled. The BAK stresses the importance of “new advice and support institutions” (“BBE neu”) to provide individual counselling and support to unemployed persons who face multiple obstacles to finding work, with the aim of reintegrating them into the labour market. The Committee requests the Government to provide detailed updated information on the nature and impact of the programmes and measures taken in the area of education and training and on their relation to prospective employment opportunities.

Older workers. In reply to the Committee’s previous comments, the Government indicates that the employment rate among older people increased from 43.8 per cent in 2013 to 49.2 per cent in 2016. The Committee notes the Government’s indication that the federal Government’s employment programme for 2017–18 includes the adoption and implementation of specific measures for older workers and older unemployed persons. In particular, the Government refers to, among other measures, an increase to €175 million in the funding for 2017 for the implementation of the “initiative 50+” to reintegrate unemployed persons over the age of 50 who have been registered as unemployed with the Austrian Public Employment Service for more than 180 days. In 2016, 23,000 persons benefited from this programme. In addition, new legislation on part-time work for professional reintegration (return to work after absence due to illness of at least six weeks) was adopted. Under the new legislation, workers are entitled to a reintegration allowance out of health insurance funds, in addition to accrued wages (adjusted pro rata) from the part-time employment. Furthermore, a partial pension scheme for semi-retirement was introduced in January 2016 with the aim of keeping workers in employment for longer. The semi-retirement scheme consists of a reduction in working hours with partial wage compensation. In July 2017, protection against dismissal was relaxed for workers aged over 50 to promote their recruitment and the “Action 20,000 initiative” was introduced with the objective of creating an average of 20,000 additional jobs per year in local communities, non-profit support associations and enterprises. The BAK welcomes the “Action 20,000 initiative” considering that it establishes demand-side measures in the context of the labour market policy. The Committee requests the Government to continue to provide information on the active labour market measures adopted or envisaged targeting older workers as well as on the impact of such measures. It further requests the Government to provide information on the nature of the modifications made to the protections against dismissal in relation to older workers.

Women. The Committee notes from the NRP 2017 that the labour market potential of women is not leveraged sufficiently in Austria, with an especially critical point being the rate of part-time work among women due to care obligations. According to data published by Statistics Austria, in 2015, four out of five part-time employees were women, and the rate of part-time work among women came to 47.4 per cent, which is considerably higher than the EU average of 37.2 per cent. In this respect, the Committee notes the information provided by the Government concerning the adoption of measures to promote the involvement of fathers in childcare and a more partnership-based management of family life. The Government indicates that significantly more women than men are in non-standard forms of employment or are in low-paid employment. It adds that all these factors, together with significant occupational gender segregation in the labour market determine the high gender pay gap in the country (according to Eurostat, the gender pay gap was 20.1 per cent in 2016). The Government refers to initiatives taken to dismantle the structural differences between women and men in the Austrian labour market, including the creation of the online platform “My technology” to overcome gender stereotypes and promote diversification in the choice of training and occupation; and the “Support the return to work” programme, which provides tailored advice on planning women’s return to work. In its observations, the BAK stresses the low employment rate of women from non-EU countries, stressing that efforts are urgently required to guarantee their early access into employment. The BAK maintains that the risk that these women will not be integrated into the labour market is increased by, among other factors, legal and financial dependence on their husbands; educational and occupational disadvantages that arose in their country of origin, childcare obligations, eligibility for lump-sum allowances, stereotypes and prejudices. As a result, the BAK considers that it is necessary to adopt specific measures to promote the integration of these women into the labour market, such as identifying non-profit activities and work-related training activities that are readily accessible for them and raising awareness among companies. The Committee requests the Government to provide updated detailed information on the nature and impact of measures adopted or envisaged to promote the participation of women in the labour market, including women in vulnerable situations, such as women from non-EU countries.

Youth employment. The Committee notes that, according to Eurostat, the youth unemployment rate was 11.2 per cent in 2016, the fifth lowest within the European Union (20.9 per cent). The Committee also notes from the “Youth and Work in Austria (2016-17)” report of the Social Affairs Ministry Service (SMS), that the low unemployment rate among young people are due to the provision of vocational education in the form of dual vocational education and training (apprenticeships) and active labour market policies targeted at young people. The Government indicates that, in 2016, €850 million were spent on measures to support the integration of young persons into the labour market, including subsidies for company-based apprenticeships to provide basic support to all employers willing to train apprentices, career counselling and guidance by the Public Employment Services and programmes to manage the school to work transition. The BAK observes that, although the number of apprenticeships available increased in 2016, the total number of apprentices also increased. As a result, there was still a significant shortage of apprenticeships. Therefore, the BAK affirms that additional measures are needed to ensure that young people looking for apprenticeships receive continued training. Furthermore, the Committee notes the information provided by the Government concerning measures adopted to implement the EU Youth Guarantee. In particular, the Government refers to the adoption in 2016 of the “Education Training till 18” programme to support sustainable labour market integration on the one hand, and meet the employers’ demand for well-trained young people on the other. According to the report of the SMS, the Compulsory Education or Training Act related to the Education Training till 18 programme was adopted in July 2016, with continuing education or training becoming compulsory as of 1 July 2017. Under the Act, parents or guardians are responsible for compliance with compulsory education/training, and as of 1 July 2018 non-compliance may result in penalties of between €100 and €500. The cited report points out that relevant stakeholder involved in the implementation of the Education Training till 18 programme, include the public employment service, the SMS, the Länder, social partners, youth representatives at the federal level and the local communities. However, the BAK informs that asylum seekers are not covered by this initiative and requests for their inclusion in order to integrate them into the education system and the labour market as quickly as possible. The Government further indicates the continuation of the implementation of the Training Guarantee, which provides apprenticeship programmes in supra-company training entities to young people who cannot be placed in a company-run apprenticeship. Finally, the Government indicates the replacement in January 2017 of the Future for Youth Action Programme for young adults aged 19–24 by the Training Guarantee till 25, under which labour market policies for young people aged 19 to 25 are placing increased focus on education and training to ensure sustainable labour market integration. The Committee requests the Government to continue to provide information on the impact of the vocational education measures and active labour market policies targeted at young people.

Persons with a migration background. The Committee notes that, according to the previously cited European Commission report, the proportion of the population with a migrant background is increasing, while their labour market potential is underused. Some 9.3 per cent of the Austrian population was born outside the EU, and with an employment rate of 60.6 per cent in 2015 they are much less likely to be in employment than native-born people, with an employment rate of 76.4 per cent. The report also states that people born outside the EU are often underemployed and face a high risk of being overqualified when employed. The Committee welcomes the set of measures adopted by the Government to make use of the labour potential of persons with a migration background and to integrate persons granted asylum or subsidiary protection status into the labour market more quickly. In this respect, the Government indicates the adoption of the Recognition and Assessment Act, No. 55/2016 in 2016, to make skills and educational qualifications acquired abroad comparable to the Austrian frame of reference, so that people can be integrated into the labour market taking account of their qualifications. The Government also refers to the implementation of the Competence Check project in all Länder to assess the qualification of persons with asylum status. In 2016, almost 6,000 persons with asylum status completed a competence check. Nevertheless, the BAK observes that additional measures should be taken to guarantee that asylum seekers are informed during the asylum procedure of the possibility of having their educational qualifications recognized and receiving practical support with the recognition process. Moreover, the compulsory integration year under the Labour Market Integration Act (No. 75/2017) was implemented with the objective of integrating persons with asylum status into the labour market as early as possible. During the integration year, participants learn German and receive support with choosing an occupation and obtain knowledge and skills within the framework of work-related training in the non-profit sector. In this respect, the BAK calls for a focus on vocational training and further education during the integration year. Furthermore, a Youth College was established in Vienna for persons with asylum or subsidiary protection status that are between 15 and 21 years of age. The objective is to provide basic education leading the participants to pursue secondary school, vocational training or long-term employment. The Government also indicates that the Public Employment Service spent about €96 million in 2016 on measures to integrate persons with asylum status into the labour market and that under the new Labour Market Integration Act, about €196 million were made available in 2017 for labour market policy measures or subsidies targeting this group. On the other hand, the BAK maintains that proposals made by the social partners to promote earlier access to the market for asylum seekers were not taken into account. The Committee requests the Government to provide information on the impact of the measures adopted for the use of the labour potential of persons with a migration background and to integrate persons granted asylum or subsidiary protection status into the labour market, and on the involvement of the social partners in their formulation.

Persons with disabilities. The Government reports on the adoption of the National Labour Market Policy Programme (BABE) Disability Training-Employment for 2014–17 in 2013, following a decision of the National Action Plan for Disability 2012–20 (NAP Disability) of the Austrian federal Government. It adds that the Service Agency of the SMS has adjusted the strategic direction of its services to promote disability mainstreaming. As a result, persons with disabilities have access to all general labour market policies as well as to specific and appropriate support. The Committee notes that, according to the “Overview of the horizontal issue of disability in Austria” report of the SMS, under the Employment of People with Disabilities Act, Austrian citizens with a degree of disability of at least 50 per cent can apply for the status of persons with disabilities entitled to receive special support. Among the benefits that they receive are: increased protection against dismissal (employers have to obtain the prior agreement of the Disabled Persons Committee before they can dismiss a worker with a disability); occupational subsidies (financial benefits and special training courses); additional paid leave; and income tax allowances. The Act also requires firms to employ at least one person with a disability for every 25 non-disabled employees. The law is enforced by a non-compliance tax, which amounts to more than €200 per month. Moreover, the BAK states that persons with disabilities are also entitled to the different modalities of training included under the Vocational Training Act. The BAK observes that, according to statistical information from the Austrian Economic Chambers, the number of participants in such training increased from 6,475 in 2014 to 7,163 in 2016. The Committee requests the Government to continue to provide updated detailed information on the measures taken or envisaged to promote employment opportunities of persons with disabilities in the open labour market and on their impact, including information on the application of the National Labour Market Policy Programme (BABE) Disability Training-Employment for 2014–17 and the Employment of People with Disabilities Act.

Observation (CEACR) - adopted 2015, published 105th ILC session (2016)

The Committee notes the observations made by the Austrian Federal Economic Chamber (WKÖ) and the Austrian Chamber of Labour (AK), transmitted with the Government’s report.

Articles 1 and 2 of the Convention. Active labour market measures, education and training. As regards labour market policy, the Government indicates that considerable importance is attached to the goal of raising the proportion of employed women and men. The Committee notes in this regard that in 2013 the proportion of employed women and men between the ages of 20 and 64 was measured at 75.5 per cent and that the national target is set at 77–78 per cent. It also notes that, according to EUROSTAT, unemployment in Austria was among the lowest in the euro area with 4.9 per cent in December 2014 and 5.0 per cent in December 2013. It further notes that unemployment was measured at 5.6 per cent in October 2015. The Government adds that a key focus of the labour market policy is the continued raising of skills standards among the employed population, especially those belonging to major target groups, namely young people and older workers with few or outdated qualifications. In its observations, the AK indicates that labour market policy should be altered and redirected towards an investment approach, adding that elements of the active labour market policy that help workers with few qualifications to acquire formal qualifications should be considerably expanded. Wage subsidies alone do not lead to any continued improvement in the situation of workers with few qualifications. It adds that the recognition and use of skills acquired informally or through non-formal channels, in connection with qualification measures for the purpose of vocational training that is also formally recognized, must be systematically extended. The WKÖ indicates that placement services and the new pilot projects in the framework of “AQUA” (on-the-job-qualifications) combine theoretical with practical training in a company, and train unemployed people for specific jobs whose vacancies cannot otherwise be filled. The labour market success rates are far above average at 80 per cent, and in some cases up to 100 per cent. The WKÖ adds that these projects are especially designed for people with few or no qualifications and that on-the-job-training, in the form of placements of the new “AQUA” projects, offers better labour market prospects than mere training schemes. In recent years, this form of training has fallen back, although it is a cheap and effective way of enabling unemployed people to gain higher qualifications, through the co-financing of the enterprises and the high recruitment rates for the labour exchange services (AMS). The WKÖ therefore recommends further development of on-the-job-training. The Committee requests the Government to provide information on the impact of the programmes and measures taken in the area of education and training and on their relation to prospective employment opportunities. It also requests the Government to continue to provide information on employment measures targeting vulnerable workers, such as low-skilled workers, persons with disabilities and immigrant workers, and on the involvement of the social partners in their formulation.

Youth employment. The Government indicates that since 2012 the highest priority has been given to labour market and employment policy for young people. The Committee notes that half of the funding for active labour market policy is invested on those under the age of 25, thus permitting young people to be the main beneficiaries of labour market support measures. The Committee notes the observations of the AK indicating that the number of recorded unemployed young people rose from 2011 to 2013 (46,932 to 51,626 young people) and that further measures must be introduced to provide young people in search of training opportunities with training courses up to the qualifying stage, in order to ensure a vocational training system acting as the basis for the future working life of young people and enabling good labour market prospects for them. The Committee requests the Government to provide information on the impact of the measures taken to ensure lasting employment for young persons.

Older workers. According to EUROSTAT, between 2004 and 2012 the proportion of 55–64 year olds in employment increased from 28.8 per cent to 43.1 per cent. In 2013, it reached 44.9 per cent, in comparison with the EU average of 50.1 per cent for the same year. The Committee notes that increasing employment rates among older workers is a special policy objective of the Government. In the employment programme for 2013–18, a pathway has been defined to increase the employment rates of older workers and the actual age of retirement, namely to increase the employment rate of men aged from 55 to 59 to 74.6 per cent in 2018 (68.1 per cent in 2012) and 62.9 per cent for women in the same age group (47.9 per cent in 2012). Achievement of targets will be monitored every six months and binding measures will be taken without delay if there is any significant deviation from the pathway. The Committee requests the Government to provide information on the impact of its active labour market measures implemented targeting older workers. Please also include available information on the relationship between measures aimed at increased employment for youth and those aimed at retaining older workers in the labour market.

Observation (CEACR) - adopted 2012, published 102nd ILC session (2013)

Articles 1 and 2 of the Convention. Employment trends and active labour market measures. Following the 2010 observation, the Government provided a review of the labour market situation and the measures envisaged under the Integrated Economic and Employment Policy Guidelines for the Europe 2020 Strategy. The Committee notes that already in March 2010 the trend in the Austrian labour market reversed, following the economic recovery in the second half of 2009. The number of unemployed persons registered with the labour exchange services (AMS) has continuously decreased. The unemployment rate (in percentage of persons gainfully employed, according to Eurostat) was 4.8 per cent in February 2011. Until 2014, the Austrian Institute for Economic Research (WIFO) envisages a further decrease of the unemployment rate to 3.9 per cent. Real growth of GDP of more than 3 per cent is expected in 2011 (in 2010, GDP growth was estimated at 2.1 per cent). The increase in GDP is primarily fostered by the export economy and private consumer spending. The Committee further notes efforts mentioned by the Government to increase the employment rate of 20 to 64 year-olds to between 77 and 78 per cent, with a focus on a significantly greater share of employment among older workers, especially by raising the effective retirement age to 62. Measures relating to the raising of the retirement age would be further developed and extended by adult training. The Government also refers to the employment campaign for the integration of persons with disabilities (some €135 million were allocated in 2010). The focus was on preserving jobs for persons with disabilities, which was achieved by the temporary introduction of short-time working. A new immigration system for non-European Union nationals and European Economic Area States was introduced based on the admission without quota of highly skilled workers and specialists where there is a shortage. The Government recalls that social dialogue plays an increasing and decisive role. No important decision can be taken by the Government without the agreement of the social partners’ organizations. The Committee notes the performance of the Austrian economy and sustained job growth. It looks forward to receiving from the Government, in its next report, an assessment of the impact of its active labour market measures, in particular, with regard to vulnerable groups, such as low-skilled workers, persons with disabilities and immigrant workers. The Committee would also appreciate continuing to receive information and data on successes, problems encountered and lessons to be learned from the experience of social partners in Austria with regard to the application of the Convention.

Youth employment. The Committee notes the detailed information communicated by the Federal Chamber of Labour regarding young workers and apprentices. It notes that the number of places for trainees in the courses run under the Youth Guarantee Act decreased from 4,097 in 2008 to 414 in 2010. This apparently shows that it was not possible to place all the young apprenticeship seekers in in-house apprenticeships, since the industry has been withdrawing more and more from apprenticeship training over the past few years and the supply of places for apprentices has not kept pace with demand. According to the Federal Chamber of Labour, the authorities considered that pressure is continuing on the apprenticeship market despite some new measures introduced to promote apprentice training. Further measures must therefore be taken to enable apprenticeship seekers to obtain consistent training and thus ensure that young persons complete their vocational training as a basis for their future working life and have good prospects in the labour market. The Government indicated in its report that key focus was given to the optimization of labour market opportunities for young persons as it was the 15–24 year age group that was seriously affected by the financial and economic crisis which shaped labour market policy in 2009 and 2010. Among other measures, new vocational schools were established to provide young persons with basic schooling as well as social and educational support for a gradual introduction into the labour market through a combination of work and learning. The Committee invites the Government to include detailed information in its next report on the efforts made to provide skills to young persons, and the results achieved in terms of ensuring lasting employment for young persons who enter the labour market.

Observation (CEACR) - adopted 2010, published 100th ILC session (2011)

The Committee notes the Government’s report for the period ending May 2009, including replies to its 2008 direct request, the Second National Reform Programme for Growth and Employment, the Economic Report Austria 2009 as well as current labour market statistics.

Articles 1 and 2 of the Convention. Employment trends and active labour market measures. The Committee notes that the goal of full employment had been reached in August 2008, when the unemployment rate stood at 3.3 per cent. The Government states that as a result of the global financial and economic crisis, since autumn 2008, the situation of the Austrian labour market had deteriorated and unemployment rose by 30 percentage points as compared to autumn 2008. According to data available from the OECD, this rate reached 4.9 per cent in the fourth quarter 2009 after having peaked at 5.1 per cent in that year’s third quarter. This drop of the employment rate, the first for seven years, mostly affected young persons, men and foreigners working in manufacturing and for temporary work agencies. The Government remains committed to again achieve full employment and has introduced a package of measures to increase the employment rate beyond the EU’s targets for 2010. Having reached the overall EU quantitative goal of 70 per cent in 2008, the employment rate stood at 72.1 per cent. Having achieved the goal of 60 per cent as early as 2001, the female employment rate in 2008 was 65.8 per cent. The Government is further aware that as before, the better integration of older workers in the labour market, which has reached 41 per cent in 2008, continues to be a key in order to reach the Stockholm target of 50 per cent. The Committee recalls that increasing the participation and employment rates of older workers is a crucial issue common to advanced economies in light of the ageing and shrinking of their working age population.

The Committee notes that in light of the ongoing effects of the global economic crisis, the measures undertaken by the Government to stimulate the economy and create jobs resulted in economic packages and tax breaks amounting to €5.7 billion – 2 per cent of the Austrian GDP. Furthermore, the budget for active labour market policies has been increased by almost half; the total in 2009 was €1.3 billion. Legislative measures comprise the Employment Promotion Act 2009, which focuses on expansion of short-time work, training and facilitating the establishment of labour foundations. The “Early Intervention Strategy” remains the Government’s main tool to improve the integration of young and older persons in the labour market. The employment campaign for persons with disabilities will be continued and supported with additional resources to facilitate their entry into the labour market. The Committee requests the Government to continue to provide in its next report information on the situation, level and trends of employment, unemployment and underemployment, both in the aggregate and as they affect particular categories of workers, especially with regard to young persons and workers with disabilities.

Article 3. Consultation with social partners. The Committee notes that the social partners’ proposals were taken into consideration by the Government. This led to a reform of the Youth Employment Package 2008 to include on-the-job and external training and the implementation of a training guarantee for young persons below the age of 18. In this regard the Committee notes with interest that the social partners’ document “Labour Market – Future 2010” would be integrated into the 24 integrated guidelines for growth and employment of the National Reform Programme. The Committee invites the Government to also include in its next report updated information on the participation of the social partners in the design and implementation of other active employment market measures as required by the Convention.

Direct Request (CEACR) - adopted 2008, published 98th ILC session (2009)

The Committee notes the Government’s report for the period ending in May 2007, which includes the First Implementation Report of 2006 on the Austrian Reform Programme for Growth and Employment and its replies to the 2005 direct request.

1. Articles 1 and 2 of the Convention. Employment trends and active labour market measures. The Committee notes with interest that employment in Austria has again reached new heights and that a recovery of the labour market is likely to continue due to the stable growth rate of the economy. While the Government’s general aim is to reach full employment, by 2006 the overall employment rate stood at 70.2 per cent, thus above the EU quantitative goal of 70 per cent. The employment rate for women has again increased and stood by 63.5 per cent, thus 3.5 percentage points above the EU quantitative goal. The Committee further notes that as compared to 2005, the aggregate unemployment rate fell by 0.3 percentage points and stood at 4.9 per cent (EU average: 8.7 per cent). In 2005, the unemployment rate for women stood at 5.5 per cent, thus below the EU average of 9.8 per cent. While youth unemployment fell by 11.6 percentage points in 2006, the Government report indicates that the main challenge remains to promote employment among older workers. While the unemployment rate of persons above 50 has slightly increased in the 2005 average, it has developed favourably for persons above 60. This is mirrored by the labour force participation rate of those aged 55–64 which in 2006 stood at 35.5 per cent as compared to 31.8 per cent in 2005 and 30.4 per cent in 2003. The effect of the cumulated employment development is estimated to have increased the number of positions created between 2002 and 2006 by 63,000.

2. The Government’s report describes its active labour market measures to cater for the increased dynamic and structural changes of the labour market and to accommodate the reform of the EU strategy. Besides the continuation of the measures mentioned in its 2005 report, the Government has increased its emphasis on the “Early Intervention Strategy” for young and older unemployed persons, its work against gender-based segmentation of the labour market and on specific educational programmes for employed persons, i.e. lifelong guidance and learning aid. These measures were accompanied by a politico-economic programme, including an economic recovery programme, a tax reform and a further increase of governmental spending for employment policy measures, which has more than doubled since 1999. The Committee asks the Government to continue to report on the manner in which measures adopted under the general economic policy contribute to pursuing the objective of full and productive employment, in particular in favour of older workers who wish to work and disadvantaged young people. It would also appreciate continuing to receive information and data on successes, problems encountered and lessons learnt from the experience of social partners in Austria with regard to the application of the provisions of the Convention.

Direct Request (CEACR) - adopted 2005, published 95th ILC session (2006)

The Committee notes the replies to its previous direct request and the Government’s report for the period ending in May 2005, which includes the 2004 Progress Report on the National Plan for Employment for Austria.

1. Employment trends and active labour market measures. The Government indicates in its 2004 Progress Report on the National Action Plan for Employment that Austria has aligned itself with the employment policy goals agreed upon by EU Member States. The Government is resolved to meet the EU goals through a package of measures and is determined to raise the employment rate to the EU target of 70 per cent, the female employment rate to 60 per cent and the employment rate for persons aged 55-64 to 50 per cent. Supplemented by the data published by the Organisation for Economic Co-operation and Development (OECD), the Committee further notes that, in 2004, the unemployment rate stood at 4.5 per cent, while the overall employment rate stood at 68 per cent, thus well on the way to meeting the EU quantitative goal of 70 per cent by 2010. The employment rate for women was 61 per cent in 2004, already exceeding the EU target level. The Government indicates in its report that the main challenge remains to promote employment among older workers. Although their employment rate has risen in recent years, the labour force participation rate for those aged 55-64 stood at only 30.4 per cent in 2003. Among the measures the Government intends to promote in order to encourage older workers to remain in the labour force, those include, inter alia, reform of partial retirement, introduction of transitional retirement pay and further education initiatives for older workers.

2. The Government’s Progress Report for 2004 also describes its active labour market measures, which include, inter alia, preventive measures for unemployed workers to facilitate their transition into the world of work, effective integration of the unemployed and regular reviewing and evaluation of the effectiveness and efficiency of labour market programmes, special programmes for youth (creation of 9,000 positions for unemployed young people), reform of the Public Employment Service (AMS) and new acceptability criteria for positions offered by the AMS, continuation of the Disability Billion, a federal employment initiative to integrate people with disabilities into the labour market. The Committee looks forward to receive from the Government in its next report an assessment of the impact of its active labour market measures, including information on the extent to which these measures have been successful in achieving its objectives of increasing the participation of older workers in the labour market. The Committee also wishes to express its interest in information on how measures taken to promote employment operate within a "framework of a coordinated economic and social policy". It would appreciate if the Government could indicate how the key elements of monetary and fiscal policies contribute to the employment objectives (Articles 1 and 2 of the Convention).

3. Participation of the social partners. Referring to its previous request, the Committee would be grateful if the Government could provide, in its next report, information on the manner in which representatives of groups concerned are consulted with regard to employment policies, by stating the issues placed before them (Article 3).

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

The Committee notes the comprehensive information contained in the Government’s reports for the period ending May 2003 that includes a complete evaluation of its active employment policy.

1. Articles 1 and 2 of the Convention. The Government expresses its satisfaction with the results achieved through its active employment policy implemented in the five-year plan ended in 2002 and indicates that it will seek to strengthen its programmes and actions through the adoption of a new National Action Plan for Employment (NAPE). The new plan is to reinforce the active labour market policy through measures including, inter alia, increasing training allowances, broadening the range of training opportunities, focusing on training contents that are in demand, implementing programmes aimed at enhancing the status of women, taking measures to make technical scientific work and handicraft more attractive to women, and implementing the "Pact for older people". The Committee would appreciate being kept informed of progress made in the implementation of the NAPE. Please also state whether special difficulties have been encountered in attaining the objectives of the NAPE and indicate how far these difficulties have been overcome.

2. The data show that the economy slowed down in 2002 as domestic demand decreased and investment activity fell relative to the previous year (-4.9 per cent). The Government indicates that due to the poor economic conditions it was unable to meet the target it had set in its National Action Plan for Employment for 2000 of no more than 3.5 per cent unemployment by 2002. Supplemented by the data published by the OECD, the report demonstrates that the employment situation deteriorated slightly during the period in question. The unemployment rate, which was 3.7 per cent in 2000, has increased to 4.3 per cent in 2002. Please continue to provide detailed statistics on the level and trends of the active population, employment, underemployment and unemployment in the various sectors of activity and for the different categories of the population.

3. The Government indicates that in 2001 it introduced additional measures to complement its existing active labour market policy. These measures included, inter alia, improved access to subsidies for part-time employment of older workers, further educational benefits for older workers, an employment campaign known as the "disability billion" to integrate people with disabilities into the labour market, as well as reforms in the Public Employment Service (AMS) introducing greater accessibility and upgrading self-service options. Additionally, the Government has also introduced an initiative to combat discrimination and inequality within the labour market dubbed Equal, as well as pursuing its gender mainstreaming strategy in all fields and establishing an inter-ministerial work group with a view to implementing these strategies in the fields of activities of the respective ministries. The Committee has taken note of the variety of programmes the Government has introduced and wishes to remain informed on further developments in this respect.

4. The Committee would be grateful if the Government in its next report would provide information on consultations under Article 3.

Direct Request (CEACR) - adopted 2001, published 90th ILC session (2002)

The Committee notes the information contained in the Government’s detailed and well-organized report for the period 1 July 1998 to 31 May 2000.

1. Article 1 of the Convention. The Government has adopted a National Action Plan on Employment which sets a target of no more than 3.5 per cent unemployment by 2002. So far, the Government is ahead of schedule in achieving its goal, and credits its emphasis on active labour market policies, particularly training. The Government’s priorities, based on the EU guidelines for employment, include: promoting job opportunities for youth; preventing long-term unemployment; expanding active labour market policies; improving the job prospects of women and older workers; promoting employment in the services sector; boosting lifelong learning; decreasing non-wage labour costs; and promoting entrepreneurship.

2. The Committee notes that there has been a steady increase in employment in the services sectors, and in the chemicals, communications technology, and motor vehicles industries, while employment has declined in the consumer goods industries. Employment increased in all länder. Joblessness decreased for men, from 3.8 per cent in 1998 to 3.1 per cent in 1999; and for women, from 5.4 per cent in 1998 to 4.5 per cent in 1999. The greatest decrease in joblessness was among school-leavers. Long-term unemployment decreased to 26.5 per cent of total unemployment.

3. In response to previous comments, the Government states that the percentage of women in part-time work is below the EU average, but that it cannot rule out that the high demand for part-time work by women may be due to the difficulties in balancing their professional and family life. The increase in employment for women from 1994 to 1999 is almost exclusively in part-time work. Employment for older workers increased in absolute terms, but the number of older workers also increased, resulting in a larger percentage of older workers among the jobless. However, long-term unemployment among older workers has been decreasing. The Committee notes this information and asks the Government to continue to supply information on the measures taken to ensure the fullest possible opportunity for each worker to qualify for, and to use his or her skills and endowments in a suitable job.

4. Article 2. The Committee notes that although the Government is required to submit a report to the EU Commission each year on the successes and failures of its employment policies and programmes, no information is provided in its report on the outcome of these evaluations. The Committee would appreciate receiving such information in future reports.

Direct Request (CEACR) - adopted 1999, published 88th ILC session (2000)

1. The Committee notes the useful information contained in the Government's report and its reply to the previous direct request. The recent growth rates of employment and labour force participation are about equal and the standardized unemployment rate for 1998 was 4.7 per cent. It notes with particular interest the Government's success in the youth training and apprenticeship programme and the consequent low level of youth unemployment.

2. The Committee notes that there has been a recent increase in long-term unemployment, mainly among low-skilled and older workers. It would appreciate receiving further information in the Government's next report on the measures taken or envisaged to address this trend. The Committee also notes the high proportion of women in part-time employment. In its report, the Government states that it intends to create new jobs in the day care sector with the intention of simultaneously reducing unemployment and enabling women to participate more in full-time employment. Furthermore, the Government has set aside more than the proportionate number of places for women on its "catch-all net for young people" (Auffangnetz für Jugendliche) expanded youth training programmes to ensure an increase in the number of women receiving training. The Committee requests further information in the Government's next report on the impact of these programmes in reducing the proportion of part-time work which is involuntary. It also asks the Government to continue to supply information on labour market trends for low-skilled workers, older workers, and female part-time workers, in accordance with the information requested in the report form under Article 1 of the Convention, concerning trends of unemployment and underemployment as they affect particular categories of workers.

Direct Request (CEACR) - adopted 1996, published 85th ILC session (1997)

1. The Committee notes the Government's report for the period ending June 1996 and the useful information that it contains in reply to its previous request. It notes that in line with the slow-down in the growth of economic activity total employment has been declining since the second half of 1995, particularly due to employment losses in the consumption goods industry and construction. According to OECD estimates, the standardized unemployment rate, which was 5.9 per cent in 1994 and 1995, should rise to 6.2 per cent in 1996. The Government reports an increase in unemployment among young persons, although it emphasizes that their situation on the labour market remains much better than in most other European countries.

2. The Committee notes the Government's March 1996 statement that the preservation of employment is one of its fundamental objectives. It notes that the policy of budgetary stabilization to ensure the convergence of economic policies within the European Union has been accompanied by an initiative for growth and employment, which includes infrastructure works and the establishment of new industrial centres and should contribute to the creation or maintenance of jobs during the period 1996-97. The Government also emphasizes that the increase in direct and indirect taxation is designed to guide savings towards productive investment and not to be a burden on employment. The Committee notes that the requested analysis of the expected consequences of integration into the European Union shows that it should have a long-term positive effect on the employment of skilled workers, to the detriment of unskilled workers, which justifies the emphasis placed on training measures to combat a two-tier labour market. It requests the Government to continue providing detailed information on the principal economic policies pursued and the manner in which they contribute to the attainment of the employment objectives set out in Article 1 of the Convention.

3. The Committee notes the statistics concerning the activities of the employment services. It notes that the data on active labour market policy measures show that the great majority of the available resources are devoted to training measures. Finally, the Committee has been informed of the recent adoption of the Labour Market Policy Act and the Structural Adjustment Act. No doubt the Government will provide detailed information in its next report on the changes made by these Acts in labour market policy and their effect on the attainment of the objectives of the Convention.

Direct Request (CEACR) - adopted 1995, published 83rd ILC session (1996)

1. The Committee notes the Government's report for the period ending June 1994. The unemployment rate, which was 5.9 per cent in 1992, rose to 6.8 per cent in 1993 and fell back to 6.4 per cent in 1994. The Government considers that during the reference period the labour market followed the economic situation, which was marked by a recession in 1993 that led to enterprises reducing employment to maintain their productivity. The Government states that the prospects of unemployed persons finding another job have been further reduced, particularly for unemployed persons aged over 50 years, and that the proportion of long-term unemployment has risen substantially. The increase in structural unemployment noted by the Committee in its previous request appears to have been confirmed during the latest recession.

2. The Government refers in its report to the stabilization measures taken by other economic and political institutions than the Federal Ministry of Labour and Social Affairs. The Committee recalls that under Article 2 of the Convention, the measures to be adopted to achieve employment objectives have to be decided on and kept under review, "within the framework of a coordinated economic and social policy" and requests the Government to indicate in its next report the manner in which strategies in the fields of budgetary and monetary policies, and prices, incomes and wages policies contribute to the promotion of employment. The Committee also notes that the Government refers to the challenge faced by the country as a result of its membership of the European Union and it would be grateful if the Government would indicate the expected consequences of its membership on employment.

3. The Committee notes the information concerning the restructuring of the employment service, designed to increase the effectiveness of its advisory, placement and training services. The Committee requests the Government to provide any available evaluation on the impact of this reform, which came into force in July 1994, without prejudice to the information to be provided subsequently on the application of Convention No. 88. The Committee notes that, although the labour market policy programmes were reinforced during the reporting period and new measures were introduced for the long-term unemployed, women and older workers, the Government recognizes that the effect of active measures remains relatively weak. Furthermore, the Committee notes the information provided at its request on the number of jobseekers whose entitlement to benefit has been suspended. It requests the Government to continue supplying information on the manner in which the unemployment compensation scheme is coordinated with the employment policy, taking into account the relevant provisions of the Social Security (Minimum Standards) Convention, 1952 (No. 102), and the Committee's comments on its application.

Direct Request (CEACR) - adopted 1994, published 81st ILC session (1994)

1. The Committee notes the Government's report for the period ending June 1992 and the enclosed observations of the Federal Chamber of Workers and Salaried Employees. It notes that despite fairly rapid economic growth, growth in employment during the reporting period, although sustained, was insufficient to absorb the rapidly increasing active population (the result of massive immigration, inter alia) and to prevent an increase in the unemployment rate which rose from 5.4 per cent in 1990 to 5.8 per cent in 1991 and 1992. While the share of the under 25 age group in total unemployment declined, there was an increase in the proportion of workers unemployed for over a year and unemployed older workers or workers regarded as difficult to place. Furthermore, the Federal Chamber of Workers and Salaried Employees notes that there was a rapid increase, particularly as regards women, in precarious or poorly protected employment. Although the labour market situation still compares favourably to that of other industrialized European countries, the data provided confirm the OECD's forecast in its latest economic survey (April 1993) of an upward trend in structural unemployment.

2. The Government continues to refer to the objective of full employment laid down in the Labour Market Promotion Act, and indicates that it has increased the funds earmarked for active labour market policy measures to cope with growing unemployment. In this connection, the Committee notes the detailed information on the programmes to promote the employment of the most vulnerable population groups, appended to the report. It notes with particular interest the considerable increase in the number of beneficiaries of the "Aktion 8000" programme to create jobs for the long-term unemployed. It also notes that the Government has undertaken to reform the public employment service to provide more effective assistance for the categories that have the most difficulties in finding jobs. It would be grateful if in its next report, the Government would provide information on the nature and progress of these reforms.

3. In answer to the Committee's previous comment on the conditions for suspending unemployment entitlements or special emergency aid, the Government states that it considers that the provisions to prevent unwarranted claims of such benefits are not applied in such a way as to contravene Article 1, paragraph 2(a) and (c), of the Convention and must be assessed in the context of a policy to create employment opportunites for all jobseekers. It also points out that very few persons are affected. However, in the opinion of the Federal Chamber of Workers and Salaried Employees, the practice of certain employment services with regard to suspension of benefits has become more restrictive and is therefore contrary to the objectives of this provision of the Convention. The Committee notes this divergence of opinion and would be grateful if the Government would provide information on trends in the number of jobseekers affected by suspensions of entitlements.

Direct Request (CEACR) - adopted 1992, published 79th ILC session (1992)

1. The Committee takes note of the Government's report for the period ending June 1990 and the observations of the Congress of Austrian Chambers of Labour. According to the information supplied by the Government and that contained in the reports and studies of the OECD, the high growth levels of economic activity and employment have not been sufficient to obtain a sustainable reduction in the unemployment rate owing to the fact that the active population has grown more rapidly than employment. Although total employment increased by 1 per cent in 1989 and 2.1 per cent in 1990, the unemployment rate, which stood at 5.3 per cent in 1988, dropped only slightly in 1989 (5 per cent) and rose again to 5.4 per cent in 1990. The Committee, while noting that the employment situation is on the whole more positive than in most other OECD countries, none the less notes certain tendencies which could be worrying in the long term such as the increase in the length of unemployment of older workers or workers with lower skills and the rapid increase in unemployment among foreign workers.

2. The Committee notes the information concerning active employment policy measures. It notes in particular that special activities for the employment of women are being pursued and new measures for older workers have been introduced to cope with their deteriorating situation on the labour market. The Committee also notes the information on the training programmes aimed at preventing unemployment or encouraging the reintegration of the unemployed supplied by the Government in its report on the application of Convention No. 142. It would be grateful if the Government would continue to supply information on the various programmes being implemented and the evaluation of their effect on the employment of the groups of the population concerned.

3. In its comments on the application of the Convention, the Congress of Austrian Chambers of Labour expresses the view that the existence merely of legal conditions for the application of the objectives of the Convention is not sufficient, in practice, to guarantee work for all jobseekers. Furthermore, if an unemployed person can be obliged to accept a less skilled or lower paid job, this would restrict the free choice of employment according to the Congress. In its reply to this point, the Government states that the Unemployment Insurance Act of 1977 has not affected free choice of employment. Under this Act, refusal on the part of an unemployed person to accept reasonable alternative employment can entail a temporary suspension of entitlement to unemployment benefit or special emergency aid; however, the employment proposed must be adequately remunerated and a less highly skilled job can be considered reasonable only if the unemployed persons has exhausted his entitlement to unemployment benefit and has no prospect of finding employment in his own trade or occupation in the foreseeable future. The Committee takes note of this information and recalls that under Article 1, paragraph 2(a) and (c), of the Convention, employment policy must aim at ensuring that "there is work for all who are available for and seeking work" and that "there is freedom of choice of employment and the fullest possible opportunity for each worker to qualify for and to use his skills and endowments in a job for which he is well suited". It asks the Government to state how account is taken of these objectives in the implementation of the legal provisions in force and particularly the Labour Market Promotion Act and the Unemployment Insurance Act.

Direct Request (CEACR) - adopted 1989, published 76th ILC session (1989)

Further to its previous direct requests, the Committee has noted the detailed information supplied by the Government. It notes that, according to this information, unemployment decreased to 4 per cent in June 1988, and that according to the OECD Austria remains among the low unemployment countries. The Government states that youth unemployment has been falling for demographic reasons, and overall employment has been growing; increased unemployment is, however, thought likely in 1989-90.

The Congress of Austrian Chambers of Labour states in its comments that in view of the rise in unemployment in the 1980s more intensive job-creating measures are needed.

The Committee welcomes recent improvements in the employment situation and is pleased to note the continuing efforts of the Government - especially through implementation of the Konzept 90 programme - in the light of the Government's own relatively negative prognosis. It notes that, whilst the special youth programme is in the circumstances not being pursued, special measures in favour of women workers (who still face difficulties in the labour market) continue. The Committee trusts that in reviewing and implementing structural adjustment policies and measures the Government will ensure the necessary co-ordination and consultation among the various national and local authorities and the organisations and persons affected (Articles 2 and 3 of the Convention). It refers finally to its previous direct request and once more would be grateful if the Government would supply the information mentioned in the report form as to the development of employment in each sector and the employment effects of overall policies in such fields as investment (both public and private), budgetary and monetary policies, international trade (especially in the European region), and prices, incomes and wages.