Employment Policy Convention, 1964 (No. 122) - Montenegro (Ratification: 2006)

Direct Request (CEACR) - adopted 2023, published 112nd ILC session (2024)

The Committee notes that the Government’s report has not been received. It hopes that the next report will contain full information on the matters raised in its previous comments.

Repetition

Employment trends and impact of COVID-19 pandemic. The Committee notes that, according to the Decent Work Country Program for the period 2019–21 adopted in 2018, before the onset of the COVID-19 pandemic, unemployment had declined from 19 per cent in 2007 to 14.2 per cent in the third quarter of 2018. Furthermore, the employment rate had steadily grown from 47 per cent in 2006 to 58.2 per cent in the third quarter of 2018. However, the share of long-term unemployment remained very high (80 per cent of all unemployed), there were also elevated levels of youth unemployment and inactivity, high informality, and continued emigration (emigrants represent 20 per cent of the resident population). The Committee also notes that, according to the 2020 European Commission Assessment of the Economic Reform Programme (ERP) of Montenegro for the period 2020–22, geographical disparities are large and disproportionately affect the northern region (the unemployment rate in the northern regions is up to nine times higher than in the coastal region). At the same time, the coastal region relies heavily on tourism.

The Committee further notes from the ILO Rapid Assessment of the Employment Impact of the COVID-19 pandemic on Montenegro and Policy Responses, that already in April 2020 registered unemployment increased by 6.2 per cent compared with the same month in 2019 and jumped by over 4,500 workers (57 per cent of them women) compared with March 2020. In this context, the Committee notes the series of policy measures adopted by the Government to prevent and mitigate the negative economic and social consequences of the crisis, such as measures to support enterprises and business continuity (including deferred payment of customs debt, and the provision of bank guarantees to ensure liquidity and loans, as well as credit lines for medium and small enterprises (SMEs)). The Committee also notes that employment retention measures were announced and undertaken relatively early during the lockdown (such as subsidies of 70 per cent of the gross minimum wage for employees on paid leave and/or in quarantine or isolation). In addition, access to unemployment benefits, social protection and paid leave were extended. The Committee further notes that, according to the ILO Rapid Assessment, social partners’ proposals are integrated in the measures taken or envisaged. In this regard, the Committee recalls the comprehensive guidance provided by international labour standards and draws the Government’s attention to the Employment and Decent Work for Peace and Resilience Recommendation, 2017 (No. 205), which provides guidelines for developing and implementing effective, consensus-based and inclusive responses to the profound socio-economic impacts of the pandemic. The Committee requests the Government to provide detailed updated information on the impact of the COVID-19 pandemic on the labour market, including statistical information, disaggregated by age and sex, on the size and distribution of the labour force, rates of employment, unemployment and under employment in all parts of the country. The Committee also requests the Government to indicate the manner in which the pandemic and the measures adopted to mitigate its effects have affected the implementation of the objectives of the Convention.

Articles 1 and 2 of the Convention. Implementation of an active employment policy. In reply to the Committee’s previous comments, the Government recalls that the 2016-20 National Strategy for Employment and Human Resources Development aims at creating optimal conditions for employment growth and human resource development in Montenegro. The Committee also notes that the DWCP includes among its key objectives: the creation of favourable conditions for employment and sustainable entrepreneurship and the formalisation of the informal economy. It also contemplates the adoption of measures to reduce skills mismatch, in particular among young persons and to improve the efficiency of labour market institutions. Furthermore, the Committee notes the adoption of the Economic Reform Programme (ERP) for the period 2020–22, in line with the new approach of the European Union (EU) to the economic dialogue with candidate countries and potential candidate countries to the Union membership. The ERP’s objectives are consistent with those of the DWCP. The ERP also contemplates the elaboration and adoption of the National Employment Strategy 2021–24 in 2020. Moreover, the Committee notes that, according to the DWCP, the Government has been working in the elaboration of a new employment legislation. The Committee requests the Government to continue to provide detailed updated information regarding the policies and measures to promote full, productive and freely chosen employment developed and implemented in the framework of the National Strategy for Employment and Human Resources Development (2016–20), the ILO Decent Work Country Programme (DWCP) 2019-21, the Economic Reform Programme (ERP) and how they are coordinated with other economic and social objectives. It also requests the Government to provide information on the progress made towards the adoption of the new employment legislation and the National Employment Strategy 2021–24 and to provide copies once adopted.

Particular categories of workers. In reply to the Committee’s previous comments, the Government refers to the implementation of measures by the Employment Office aimed at the inclusion of members of Roma and Egyptian communities in active employment measures, such as education and training programmes for adults, public programmes providing direct employment opportunities, and seasonal employment. The Committee notes the information provided by the Government with regard to the number of participants in these active employment measures during the reporting period. In addition, the Government refers to the implementation in 2018 of the pilot programme “Empower me and I will succeed” with the objective of improving the employability and promoting the access to the labour market of members of the Roma and Egyptian communities. The Government reports that 9 women and 4 men participated in the pilot programme. The Committee requests the Government to continue to provide detailed updated information, including statistical information, on the active employment policy measures taken or envisaged to increase the employability and the employment rate of members of the Roma and Egyptian communities in the country. It also requests the Government to continue to provide detailed updated information on the measures taken to extend the reach of active employment programmes to benefit a greater number of persons from these communities.

Young persons. The Committee notes that, according to DWCP, the unemployment rate among young persons (aged between 15 and 24) was 26.8 per cent in the third quarter of 2018, while the EU average was 16.8 per cent. The DWCP highlights that young women are less likely than men to transit to employment and are at higher risk of falling within the category of youth who are not in employment, education or training (NEET). Furthermore, the DWCP highlights that young graduates lack the skills that employers need, and that school-to-work transition is not efficient. It takes on average two years for most young people to enter into stable and satisfactory employment. Against this background, the Committee notes that the Government refers to the continuation of the implementation of the programme of vocational training aimed at reducing unemployment of young persons with higher education and without experience by providing opportunities for additional acquisition of knowledge, skills and competences. The programme also provides inputs to policies of higher education institutions. The Government reports that 50 per cent of the participants continued to work after the expiration of the programme. Furthermore, the Government refers to the implementation of the “Stop Grey Economy” programme, which aims at promoting the participation of young persons in the labour market and preventing their entry into long-term unemployment by strengthening their employability through on-the-job training. The Committee notes the information provided by the Government in relation to the number of participants in the active employment measures implemented during the reporting period to address youth unemployment. The Committee requests the Government to continue to provide detailed updated information on the active employment policies and measures taken to improve the employability of young persons and their integration into the labour market, including policies and measures targeting young university graduates and young persons from less developed municipalities. It further requests the Government to provide detailed updated information on the impact of such measures, including statistical information disaggregated by age and sex.

Informal economy. The Committee notes from the DWCP, that it is estimated that 25 to 33 per cent of employment is informal. The Committee notes that, according to the 2020 European Commission report, in 2017 the Government adopted an action plan to combat the grey economy. Furthermore, in 2018 a Government “Commission for the Suppression of the Grey Economy” was established for the coordination of different actions, encourage cooperation between government bodies and assist local authorities. Its works focused mainly on the tourism sector and undeclared work. The Committee requests the Government to continue providing detailed and updated information on the scope of the informal economy and the measures adopted to facilitate the transition to the formal economy, including the measures adopted within the framework of the “Action plan to combat the grey economy”, and their impact.

Article 3. Participation of the social partners. In reply to its previous comments, the Committee notes the Government’s indication that the social partners participated in the elaboration of the 2016–20 National Strategy for Employment and Human Resources Development as well as on the formulation of its annual Actions Plans. The Government also indicates that the DWCP for the period 2019-21 was developed in close cooperation with the social partners. The Government indicates in its report that it expects that the implementation of the DWCP will enhance the institutional and technical capacities of the social partners, and the role and functions of the national tripartite Social Council. Furthermore, the Committee notes that the DWCP includes among its policy priorities, strengthening the mechanism of social dialogue and collective bargaining. In this regard, the Committee notes the adoption in July 2018 of the amended Law on the Social Council, which provides for the government’s obligation to seek opinions from the council on important draft legislative and policy measures as part of the consultation process. The Committee notes, however, that according to the DWCP, the impact and influence of this tripartite body is still limited. Although significant effort has been made by social partners to support the government with well researched analysis and evidence-based policy solutions, their recommendations are often not considered. The Committee requests the Government to provide detailed updated information on any development concerning the participation of the social partners in the formulation and implementation of employment policy measures, including those adopted to address the socio-economic impact of the COVID-19 pandemic.

Direct Request (CEACR) - adopted 2020, published 109th ILC session (2021)

Employment trends and impact of COVID-19 pandemic. The Committee notes that, according to the Decent Work Country Program for the period 2019-2021 adopted in 2018, before the onset of the COVID-19 pandemic, unemployment had declined from 19 per cent in 2007 to 14.2 per cent in the third quarter of 2018. Furthermore, the employment rate had steadily grown from 47 per cent in 2006 to 58.2 per cent in the third quarter of 2018. However, the share of long-term unemployment remained very high (80 per cent of all unemployed), there were also elevated levels of youth unemployment and inactivity, high informality, and continued emigration (emigrants represent 20 per cent of the resident population). The Committee also notes that, according to the 2020 European Commission Assessment of the Economic Reform Programme (ERP) of Montenegro for the period 2020-22, geographical disparities are large and disproportionately affect the northern region (the unemployment rate in the northern regions is up to nine times higher than in the coastal region). At the same time, the coastal region relies heavily on tourism.

The Committee further notes from the ILO Rapid Assessment of the Employment Impact of the COVID-19 pandemic on Montenegro and Policy Responses, that already in April 2020 registered unemployment increased by 6.2 per cent compared with the same month in 2019 and jumped by over 4,500 workers (57 per cent of them women) compared with March 2020. In this context, the Committee notes the series of policy measures adopted by the Government to prevent and mitigate the negative economic and social consequences of the crisis, such as measures to support enterprises and business continuity (including deferred payment of customs debt, and the provision of bank guarantees to ensure liquidity and loans, as well as credit lines for medium and small enterprises (SMEs)). The Committee also notes that employment retention measures were announced and undertaken relatively early during the lockdown (such as subsidies of 70 per cent of the gross minimum wage for employees on paid leave and/or in quarantine or isolation). In addition, access to unemployment benefits, social protection and paid leave were extended. The Committee further notes that, according to the ILO Rapid Assessment, social partners’ proposals are integrated in the measures taken or envisaged. In this regard, the Committee recalls the comprehensive guidance provided by international labour standards and draws the Government’s attention to the Employment and Decent Work for Peace and Resilience Recommendation, 2017 (No. 205), which provides guidelines for developing and implementing effective, consensus-based and inclusive responses to the profound socio-economic impacts of the pandemic. The Committee requests the Government to provide detailed updated information on the impact of the COVID-19 pandemic on the labour market, including statistical information, disaggregated by age and sex, on the size and distribution of the labour force, rates of employment, unemployment and under employment in all parts of the country. The Committee also requests the Government to indicate the manner in which the pandemic and the measures adopted to mitigate its effects have affected the implementation of the objectives of the Convention.

Articles 1 and 2 of the Convention. Implementation of an active employment policy. In reply to the Committee’s previous comments, the Government recalls that the 2016-20 National Strategy for Employment and Human Resources Development aims at creating optimal conditions for employment growth and human resource development in Montenegro. The Committee also notes that the DWCP includes among its key objectives: the creation of favourable conditions for employment and sustainable entrepreneurship and the formalisation of the informal economy. It also contemplates the adoption of measures to reduce skills mismatch, in particular among young persons and to improve the efficiency of labour market institutions. Furthermore, the Committee notes the adoption of the Economic Reform Programme (ERP) for the period 2020-22, in line with the new approach of the European Union (EU) to the economic dialogue with candidate countries and potential candidate countries to the Union membership. The ERP’s objectives are consistent with those of the DWCP. The ERP also contemplates the elaboration and adoption of the National Employment Strategy 2021-24 in 2020. Moreover, the Committee notes that, according to the DWCP, the Government has been working in the elaboration of a new employment legislation. The Committee requests the Government to continue to provide detailed updated information regarding the policies and measures to promote full, productive and freely chosen employment developed and implemented in the framework of the National Strategy for Employment and Human Resources Development (2016–20), the ILO Decent Work Country Programme (DWCP) 2019-21, the Economic Reform Programme (ERP) and how they are coordinated with other economic and social objectives. It also requests the Government to provide information on the progress made towards the adoption of the new employment legislation and the National Employment Strategy 2021-24 and to provide copies once adopted.

Particular categories of workers. In reply to the Committee’s previous comments, the Government refers to the implementation of measures by the Employment Office aimed at the inclusion of members of Roma and Egyptian communities in active employment measures, such as education and training programmes for adults, public programmes providing direct employment opportunities, and seasonal employment. The Committee notes the information provided by the Government with regard to the number of participants in these active employment measures during the reporting period. In addition, the Government refers to the implementation in 2018 of the pilot programme “Empower me and I will succeed” with the objective of improving the employability and promoting the access to the labour market of members of the Roma and Egyptian communities. The Government reports that 9 women and 4 men participated in the pilot programme. The Committee requests the Government to continue to provide detailed updated information, including statistical information, on the active employment policy measures taken or envisaged to increase the employability and the employment rate of members of the Roma and Egyptian communities in the country. It also requests the Government to continue to provide detailed updated information on the measures taken to extend the reach of active employment programmes to benefit a greater number of persons from these communities.

Young persons. The Committee notes that, according to DWCP, the unemployment rate among young persons (aged between 15 and 24) was 26.8 per cent in the third quarter of 2018, while the EU average was 16.8 per cent. The DWCP highlights that young women are less likely than men to transit to employment and are at higher risk of falling within the category of youth who are not in employment, education or training (NEET). Furthermore, the DWCP highlights that young graduates lack the skills that employers need, and that school-to-work transition is not efficient. It takes on average two years for most young people to enter into stable and satisfactory employment. Against this background, the Committee notes that the Government refers to the continuation of the implementation of the programme of vocational training aimed at reducing unemployment of young persons with higher education and without experience by providing opportunities for additional acquisition of knowledge, skills and competences. The programme also provides inputs to policies of higher education institutions. The Government reports that 50 per cent of the participants continued to work after the expiration of the programme. Furthermore, the Government refers to the implementation of the “Stop Grey Economy” programme, which aims at promoting the participation of young persons in the labour market and preventing their entry into long-term unemployment by strengthening their employability through on-the-job training. The Committee notes the information provided by the Government in relation to the number of participants in the active employment measures implemented during the reporting period to address youth unemployment. The Committee requests the Government to continue to provide detailed updated information on the active employment policies and measures taken to improve the employability of young persons and their integration into the labour market, including policies and measures targeting young university graduates and young persons from less developed municipalities. It further requests the Government to provide detailed updated information on the impact of such measures, including statistical information disaggregated by age and sex.

Informal economy. The Committee notes from the DWCP, that it is estimated that 25 to 33 per cent of employment is informal. The Committee notes that, according to the 2020 European Commission report, in 2017 the Government adopted an action plan to combat the grey economy. Furthermore, in 2018 a Government “Commission for the Suppression of the Grey Economy” was established for the coordination of different actions, encourage cooperation between government bodies and assist local authorities. Its works focused mainly on the tourism sector and undeclared work. The Committee requests the Government to continue providing detailed and updated information on the scope of the informal economy and the measures adopted to facilitate the transition to the formal economy, including the measures adopted within the framework of the “ Action plan to combat the grey economy”, and their impact.

Article 3. Participation of the social partners. In reply to its previous comments, the Committee notes the Government’s indication that the social partners participated in the elaboration of the 2016-20 National Strategy for Employment and Human Resources Development as well as on the formulation of its annual Actions Plans. The Government also indicates that the DWCP for the period 2019-21 was developed in close cooperation with the social partners. The Government indicates in its report that it expects that the implementation of the DWCP will enhance the institutional and technical capacities of the social partners, and the role and functions of the national tripartite Social Council. Furthermore, the Committee notes that the DWCP includes among its policy priorities, strengthening the mechanism of social dialogue and collective bargaining. In this regard, the Committee notes the adoption in July 2018 of the amended Law on the Social Council, which provides for the government’s obligation to seek opinions from the council on important draft legislative and policy measures as part of the consultation process. The Committee notes, however, that according to the DWCP, the impact and influence of this tripartite body is still limited. Although significant effort has been made by social partners to support the government with well researched analysis and evidence-based policy solutions, their recommendations are often not considered. The Committee requests the Government to provide detailed updated information on any development concerning the participation of the social partners in the formulation and implementation of employment policy measures, including those adopted to address the socioeconomic impact of the COVID-19 pandemic.

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

Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Committee welcomes the detailed information, including statistics, provided by the Government in its report. In particular, the Committee notes the Government’s adoption in December 2015 of the new National Strategy for Employment and Human Resources Development (2016–20). The Government indicates that the new National Strategy is a direct continuation of the previous strategic framework for 2012–15, which focused on increasing employment, improving knowledge, skills and competencies, poverty reduction and promoting social inclusion. The Strategy placed special emphasis on the integration of long-term unemployed persons, unemployed youth and unemployed women, and on increasing self-employment and encouraging entrepreneurship, especially in underdeveloped areas of Montenegro. With respect to the National Strategy (2012–15), the Government states that the global economic crisis has had a significant negative impact on the country’s economy, affecting its ability to achieve the Strategy’s goals. The Government nevertheless indicates that the overall evaluation of the Strategy’s implementation is positive, noting that despite negative external shocks experienced due to the crisis, the employment rate for the age group between 15 and 64 increased from 47 per cent in 2012 to 50.4 per cent in 2014. In particular, the employment rate for women aged 15–64 increased from 41.6 per cent to 45.3 per cent during the same time period. The Committee notes that fiscal constraints due to the economic crisis resulted in a reduction in the funds available for the implementation of the Strategy through active labour market policies, which fell from €3.575 million in 2012 to €2.856 million in 2014. The Government states that, while recent economic growth has led to improvements in the labour market since 2014, the labour market is recovering more slowly than the overall economy. With respect to the unemployment rate, the Government indicates, that while the target of 15 per cent unemployment for persons aged 15–64 was not achieved, the unemployment rate declined from almost 20 per cent to 18.2 per cent from 2012 to 2014. Moreover, while the target of 28 per cent unemployment for young people (15–24 years) was not met, unemployment among this group fell by 3.5 percentage points compared to 2011. In addition, due to the difficult economic situation in the country, the target of reducing the percentage of persons in long-term unemployment to 55 per cent was not reached. Nonetheless, the Government indicates that the percentage of unemployed persons looking for work for more than one year declined from 79.6 per cent to 77.5 per cent in 2014. The Committee requests the Government to provide detailed information regarding the policies and measures to promote full, productive and freely chosen employment developed and implemented in the framework of the National Strategy for Employment and Human Resources Development (2016–20), and their links with other economic and social objectives. The Government is further requested to provide information, including statistical information, disaggregated by age and sex, on the size and distribution of the labour force, rates of employment, unemployment and under employment in all parts of the country.

Particular categories of workers. In response to the Committee’s previous comments, the Government indicates that, as of 31 May 2016, there were 1,607 persons registered with the Montenegrin Employment Agency who identified themselves as members of the Roma and Egyptian population, of which 697 – 43.37 per cent – were women. The Government adds that 94.83 per cent of this population group lack professional qualifications. Accordingly, the Government has introduced active employment policy measures aimed at improving the employability of members of the Roma and Egyptian communities through targeted education and training programmes aimed at enabling them to qualify for a first job, as well as public works programmes, seasonal jobs and training for female hairdressers. The Government indicates that from 1 January to 31 May 2016, active employment policy programmes included 13 members of the Roma and Egyptian populations, of which seven were women, whereas 12 members – including six women – of this population group were engaged in seasonal employment. The Committee requests the Government to continue to provide information, including statistical information, on the active employment policy measures taken or envisaged to increase the employability and the employment rate of members of the Roma and Egyptian communities in the country. In particular, the Committee requests the Government to communicate information on any measures taken to extend the reach of active employment programmes to benefit a greater number of persons from these communities.

Young persons. The Committee notes that, despite the implementation of targeted activities and programmes, youth employment remains a challenge, with high rates of unemployment among this age group. The Government indicates that, in 2015, the employment rate of young persons aged 15–24 was 18.8 per cent, constituting an increase of 1.9 percentage points as compared to 2014, whereas the unemployment rate remained stable from 2014 to 2015 at 37.6 per cent. To tackle the growth of unemployment among university students, the Government implemented two targeted measures: a program of professional training for young persons with higher education and a pilot program, “Young people are our potential, give them a chance”. In 2014 and 2015, the training programme provided higher education to a total of 3,458 young persons. The pilot programme, implemented in 2015 and 2016, was intended to mitigate the negative consequences of prolonged unemployment and included activities in less developed municipalities. The Committee also notes the 2015 study “From school to work”, conducted in cooperation with the ILO in the framework of the implementation of Decent Work Country Programme 2015–17, which aims to strengthen the capacity of the Statistical Office of Montenegro to obtain reliable data on young persons as a basis for recommendations to promote youth employment. The Committee requests the Government to continue to provide information on the active employment policies and measures taken to improve the employability of young persons and their integration into the labour market, including policies and measures targeting young university graduates and young persons from less developed municipalities.

Article 3. Participation of the social partners in the formulation and application of policies. The Committee notes the Government’s indication that the country’s first Decent Work Country Programme (2015–17) was developed in close cooperation with the social partners and that plans for its implementation include special activities dedicated to improving the employment policy in Montenegro through tripartite collaboration. The Committee requests the Government to communicate information on the participation of the social partners in the development, implementation and monitoring of employment policies and programmes as well as on the nature and scope of tripartite consultations relevant to the provisions of the Convention.

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

Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Committee notes the Government’s detailed and comprehensive report including replies in relation to its 2011 direct request. The Government indicates that the National Strategy for Employment and Human Resources Development for the period 2012–15 was launched as a continuation of the previous strategy for 2007–11, while integrating new approaches and methodologies. The Government also provides information on the annual trend indicators in the context of achieving the goals set by the National Strategy for 2012–15 and the Action Plan for Employment for 2012. In this regard, the Committee notes that the employment rate for people aged between 15 and 65 increased from 46.6 per cent in 2011, to 47.4 per cent in 2012, and the unemployment rate fell from 20.1 per cent in 2011, to 19.6 per cent in 2012. It also notes that, although long-term unemployment decreased, the Government recognizes that it remains high (56.55 per cent at the end of 2012) and that the worst affected categories of workers are the elderly and, to a lesser extent, young people. The Government also refers to the revision of the Labour Law and the Law on Employment and Unemployment Insurance in 2011 and 2012, respectively, aimed at strengthening the objective of the Action Plan to increase employment and reduce unemployment. The Committee also observes that unemployment is more pronounced in the northern region of the country. In this respect, the Government indicates that a programme to promote competitiveness of entrepreneurs and SMEs in the northern region and other less developed areas of Montenegro has been launched. The Committee invites the Government to provide information in its next report on how the measures implemented in the framework of the National Strategy for Employment and Human Resources Development for 2012–15 and the Action Plan for Employment have succeeded in attaining full and productive employment, as required by the Convention.

Vulnerable categories of workers. Persons belonging to ethnic groups present in the country. In reply to its previous direct request, the Government indicates that 88 people self-identified as Roma and Egyptians were included in active employment policy programmes in 2012, representing 8.69 per cent of the total number of registered unemployed persons of the Roma and Egyptian communities. The report also indicates that several public works and vocational training programmes include Roma and Egyptian people among their participants. The Government also provides information on the strategy for improving the situation of Roma and Egyptians in Montenegro 2012–16 which, together with an Action Plan for 2013, was launched in December 2012. The Committee notes that the decree for the employment of certain categories of unemployed persons, adopted in April 2010, has been extended until the end of 2014. It also notes that women’s employment rate increased from 40.1 per cent in 2011 to 41.5 per cent in 2012. The Committee invites the Government to indicate in its next report the manner in which the labour market measures designed to encourage employment of vulnerable categories of workers have translated into the generation of productive and lasting employment opportunities for their beneficiaries.

Youth employment. The Committee notes the Government’s indication that, despite the positive employment trends, youth unemployment remains a challenge for the country. According to the employment agency, young people under 25 years of age registered as unemployed in 2012 amounted to 19.86 per cent of total unemployment, compared with 18.11 per cent in 2011. Moreover, according to the Labour Force Survey, the youth unemployment rate reached 43.17 per cent in 2012. The Committee takes note of the Government’s information about various programmes intended to facilitate the access of young people to the labour market, and particularly, that the programme “Employ our young people in seasonal jobs” between June and September 2012, included 1,568 young people who worked an average of 70 days. The Government’s report also refers to a significant increase in the number of unemployed university graduates, particularly those who graduated recently and are without work experience. According to the Government, this is mainly due to the mismatch between labour supply and demand in many professions. The Committee invites the Government to include in its next report an evaluation of the employment measures implemented to minimize the impact of unemployment on young people and to encourage their integration into the labour market, in particular young university graduates.

Article 3. Participation of social partners in the formulation and application of policies. The Committee notes that an agreement on wage policy between government and public sector trade unions was concluded at the end of December 2011. According to the Government, this agreement, which sets negotiation benchmarks based on GDP trends and the official inflation rate, is the result of successful social dialogue in response to difficult economic circumstances. The Committee invites the Government to include in its next report more specific information on the consultations held with the representatives of the social partners on the subjects covered by the Convention.

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

Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Committee notes the replies provided in the Government’s report received in August 2010 to the matters raised in its 2009 direct request. The Government reports that the National Action Plan for Employment (NAPE) 2008–09, which implements the National Strategy for Employment and Human Resources Development 2007–11 brought, inter alia, the following results: the employment rate reached 41 per cent in the second quarter of 2009; 21 per cent of unemployed persons participated in educational and training programmes as well as in public works; 30 per cent of the long-term unemployed participated in training measures; and the number of persons with high school and vocational education increased by 2.4 per cent. According to the Labour Force Survey, in the third quarter of 2010, the employment rate was 40.8 per cent (211,900 persons employed) whereas the unemployment rate reached 19.2 per cent (50,500 persons unemployed). The Committee notes that the NAPE 2010–11 has been launched, which sets the labour market measures to be carried out as part of the National Strategy. The Committee recalls that Article 2 of the Convention provides that each Member shall decide on and keep under review, within the framework of a coordinated economic and social policy, the measures to be adopted for attaining the objectives of the employment policy. In this regard, in its 2010 General Survey concerning employment instruments, the Committee underlined that procedures to review and assess the results of employment policy measures are of crucial importance, both for governments and at the international level. Such review procedures serve as helpful means for governments and social partners to assess the extent to which the proposed measures have been implemented and the desired results have been achieved (see paragraph 66 of the 2010 General Survey). The Committee invites the Government to include in its next report an evaluation of the efficiency and effectiveness of the policies and measures to promote full and productive employment implemented within the framework of the NAPE 2010–11, as well as their interaction with other economic and social objectives.

Vulnerable categories of workers. Persons belonging to ethnic groups present in the country. The Government indicates that, at the end of 2009, 10,843 persons registered at the National Employment Agency of Montenegro were considered as “hard to place”, which represents 35.9 per cent of the total number of persons unemployed. Participation of women in this specific category amounts to 39.8 per cent. According to the Labour Force Survey, in the third quarter of 2010, only 43.5 per cent of women were economically active. The Government indicates that various measures were launched to increase the employment of persons belonging to Roma, Ashkaelia and Egyptian communities present in the country. At the end of 2009, 1,358 members of the Roma, Ashkaelia and Egyptian communities, of which 43.3 per cent were women, were registered at the Employment Agency, representing 4.5 per cent of the total number of registered persons. Results of the measures targeting persons belonging to these specific communities include: the creation of a database on the Roma’s economically active population (information on education, interest to register at the Employment Agency and potential participation in active labour market measures); the employment of almost 50 persons belonging to the Roma, Ashkaelia and Egyptian communities in various sectors; and the training of 75 members of these groups. The Committee invites the Government to continue to supply information in its next report on the impact of measures designed to encourage and support employment levels of Roma, Ashkaelia and Egyptians. It also invites the Government to provide information on measures taken to increase the participation rate of women in the open labour market.

Youth employment. According to the Labour Force Survey, the youth unemployment rate stood at 24.7 per cent in the third quarter of 2010. In its report under the Employment Service Convention, 1948 (No. 88), the Government indicates that the Employment Agency participates in career guidance programmes for young people and jobseekers. The Employment Agency may provide professional and financial assistance to institutions and other organizations in the implementation of concrete career guidance programmes for students and registered jobseekers by funding these programmes up to 50 per cent of the total costs. The Employment Agency may also provide funds for scholarships. The Committee requests the Government to provide information on the effect of the measures implemented through the Employment Agency, including career guidance programmes, to create employment opportunities for young persons.

Article 3. Participation of social partners in the formulation and application of policies. The Government indicates that social dialogue at the tripartite level is ensured by the Social Council, which is composed of 11 Government representatives and the same number of representatives of workers’ and employers’ organizations. The employment unit within the Social Council is in charge, inter alia, of monitoring, considering and giving its opinion on: (a) the employment policy stability; (b) education and vocational training; (c) drafts and proposals of laws and regulations related to the economic and social position of workers and employers; and (d) the application of labour and social welfare laws. The Union of Free Trade Unions (UFTUM) of Montenegro comments that it was not invited to participate in the negotiations and signing of the Memorandum on Social Partnership in Global Economic Crisis even though it was the first organization to point out the importance to sign this type of social agreement. The Committee requests the Government to provide more detailed information on the involvement of the social partners in mitigating the negative impact of the global economic crisis on employment. It further requests the Government to provide information on how the Social Council ensures that the views of the social partners concerned are sufficiently taken into account in the development, implementation and review of employment policies and programmes.

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

1. Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Committee notes the Government’s first report on the application of the Convention received in September 2008. The Government refers to section 26 of the Law on Employment which enumerates some active employment policy measures. According to the report, as well as the data of the Labour Force Survey carried out by the National Statistical Institute, in 2008, the employment rate was 50.7 per cent whereas the unemployment rate reached 16 per cent of the active population. The Committee notes that the National Strategy for Employment and Human Resource Development 2007–11 (National Strategy), as well as the National Action Plan for Employment 2008–09 (NAPE), included recommendations set out by the ILO and the Council of Europe in the Country Review of Employment Policy on Montenegro prepared in 2007. The National Strategy encompasses the following objectives: (i) stimulating employment growth and counteracting unemployment, especially among young workers and long-term unemployed; (ii) adjusting the education system to address labour market needs and promoting lifelong learning; (iii) strengthening social cohesion by promoting employment of women; and (iv) fighting poverty and preventing social exclusion through active labour market policies targeted to vulnerable workers. The Committee requests the Government to provide information in its next report on the impact of the measures taken under the National Strategy and the NAPE in terms of employment generation.

2. Promotion of employment and vulnerable groups. The Committee notes that in 2008 only 43.8 per cent of working age women were economically active. The National Strategy also envisages measures aimed at reducing the rate of youth unemployment, which was 25.8 per cent in 2008, including the further development and improvement in the quality of professional orientation services, the strengthening of cooperation with employers in the area of job-brokering and career choice services, and the introduction of new active labour market policies providing opportunities to acquire practical training and work experience in enterprises to young workers. The National Strategy also emphasizes the need to improve access to active employment policy measures by workers belonging to ethnic groups present in the country (Roma, Ashkaelia and Egyptians). Furthermore, the Government indicates that a new legislation on persons with disabilities is envisaged to promote their employment. The Committee asks the Government to supply information in its next report on the impact of measures designed to encourage and support employment levels of vulnerable categories of workers. Please also provide relevant statistics on the employment situation of vulnerable groups, disaggregated by age and sex, as well as other data on the situation, level and terms of employment.

3. Article 2. Collection and use of employment data. The Committee invites the Government to report on measures taken to gather statistics concerning the size and distribution of the labour force, the nature and extent of unemployment and underemployment and trends thereof. The Committee also requests information on how such data is used in the Government’s employment policy-making process.

4. Article 3. Participation of social partners in the formulation and application of policies. The Government indicates in its report that representatives of all the departments, along with employers and trade union representatives, are consulted during the adoption of employment policies. The Committee further notes that the National Strategy also refers to the adoption of Law No. 16 of 2007 on the Social Council. The Committee stresses the importance of the tripartite consultations required by the Convention to generate productive employment. 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.