Employment Policy Convention, 1964 (No. 122) - Russian Federation (Ratification: 1967)

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

Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Government indicates that the legislative changes in the reporting period focused in particular on the development of information and communication technologies to enhance the effectiveness of the employment promotion policy and develop the labour market of the Russian Federation and removed regional limitations for jobseekers, key for which is the Unified Digital Platform rolled out since 1 January 2022. In the absence of information in this respect, the Committee requests the Government to provide detailed and up-to-date information on the situation of employment, unemployment and underemployment in the country for the previous reporting period as well as for the new reporting period starting in 2022, including statistical data disaggregated by sector, age and sex. It also requests the Government to provide information on the impact of initiatives and legislative changes, including the Unified Digital Platform.

Groups vulnerable to decent work deficits. Persons with disabilities. The Government also stresses the entry-into-force of section 13.2 of the Employment Act on 1 March 2022 through which it is ensured that an employer only fulfils the quota for the employment of persons with disabilities if such person is actually employed. The Committee notes in this regard that Government Resolution of the Russian Federation No. 366 of 14 March 2022 enables an employer lacking the possibility to employ a person with disabilities to conclude an employment contract with such person for a position in another organization having contractual relations with the employer, and thus to fulfil the obligation to comply with the quota for employing persons with disabilities when they are employed in any other organization – including public associations of persons with disabilities and organizations formed by these persons. The Committee requests the Government to provide detailed updated information, including statistical data disaggregated by sex, age and region, on the nature, scope and impact of the measures and programmes implemented to promote the employment of persons with disabilities.

Youth employment. The Government refers to its Resolution No. 3581-r of 14 December 2021 approving the long-term programme for the promotion of youth employment up to 2030. Aimed at creating the conditions to realize the vocational, labour and entrepreneurial potential of young people in the context of labour market transformation, the four objectives of the programme with its 32 activities focus on developing career strategies based on personal abilities and labour market requirements, ensuring a labour-market-oriented-education, combining education with work or entrepreneurial activity and the creation of additional mechanisms to reduce the risk of youth unemployment. The Government highlights the importance of digital means, such as the Unified Digital Platform, which will be equipped with an electronic internship and practice platform and supplemented by an electronic skills exchange allowing for a real-time assessment of applicants and employers alike. The Government indicates that the proportion of minors between the ages of 14 and 18 having undergone professional tests is to increase from 5.9 per cent in 2022 to 15 per cent by 2024, and to 35 per cent by 2030. The Committee also notes that the programme also foresees the adjustment of curricula to improve employability and “industrial tourism” opportunities to facilitate 10,000 young people to make the right career choice. An emphasis is also laid on fostering the entrepreneurial spirit of youths as part of which they are to be accompanied by mentors from choosing their own business area to generating the first profit in which 30,000 young people participated in 2022, of whom at least 75 per cent were to become employed. In addition, 6,500 young persons are to receive targeted employment support in which at least 6,500 people will take part. The Government expects that the programme will result in increasing the share of employed graduates from 57 per cent in 2020 to 85 per cent in 2024 and to 92 per cent in 2030. At the same time, the youth unemployment rate of persons aged between 15 and 29 is to decrease from 10.7 per cent in 2020 to 8.5 per cent by 2024 and to 5 per cent by 2030, while the unemployment rate of persons aged 15 to 24 is to fall to 11 per cent by 2024, from 17.3 per cent in 2020, and to 8 per cent by 2030. Finally, the Committee notes the Government’s plan to bring at least 117,000 young citizens into employment in 2022, for which 7 billion Russian Roubles were provided. The Committee requests the Government to continue to provide information on the impact of the measures taken to promote employment and job creation for young persons, particularly with regard to their long-term integration into the labour market.

Other vulnerable groups of workers. The Government refers also to its subsidized employment schemes, which aim at supporting unemployed citizens whose employment contract has been terminated in the current year, workers at risk of dismissal, including due to the introduction of part-time work, plant idling, temporary suspension of work, unpaid leave, certain categories of young people aged under 30, the most vulnerable on the labour market and those having difficulty in finding a job. The Committee notes that 800,000 persons were to take part in such schemes in 2022. The Committee also notes the vocational training programmes catering in particular for citizens of pre-retirement age and aged 50 and over, women on maternity leave, and women who are not in employment and have children of preschool age as part of which at least 345,000 persons, including at least 100,000 unemployed citizens, at least 100,000 workers at risk of dismissal, and at least 50,000 young people under the age of 35 years old were to participate in 2022 envisaging employment for at least 258,750 persons. The Committee requests the Government to continue to provide information on the impact of the measures taken to promote employment and job creation for vulnerable groups of workers, particularly with regard to their long-term integration in the labour market.

Article 3. Participation of the social partners. The Committee notes that in reply to its request for further information on consultations, the Government indicates that the draft report on the application of the Convention was considered by the Russian Tripartite Commission for the Regulation of Social and Labour Relations, which includes the Federation of Independent Trade Unions of Russia, the Russian Union of Industrialists and Entrepreneurs, and other major trade union and employer associations in the Russian Federation and that no observations or suggestions were received. The Committee requests the Government to continue to provide information on the consultations held with the social partners concerning the formulation and implementation of an active employment policy.

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

Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Government indicates in its report that the situation on the labour market was stable in 2014. Total unemployment decreased from 5.5 per cent of the economically active population in 2013 to 5.2 per cent in 2014. The Government adds, however, that the situation changed in early 2015 when total unemployment increased from 5.2 per cent to 5.8 per cent, and the number of unemployed people registered with the employment service exceeded 1 million. The Committee notes that, in accordance with the Government’s Anti-recession Plan, measures have been drawn up to prevent an acute worsening of the situation on the labour market, to support efficient employment and to create balanced labour markets in the constituent entities of the Russian Federation. Subsidies are provided to the constituent entities from the federal budget to enable them to implement these measures. More specifically, subsidies are awarded to regional programmes that provide temporary employment, offer anticipatory vocational training and placements to workers at risk of redundancy and jobseekers, stimulate youth employment through social projects and organize employment schemes for persons with disabilities. Forms of employment, such as part-time work, flexible hours and working from home, are becoming increasingly widespread as a result of the implementation by constituent entities of the Russian Federation of packages of measures to allow women to combine family responsibilities and employment. Moreover, the Government indicates that the Plan of Priority Measures to Ensure the Sustainable Development of the Economy and Social Stability 2015, approved in January 2015, allocates 5.2 billion Russian Roubles (RUB) from the federal budget to implement additional measures aiming to reduce “tension” [the number of jobseekers per vacancy] in the labour markets of the constituent entities of the Russian Federation. Rules on the provision and allocation of subsidies from the federal budget to the budgets of the constituent entities were also approved in January 2015 for implementing additional employment policy measures to reduce labour market tension, including: (i) temporary employment of workers at risk of redundancy and jobseekers; (ii) job placement by private employment agencies of workers at risk of redundancy; and (iii) anticipatory vocational training and placements for workers at risk of redundancy and jobseekers. The Committee requests the Government to provide information on the impact and effectiveness of its active employment policy in terms of productive jobs creation. It also requests the Government to continue to provide information on the impact of the measures taken to increase the participation of women, young people, older workers and persons with disabilities in the labour market.

Coordination of education and training programmes with employment policy. The Committee notes the detailed information provided by the Government in its report on the vocational training programmes offered to women as well as persons with disabilities. It notes in this regard that between 2012 and 2014, over 40,000 women underwent vocational training, and also there were plans to train 16,600 people in 2015. It further notes that the Ministry of Education and Science is carrying out initiatives to increase the accessibility of vocational education to persons with disabilities. The Committee refers to its comments on the application of the Human Resources Development Convention, 1975 (No. 142), and requests the Government to provide information on the impact of the measures taken to ensure the coordination of education and training policies with employment policies.

Article 3. Participation of the social partners. The Committee previously expressed its hope that the Government would provide information which will enable an examination of the manner in which the experience and views of the social partners have been taken into account in the formulation and implementation of an active employment policy. It invited the Government to provide more specific information on the manner in which the social partners were consulted on the matters covered by the Convention. The Government describes in its report the main objectives and activities of the Tripartite Commission for the Regulation of Industrial Relations and Labour, established pursuant to Federal Act No. 92-FZ of 1 May 1999. The Committee requests the Government to provide more specific information on the consultations held with the social partners concerning the formulation and implementation of an active employment policy. In this regard, please provide information of the consultations held in practice.

Observation (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 report received in September 2012 containing an outline of the coordinated approach taken by the federal Government and the constituent entities of the Russian Federation to promote employment. The Government indicates that 87.1 billion roubles (RUB) were earmarked in 2010–11 for state programmes aimed at reducing tensions in the labour market and that 5.2 million persons participated in such programmes, creating 4.3 million permanent or temporary jobs. An additional 1.5 billion roubles were earmarked in 2012 towards the implementation of regional employment programmes. To further address labour market tensions, the Government utilizes annual workforce balance forecasting to assess the balance of labour supply and demand in the long term, assess the effectiveness of workforce training and increase the effectiveness of the State employment promotion policy. Occupational guidance and psychological support are provided to help unemployed persons choose the type of employment that best corresponds to their needs and capabilities. The unemployment benefits provided by the Government include stipends for vocational training, retraining and skills development, financial assistance and pensions. The Committee notes the State Programme on Employment Promotion for 2013–20, which aims to create legal, economic and institutional conditions to foster the development of an effectively functioning labour market and ensure social stability. It further notes the measures taken to improve employment generation which include paid social work programmes to provide temporary employment, job placement centres for institutions offering vocational training, and temporary employment programmes for minors aged 14–18, first-time jobseekers and unemployed persons. The Government also provides social adaptation programmes, relocation and moving assistance and self-employment support to the unemployed. The Committee notes that the unemployment rate dropped significantly from 7.5 per cent in 2010 to 5.5 per cent in the second quarter of 2012, with the number of registered unemployed persons dropping from 1.9 million to 1.2 million, and the economically active population increasing from 75.4 million to 75.9 million in that same period. In June 2012, the employment rate for people aged 15–72 was 65.1 per cent, with an employment rate of 70.5 per cent for men and 60.4 per cent for women. The Committee further notes that women accounted for an estimated share of 46.1 per cent of the unemployed, with young people aged 15–24 accounting for 13.1 per cent in 2012. The Committee invites the Government to provide in its next report information on how an active policy designed to promote full, productive and freely chosen employment has been implemented in the country and the impact of the measures taken to generate employment in low income areas. Please also include information on the measures taken to increase the participation of young people and older workers in the labour market, and on the results obtained by the measures adopted to remedy unemployment and underemployment among vulnerable categories of workers.

ILO technical assistance. The Committee notes with interest that the Government hosted and participated in the International High-Level Conference on Decent Work, held in Moscow in December 2012, signing three key agreements to expand cooperation with the ILO. It notes that the Programme of Cooperation for 2013–16 aims to promote further development of labour relations with the Government to achieve decent work. The key objectives of this programme include increasing employment opportunities and creating better jobs, ensuring safe working conditions and enhancing social protection, promoting international labour standards and strengthening social dialogue. The Committee invites the Government to include in its next report information on the measures taken as a result of the activities held with the ILO with respect to the matters covered by the Convention.

Coordination of education and training programmes with employment policy. The Committee notes the information provided by the Government in its report on the organization of vocational training, retraining and skills upgrading aimed at increasing unemployed persons’ occupational mobility and competitiveness in the labour market. The Government indicates that the State employment service provides vocational training, retraining and skills upgrading for women on maternity leave. Programmes being developed to improve the quality of vocational training and education (both higher and continuing) include training up to 30 per cent of university students in applied baccalaureate programmes, establishing multifunctional applied skill centres to provide training to people who finish secondary school, forming an independent vocational training evaluation system, expanding the participation of businesses in managing and funding higher education institutions, and developing 800 professional standards in 2013–14 for popular occupations to meet modern labour market standards. The Committee invites the Government to provide in its next report further information on the action taken to ensure the coordination of education and vocational policies with employment policies. Please also provide an account of the results obtained in terms of access to lasting employment for the beneficiaries of the different programmes and measures implemented by the federal Government and the constituent entities of the Russian Federation.

Article 3. Participation of the social partners in the formulation of employment policy. In its previous observations, the Committee expressed its hope that the Government would provide information which will enable an examination of the manner in which the experience and views of the social partners have been taken into account in the formulation and implementation of an active employment policy. The Government indicates in its report that the employment promotion policy aims to coordinate the activities of public agencies, trade unions and other bodies representing workers and employers in developing and implementing measures to promote employment. One important objective referred to in the Programme of Cooperation for 2013–16 is improving the representativeness and developing the institutional and technical capacities, competencies and skills of the social partners to engage with governments and with each other in social dialogue. The Committee invites the Government to provide in its next report more specific information on the manner in which the representatives of employers’ and workers’ organizations are consulted, by the federal Government and the constituent entities of the Russian Federation, on the matters covered by the Convention.

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

Measures taken in response to the global crisis. The Committee notes the Government’s report received in September 2009. The Government indicates that, in order to overcome the economic crisis, it adopted a set of revival measures aimed at reducing tensions in the employment market in the regions and giving social support to the persons affected. The measures include Decree No. 915 of 8 December 2008 concerning unemployment benefits, which increased to 4,900 roubles; Federal Act No. 287-03 of 25 December 2008 amending the Public Employment Act, which awards unemployment benefit to persons who have been dismissed and allows the regions of the Federation the possibility of taking direct action in the employment market in times of crisis. Decree No. 1089 of 31 December 2008 allows the withdrawal of allocations from the federal budget for injection into the budgets of the regions in order to facilitate the adoption of supplementary measures aimed at alleviating the effects of the economic crisis on the labour market. These additional measures focus mainly on vocational training for workers threatened by mass redundancy plans, on the establishment of community work and the promotion of geographical mobility, making removal grants available to persons appointed to posts situated in other localities in the context of targeted federal programmes and investment projects. In its General Survey of 2010 concerning employment instruments, the Committee emphasizes that the employment Conventions and Recommendations taken together provide a framework for realizing the human right to work and to education for all, for confronting and mitigating the effects of the global economic crisis, and for ensuring continuing and genuine tripartite consultations (General Survey, op. cit., paragraph 788). The Committee requests the Government to supply information in its next report on the results, in terms of the creation of productive and lasting employment, of the revival measures to overcome the crisis adopted by both the federal and regional governments.

Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Government indicates that regional programmes for employment promotion constitute the principal instrument for implementation of public policy for regulating the labour market and creating employment in the regions. These programmes aim to inform workers and employers on the situation of the labour market, particularly through reception centres specializing in providing advice. In 2009, these reception centres enabled 3.39 million persons to receive vocational guidance. Facilitating the re-entry of unemployed persons into the job market, through the acquisition of new qualifications and skills, is also part of the programmes. This enabled 113,600 persons to receive training in 2009. Furthermore, regional programmes have resulted in the provision of paid community work for 676,000 long-term unemployed persons and persons without work experience, while 117,000 workers particularly at risk were placed in temporary jobs. The Government also indicates that the number of persons registered as unemployed with the employment services increased from 1.4 million in 2008 to 2.2 million in 2009. The total number of unemployed persons came to 7 million, out of a total active population of 66.2 million. In view of this difficult situation, the Committee hopes that the Government will supply information in its next report on the strategic outlines of its employment policy and indicate the manner in which employment policy is reviewed regularly as part of a coordinated economic and social policy. It also requests the Government to supply detailed information on the results achieved by the recently established programmes in terms of the creation of jobs for particular categories of workers, such as women, young persons and older workers. With regard to persons with disabilities, the Committee is formulating a direct request this year in relation to the application of the Vocational Rehabilitation and Employment (Disabled Persons) Convention, 1983 (No. 159).

Coordination of education and training policy with employment policy. The Government indicates that, in the context of the regional programmes for employment promotion and in order to guide people in their occupational choices, taking account of individual needs, skills and the situation of the labour market, vocational guidance sessions were held in 2009 for 2.4 million unemployed persons. The Government also indicates that, in order to promote occupational mobility, 1,903,000 workers received allowances in connection with vocational training, retraining and further training. The Committee requests the Government to continue to supply information on the measures taken in the area of education and training policies, and also on their impact in terms of vocational integration.

Article 3. Participation of the social partners in the formulation of employment policy. The Government indicates that public employment promotion policy aims, in particular, to coordinate the action of the public authorities, trade unions and other representative workers’ and employers’ bodies during the implementation of measures to promote public employment. The Committee requests the Government to indicate the manner in which the representatives of employers’ and workers’ organizations are consulted on employment policy. It hopes that the next report will contain information which will enable an examination of the manner in which the experience and views of the social partners have been taken into account into the formulation and implementation of an active employment policy.

Part V of the report form. ILO technical assistance. The Committee notes that a programme of cooperation between the Russian Federation and the ILO was drawn up for the 2010–12 period, taking into consideration the new circumstances of the economic crisis and basing itself on the Global Jobs Pact, which calls for measures aimed at maintaining levels of employment and avoiding reductions in wages and any deterioration in conditions of work. The Committee requests the Government to supply information on the action taken further to the implementation of the programme of cooperation with the ILO for promoting the creation of productive employment.

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

Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Committee notes the information contained in the Government’s brief report received in October 2008. In its previous comments, the Committee requested information on the results of the implementation of the social and economic development programme on employment generation, and how employment policy measures were reviewed regularly within the framework of a coordinated economic and social policy. The Committee also requested information on measures taken to reduce labour market differences among categories of workers and how unemployment benefits have been expanded in order to cover a greater number of unemployed persons and promote the re-entry into employment of beneficiaries. In its brief reply, the Government indicated that Decision No. 194 of 23 March 2008 was adopted to establish the level of the minimum (781 roubles) and maximum (3,124 roubles) amounts of unemployment benefits. The Committee also notes the measures envisaged under the Anti-Crisis Programme of the Government of the Russian Federation for 2009 which prioritizes, among other things, developing human resources; maintaining and developing industrial and technological capabilities for future growth; stimulating domestic demand for Russian goods as the basis for revitalizing economic growth; stimulating innovation and restructuring the economy; creating the environment for economic growth by improving the key market institutions and lifting barriers to business operation; and ensuring macroeconomic stability and preserving the trust of Russian and foreign investors. The Committee notes that regional governments are implementing the same set of anti-crisis policies, including measures co‑financed by the federal Government and other measures, independently financed from regional and local budgets. The key goals of the anti-crisis policies implemented by the regions include, among other things, joint implementation of an employment support programme. To this end, the federal Government will provide employment support and unemployment relief subsidies to the regions for: vocational training and retraining of employees threatened by mass layoffs; organization of community work, temporary employment, internship and experience-gaining programmes for unemployed persons and individuals seeking jobs, such as new graduates and employees threatened by mass layoffs; targeted support of persons wishing to move to a different location where jobs are available, including jobs created under targeted federal programmes and investment projects; and, support for small and medium-sized businesses and self-employment of jobless persons. As in its previous observation, the Committee requests that the Government report in detail, in its next report, on the measures taken to promote full employment within a “framework of a coordinated economic and social policy” (Article 2(a)). The Committee invites the Government to provide in its next report information on the impact in terms of employment creation of the measures taken through the 2009 Anti-Crisis Programme. The Committee requests that information be supplied on the situation, level and trends of employment, unemployment and underemployment, both aggregated and disaggregated, with respect to particular categories of workers, including young persons, women jobseekers, older workers and workers with disabilities.

Article 3. Participation of the social partners in the formulation and implementation of policies. The Committee recalls that the Convention asks for consultations with all persons affected by the formulation and implementation of employment policies, in particular, the representatives of employers and workers. It is the joint responsibility of governments and employers’ and workers’ organizations to ensure that the most vulnerable and marginalized groups of the active population are represented and associated in the formulation and implementation of measures of which they would be the prime beneficiaries. The Committee trusts that the Government will supply detailed information on this important matter in its next report.

Part V of the report form. ILO technical cooperation. The Committee recalls that the cooperation programme between the ILO and the Russian Federation 2006–09 provided that improvements in employment policy must be based on changes in social policy. The Committee asks the Government to include in its next report information on the initiatives undertaken with ILO support to promote the objective of the creation of productive employment as set out in the Convention.

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

1. The Committee notes the Government’s report received in January 2007 containing information related to Conventions Nos 111, 122 and 156. In April 2007, the Office requested the Government to provide further replies to some issues raised by the Committee’s observation in 2006. The Committee observes that the information provided by the Government in its report primarily deals with measures taken to promote the employment of women. The Committee accordingly requests that the Government report in detail, in its next report, on the measures taken to promote full employment within a “framework of a coordinated economic and social policy” (Article 2, paragraph (a), of the Convention). In this regard, the Committee also requests the Government to provide information on the following matters.

2. Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Committee understands from the statistics gathered by the ILO labour survey that the unemployment rate remained constant between 2005 and 2006 at 7.2 per cent. The unemployment level of men rose from 7.3 to 7.5 per cent during this period, whereas the unemployment level for women declined from 7 to 6.8 per cent. In this regard, the Committee also notes that the economically active population of the Russian Federation fell from 142,754 million persons in 2005 to 142,487 million in 2006, representing a decline of 267,000 persons. The Committee requests that information be supplied on the situation, level and trends of employment, unemployment and underemployment, both aggregated, and disaggregated with respect to particular categories of workers, including young persons, women jobseekers, older workers and workers with disabilities. 

3. The Government indicates in its report that the main goal of the Russian Federation’s social policy in 2005 was to achieve a consistent rise in people’s standards of living and quality of life, ensuring general accessibility of basic social services, primarily high-quality health-care provisions, social services and employment. The Committee understands that the Russian Federation’s medium-term social and economic development programme (2006–08) sets the reform of sectors, relevant to the development of human capital, primarily education and health, as absolute priorities. This thus seeks to enhance the effectiveness of the programme in the fields of social policy and improve existing mechanisms for providing social assistance (part I of the programme of cooperation between the ILO and the Russian Federation, 2006–09). The Committee requests that the Government provide information on the results of the implementation of the social and economic development programme on employment generation. In this regard, the Committee further reiterates its requests for information on how employment policy measures are reviewed regularly within the framework of a coordinated economic and social policy. The Committee again requests information on measures taken to reduce labour market differences among categories of workers and how unemployment benefits have been expanded in order to cover a greater number of unemployed persons and promote the re-entry into employment of beneficiaries.

4. Article 3. Participation of the social partners in the formulation and the implementation of policies. The Committee recalls that Article 3 of the Convention calls for consultations with all the persons affected and, in particular, the representatives of employers and workers, in the formulation and implementation of employment policies. It is the joint responsibility of governments and the representative organizations of employers and workers to ensure that representatives of the most vulnerable and marginalized groups of the active population are associated as closely as possible with the formulation and implementation of measures of which they should be the prime beneficiaries (see paragraph 493 of the General Survey of 2004 on promoting employment). The Committee trusts that the Government will supply detailed information on this matter in its next report.

5. Part V of the report form. ILO technical cooperation. The Committee notes that the programme of cooperation between the ILO and the Russian Federation 2006–09 also provides that improvements to employment policy must be based on changes to the approaches to social policy, that is, policy designed to achieve employment and human resources development as the goals and not as a mere consequence of overall economic policy. The Committee would be grateful if the Government would provide information in its next report on the initiatives undertaken with ILO support to promote the objective of the creation of productive employment as set out in the Convention.

6. Finally, the Committee recalls that the preparation of a detailed report, including replies to the issues raised in this observation will undoubtedly allow the Government and the social partners to assess the achievement of the objective of full productive employment stipulated by the Convention.

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

The Committee notes that the Government’s report has not been received. It is therefore bound to repeat its 2005 observation which read as follows:

1. Integration of an active employment policy with economic and social policy. The Committee notes the detailed information on the labour market situation, on the activities of the employment service in 2003 and 2004, and on the legislative amendments to the law concerning employment provided by the Government’s report received in October 2004. The Government indicates that the number of people employed was around 66 million. The unemployment rate as of mid-2004 was 8.5 per cent, with a total of 6,133,000 workers unemployed, of which 1,628,000 were registered with the employment services. The number of workers dismissed because of redundancies and closure of firms grew by 20 per cent in the first quarter of 2004 and totalled some 162,000 workers. With regard to regional disparities, the situation of the labour market was favourable in major cities like Moscow and Saint Petersburg, but high levels of unemployment were noted in some territories such as the Republic of Ingushetia and Dagestan. The Committee notes that there has been a decline in the economically active population at a time when the working age population is growing. The Committee notes that success in employment creation is linked to the successful coordination of macroeconomic policies as well as structural policies. It therefore asks the Government to report on how employment policy measures are reviewed regularly within the framework of a coordinated economic and social policy. The Committee also requests the Government to provide information in its next report on the difficulties encountered and the results obtained for the implementation of an integrated employment policy, in the sense of the Convention. Please also include in the report information on the employment situation of socially vulnerable groups such as young persons, women jobseekers, and dismissed workers. The Committee would appreciate continuing to receive disaggregated data on the level and trends of employment, unemployment and underemployment. Please also indicate the measures taken to reduce labour market differentials in the country and how the unemployment benefit has been expanded in order to cover a large rate of the unemployed and promote the re-entry into employment of the beneficiaries (Articles 1 and 2 of the Convention).

2. The Committee further notes the measures taken to establish a system of quotas to promote the employment of workers with disabilities. It asks the Government to include information in its next report on the outcomes of the schemes implemented with a view to integrate workers with disabilities in the open labour market. It hopes that the Government will also report on the pending issues with regard to the application of the Vocational Rehabilitation and Employment (Disabled Persons) Convention, 1983 (No. 159).

3. Participation of the social partners in the formulation and application of policies. The Committee notes that the amendments introduced to the Law on Employment increased the responsibilities of the federal state authorities in relation with employment policies and that the level of the unemployment benefit will also be decided by the federal Government. In this regard, the Committee recalls that Article 3 of the Convention provides that the measures to be taken in relation to employment policy should take fully into account the experience and views of the representatives of employers’ and workers’ organizations with a view to securing their full cooperation in formulating and implementing employment policies. It further recalls its interest to examine information on the efforts made to hold the consultations required by this important provision, and requests the Government to include in its next report indications on the manner in which the views of the representatives of persons affected by employment policy measures, including the opinions of representatives of those working in the informal economy, are taken into account so as to ensure that the objectives of the Convention are being achieved.

4. ILO technical assistance. The Committee also recalls its interest in examining information on the action taken as a result of ILO technical and advisory cooperation activities in the field of employment in the framework of the programmes of cooperation between the Russian Federation and the ILO (Part V of the report form).

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

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

1. Integration of an active employment policy with economic and social policy. The Committee notes the detailed information on the labour market situation, on the activities of the employment service in 2003 and 2004, and on the legislative amendments to the law concerning employment provided by the Government’s report received in October 2004. The Government indicates that the number of people employed was around 66 million. The unemployment rate as of mid-2004 was 8.5 per cent, with a total of 6,133,000 workers unemployed, of which 1,628,000 were registered with the employment services. The number of workers dismissed because of redundancies and closure of firms grew by 20 per cent in the first quarter of 2004 and totalled some 162,000 workers. With regard to regional disparities, the situation of the labour market was favourable in major cities like Moscow and Saint Petersburg, but high levels of unemployment were noted in some territories such as the Republic of Ingushetia and Dagestan. The Committee notes that there has been a decline in the economically active population at a time when the working age population is growing. The Committee notes that success in employment creation is linked to the successful coordination of macroeconomic policies as well as structural policies. It therefore asks the Government to report on how employment policy measures are reviewed regularly within the framework of a coordinated economic and social policy. The Committee also requests the Government to provide information in its next report on the difficulties encountered and the results obtained for the implementation of an integrated employment policy, in the sense of the Convention. Please also include in the report information on the employment situation of socially vulnerable groups such as young persons, women jobseekers, and dismissed workers. The Committee would appreciate continuing to receive disaggregated data on the level and trends of employment, unemployment and underemployment. Please also indicate the measures taken to reduce labour market differentials in the country and how the unemployment benefit has been expanded in order to cover a large rate of the unemployed and promote the re-entry into employment of the beneficiaries (Articles 1 and 2 of the Convention).

2. The Committee further notes the measures taken to establish a system of quotas to promote the employment of workers with disabilities. It asks the Government to include information in its next report on the outcomes of the schemes implemented with a view to integrate workers with disabilities in the open labour market. It hopes that the Government will also report on the pending issues with regard to the application of the Vocational Rehabilitation and Employment (Disabled Persons) Convention, 1983 (No. 159).

3. Participation of the social partners in the formulation and application of policies. The Committee notes that the amendments introduced to the Law on Employment increased the responsibilities of the federal state authorities in relation with employment policies and that the level of the unemployment benefit will also be decided by the federal Government. In this regard, the Committee recalls that Article 3 of the Convention provides that the measures to be taken in relation to employment policy should take fully into account the experience and views of the representatives of employers’ and workers’ organizations with a view to securing their full cooperation in formulating and implementing employment policies. It further recalls its interest to examine information on the efforts made to hold the consultations required by this important provision, and requests the Government to include in its next report indications on the manner in which the views of the representatives of persons affected by employment policy measures, including the opinions of representatives of those working in the informal economy, are taken into account so as to ensure that the objectives of the Convention are being achieved.

4. ILO technical assistance. The Committee also recalls its interest in examining information on the action taken as a result of ILO technical and advisory cooperation activities in the field of employment in the framework of the programmes of cooperation between the Russian Federation and the ILO (Part V of the report form).

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

1. Articles 1 and 2 of the Convention. The Government states in a brief report received in October 2002 that during the period reviewed, unemployment decreased significantly, going from 12.3 per cent in March 2000 to an estimated 8.3 per cent at the end of March 2002. The Government furthermore states that unemployment has decreased considerably in disadvantaged regions. In order to be in a better position to assess fully the labour market situation and the manner in which developments have taken place, the Committee would be grateful if in its next report the Government would provide detailed statistical information on the level and trends in employment, underemployment and unemployment, both for the country as a whole and by region, for the various sectors of economic activity and for the various categories of the population, in particular for disadvantaged groups of workers such as women, young persons, older workers and persons with disabilities.

2. The Government also states that a key target of its economic policy is the promotion of economic diversification in cities heavily dependent upon a single industry. It considers that improvements in the existing legislation have an important role to play in addressing employment problems and to this end it envisages strengthening the role of regional authorities in the state policy of employment promotion. The Committee would appreciate receiving further information on how employment policies and programmes are reviewed within the framework of a coordinated economic and social policy and on the impact of the different policies implemented. Please also continue to report on the Government’s efforts to promote employment in regions with high unemployment.

3. Article 3. The Committee notes the information supplied regarding the tripartite general agreement between the national employers’ associations, national trade union associations and the Government. The Government indicates that it has focused efforts on tripartite consultations with the intention of ensuring that in the future prior to providing financing for projects, it will take better into account the possible impact on job creation particularly in regions with high unemployment. The Committee requests that the Government provide detailed information on the consultations held with representatives of employers and workers concerning employment policy, with an indication of the subjects covered, the views expressed and the manner in which they have been taken into account.

4. Finally, the Committee would be grateful if the Government would supply information on the action taken as a result of ILO technical and advisory cooperation activities in the field of employment in the framework of the programmes of cooperation between the Russian Federation and the ILO (Part V of the report form).

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

The Committee notes the information provided in the Government’s report received in September 2000.

1. Articles 1, 2 and 3 of the Convention. The Government states that the estimated number of economically active population was 74 million in March 2000, about 50 per cent of the total population, and an increase of about 2.4 per cent since March 1998. Unemployment is about 12.3 per cent. The Government states that the employment situation improved in disadvantaged regions. To further improve the situation, the Government is paying attention to the importance of tripartite consultation, including a tripartite general agreement on enhancing employment and using economic stimulus packages to promote job growth. The Government also adds that in the future, bids for government financed investment projects will be judged in part on the estimated impact on job creation, particularly in regions with high unemployment. It also intends to promote economic diversification in towns that are heavily dependent on one industry. The Committee requests that the Government continue to supply information on the impact of the general agreement and other programmes to promote employment. Please provide information on other ways in which the views of employers and workers are taken into consideration in the formulation, implementation and evaluation of employment policies and programmes. Please also provide information on whether consultations are held with representatives of other groups potentially affected by employment policies and programmes, such as rural and informal sector workers.

2. The Government states that the majority of jobless persons do not bother to register with the employment placement service, and the number of people obtaining a job through the employment placement service declined by 23 per cent from March 1999 to March 2000. The ratio of registered unemployed to registered vacancies decreased from 5.5 in March 1999 to 2.1 in March 2000. Recalling the vital role that an effective placement service plays in promoting employment, the Committee would also appreciate receiving further information on steps taken or envisaged to improve the effectiveness of the public placement services and to encourage their use by both jobseekers and employers.

3. Part V of the report form. The Programme of Cooperation between the Russian Federation and the ILO for 2000-01 includes employment promotion, restructuring and enterprise development, encouraging human resources development, promoting job growth and preserving existing jobs, preventing mass lay offs, and overcoming discrimination in the labour market. Please indicate the actions taken as a result of these technical assistance projects, and the outcomes.

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

1. The Committee notes the Government's report for the period ending May 1998, which contains information on the situation of the labour market and the level of unemployment. During the period under review, unemployment increased from 10.1 per cent in January 1997 to 11.3 per cent in June 1998. The Committee would be grateful if the Government would provide information in its next report on the situation, level and trends of employment, unemployment and underemployment in the country on both an occupational and geographical basis. Please also describe any measures taken to ensure the matching of labour supply and demand, such as early retirement measures or measures for the adjustment of labour to structural change resulting from the economic reforms implemented during the period under review (Article 1 of the Convention).

2. The Committee notes the information on the measures taken by the Federal Employment Service (FES) to provide work for citizens who are available for and seeking work. The Committee notes that the majority of active labour market programmes implemented by the FES have been made available only to registered jobseekers. It would be grateful if the Government would include in its next report an assessment of the impact of the different programmes implemented. Please also indicate if there are any measures envisaged to promote productive employment in favour of all categories of persons frequently experiencing difficulties in securing lasting and decent employment.

3. Please describe employment programmes launched in underdeveloped or disadvantaged areas, areas of industrial decline or any area which may not have benefited satisfactorily from a balanced regional development. Please describe any employment policy initiatives taken by local authorities in this respect.

4. Article 3. The Government states in its report that coordinating committees comprising representatives of the trade union federations, workers' and employers' organizations, the employment services and governmental and non-governmental organizations representing the interests of citizens with special needs in social protection have been established within the social partnership framework at national and regional levels to define and implement agreed employment policy decisions. Having in mind the improvements which may be required to achieve the objectives of the Convention, the Committee trusts that social dialogue on programmes and measures promoting employment and combating unemployment will be strengthened through the Coordinating Committees for the Promotion of Employment. It further hopes that the next report will include information on any progress made in respect of the consultations required by the Convention and the issues raised in this direct request.

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

1. Further to its previous comments, the Committee notes the Government's report for the period ending June 1996. The Committee realizes the employment difficulties raised by transition to a system where labour demand depends only on decisions of enterprises. It requests the Government to continue to supply as much detailed statistical information as possible on employment, unemployment and underemployment. Please indicate the measures taken or contemplated for the purpose of collecting and analysing the data needed for decision-making in the labour policy field.

2. The Committee notes with interest that a tripartite conference on labour policy was held, with ILO assistance, in February 1996, and that it adopted important recommendations on macroeconomic policies, labour market policies, labour relations and social protection. The Committee considers that these recommendations constitute an appropriate framework for the formulation and application of an active policy aimed at promoting full, productive and freely chosen employment in accordance with the Convention. It requests the Government to supply in its next report detailed information on the application given to these recommendations. In particular, please supply the information required by the report form under Article 1 of the Convention.

3. The Committee also notes the adoption by Presidential Decree in May 1996 of the Programme on creating and preserving job opportunities for the period 1996-2000. It would be grateful if the Government would supply complete information in its next report on the implementation of the measures taken in application of this programme and on any results obtained by the various intervention measures in the labour market.

4. Article 3. The Committee notes the indication to the effect that consultations on labour problems are held in the tripartite commission for social relations and labour. It also notes that the new Law on additions and amendments to the Law of the Russian Federation on Employment of the Population does not provide for the participation of employers' organizations on an equal footing with workers' organizations in preparing and applying labour policy. It requests the Government to indicate the measures taken to ensure that employers' organizations as well as workers' organizations are fully associated in consultations on labour policy, and to describe the activities of the various consultative bodies concerned in the light of this Article.

Direct Request (CEACR) - adopted 1995, published 82nd ILC session (1995)

1. The Committee notes with interest the Government's report covering the period ending in June 1994, which contains useful information on recent developments in employment, unemployment and underemployment, and on employment policy measures implemented.

2. The Government indicates in its report that the registered unemployment rate was an estimated 1.6 per cent at the end of the period, whereas the various forms of underemployment affected approximately 6.5 per cent of the active population. It emphasizes that employment problems affect particularly the less developed regions and the regions that are especially hard hit by the crisis because of their industrial specialization. According to the Government, the employment situation is likely to rapidly deteriorate further, in view of forthcoming redundancies and the growth of the active population. By the end of 1994 there will be an estimated 3 million registered unemployed (i.e. a registered unemployment rate of approximately 4 per cent), more than 6 million people (i.e. almost 9 per cent of the active population) unable to find work owing to the imbalance between labour supply and demand, while underemployment could affect between 5 and 8 million people. The Committee has also noted data in a survey carried out in 1994 by the competent department of the ILO which show an estimated suppressed unemployment rate in industry of 35.2 per cent. For its part, the Russian Institute for Employment Problems estimates surplus employment at 42.5 per cent of total employment. The Committee hopes that in its next report the Government will be able to state that there has been further progress in the compilation and analysis of statistical data on the situation, level and trends in employment, unemployment and underemployment, in the country as a whole and at the regional level, in the various sectors of economic activity and for the different categories of the active population, particularly young people, women, elderly workers and workers with disabilities.

3. The Government describes the measures implemented to deal with the deteriorating employment situation. The Committee notes that public employment services are paying particular attention to the categories of people with the greatest difficulty in finding lasting employment, particularly young people. With regard to special measures for women and persons with disabilities, the Committee invites the Government to provide detailed information in reply to its comments on the application of Conventions Nos. 111 and 159. The Committee would be grateful if the Government would indicate whether the planned programme to subsidize employers hiring workers proposed by employment services has been implemented. Please send any available evaluation of how the programme for temporary employment and socially useful work contributes to the effective and lasting integration of the beneficiaries in employment. Please continue to provide information on measures to promote self-employment and to create small and medium-sized enterprises. The Committee notes with interest the attention paid to developing vocational guidance and training. Please continue to provide information on activities in this area, indicating in particular the results obtained by vocational retraining measures. Lastly, as regards the social protection of workers and assistance for the unemployed, the Committee notes the measures taken or under consideration; it notes that legislation is being prepared on the bankruptcy of enterprises. Please continue to provide information on developments in these matters as far as they relate to the employment policy within the meaning of the Convention.

4. The Committee appreciates the Government's efforts to improve the quality of the information supplied. However, it recalls that an active employment policy within the meaning of the Convention must not be confined to labour market measures, but must be part of "a coordinated economic and social policy" (Articles 1 and 2 of the Convention). With reference to its previous direct request, the Committee would be grateful if, in its next report, the Government would state how account is taken of the objective of full, productive and freely chosen employment in the planning and implementation of the structural reforms for the transition to a market economy. Please indicate, in particular, how measures in the area of investment policy, monetary and budgetary policy, prices and incomes policy and foreign trade policy are coordinated with the employment policy.

5. With further reference to its previous request, the Committee would be grateful if the Government would provide detailed information on how consultation on employment policies is ensured with the representatives of the persons affected and, in particular, representatives of employers and workers, in accordance with Article 3. It recalls in this connection that such consultations should cover all aspects of economic policy that affect employment. The Committee cannot overstress the importance it attaches to full effect being given to this essential provision of the Convention, particularly in the difficult context of the present far-reaching changes in the structures of the economy and the labour market.

6. Lastly, the Committee notes that the report refers to the ILO's advisory or technical cooperation activities, and asks the Government to provide information on any action taken as a result of these activities (Part V of the report form).

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

1. The Committee took note of the Government's report. It has also taken account of the relevant information contained in the Government's report on the application of Convention No. 142, on which it is also commenting. However, the brief general information supplied by the Government in its report on Convention No. 122 is not adequate for the Committee to ascertain the effect given to this Convention.

2. The Committee has noted recent studies or surveys of the ILO indicating that the staff of enterprises were cut back by approximately 15 per cent between January 1990 and July 1992, and that unemployment or underemployment may have affected 10 million persons by the end of 1992. As it has indicated in its previous reports, the Committee wishes to follow closely the application of the Convention in countries that are moving towards a market economy, and particularly in Russia. The Committee is bound to stress the need for detailed information to be supplied on employment policies which are being implemented in such a difficult context. Further to its previous direct request, it trusts that the Government's next report will contain full information in reply to each of the questions in the report form.

3. The Committee also notes the provisions of the Act of 19 April 1991 respecting the employment of the population. It notes with interest that the fundamental principles of the employment policy, which are set out in the above Act, include the objectives of equal opportunity and the free choice of employment, in accordance with the provisions of Article 1, paragraph 2(c), of the Convention. The Committee also notes that, under the terms of the Act, measures taken in the area of employment must be coordinated with the other objectives of economic and social policy. In this connection, it would be grateful if the Government would state in its next report the way in which the objective of full, productive and freely chosen employment is taken into consideration in determining the pace and nature of measures to be taken for the transition towards a market economy. Please indicate, in particular, how measures in the areas of prices, wages and incomes policies and investment and foreign trade policies are coordinated with employment policy.

4. The Committee further notes that section 5 of the Act of 19 April 1991 provides for the cooperation of trade unions and employers' associations in the preparation, implementation and supervision of the enforcement of measures to ensure employment. However, it observes that while section 21 of the Act entitles trade unions to participate in the formulation of employment policy and the relevant legislation, no similar entitlement is expressly established for employers' organizations. Moreover, the participation of employers' organizations in the regular consultations on employment problems is not provided for in the Act. The Committee recalls in this connection that under Article 3 of the Convention representatives of the persons affected, and particularly representatives of employers and workers, must be consulted concerning employment policies "with a view to taking fully into account their experience and views and securing their full cooperation in formulating and enlisting support for such policies". It would be grateful if in its next report the Government would describe the practical procedures for the consultation of the representatives of all persons affected.

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

The Committee has taken note of the report supplied by the Government of the USSR for the period from October 1988 to October 1990. Given the changes that have occurred since that time, the Committee suggests to defer the examination of the application of the Convention in the Russian Federation to its next session. It hopes that the Government will provide for this purpose, in its report due this year, full information in reply to each of the questions set out in the report form.

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

The Committee notes with interest the Government's report and the clear and helpful information concerning the effect of the reform of the management of the national economy on employment. According to the information provided by the Government in its report, 1 million workers had to be transferred or placed in different jobs in the same enterprise in the first half of 1988; by the year 2000, studies show that the number of redundant workers in the material production sector will be 16 million. The Government states that the requirements aimed at guaranteeing "effective" employment, particularly for workers affected by redundancy or redeployment, have been increased considerably. The Committee notes in particular the measures adopted for this purpose in December 1987 in the areas of job creation in certain sectors of activity, the organisation of placement services, vocational guidance, vocational training and retraining, and the social guarantees and compensation measures. The Committee would be grateful if the Government would continue to provide information in its future reports on the implementation of this important new orientation in economic and employment policy, in accordance with the objectives of full, productive and freely chosen employment (Article 1 of the Convention). Please make particular reference to the following areas:

1. The Government states in its report that one of the material factors which have led to redundancy was the introduction in industry of new tariff rates and official salaries. The Committee refers in particular to the Law of the USSR on state enterprises (amalgamations) of 30 June 1987 and requests the Government to provide additional information on the measures taken or contemplated to implement section 14 of the above law and their effect on employment, including the measures to introduce certain flexibility in employment (part-time work, home work, rearrangement of working time).

2. In its previous direct request, the Committee noted that there was a labour surplus in the Central Asian and Trans-Caucasian republics and a labour shortage in Siberia and the far east of the country. In its last report, the Government refers to the high demand for labour required to develop infrastructures (the main Baïkal-Amur Railway (BAM)), regional growth (in Siberia and the far east of the country), rural improvement (intensive cultivation of available lands), and the service industries. The Committee would be grateful if the Government would provide information on measures to match labour supply and demand at both occupational and geographical levels. Please provide particulars of the organisation and operation of employment services and particularly on the new placement system created by the Order of 22 December 1987.

3. The Committee takes note of the provisions of section 8 of the Law of the USSR of 30 June 1987 concerning vocational training and retraining in state enterprises (amalgamations). It also notes that dismissed workers who cannot be placed in accordance with their trade, craft or skill may obtain a new job provided they undergo retraining (section 23(2) of the above Law). The Committee would be grateful if the Government would include details of the nature of the training and retraining activities carried out by state enterprises (amalgamations), the number of workers involved and the characteristics of the retraining courses for redundant workers. More generally, the Committee notes that the report refers to the need to reorganise the whole system of training and retraining and requests the Government to provide information on developments.

4. In its previous direct request, the Committee asked the Government to describe the possible effects of the legislation concerning individual activities on employment policy. It takes note of the information contained in the Government's report in reply concerning the measures giving effect to the Law of 19 November 1986. It requests the Government to continue to provide information on this subject, stating to what extent individual and co-operative activities have served as a reserve of employment, as the Government expected. Please provide also information on the organisation of the shift system and its effects on the maintenance of employment in production enterprises.

5. The Committee notes the active role attributed to the trade unions in the areas of training, the implementation of new measures and, in particular, social guarantees. It would be grateful if the Government would continue to provide information on the involvement of trade unions and the representatives of the persons concerned in the formulation and implementation of employment policies (Article 3).

6. The Committee takes note of the population data supplied by the Government. It requests the Government to provide information on the situation, level and trends of employment, both at the general level and in respect of specific categories of workers such as women, young people, the elderly and the disabled (please refer to Part VI of the report form).