Direct Request (CEACR) - adopted 2024, published 113rd ILC session (2025)

Employment Policy Convention, 1964 (No. 122) - Kyrgyzstan (Ratification: 1992)

Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Committee notes the information about the set of measures implemented by the Government in the context of the commitment to improve the employment policy and to reduce unemployment rates. In this respect, the Committee observes the amendments to the Act on Employment Promotion aiming to simplify the procedures for providing services to unemployed citizens and job seekers. In addition, a Labour Market Information System (LMIS) was established in 2019 with the aim to create a database on job seekers, vacancies, employers, and current vocational courses and to ensure access to employment opportunities. The LMIS is integrated into the information portal “zanyatost.kg” and is open to a wide range of users and is adapted for persons with disabilities. As of 26 October 2023, 96,000 persons seeking jobs were registered on the LMIS. The Government also refers to a project on the unified search system “Work Without Borders” within the framework of the Eurasian Economic Union (EEU). The aim of the Project is to ensure collaboration between labour markets within the EEU using digital tools and expanding the functionality of national information systems by adding the ability to search vacant positions and potential candidates in all countries of the EEU. According to the report, the number of employed persons has increased by 186,700 persons over the last five years, and in 2021, the workforce in the country included 2,680,500 persons, of whom 276,000 were migrant workers. The Government also indicates a trend towards increasing the number of self-employed persons who live in rural locations and work on private farms. In addition, the Government provides the information about the structure of employment and redistribution of workers among the primary sectors (manufacturing industries, construction, hotel and restaurant businesses, transport, and trade). The Committee further observes that by the end of 2022, 103,700 new jobs had been created predominantly in agriculture (31,500 jobs), trade (16,200 jobs), and construction (10,900 jobs). At the same time, the number of people employed in agriculture has decreased significantly, from 541,400 to 465,500 persons. With regard to employment trends, the Committee notes that as of 26 October 2023, the employment-to-population ratio was 60.3 per cent (76 per cent for men and 45.3 per cent for women) which is a slight decrease from the ratio in 2021 (62.3 per cent - 74.9 per cent for men and 50.2 per cent for women). In this context, according to the information provided by the Government the level of labour migration has increased significantly in the last years and approximately 25 to 30 per cent of the total workforce (between 750,000 to 1,000,000 persons) was located abroad (mainly in the Russian Federation, Kazakhstan, Türkiye, the Republic of Korea, Great Britain, and the United Arab Emirates). Regarding the unemployment rate, the Committee observes a trend for decrease -5.8 per cent in 2020 - according to the information provided by the Government, 4.1 per cent in 2021 and 4.00 per cent in 2023 - according to World Bank data. In addition, the Government indicates that since 2020, several crises (the COVID-19 pandemic, the stagnation of the international economy, and regional conflicts) have led to a decline in the social and economic situation in the country, a decrease in living standards and an increase in poverty and unemployment (700,000 workers were temporarily unemployed during the COVID-19 pandemic). In this context, the Committee notes the information in the 2023 OECD Report “Improving the legal environment for business and investment in Central Asia” according to which the COVID-19 pandemic has disrupted the relative economic stability in Kyrgyzstan based on the gold export, remittance inflows from migrant workers and GDP contracted by 8.6 per cent in 2020, which was the biggest drop in Central Asia. The Committee further observes that according to the information in the 2023 OECD Report the economy of the country has quickly recovered from the crisis and showed a certain resilience, as growth reached 3.7 per cent in 2021 and 7 per cent in 2022. In view of the above, the Committee requests the Government to provide information on the impact of the measures taken to achieve its objective to improve the employment policy and to reduce the unemployment rates. The Committee also requests the Government to continue to provide updated information, including statistics, disaggregated by sex, age, and region with respect to labour market trends, specifically labour force participation, employment both in the private and the public sector, and unemployment.

Informal economy. The Committee notes that the Kyrgyz Republic continues to have one of the highest levels of informal employment rates in the region. According to the information provided by the Government, the number of persons employed in the informal sector has increased. In 2021, 1,687,900 persons were employed in this sector, of whom 1,116,800 were men and 571,300 were women. In addition, the Government indicates that the number of persons employed in the informal sector in rural locations was 1,111,200 persons, which is almost double in comparison with urban areas – 576,700 persons. Furthermore, the Committee notes that according to the information in the 2023 OECD report, the informal labour market employs 71.8 per cent of the workers in trade, services, and construction. The Committee further notes with regret the absence of information in the Government’s report in response to its previous comments on informal economy. The Committee, therefore, reiterates the request to the Government to provide up-to-date information on the nature and impact of measures taken to integrate informal economy workers into the formal labour market, in particular internal migrants.

The Committee draws the Government’s attention to ILO’s Transition from the Informal to the Formal Economy Recommendation, 2015 (No. 204) which provides comprehensive guidelines to facilitate the transition from the informal to the formal economy. It emphasizes the need to respect workers’ fundamental rights and ensure opportunities for income security, livelihoods, and entrepreneurship. The recommendation promotes the creation and sustainability of decent jobs and enterprises in the formal economy while preventing the informalization of formal jobs. It calls for integrated strategies, including productivity enhancement, legal and regulatory reforms, fiscal measures, and social protection. Additionally, it highlights the importance of social dialogue, tailored approaches to national circumstances, and the collection of data to monitor progress.

Small and medium enterprises (SMEs). The Committee notes that according to the 2023 OECD report in 2022 a record number of new companies (2,609) of non-residents of the Kyrgyz Republic were registered or reregistered, which is almost twice as many as in 2021. At the same time, 771 more companies with foreign participation were registered in January–March 2023. The Committee further regrets to note that the Government does not provide information in response to its previous comments on SMEs. The Committee, therefore, reiterates the request to the Government to provide updated detailed information on the measures adopted to support the establishment of SMEs and on their result in terms of generating employment, including for specific groups, such as women, young persons, and other groups in vulnerable situations. It further requests the Government to provide information on the status of the adoption of the comprehensive national programme for the development of SMEs and to transmit a copy once it has been adopted.

The Committee also wishes to draw the Government’s attention to the ILO’s Recommendation on job creation in small and medium-sized enterprises (No. 189), 1998. This ILO standard is indeed crucial in the context of the country’s economic recovery and growth since SMEs drive economic diversification, create jobs, and foster inclusive development by integrating marginalized groups into the economy. They promote innovation and entrepreneurship, contributing to a dynamic and resilient economy. Additionally, SMEs enhance social stability by improving livelihoods and reducing economic disparities. Moreover, capacity building and skills development associated with SME growth further boost workforce productivity and competitiveness.

Poverty reduction. The Government refers to the implementation of the Social Contract Project, allowing low-income families to develop their businesses. In the framework of the Project, approximately 13,000 low-resource families have received a financial grant for 100,000 Kyrgyzstani Soms (approximately US$1,200). The Committee, however, notes the considerable increase in the number of people living in poverty in connection with the COVID-19 pandemic and global and regional conflicts. In this regard, according to the data provided by the National Statistics Committee of Kyrgyzstan, the number of people living in poverty reached 2,244,000 persons in 2021, and the poverty rate was 33.3 per cent, which is almost 115 per cent increase in comparison with the poverty rate in 2018 (15.5 per cent). The Committee further observes that according to the 2023 UNICEF report, most of Kyrgyzstan’s poor persons were children - 40.3 per cent of them faced monetary poverty, and more than 57 per cent lived in multidimensional poverty. Furthermore, in the context of the measures for poverty reduction, the Committee notes the signing on 27 July 2023 of a Country Partnership Framework (CPF) between the World Bank Group (WBG) and the Kyrgyz Republic for 2024–28. The main aim of the CPF is to provide financial support to the Government in its efforts to eliminate poverty and promote shared prosperity in a sustainable way. The Committee regrets however that the Government does not provide information in response to its previous comments on poverty reduction. The Committee, therefore, reiterates the request to the Government to provide updated detailed information on the measures implementedunder the “National Development Strategy of the Kyrgyz Republic for 2018–40” and the “Development Programme of the Kyrgyz Republic for the period 2018–22: Unity, Trust, Creation” in terms of poverty reduction. It further requests the Government to provide information on the measures taken or implemented within the Country Partnership Framework with the WBG to support vulnerable groups who are disproportionately affected by poverty.

Education and training. The Committee notes the information provided by the Government about Model Regulations on Mentoring in Enterprises (organizations), which implement a procedure for organizing and conducting mentoring for students and young specialists without work experience. The regulations define the aims of mentoring, the requirements for a mentor, the procedure for organizing mentoring within an enterprise, the stages of mentoring, the forms and methods of mentoring, and the rights and responsibilities of the mentor and the mentee. The Committee also observes that the Government refers to a demand for new skills and knowledge and more qualified personnel. Regarding the information on the establishment and functioning of a continuous development system and a National Qualifications System, the Committee refers to its comments on the Human Resources Development Convention, 1975 (No. 142). The Committee regrets the absence of information in the Government’s report on measures taken in education and training. The Committee, therefore, reiterates the request to the Government to provide detailed updated information in this respect in the next report, including statistical data disaggregated by sex and age on the nature, scope, and impact of the measures to improve education and training.

The Committee draws the government’s attention to the resources developed by the Bureau to support comprehensive skills development and lifelong learning initiatives, including: policy and strategy guides for developing national skills policies and strategies; self-assessment tools, funding guides, and governance resources; guides on digital skills, inclusivity, and the green transition of vocational education; manuals on competency-based training and capacity building for training managers; as well as tools for skills anticipation, business diversification, and rural economic empowerment (ILO, Key ILO tools on Skills and Lifelong Learning).

Women’s employment. According to the information provided by the Government 1,249,000 working-age persons in the Kyrgyz Republic were not economically active and most of them were women as of October 2023. In this context, the Committee notes the concern expressed by CESCR in its concluding observations (E/C.12/KGZ/CO/4) (paragraph 24(a)), at the persistence of obstacles faced by disadvantaged and marginalized groups of women to the equal enjoyment of their economic, social, and cultural rights, including employment, education, health and access to land and property ownership. The Committee on the Elimination of Discrimination against Women (CEDAW) further expressed concern at the persistence of gender pay and pension gaps due to vertical and horizontal gender segregation in the labour market and the overrepresentation of women in low-paid work and the informal economy. The Committee also notes with regret that the Government does not provide information in response to its previous requests on women’s employment. The Committee, therefore, reiterates the request to the Government to provide updated detailed information on the measures taken or envisaged to promote women’s participation in the labour market, including in non-traditionally female occupations. It also reiterates its request the Government to provide statistical data on the labour market situation of women and men in the public and private sectors, disaggregated by sex, age, economic sector and occupation. The Committee further requests the Government to provide information on the impact of measures addressing female unemployment implemented in the context of the Additional/Financing projects within the Country Partnership Framework with the WBG.

Youth employment. The Committee regrets to note the absence of information in the report regarding youth employment in the last years, as well as the nature, scope and impact of the measures adopted or envisaged, including those under the youth policy, to promote decent, productive, and lasting employment for young women and men. In this context, the Committee reiterates its request to the Government to provide updated detailed information on youth employment.

The Committee also draws the government’s attention to the tools developed by the Bureau to promote youth employment, emphasizing the essential nature of appropriate training for improving young people’s skills and designing inclusive policies that meet the needs of vulnerable youth. The guidelines for national policies also recognize the importance of encouraging entrepreneurship with access to financing, as well as collaboration between governments, employers, and youth organizations for sustainable solutions (ILO, Employment Policy Design Lab).

Ethnic minorities. The Committee regrets that the Government does not provide information in response to its previous requests on ethnic minorities. In this respect, the Committee notes the concern expressed by the Committee on Economic, Social and Cultural Rights (CESCR) in its concluding observations (E/C.12/KGZ/CO/4, adopted on 11 October 2024, paragraph 62), that the number of public schools that teach in a minority language other than Russian has significantly decreased in the last years. The Committee, therefore, reiterates the request to the Government to provide updated detailed information on the measures taken or envisaged to increase the opportunities of ethnic or national minorities in education and vocational training, as well as to ensure them equality of access in relation to employment and occupation. It also requests the Government to provide updated statistical information, disaggregated by sex and age, on the participation on ethnic or national minorities at all stages of education and vocational training.

Article 3. Participation of the social partners in the formulation and implementation of employment policies. The Government indicates that representatives of trade unions are members of interdepartmental working groups established to develop draft legislation. However, the Government’s report does not provide updated information in response to the Committee’s previous comment on the application of this Article of the Convention. The Committee, therefore, reiterates its request to the Government to provide updated detailed information in its next report on the progress made in establishing the inter-agency working group to create a new programme to promote employment. The Committee also reiterates its request to the Government toprovide information concerning the manner in which the social partners are engaged and how their opinions are taken into account in the formulation and implementation of employment measures. The Committee further requests the Government to provide updated detailed informationon consultations held with representatives of the persons affected by the measures taken, such as young people, women, ethnic minorities, and other specific groups, in relation to the development and implementation of such measures.