Employment Service Convention, 1948 (No. 88) - Greece (Ratification: 1955)

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

The Committee notes the observations of the Greek General Confederation of Labour (GSEE), received on 1 September 2023, and the Government’s response thereto, received on 16 November 2023.

Article 1 of the Convention. Contribution of the employment service to employment promotion. The Committee notes the information provided on the legislative changes that occurred during the reporting period. It notes in this regard the Government’s indication that the Manpower Employment Organization (OAED) was renamed Public Employment Service (DYPA), pursuant to Law No. 4921/2022, which introduced significant changes to the employment service in response to socio-economic and technological developments and challenges. The modernization of the OAED had, as a strategic objective, its transformation into a modern and flexible public employment service inspired by European best practices, with the aim of a more rapid and effective reintegration of the unemployed into the labour market, the rewarding of those who actively seek employment, and upgrading their skills. As of 2022, the DYPA has a new organisational structure, primarily aimed at upgrading and enhancing its services and overall mission. The Government indicates that, through its established Employment Promotion Centres (KPA2), the DYPA continues to ensure the best possible organization of the employment market as an integral part of the national programme for the achievement and maintenance of full employment and the development and use of productive resources. The Committee notes that the number of KPA2 decreased from 119 to 116. At the same time, the number of Offices for Special Groups (EKO) decreased from 6 to 2 (more specifically, in Athens and Thessaloniki). The Government indicates, however, that the 4 EKO offices were not abolished; they were integrated with the respective KPA2. With regard to the number of vacancies notified and the number of persons placed in employment, the Committee previously noted that, in 2014, there were 52,671 published vacancies; and 47,404 placements. It notes that, during the 2015–23 period, the lowest number of vacancies recorded was 37,060 in 2016 (with 20,521 persons placed in employment), and the highest was 94,439 vacancies in 2020 (with 59,202 persons placed in employment). The Committee requests the Government to provide an assessment of the changes made to the public employment service, and the impact of this restructuring on achieving full employment as well as the best possible organization of the employment service as an integral part of the national programme for reducing unemployment which remains a significant issue in the country. It also requests the Government to also share its assessment of the reduction of the number of Offices for Special Groups (EKO) from 6 to 2 and their mainstreaming with the Employment Promotion Centres (KPA2), in view of the need to protect the most vulnerable and strengthen social cohesion. In addition, the Committee asks the Government to indicate measures taken or envisaged in order to upgrade skills and avoid situations of skills mismatch between the skills of job seekers and the needs of employers. The Government is further requested to continue to provide information on the number of public employment offices established by the OAED, the number of applications for employment received, the number of vacancies notified and the number of persons placed in employment by the offices.

Articles 4 and 5. Cooperation with employers’ and workers’ representatives. The Government indicates that, in order to achieve greater flexibility, the new composition of the Public Employment Service’s Board of Directors has reduced the number of social partners’ representatives from 18 to 11. It further indicates that, under Law No. 4921/2022, the Council of Social Partners was established, which is a collective body operating as the administrative body of DYPA. Its main responsibility is to provide advice to the Board of Directors of DYPA on its own initiative or if invited by the Minister of Labour and Social Security, or by the Board of Directors of DYPA. In its observations, the GSEE expresses concern that the fundamental transformation of the OAED into the DYPA will have a negative impact on the application of the Convention. Referring to the restructuring of the governance of the OAED, the GSEE highlights that DYPA lacks the ability to effectively intervene in the labour market due to limited social partner participation and direct government control. The GSEE adds that the establishment of a Council of Social Partners is an insufficient compensation for this loss, as it holds only advisory power and lacks influence. The GSEE recalls that participation in the Administrative Body of the OAED was tripartite, with equal representation of the State, the national employers’ organizations and workers’ organizations. The Committee recalls that the Convention requires suitable arrangements to be made through advisory committees for the co-operation of representatives of employers and workers in the organisation and operation of the employment service and in the development of employment service policy (Article 4). These advisory committees therefore need to have a capacity to influence the manner in which the employment service is organized and operates as well as the development of the employment service policy. The Committee therefore requests the Government to respond to the comments of the GSEE and provide information on the manner in which the social partners are associated to the operation and organization of the public employment service and in the development of employment service policy.

Article 11. Cooperation with private employment agencies. The Government indicates that DYPA does not cooperate with private employment agencies. DYPA offers job placement services at both the local and central level. Private employment agencies can only be licensed by the Ministry of Labour and Social Security. In addition to Article 11 of the Convention which requires State parties to take the necessary measures to secure effective co-operation between the public employment service and private employment agencies, the Committee also refers to Paragraph 16 of the Private Employment Agencies Recommendation, 1997 (No. 188), which encourages the cooperation between the public employment service and private employment agencies for the effective implementation of a national policy on organizing the labour market. Measures to promote cooperation between the public employment service and private employment agencies could include: (a) pooling of information and use of common terminology so as to improve transparency of labour market functioning; (b) exchanging vacancy notices; (c) launching of joint projects, for example in training; (d) concluding agreements between the public employment service and private employment agencies regarding the execution of certain activities, such as projects for the integration of the long-term unemployed; (e) training of staff; and (f) consulting regularly with a view to improving professional practices (Paragraph 17 of Recommendation No. 188). The Committee considers that the absence of such a cooperation and coordination between these two important labour market institutions could represent an obstacle to the effective implementation of the objectives of the national employment service policy and wishes to stress the importance of fostering strong partnerships between public and private employment services to create more dynamic and responsive labour markets. The Committee therefore requests the Government to provide information on the measures taken or envisaged to secure effective cooperation between the public employment service and private employment agencies with a view to the effective implementation of the employment service policy.

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

Article 1(2) of the Convention. Contribution of the employment service to employment promotion. The Committee notes the information provided by the Government in its report indicating that the Manpower Employment Organization (OAED) network currently comprises 119 Employment Promotion Centres (KPA2) currently in operation. In 2014, there were 1,012,955 registered unemployed persons; 52,671 published vacancies; and 47,404 placements had been made. The Government emphasizes that the network of employment structures was created with a view to covering urban areas, enhancing main semi-urban areas (except Attica and Thessaloniki), and covering remote island regions. The Committee refers to its 2014 observation on the application of the Employment Policy Convention, 1964 (No. 122), and requests the Government to provide information on the activities carried out by the OAED and KPA2 and the manner in which, pursuant to Article 1(2) of the Convention, it ensures the best possible organization of the employment market as an integral part of the national programme for the achievement and maintenance of full employment and the development and use of productive resources. It also requests the Government to continue to provide information on the number of public employment offices established by the OAED, the number of applications for employment received, the number of vacancies notified and the number of persons placed in employment by the offices.

Article 11. Cooperation with private employment agencies. The Government indicates that, in the context of the OAED’s cooperation with private employment agencies in the country, the OAED’s central portal as well as the services provided by the European Job Mobility Portal (EURES) are available to facilitate the work of private employment agencies, through the obtaining of information and the placement of jobseekers. The Committee requests the Government to provide examples of the impact of the measures taken to secure effective cooperation between the public employment service and private employment agencies.

Direct Request (CEACR) - adopted 2014, published 104th ILC session (2015)

Article 1(2) of the Convention. Contribution of the employment service to employment promotion. The Committee notes that the Government indicates in its report that the number of registered jobseekers was measured at 876,364 (until 31 May 2013) and the number of vacancies notified until 31 May 2013 was 2,483. The number of persons placed in employment was 2,019 in May 2013 and 73,769 for the period 2010 to May 2013. The Government also indicates that, following a decision to reduce the operating costs of the network of the Manpower Employment Organization (OAED), six Employment Promotion Centres (KPA2) located in Attica have been merged in three large employment structures. The OAED now includes 118 KPA2 offering employment and counselling services as well as social provisions in one structure (one-stop shops), therefore aiming at providing faster and more efficient services to citizens. The Committee refers to its 2014 observation on the application of the Employment Policy Convention, 1964 (No. 122), in which it noted the high levels of unemployment, including long-term unemployment, and requests the Government to provide information on the activities carried out by the OAED and KPA2 and the manner in which, pursuant to Article 1(2) of the Convention, it ensures the best possible organization of the employment market as an integral part of the national programme for the achievement and maintenance of full employment and the development and use of productive resources. It also invites the Government to continue to provide information on the number of public employment offices established by the OAED, the number of applications for employment received, the number of vacancies notified and the number of persons placed in employment by the offices (Part IV of the report form). The Committee hopes that this information will allow for the assessment of public employment offices’ effectiveness.

Article 11. Cooperation with private employment agencies. The Government indicates that, by expanding their scope of activities to counselling and vocational guidance, private employment agencies have the proper tools for the better placement of unemployed persons. The Government refers to section 104 of Act No. 4052/2012 and indicates that private employment agencies have to cooperate with the OAED. A list of private employment agencies licensed or certified by the Ministry of Labour, Social Security and Welfare is available on the OAED website. The Committee requests the Government to provide examples of the impact of the measures taken to secure effective cooperation between the public employment service and private employment agencies.

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

Contribution of the employment service to employment promotion. The Committee notes the report provided by the Government in December 2010 for the period ending in May 2010. The Government refers to the provisions introduced in May 2010 promoting the operation of temporary employment agencies. It also indicates that it has implemented a merger of services in 2008 between local services of the Employment and Labour Organization (OAED) and Employment Promotion Centres (KPA) in districts and cities where both operated. This consolidated employment service unit (KPA2) operates under the auspices of the OAED. The Government further indicates that the OAED seeks maximum cooperation with the social partners, local government bodies and vocational training organizations in order to improve the effectiveness of employment measures taken. The Committee noted in its comments on the Employment Policy Convention, 1964 (No. 122), a serious deterioration in the employment situation. It stresses the need to ensure the essential function of a public employment service to achieve the best possible organization of the employment market, adapting its operation to meet the new needs of the economy and the active population (Articles 1 and 3 of the Convention). The Committee requests the Government to provide available data on the number of public employment offices established by the OAED, the number of applications for employment received, the number of vacancies notified and the number of persons placed in employment by the offices (Part IV of the report form).

Article 11. Cooperation with private employment agencies. The Government referred in its report to the legislative amendments introduced in May 2010 promoting the operation of temporary employment agencies. The Committee invites the Government to supply information on the arrangements made to secure effective cooperation between the public employment service and private employment agencies including data enabling a quantitative and qualitative examination of the placement provided by the private employment agencies.

[The Government is asked to reply in detail to the present comments in 2013.]

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

The Committee notes that the Government’s report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its 2005 direct request, which read as follows:

Contribution of the employment service to employment promotion. The Committee requests the Government to continue to supply information on the action taken by the OAED to ensure a free public employment service and to achieve, in its next reports, the best possible organization of the employment market as requested by the Convention. With regard to the cooperation of the public employment service and private employment agencies, the Government might consider it useful to refer to the instruments adopted in 1997 by the International Labour Conference on the matter (Convention No. 181 and Recommendation No. 188).

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

Contribution of the employment service to employment promotion. The Committee notes the Government’s report for the period ending in October 2005, which includes detailed information in reply to its 1999 direct request. In its comments on the application of the Employment Policy Convention, 1964 (No. 122), the Committee had also noted the programmes implemented by the Employment and Labour Organization (OAED) and the involvement of the social partners in the operation of the public employment service. In its report on Convention No. 88, the Government indicates that new legislative measures were adopted to regulate private employment agencies. The Committee requests the Government to continue to supply, in its next reports, information on the action taken by the OAED to ensure a free public employment service and to achieve the best possible organization of the employment market as requested by the Convention. With regard to the cooperation of the public employment service and private employment agencies, the Government might consider it useful to refer to the instruments adopted in 1997 by the International Labour Conference on the matter (Convention No. 181 and Recommendation No. 188).

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

1. The Committee notes the detailed information contained in the Government's report. Further to the Committee's comments under Article 10 of the Convention, the Government states that under Law No. 2434, 1996, local administrations, chambers of industry and of artisans, and unions and employers' organizations have the right to conclude agreements, after consulting with the employment service (OAED), for the operation of employment information offices. The Committee would appreciate receiving in the Government's next report details on the impact of this law on the functioning of the OAED.

2. The Committee also requests the Government to continue transmitting statistics on placements and other general information on the application of the Convention. In particular, it would be grateful if the Government would explain further how the OAED collects and analyses, in cooperation where appropriate with other authorities and with management and trade unions, the fullest available information on the situation of the employment market and its probable evolution, in accordance with Article 6(c) of the Convention.

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

The Committee notes the information provided by the Government in its report. It notes, in particular, the measures taken by the Manpower Employment Organization (OAED), under the Act on Development No. 1892 of 1990, with regard to the creation of the new work posts. It also notes from the Government's report that eight employment offices coming under the OAED have been created in the country since 1989, the total number of public employment offices operating in Greece being at present 43 (which is a significant reduction from 117 agencies reported by the Government in its report in 1989). The Government indicates that a new system of employment services (SECOD) has been started in 1991 (denominated "EURES" since 1992), which offers information services in regard to the demand for and offer of employment vacancies, as well as the living and working conditions in the EEC countries.

The Committee observes that the Government's report contains no statistical information concerning the number of vacancies notified and the number of persons placed in employment by the public employment offices. In its previous report for the period ending 30 June 1989 the Government supplied statistics for 1985-88, according to which the number of placements effected by the then 117 public employment agencies represented only from 3.1 per cent to 3.8 per cent of all placements made yearly. The Committee would be grateful if the Government would provide, in its next report, statistical information on the number of applications for employment received, the number of vacancies notified and the number of persons placed in employment by the OAED offices, in accordance with point IV of the report form. Please indicate the arrangements made nationally and locally in cooperation with employers' and workers' organizations to encourage full voluntary use of employment service facilities, in accordance with Article 10 of the Convention. Please also give a general appreciation of the manner in which the Convention is applied in your country, including, for instance, extracts from official reports and information on any practical difficulties in the application of the Convention, as required by point VI of the report form, making special emphasis on measures taken or envisaged with a view to increase the efficiency of public employment services.