Employment Service Convention, 1948 (No. 88) - Georgia (Ratification: 2002)

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

Articles 1, 3 and 6 of the Convention. Contribution of the employment service to employment promotion. The Government indicates that the State Employment Support Agency, which started its operations in 2020 under the responsibility of the Ministry of Internally Displaced Persons from the Occupied Territories, Labour, Health and Social Affairs, ensures the implementation of programmes to promote employment within the framework of the active labour market policy. Referring to the public employment service’s staffing levels, the Government indicates that the Tbilisi and district employment service offices were fully staffed in 2022, and that six additional regional employment service offices were set to open in 2023. The State Employment Support Agency is also represented throughout the country at the municipal level, within the centres of the Social Service Agency, where interested persons have the opportunity to receive employment-related advice and participate in employment promotion programmes. The Agency offers a range of employment services to jobseekers, including training in key competencies, vocational training and retraining courses, internship opportunities, and subsidized employment. In terms of statistical information provided by the Government, the Committee notes that 48,665 active jobseekers were registered in the 2020–22 period and individual consultations were provided to 80,092 jobseekers throughout the country. During the same period, 17,365 jobseekers were employed in the open labour market, of which 12,645 in 2022. In addition, 29,323 socially vulnerable jobseekers were provided the opportunity to be employed in public works, through a programme that started in March 2022.

The Committee observes that despite these economic successes, the situation of the labour market in Georgia continues to be characterised by numerous vulnerabilities. The country’s labour force participation rate is low at about 52 per cent in 2022 (ILOSTAT, 2024), with a significant gap between men (64 per cent) and women (41 per cent). The unemployment rate reached almost 17 per cent in 2022 and severely affected youth, as over 38 per cent were unemployed in 2022 (ILOSTAT, 2024). Employment in the informal economy remains at high levels with an estimated of 37 per cent (43 per cent for men and 30 per cent for women). The country also faces some persistent structural challenges including an ageing population, weak productivity growth, limited high-quality employment creation, and poor learning outcomes. The Committee asks the Government to indicate whether and how the employment service plays an instrumental role in tackling these challenges.The Committee also refers to its comments on the Employment Policy Convention, 1964 (No. 122), and requests the Government to provide detailed information on the impact of the activities carried out by the public employment service with a view to promoting full employment. It also requests the Government to provide updated statistical information on the number of public employment offices established, the number of applications for employment received, the number of vacancies notified, and the number of persons placed in employment by such offices.

Articles 4 and 5. Consultation with social partners. The Government indicates that work continues with the business sector to develop specific cooperation mechanisms and that meetings were held with representatives of employers’ organizations, including the Georgian Employers’ Association. Moreover, the State Employment Support Agency, with the support of the Rural Development Agency, held meetings with industry associations in the agricultural sector to include business operators working in agriculture in employment promotion programmes. To further develop social dialogue, the Government indicates that an Advisory Council was created to support the State Employment Support Agency’s effective implementation of the measures defined in Georgia’s active labour market policy. The Committee requests the Government to provide more specific information on the involvement of the employers’ and workers’ organizations in relation to the organization and operation of the employment service and in the development of an employment service policy. It also requests the Government to provide further details on the consultations held within the Advisory Council of the State Employment Support Agency on matters covered by the Convention.

Articles 7(b), 8 and 10. Meeting the needs of particular categories of workers. Outreach to employers and jobseekers. The Government indicates that the State Employment Support Agency held meetings with employers’ organizations to share information about the Agency’s services and inquire about the labour needs of the business sector. Within the framework of promoting the employment of persons with disabilities, several meetings were held with representatives of government departments and experts to exchange relevant experience and recommendations. The Government refers to a study conducted in 2022 that identified problems associated with the employment of persons with disabilities, as well as the need to introduce employment services focused on individual needs. During the 2020–22 period, Employment Support Counsellors provided support services to 477 persons with disabilities (with 245 persons with disabilities in 2022). Young people, aged 16 to 29, are also a priority group for the services and programmes delivered by the State Employment Support Agency, who implements them in close collaboration with the Youth Agency. Moreover, the Government indicates that the State Employment Support Agency contributed to the development and preparation of the State Youth Strategy 2023–26 and Action Plan, which were adopted in 2022. The Committee requests the Government to provide information on the impact of the measures taken to meet the needs of particular categories of applicants for employment, including young people and persons with disabilities. Please also indicate measures taken to facilitate the access to employment of older workers and of members of ethnic minorities, including by supporting programs to improve accessibility, provide training, and combat discrimination. The Committee also requests the Government to continue to provide examples of the collaboration with employers’ and workers’ organizations to encourage the full use of employment service facilities by employers and workers.

Article 9. Status of employment service staff. The Committee notes the information provided by the Government on the training activities that took place during the reporting period. For example, within the framework of a European Union-funded project, employees of the State Employment Support Agency received training on the development of a new service model, employment mediation, and active labour market policies and programmes. Training in 2022 included the ILO’s Start and Improve Your Business (SIYB) programme, where Agency employees were trained as certified trainers to support entrepreneurs and promote youth entrepreneurship. Other training delivered in 2022 aimed to improve the skills of Agency employees of the Labour Migration and Employment Promotion Departments, as well as the Agency’s regional service centres. The Committee requests the Government to continue to provide information on the training activities offered to the State Employment Support Agency staff, allowing for the effective performance of their duties.

Article 11. Cooperation between public and private employment agencies. The Committee notes the Government’s indication in its report on the Private Employment Agencies Convention, 1997 (No. 181), that one of the main objectives of the 2023 amendments to the Law on Labour Migration was the development of cooperation between the public employment service and provide employment agencies. The Committee requests the Government to provide updated information on the measures taken or envisaged to promote cooperation between the public employment service and private employment agencies.

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

The Committee notes the observations of the Georgian Trade Unions Confederation (GTUC) received on 6 October 2015 and the Government’s response received on 27 November 2015.

Articles 1, 3 and 6 of the Convention. Contribution of the employment service to employment promotion. In its observations, the GTUC indicates that the Labour and Employment Policy Department (LELP) needs to be strengthened as it lacks staff and funds to fulfil its responsibility to implement the employment service policy and to develop the labour market infrastructure. The Government indicates in its report that the LELP consists of one central employment office located in Tbilisi with 32 staff members and 69 municipal offices with a total of 101 staff members. Services offered by employment offices include registering jobseekers, providing information on job vacancies, offering placement services and general consultations for groups and individuals. In July 2015, 44,781 jobseekers were registered with the employment offices and 2,067 people were placed in employment, including 24 persons with disabilities. The Committee notes the establishment of the Department of Employment Programmes in August 2013 which is responsible for the development of employment promotion services within the central employment office of the LELP, as well as the creation of the Labour Market Analysis Division by the Ministry of Labour, Health and Social Affairs in December 2014. The Government indicates that, for the 2015–17 period, it approved a concept for developing a service of continuous professional consultations and career planning as part of the “Employment and professional education and training” programme, developed by the Ministry of Labour, Health and Social Affairs with other stakeholders. The Government further indicates that labour market surveys will be institutionalized within the framework of the Labour Market Formation Strategy and Action Plan 2015–18. Moreover, the National Professional Council is working on developing a “Standard of professional consultations and career planning services” and a “Concept of active policy of the labour market”. The Committee requests the Government to continue to provide information on the operation of the employment offices of the Labour and Employment Policy Department and on their activities in carrying out effective recruitment and placement, including statistical information on the number of public employment offices established, the number of applications for employment received, the number of vacancies notified, and the number of persons placed in employment by such offices.

Articles 4 and 5. Consultation with social partners. The Government indicates that in the framework of the Tripartite Committee of Social Partnership, established on 7 October 2013, working groups have conducted three meetings to review the settlement of problematic labour issues. The Committee requests the Government to provide more specific information on the involvement of the Tripartite Committee of Social Partnership in relation to the organization and operation of the employment service and in the development of an employment service policy.

Articles 7(b), 8 and 10. Meeting the needs of particular categories of workers. Outreach to employers and jobseekers. The Government states that the LELP cooperates with different state, non-governmental and business representatives as part of the objective of employment of vulnerable groups of jobseekers. The Committee requests the Government to provide specific examples of the collaboration with the employers’ and workers’ organizations to encourage the full use of employment service facilities by employers and workers. It also requests the Government to provide information on the measures taken to meet the needs of particular categories of applicants for employment, including young people and persons with disabilities.

Article 9. Status of employment service staff. The Government indicates that a twinning programme exists which is directed towards the development of human resources and employment support services. The Committee requests the Government to provide further information on the twinning programme and to indicate the extent to which the training activities offered to the employment service staff are adequate for the performance of their duties.

Article 11. Cooperation between public and private employment agencies. The Government indicates that, while no formal cooperation framework exists between the public employment service and private employment agencies, both sides can meet and exchange information as needed. The Committee requests the Government to provide information on the measures envisaged to increase the effective cooperation between the public employment service and private employment agencies.

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

Articles 1 and 6 of the Convention. Contribution of the employment service to employment promotion. The Committee notes the Government’s report received in September 2013 which includes detailed information in reply to its 2010 direct request. The Government indicates that, within the Ministry of Labour, Health and Social Affairs of Georgia, the Labour and Employment Policy Department (LELP) was reformed in January 2013 to include an Employment Assistance Division, which is responsible for, amongst others, developing professional orientation, professional consulting and employment assistance, and registering jobseekers. The LELP’s Social Service Agency intends to create free-of-charge Employment Support Centres throughout the country in the near future. The Centres are expected to be responsible for providing information and conducting individual interviews with jobseekers to evaluate their capacities and employment opportunities, registering jobseekers in relevant databases, collecting and systematizing available vacancies and organizing meetings between employers and jobseekers. The State will also encourage communication between private agencies and the Employment Support Centres. The Government indicates in its report that the LELP does not yet have statistical information available. The Committee invites the Government to provide in its next report information on the operation of the Employment Support Centres and their activities in carrying out effective recruitment and placement. Please also provide statistical information on the number of public employment offices established, the number of applications for employment received, the number of vacancies notified, and the number of persons placed in employment by such offices (Part IV of the report form).

Articles 4 and 5. Consultation with the social partners. The Government reports that ILO technical assistance was received to improve the institutionalization of social dialogue in Georgia. It adds that in May 2010 the secretariat of the Tripartite Social Partnership Commission was established to support the effective and productive cooperation between social partners. Moreover, the Government indicates that the existence of the Tripartite Social Partnership Commission can overcome the lack of regional and local advisory committees (Article 4(2)). The Committee invites the Government to provide specific information on the involvement of the Tripartite Social Partnership Commission in relation to the organization and operation of the employment service and in the development of an employment service policy.

Article 8. Special arrangements for young persons. The Government indicates that negotiations between Georgia and France with regard to a bilateral agreement on circular labour migration have been completed and that it should be signed in the near future. The aim of the agreement is to enable young people wishing to enhance their professional knowledge and skills to work in their profession in France. The Committee notes that the Ministry of Education and Science implemented the Summer Job project to assist students to acquire professional experience and obtain the necessary financial resources to cover the tuition fees of the higher educational institutions. All Ministries were involved in the project, together with educational institutions and 150 business companies. The Government indicates that a new inter-agency coordinating council was created in June 2013 with the support of the United Nations Children’s and Population’s Fund. The council is charged with developing and coordinating activities in the field of youth and is composed of governmental and non governmental agencies, international organizations and independent experts. The Committee invites the Government to include in its next report information on the results of the Summer Job project and other measures for young persons. Please also include information on the bilateral agreement on circular labour migration with France and provide examples of activities carried out by the inter-agency coordinating council on the matters covered by the Convention.

Article 9. Status of employment service staff. The Government provides a list of employment service staff participation in different training activities, workshops and conferences, organized by the LELP in 2013. The Committee invites the Government to continue to provide information on the staff training and to indicate the extent to which the training activities offered to the employment service staff are adequate for the performance of the staff duties.

Article 10. Outreach to employers and jobseekers. The Government indicates that the aim of the Social Partnership Tripartite Commission is to address all the concerns raised by the social partners and find commonly acceptable solutions including employment policy. The Committee invites the Government to provide in its next report specific examples of the collaboration with the employers’ and workers’ organizations to encourage the full use of employment service facilities.

Article 11. Cooperation between public and private employment agencies. The Government indicates that once the Support Employment Centres are completely established and working, there will be effective collaboration between public employment service and private employment agencies. The Committee invites the Government to provide in its next report information on the measures taken to secure effective cooperation between the public employment service and private employment agencies.

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

The Committee notes the Government’s replies to its 2005 direct request received in September 2010.

Articles 1 and 6 of the Convention. Contribution of the employment service to employment promotion. The Committee notes that reducing unemployment and alleviating poverty while improving jobs creation are among the main priorities for the Government. It states that this objective is a very complex one and it is far beyond the capacity of a single agency, the Social Subsidies Agency (the successor of the State Employment Agency). The Government indicates that coordinated efforts are made by various ministries to implement state programmes on employment, education and training. It further indicates having launched a state programme to reduce structural unemployment caused by changes in the economy and job mismatch to create a modern professional education infrastructure. The programme seeks to create professional education centres based on the needs of the private sector. The Government also indicates that the programme is conducted in close cooperation with the public and private sectors which provide flexibility and adjustability as the number of students for the professional education centres are determined by the private companies who then train the staff and provide employment in their companies. The Committee recalls that Article 1(1) of the Convention requires to maintain or ensure the maintenance of a free public employment service. The Committee asks the Government to provide in its next report detailed information on progress made to maintain a free public employment service and that the public employment service ensure effective recruitment and placement and discharge all functions assigned to the employment service by Article 6 of the Convention. The Committee again invites the Government to provide the statistical information requested under Part IV of the report form concerning the number of public employment offices established, the number of applications for employment received, the number of vacancies notified, and the number of persons placed in employment by such offices.

Articles 4 and 5. Consultation with the social partners. The Government indicates that the Tripartite Social Partnership Commission was established in November 2009, which fulfils the functions of the previous national employment council and discusses labour legislation issues, employment issues and policies. It further indicates that representatives of employers’ associations and trade unions are appointed in equal numbers after consultation with representative organizations of employers and trade unions. The Committee invites the Government to specify the involvement of the Tripartite Social Partnership Commission in relation to the organization and operation of the employment service and in the development of an employment service policy.

Article 4(2). National advisory committees. The Government indicates that it intends to enhance and traditionalize tripartite cooperation by strengthening the Tripartite Social Partnership Commission on a national level. The Committee invites the Government to include in its next report information on eventual developments that would necessitate the establishment of regional and local advisory committees.

Article 8. Special arrangements for young workers. The Committee notes the efforts mentioned by the Government in its report to improve qualifications and knowledge of young persons in order to make them more competitive in the labour market. The Government describes a special programme for prospective Master’s students created in 2005 which has already financed around 400 Georgian students to study abroad at leading universities. The Government reports on education services for youth through a bilateral agreement regarding circular labour migration with France. It additionally indicates that 19 countries have expressed their readiness to start negotiations on similar agreements. The Committee invites the Government to include in its next report further information on programmes and other initiatives that have been launched and developed for young workers within the framework of the employment and vocational guidance services.

Article 9. Status of employment service staff. The Government indicates that large-scale training programmes are organized in all relevant state institutions involved in the development and implementation of the employment policy. It envisages conducting numerous trainings in the future. The Committee asks the Government to provide information in its next report on initiatives taken to institute specific training for the staff of the employment service.

Article 10. Outreach to employers and jobseekers. The Committee invites the Government to provide in its next report updated information on the extent of collaboration with the employers’ and workers’ organizations to encourage the full use of employment service facilities.

Article 11. The Committee refers to its comments on the application of Convention No. 181 and asks the Government to provide information on the necessary measures taken to secure effective cooperation between the public employment service and private employment agencies.

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

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

The Committee notes the information in the Government’s first report on the application of the Convention received in August 2004. It further notes the observation made by the Georgian Trade Unions Amalgamation, attached to the Government’s first report. It also notes the updated information provided by the Government in a report received in November 2005 indicating that by Order No. 157 of 23 October 2004 it has established a new authority - the State Social Assistance and Employment Agency - responsible for providing a public and free employment service and implementing the state employment policy. It requests the Government to continue reporting on the measures adopted by the Agency to achieve the best possible organization of the employment market and to discharge all the functions assigned to the employment service by Article 6 of the Convention. In connection with the best possible organization of the employment market (Article 1, paragraph 2, of the Convention), the Committee would appreciate further information on the following matters.

Articles 4 and 5. The Government indicates that, under section 14 of the Employment Law, trade unions and employer federations shall take part in the development and implementation of national employment policy. In addition, article 30 establishes the National Employment Council, a tripartite body, to develop and implement employment policies and programmes. The Georgian Trade Unions Amalgamation expressed in September 2004 its concern over the low level of tripartite cooperation. It states that many provisions of the General Agreement, signed by the Council in July 2001 to further tripartite cooperation for the purpose of employment promotion, have not seen progress or been implemented. The Committee asks the Government to include in its next report further information on the arrangements made by the National Employment Council in relation with the organization and operation of the employment service and in the development of an employment service policy. Please indicate the procedure for the appointment of representatives of the social partners in the National Employment Council (Article 4, paragraph 3).

Article 4, paragraph 2. The Government reports that advisory committees have not been created at the local and regional levels. The Committee would like to be kept informed of any possible changes that would necessitate the establishment of local and regional advisory committees.

Article 8. The Government indicates that the Agency has not developed special arrangements for young persons, but that they are able to avail of its services. The Committee understands that Georgia is participating in the Youth Employment Summit (YES) Campaign to promote youth employment and development and has proposed to establish a YES house in Tbilisi. The Committee would appreciate further information on the progress of the YES Campaign and how its proposed activities by the Agency will assist youth to find suitable employment.

Article 9. The Committee asks the Government to provide information on what has been done or envisaged to institute training for the staff of the Agency.

Article 10. The Committee requests the Government to provide in its next report further information on the extent of collaboration with the employers’ and workers’ organizations to encourage the full use of employment service facilities.

Article 11. The Committee notes that under section 31 of the Employment Law, private employment agencies are deemed partner organizations with the public employment service. The Government states that at present, however, the private and public employment service agencies do not engage in active cooperation. It would appreciate information on measures taken or envisaged to promote cooperation with private employment agencies.

Article 12. The Committee notes the Government’s statement indicating that the provision of the Convention shall apply to the whole territory of Georgia, with the exception of the Autonomous Republic of Abkhazia and the Autonomous Region of the Southern Ossetia, which are not temporarily under the jurisdiction of Georgia.

Part IV of the report form. The Committee would appreciate continuing to receive information concerning the number of applications for employment received, the number of vacancies notified and the number of persons placed by the Agency.