Employment Policy Convention, 1964 (No. 122) - Belarus (Ratification: 1968)

Direct Request (CEACR) - adopted 2025, published 114th ILC session (2026)

In order to provide a comprehensive view of the issues relating to the application of ratified Conventions on employment policy and employment services, the Committee considers it appropriate to examine Conventions Nos 88 (employment service), 122 (employment policy) and 142 (human resources development) together.

Employment policy

Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Committee refers to its previous comments in which it requested the Government to provide information on measures taken under the State programme on the labour market and employment promotion, as well as information on workers placed on involuntary part-time employment and leave without pay. The Committee notes the Government’s indication that one of its main policy objectives is to promote full, productive and freely chosen employment, and that the employment policy is implemented primarily through the State programme on the labour market and employment promotion for 2021–25. The Government further indicates that the State programme was developed in accordance with the priority areas of socio-economic development, as defined in the National Strategy for Sustainable Socio-Economic Development of the Republic of Belarus up to 2030, which aims to achieve the United Nations Sustainable Development Goals. As part of the implementation of the State programme, the following tasks will be achieved: fostering economic activity through the implementation of active employment policy measures and provision of social guarantees; employment of the economically inactive; ensuring a balance between supply and demand in the labour market; and the improvement of working conditions and occupational safety and health. The Committee notes that, to meet these objectives, the State Employment Service implements various employment measures, including assisting unemployed individuals to find employment opportunities. In response to the Committee’s previous comments regarding part-time employment and the observations of the Belarusian Congress of Democratic Trade Unions (BKDP) in this regard, the Government indicates that the scale of involuntary part-time employment is not widespread and trending downwards, from 63,500 workers in 2021 to 34,300 workers in 2023. It adds that, in the organizations where working time losses have been identified, the Employment Service is working to assist workers in finding temporary employment in paid jobs and available vacancies with other employers (for the period of downtime and involuntary part-time employment). With regard to employment statistics, the Committee noted in its previous comments that, in May 2021, the employment rate among the working age population stood at 83.5 per cent and unemployment at 3.9 per cent. It notes from the current report that, in May 2024, the employment rate increased to 84.2 per cent while unemployment fell to 3.0 per cent. The Committee notes this information in the context of a challenging economic environment, marked by international sanctions and significant labour emigration. These factors contribute to reported labour shortages in certain sectors, which appear to coexist with the low official unemployment figures. The Committee requests the Government to continue to provide detailed updated information on the nature and scope of the measures taken under the State programme and their impact on the promotion of full, productive, freely chosen and lasting employment, together with statistical employment data disaggregated by age and sex. It also requests the Government to continue to include information on workers placed on involuntary part-time employment and leave without pay. It further requests the Government to provide an analysis of how the reported 3.0 per cent unemployment rate is reconciled with widespread reports of significant, sector-specific labour shortages and the economic impact of sanctions.

Freely chosen employment. The Committee refers to its previous comments in which it noted the observations of the BKDP highlighting legislative changes to the unemployment benefits scheme, which introduced a provision to the effect that an unemployed person should not refuse a suitable employment offer, that is, if the proposed wages are no more than 30 per cent lower than the average earnings calculated for the last two calendar months at the last place of employment. The BKDP recalled that Presidential Decree No. 1 of 2018 introduced a new type of financial penalty as a “penalty tariff for parasitism”. According to the BKDP, able-bodied citizens who are not employed must pay for state-subsidized services at their full cost, including hot water and gas. The Committee notes the Government’s indication that Presidential Decree No. 3 of 2015, as amended by Presidential Decree No. 1 of 2018, is aimed at intensifying the activities of State bodies to provide maximum assistance to citizens wishing to find employment, fostering employment and self-employment, and creating conditions conducive to legal employment. The main objective of Decree No. 3 is to create more favourable conditions in the country’s regions for employment and self-employment, conduct a wide-ranging information campaign to explain the advantages of legal work, and also individual work with citizens who are currently unemployed or are involved in the shadow economy, but are willing and able to earn money legally. As part of the implementation of Decree No. 3, the country’s local authorities have stepped up their efforts significantly to provide citizens with maximum assistance to find work. At the level of each region, all available means and opportunities are being used in order to ensure that all citizens, who, for whatever reason, are not employed anywhere but would like to find work, are provided with assistance in finding employment. The Government indicates in this regard that local administrative authorities have been assigned a leading role and that 150 standing commissions operate to coordinate work to promote employment. It adds that able-bodied citizens who are unemployed or economically inactive, including those leading an anti-social lifestyle and those who are in arrears with housing and utility bills, are invited to commission meetings to assist them in finding work. The Committee notes the Government’s indication that, to encourage citizens to work legally, Decree No. 3 provides for the abolition of State subsidies for certain utilities for able-bodied citizens not employed in the economy, as defined by Resolution of the Council of Ministers No. 314 of 24 April 2018 (hot water; heat; and gas, where individual gas heating appliances are available). Between 2021 and the first half of 2024, about 11,300 people refused, for various reasons, to consider offers of employment assistance. The decision on whether citizens will pay full tariffs or whether they will be exempt from such a payment is made by the commissions after conducting preliminary comprehensive and individual work with each citizen under consideration, including assistance in finding work, referral for retraining, and assessment of the financial and domestic situation to determine whether there is evidence of a difficult life situation. In addition, groups of people not working for objective reasons or due to special life circumstances are excluded to the maximum extent possible from the category of citizens not employed in the economy who are subject to the provisions on payment for full-tariff services. Thus, able-bodied citizens who are not employed in the economy do not include citizens who for a number of objective reasons may face (or have already faced) difficulties in finding work, are unable to work for health reasons, are in difficult life circumstances, or have other obstacles to employment, receive pensions, and so on. The Committee once again refers to its 2020 General Survey on promoting employment and decent work in a changing landscape, where it noted that the objective of freely chosen employment consists of two elements (see para. 69). First, no person shall be compelled or forced to undertake work that has not been freely chosen or accepted or prevented from leaving work if he or she so wishes. Second, all persons should have the opportunity to acquire qualifications and to use their skills and endowments free from any discrimination. The Committee refers to its 2022 comment on the Forced Labour Convention (No. 29), as well as to its 2024 Observation on the Freedom of Association Convention (No. 87), and considers that the severe and widespread violations of civil liberties, the suppression of peaceful assembly, and the documented persecution of activists remove the guarantees necessary to ensure that employment is, in practice, ’freely chosen’. In light of these profound contradictions, the Committee urges the Government to take immediate steps to repeal Presidential Decree No. 3 and all related resolutions that link employment status to financial penalties, which constitute a form of indirect coercion to work. Furthermore, the Committee requests the Government to provide information on the concrete measures taken to ensure that all employment assistance is provided on a strictly voluntary basis, in line with the requirement for a “free” public employment service under Article 1 of Convention No. 88.

Persons vulnerable to decent work deficits and exclusion. The Government indicates that, in accordance with the Employment Act, additional employment measures target persons who are disadvantaged in accessing the labour market, including first-time jobseekers under 21 years of age, older persons, persons with disabilities, and parents of large families and single parents. It further indicates that these additional measures are implemented through targeted employment promotion programmes, employment quotas, career guidance services, training, and other measures. With regard to youth, the Committee notes career guidance provided by the employment service to 190,300 students in general secondary education institutions (2021–first half of 2024) and the temporary employment of 151,316 students. Concerning persons with disabilities, targeted measures include adapting workplaces with partial compensation of labour costs and financing of equipment. The Committee notes from the report that approximately 23,000 jobs are reserved each year for employers to hire individuals in special need of social protection. From 2021 to 2024, a total of 88,600 jobs were reserved, including 13,000 for unemployed persons with disabilities and 14,100 for young persons. The Committee further notes that, out of the 88,600 reserved jobs, 15,600 unemployed persons were employed during the 2021–24 period. While noting the information provided by the Government, the Committee notes from the concluding observations of the United Nations Committee on the Rights of Persons with Disabilities (CRPD) the concern about the very low employment rate of persons with disabilities, in particular in the open labour market, where those employed are mostly in underpaid, unskilled jobs, and the persistence of sheltered workshops; the ineffectiveness of existing measures of support for the employment of persons with disabilities in the open labour market; and the barriers that persons with disabilities face in employment (CRPD/C/BLR/CO/1, 26 September 2024, para. 53). The Committee urges the Government to review its related policies and provide information on measures taken to promote persons with disabilities’ transition from sheltered workshops to employment in the open labour market, indicating steps taken to address the “barriers” and “ineffectiveness”. It also requests the Government to provide detailed information on the nature and scope of the measures targeting disadvantaged jobseekers, including young persons, and to include updated statistical data, disaggregated by sex and age, on beneficiaries and on the impact of the measures implemented to create lasting employment for disadvantaged persons.

Promotion of women’s employment. The Committee previously requested the Government to provide information on the measures taken to promote full, productive and decent employment opportunities for women, as well as information on the impact of these measures. The Committee notes the Government’s indication that, from the beginning of 2021 until the end of the first half of 2024, 507,700 persons applied to the labour, employment and social protection authorities for assistance in finding employment, of whom 198,800 were women (39.2 per cent), and that 173,600 persons were registered as unemployed, including 56,600 women (32.6 per cent). During the same period, 423,800 persons were employed on a permanent basis with the assistance of the authorities, of whom 168,700 were women (39.8 per cent). The Committee notes from the report the measures taken to promote women’s employment, including referral of unemployed women to vocational training, retraining and skills development (between 2021 and the first half of 2024, 3,600 women were referred for training) (34.1 per cent of all unemployed persons referred), as well as assistance provided to women in setting up their own businesses through grants for entrepreneurial, handicraft and agro-ecotourism activities (during the same period, approximately 1,800 women received grants, including 1,326 for entrepreneurial activities). While noting the information provided by the Government, the Committee notes from the concluding observations of the United Nations Committee on the Elimination of Discrimination against Women (CEDAW) the deep concern about the multiple intersecting barriers to the equal participation of women in the labour market and the persistent occupational segregation, with a high concentration of women in lower-paid sectors and their under-representation in higher-paid sectors (CEDAW/C/BLR/CO/9, 27 February 2025, para. 41(a) and (b)). While noting the statistical information, the Committee shares the deep concern expressed by the UN CEDAW regarding “persistent occupational segregation”. The Committeeurges the Government to take targeted and effective measures, in consultation with genuine representatives of working women, to dismantle this occupational segregation and address the “intersecting barriers” identified by CEDAW. It requests the Government to provide detailed information on the targeted measures taken to promote decent employment opportunities for women, as well as information on the impact of these measures in reducing the gender pay gap and increasing women’s representation in higher-paid sectors.

Regional development. The Committee notes the Government’s indication that, to implement the State programme on the labour market and employment promotion for 2021–25 at the level of the regions, regional executive committees and the Minsk City Executive Committee formulate and implement annual regional action plans, with particular attention to areas with labour market pressures. From 2021 to 2024, with the assistance of the labour, employment and social protection authorities, measures that were implemented include the employment of individuals, including previously unemployed persons, and the provision of grants to unemployed persons to set up entrepreneurial activities. The Committee welcomes in this regard the detailed breakdown of the outcomes of regional employment measures. According to data for the second quarter of 2024, the lowest regional unemployment rate was 2.1 per cent with the highest being at 3.3 per cent. The Committee requests the Government to continue to provide information, including statistical data disaggregated by age and sex, on the nature, scope and impact of the measures taken to increase employment in regions with high unemployment rates. It also requests the Government to continue to provide regional employment and unemployment data.

Article 3. Participation of the social partners. In response to the Committee’s previous comments, the Government indicates that proposals on employment policy are developed with the participation of employers’ and workers’ organizations, and that the employment service coordinates its activities with them as well. The Government adds that consultations with the social partners are held within the National Council for Labour and Social Issues, with sectoral and territorial labour and social councils also addressing employment issues. The Committee notes from the report that the General Agreement for 2019–21 (extended to 2022–24), elaborated by the National Council, includes a chapter on labour market development and employment promotion with measures on active policies, protection of workers under threat of dismissal, vocational education and continuous training, and support for women, youth, and persons with disabilities. It further notes a list of various employment-related issues that were discussed by the National Council for Labour and Social Issues at meetings held from 2015 to 2024. For example, in 2023 the matter that was discussed was the implementation of a package of measures aimed at reducing the shortage of blue-collar workers. Another example of close cooperation between the Government and the social partners in the development and implementation of employment-related measures and programmes is the joint work of the parties to the social partnership on the preparation and implementation of the Package of Measures for 2024–25, developed in accordance with the decision of the National Council on Labour and Social Issues and agreed upon by its parties, aimed at reducing the shortage of blue-collar workers. This Package of Measures contains a range of measures to improve the regulatory and legal framework, vocational training, advanced training, retraining and employment of workers, measures aimed at encouraging the recruitment and retention of staff, awareness-raising activities, and an implementation and monitoring mechanism. The Committee must examine the Government’s claims of social partnership in light of its 2024 Observation on Convention No. 87. In that comment, the Committee ’deplored the effect of the dissolution of the BKDP on the work of the National Council on Labour and Social Issues (NCLSI)’. It noted that the ’only representation of workers’ voice ... is now the Federation of Trade Unions of Belarus (FPB), whose independence from the authorities was questionable’ and, as a result, the Committee ’questioned the continuing legitimacy of the NCLSI and the tripartite Council’. The Committee further noted ’with deep concern the absence of any measures taken to review the situation of the dissolved trade unions so as to ensure that they may again function and fully participate in national tripartite bodies’. In this context, the Committee requests the Government to report on the concrete measures taken to re-establish a legal and practical environment where free and independent employers’ and workers’ organizations can exist, function, and participate in the consultations required by Article 3 of this Convention. Pending the re-establishment of genuine social dialogue, the Committee asks the Government to explain how it ensures that the views of all affected persons, including those workers whose independent unions were liquidated, are taken into account in the formulation of the State Programme on the labour market.

Employment services

Articles 1 to 5. Contribution of the employment service to employment promotion, and participation of the social partners. In response to the Committee’s previous comments, the Government indicates that the State Employment Service, headed by the Ministry of Labour and Social Protection, implements employment policy through various measures, including labour market analysis, placement of jobseekers, vocational guidance and training, unemployment benefits, public works, and support for entrepreneurship. It adds that the public employment service coordinates its activities with employers’ and workers’ organizations. Proposals on the main directions and priorities of employment promotion are developed with the participation of the social partners, including within the National Council for Labour and Social Issues. The Committee noted in its previous comments that, in July 2015, there were 300 territorial councils (provincial, municipal and district) and 22 sectoral councils for labour and social questions. It notes from the Government’s report the increase in July 2024 to 330 territorial councils and 23 sectoral councils throughout the country. Between the beginning of 2021 and the end of the first half of 2024, 507,700 people applied to the State Employment Service for employment assistance, of whom 173,600 were registered as unemployed. As part of the implementation of measures to ensure employment, during the period in question, 423,800 individuals were placed in permanent employment with the assistance of the labour, employment and social protection authorities, of whom 130,800 had previously been unemployed. The Committee requests the Government to continue to provide information on measures taken by the public employment service to ensure effective recruitment and placement of workers. It also requests the Government to continue to provide information on the activities of the National Council and sectoral and other tripartite councils in relation to the Convention. Please also provide updated information, including statistics, on the impact of measures taken by the public employment service to meet the employment needs of particular categories of applicants for employment, such as young persons, women, the long-term unemployed and persons with disabilities (Article 7 of Convention No. 88).

Article 10. Full use of the employment service. Application of the Convention in practice. The Committee notes from the report the tools to encourage full use of the public employment service by employers and workers, including the unified information portal of the State Employment Service with a nationwide vacancy bank, access to professional profiles and regulatory information, connectivity to the “Work without borders” system, providing access to information on job vacancies and jobseekers of the Eurasian Economic Union. The Government refers to the introduction of electronic job fairs, which provide an opportunity for jobseekers to familiarize themselves in real time with the vacancies on offer and working conditions, receive consultations, send a job application, and receive an invitation to an interview. The Committee requests the Government to continue to provide information on the impact of the measures adopted, in collaboration with the employers’ and workers’ organizations, to encourage full use of the employment service by employers and workers on a voluntary basis, as well as information on the impact of such measures.It also requests the Government to continue to provide updated statistical information 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.

Vocational guidance and training

Article 1(1) and (2) of the Convention. Formulation and implementation of vocational guidance and training policies and programmes. The Committee recalls that it previously requested the Government to provide information on vocational guidance and training policies and programmes and their contribution to attaining the objectives of the Convention, including measures taken to coordinate vocational education and training with education, training and employment policies. The Committee notes the Government’s indication that the State guarantees the unemployed free vocational guidance and training upon referral by the labour, employment and social protection authorities, in accordance with the Employment Act, the Education Code and Resolution No. 1334, as amended in 2024. The Government highlights that training is aimed at promoting employment, balancing labour supply and demand, and enhancing workers’ competitiveness, with various benefits during training, including scholarships, financial assistance, and recognition of the training period as work experience. The Committee notes that more than 28,000 unemployed persons were referred for training between 2018 and the first half of 2024, of whom 59.3 per cent received training “at the request” of employers with a guarantee of subsequent employment. The Committee notes the adoption of the Development Programme for Vocational and Technical and Specialized Secondary Education for 2024–26, which seeks to align training with the needs of the economy, improve the quality of training, and create inclusive opportunities for persons with disabilities and persons with special developmental needs. The Government indicates that, in order to improve the system of vocational guidance and assistance in choosing professions, the Conceptual Framework for Youth Vocational Guidance was updated in 2022, with a view to aligning training with labour market demand. Moreover, a digital service was introduced in 2023 to provide career guidance through online testing, occupational profiles covering over 800 professions, and interactive links to the national job vacancy bank. The Committee requests the Government to continue to provide updated detailed information on the vocational guidance and training policies and programmes adopted and implemented and on their contribution to attaining the objectives of the Convention, including measures taken to coordinate vocational education and training policies with education, training and employment policies.

Articles 1(5) and 3. Specific categories of persons. The Committee notes the Government’s indication that vulnerable groups of workers in the labour market are prioritized for training. It notes that between 2018 and the first half of 2024, 5,700 individuals from vulnerable categories were referred for vocational training, including 1,700 young persons under 21 seeking employment for the first time, and 930 persons with disabilities. With respect to youth, a package of measures is being implemented to promote youth employment. The Committee notes from the report that 9,100 persons aged 16–30 were referred for training during the 2018–24 period, representing 32.5 per cent of all those trained (28,000 individuals in total), and that approximately 260,000 pupils and students participated in temporary employment schemes, largely financed through the State extrabudgetary social protection fund. The Committee requests the Government to continue providing updated information, including statistics disaggregated by sex and age, on vocational guidance and training measures targeting specific categories of persons, including young persons and persons with disabilities, and on their impact in promoting access to lasting employment opportunities.

Article 5. Cooperation with the social partners. The Committee notes the Government’s indication that the tripartite consultative bodies on labour and social issues constitute an important component of the social partnership system in Belarus. It notes in particular the role of the National Council for Labour and Social Issues established to facilitate cooperation between the Government, employers’ and workers’ organizations in the implementation of social and economic policy. The Government indicates that employment-related issues have been discussed in the National Council, including measures on vocational guidance, training, and reducing shortages of blue-collar workers, and refers to meetings held from 2017 to 2023. The General Agreement between the Government, employers’ and workers’ organizations for 2019–21, extended to 2022–24, includes a chapter on labour market development and employment promotion, covering commitments on vocational education and training, including specific measures for disadvantaged groups. Another example of cooperation included in the Government’s report is the joint preparation and adoption of a package of measures for 2024–25, which includes a series of education and training initiatives developed within the framework of the National Council and agreed upon by the Government and social partners. The Committee requests the Government to provide updated information on the specific measures taken to promote the cooperation and engagement of employers’ and workers’ organizations and other interested bodies in the formulation and implementation of vocational guidance and training policies and programmes.

Direct Request (CEACR) - adopted 2022, published 111st ILC session (2023)

The Committee notes the observations of the Belarusian Congress of Democratic Trade Unions (BKDP), received on 30 August 2021, in which it indicates that the Government is not taking the necessary measures to promote full employment and decent wages. The Committee requests the Government to provide its comments in this respect.

Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Government indicates in its report that one of its main objectives is to promote full and productive employment. It adds that the State employment policy is implemented mainly through the State programme on labour market and employment promotion for the 2021-25 period, approved by Council of Ministers Decree No. 777 of 30 December 2020. The Government aims to create the right conditions to achieve full employment by taking measures, such as stimulating the economically active population through active employment policy measures and social guarantees, encouraging the economically inactive population to engage in economic activity, ensuring a balance of supply and demand in the labour market and improving working conditions and occupational safety and health. The Committee recalls the BKDP’s 2017 observations, in which the BKDP expressed concern at the increase in precarious employment, adding that part-time employment had been steadily increasing and that some workers were forced to take leave without pay. The BKDP also expressed its concern that the Employment Act further distanced the national legal framework from the requirements of the Convention. In its response to the observations of the BKDP, the Government indicates that forced leave and part-time work are only used by enterprises as contingency measures to protect their workforces. It adds that mandatory part-time employment fell from 252,400 workers in 2016 to 71,200 workers in 2019, but that due to the difficult economic situation caused by the COVID-19 pandemic, the number of workers placed on involuntary part-time employment by their employers increased to 148,100 workers in 2020. The Government reports that the situation has improved, indicating that over the first six months of 2021, there was a steady reduction in loss of working hours. According to the report, on 1 August 2021, 94,700 job vacancies were advertised by employers and demand for workers in non-professional occupations accounted for 65.8 per cent of total vacancies. The Government indicates that there are 12 vacancies on average for every unemployed person. It also highlights that, overall, employment measures taken from 2016 to 2021 have brought positive results in the form of employment growth, coupled with a decrease in unemployment. In 2016, the employment rate among the working age population was 80.9 per cent, while the unemployment rate stood at 6.0 per cent. In May 2021, these indicators stood at 83.5 and 3.9 per cent, respectively. In its observations, the BKDP indicates that the methodology used to calculate employment trends do not fully reflect unemployment and underemployment in the country, adding that the rate of decline in the number of people employed in the economy in 2021 is the highest in the last five years. The Committee requests the Government to continue to provide detailed updated information on the nature and scope of measures taken under the State programme on the labour market and employment promotion for 2021-25 and the impact of these measures on the promotion of full, productive, freely chosen and lasting employment. It also requests the Government to provide statistical data, disaggregated by age and sex, on the labour market situation and trends, including employment, unemployment and visible underemployment. The Committee also requests the Government to continue to include information on workers placed on involuntary part-time employment and leave without pay.

Freely chosen employment. In its observations, the BKDP highlights recent legislative changes to the unemployment benefits scheme, which introduced a provision to the effect that an unemployed person should not refuse a suitable employment offer, that is, if the proposed wages are no more than 30 per cent lower than the average earnings calculated for the last two calendar months at the last place of employment. The BKDP adds that low unemployment benefits and paid community work prompt a small proportion of the unemployed population to register with the employment services. Moreover, the BKDP recalls that Presidential Decree No. 1 of 2018, which replaced Presidential Decree No. 3 of 2015, introduced a new type of financial penalty as a “penalty tariff for parasitism”. According to the BKDP, able-bodied citizens who are not employed must pay for state-subsidized services at their full cost, including hot water and gas. It adds that such "promotion of employment" not only contradicts international and constitutional norms, but also humiliates human dignity. The Committee refers to its 2020 General Survey on promoting employment and decent work in a changing landscape, where it noted that the objective of freely chosen employment consists of two elements (see para. 69). First, no person shall be compelled or forced to undertake work that has not been freely chosen or accepted or prevented from leaving work if he or she so wishes. Second, all persons should have the opportunity to acquire qualifications and to use their skills and endowments free from any discrimination. The Committee requests the Government to provide its comments on the observations raised by the BKDP regarding Presidential Decree No. 1 of 2018. It also requests the Government to provide information on the measures taken or envisaged to promote freely chosen employment with respect to employment services offered to the unemployed population.

Persons vulnerable to decent work deficits and exclusion. The Government reports that, in accordance with the Employment Act, additional employment measures target persons who are disadvantaged in accessing the labour market. The Committee notes that a total of 21,482 jobs were earmarked for disadvantaged persons in 2021, including 3,058 jobs for persons with disabilities, 3,520 jobs for first-time jobseekers under the age of 21, and 3,799 jobs for parents of large families and single parents. From January to June 2021, the employment authorities placed 5,004 disadvantaged unemployed persons in jobs. With respect to persons with disabilities, a total of 239 persons with disabilities obtained vocational training from January to June 2021. The Committee requests the Government to provide detailed information on the nature of different employment measures, including vocational guidance, vocational education and training and placement programmes, which target persons in vulnerable situations, including young persons, older workers and persons with disabilities. It also requests the Government to include updated statistical data, disaggregated by age and sex, on the impact of the employment measures and programmes implemented aimed at creating lasting employment for disadvantaged persons.

Promotion of women’s employment. Referring to the 2017 observations of the BKDP indicating that women’s position in the Belarusian labour market is more vulnerable than that of men, the Government indicates that, as of 1 July 2021, there were 7,900 registered unemployed persons, of whom 5,200 (66.1 per cent) were men and 2,700 (33.9 per cent) were women. According to the Government’s report, measures taken by the State from January to June 2021 to promote employment resulted in 583,000 people being employed in permanent work, including 23,000 women (3.95 per cent). The Committee notes the November 2016 report of the Committee on the Elimination of All Forms of Discrimination against Women, where the Committee expressed concern about persistent discrimination against women in employment, including the significant gender wage gap in many fields of employment, and about horizontal and vertical segregation in employment (CEDAW/C/BLR/CO/8, para. 26). The Committee requests the Government to provide detailed information on the measures taken to promote full, productive and decent employment opportunities for women, as well as information on the impact of these measures.

Regional development. The Committee notes the Government’s indication that employment promotion measures are being implemented in small and medium-sized towns and rural areas. In this context, from January to June 2021, the national employment services assisted 13,500 people to obtain employment, provided financial support for 183 unemployed people to become self-employed, and organized training for 456 people. During the same period, 5,200 people took part in paid community work. The Committee requests the Government to provide detailed updated information, including statistical data disaggregated by age and sex, on the nature, scope and impact of the measures taken to increase employment rate in regions with high unemployment rates.

Article 3. Participation of the social partners. The Government reiterates that the social partners play an active role in developing and implementing national employment policy. It adds that the social partners participated in the implementation of the State Programme on Social Protection and Employment Promotion for 2016-2020 and the development of the State Programme on the labour market and employment promotion for 2021-2025. Moreover, according to the General Agreement for 2019-2021, the Government, employers’ and workers’ organizations have undertaken a number of commitments, including to promote employment for workers faced with the threat of lay-offs, to encourage the unemployed population to engage in economic activity, to develop a system of ongoing skills and vocational training in enterprises, and to facilitate increased employment opportunities for youth, women with young children, as well as persons with disabilities. The Committee notes that the National Council of Labour and Social Issues, the country’s main tripartite body, discussed various topics between 2017 and 2021, including employment and unemployment trends, labour market development and employment promotion, support for recent graduates in their first jobs; employment measures taken during the COVID-19 pandemic, as well as enforced part-time employment and all-day work stoppages. The Committee requests the Government to provide concrete examples of the manner in which account is taken of the opinions and experiences of the social partners in the development, implementation and review of employment policy measures and programmes and their coordination with other economic and social policies. It also requests the Government to provide information on the nature and scope of consultations held with representatives of persons affected by such measures and programmes, as required under Article 3 of the Convention.

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

The Committee notes the observations of the Belarusian Congress of Democratic Trade Unions (BKDP) received on 31 August 2017. The BKDP expresses concern at the increase in precarious employment in recent years, adding that part-time employment is steadily increasing and that some workers are also forced to take leave without pay. The BKDP is also concerned that the revised version of the Employment Act, adopted in 2016, further distances the national legal framework from international labour standards and the requirements of the Convention. The Committee requests the Government to provide its comments in this respect.

Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Committee notes the information provided by the Government on legislative developments, including on the adoption of the Employment Act No. 409-Z of 18 July 2016. The Committee notes from the report that the 2016 Employment Act aims to expand the obligation placed on unemployed persons to find employment and strengthens penalties for violations of the employment legislation. The Government indicates that the 2016 Employment Act also halves unemployment benefits from 36 to 18 months to prevent welfare dependency. In its observations, the BKDP deplores the penalties provided for unemployed persons, considering that these are disproportionate. It adds that, out of a maximum unemployment benefit of 46 Belarus rubles (BYN), unemployment benefits averaged BYN21 in January 2017, an amount equivalent to 16 per cent of the minimum wage. With respect to the implementation of an active employment policy during the reporting period, the Government refers to the adoption and implementation of the Employment Promotion Subprogramme 1 of the State Programme on Social Protection and Employment Promotion for the 2016–20 period. This Programme aims to promote employment by stimulating economic restructuring, accelerating the transition of redundant workers into more promising economic sectors and addressing gaps between vocational education and labour market needs. With respect to the impact of the employment programme, the Government indicates that, in 2016, 159,800 persons, out of whom 109,000 were unemployed, obtained assistance in finding employment. In addition, 11,000 persons were referred to training programmes and 55,800 persons took part in paid community work. Financial assistance was also provided to 1,810 unemployed persons to enable them to start their own businesses in handicrafts and agritourism. The Government further indicates that the implementation of the employment programme resulted in a decline in the unemployment rate by 0.2 percentage points, from 1 per cent on 1 January 2016 to 0.8 per cent on 1 January 2017. In its observations, the BKDP indicates that the real unemployment rate in 2016 stood at 5.8 per cent of the economically active population, adding that only one in every six unemployed persons registered with the employment service authorities. The Committee requests the Government to continue to provide information on the impact and effectiveness of the measures adopted to promote full, productive and freely chosen employment. It also requests the Government to provide statistical information, disaggregated by age and sex, on the labour market situation and trends, including on employment, unemployment and underemployment.

Persons vulnerable to decent work deficits and exclusion. The Government highlights that the Employment Promotion Subprogramme 1 aims to increase labour market participation of the economically inactive population, including persons with disabilities, women with young children, and older persons. Based on the 2016 Employment Act, which provides additional guarantees to facilitate the employment of persons who are disadvantaged in accessing the labour market, the following hiring quotas were established: 20,181 jobs were earmarked in 2016, of which 2,071 were allocated to persons with disabilities, 3,923 to persons under the age of 21 in search of their first job, 3,526 to parents of large families and to single parents, and 1,397 to workers close to retirement age. The Committee notes that, of the 20,181 earmarked jobs, 7,023 were filled by unemployed persons in 2016. In the same year, the labour, employment and social protection authorities placed an additional 17,718 unemployed persons eligible for placement under the same hiring quotas. The Committee notes that 544 persons with disabilities obtained vocational training in 2016, with employers being reimbursed the cost of their salary as well as for the cost of purchasing special equipment, as needed. It also notes the various measures aimed at promoting youth employment, including the Youth Practical Work programme. With respect to the employment of women, the Committee notes the observations of the BKDP that, as workers are increasingly being transferred to short-term contracts leading to immediate “dismissal” after the contract’s expiration, women are particularly disadvantaged, making up more than half of such cases. The BKDP also highlights the issue of gender discrimination, noting that women are more vulnerable than men to being dismissed in case of redundancy. The BKDP observes that, while women make up 54 per cent of all workers, their average monthly wages are 74.5 per cent of men’s. It adds that almost 60 per cent of the registered unemployed are women. The Committee requests the Government to provide updated detailed information, including statistical data disaggregated by age and sex, on the impact of the employment measures targeting persons vulnerable to decent work deficits and exclusion, including young persons, older workers and persons with disabilities. It also requests the Government to provide information in reply to the observations of the BKDP concerning the precarious situation of women in the labour market.

Regional development. The Government indicates that a series of measures is being implemented to promote employment in small and medium-sized towns and in rural areas. In 2016, the state employment service provided assistance to 39,700 persons in finding employment. It granted financial support to 471 unemployed persons to enable them to start their own businesses and organized training for 2,000 unemployed persons. With respect to rural areas, 36,900 persons received assistance to find employment in 2016 and 21,900 persons took part in paid community work. The Government indicates that, as a result of the measures implemented, the number of unemployed persons in small and medium-sized towns decreased from 7,700 at the beginning of 2016 to 6,200 in January 2017, and from 6,600 to 5,600 in rural areas. The Committee requests the Government to continue to provide information, including statistics disaggregated by sex and age, on the results of the measures implemented to increase employment rates in economically depressed regions with high unemployment rates.

Article 3. Participation of the social partners. The Government indicates that the social partners play an active role in developing and implementing the national employment policy. The Committee notes that the General Agreement for 2016–18, signed on 16 December 2015 between the Government and the social partners, sets out a list of obligations, which include the obligation to ensure that the rate of registered unemployment is kept in line with the targets set out in the Socio-economic Development Programme for 2016–20. The Committee further notes that under the General Agreement, if the level of registered unemployment were to surpass 2 per cent, the Government would undertake to work with the social partners to prevent mass unemployment. The Committee requests the Government to continue to provide information on the involvement of the social partners in the development, implementation and monitoring of employment policy and labour market measures. The Committee also requests the Government to indicate the consultations held with representatives of persons affected by such measures, as called for under Article 3.

Direct Request (CEACR) - adopted 2015, published 105th ILC session (2016)

Articles 1 and 2 of the Convention. Implementation of an active employment policy. The Committee notes the information in the Government’s report in reply to its previous comments and the measures carried out under the 2013 government programme on promoting employment. It notes that the main objective of the programme was to make more effective use of labour resources and the competiveness of the workforce on the labour market. As a result of its implementation, a total of 182,000 people, including 121,000 unemployed persons, were placed in employment. The Government indicates that the implementation of its employment programme helped maintain a stable and controlled situation in the regional and national labour markets. The Government indicates that, in 2013, 21,264 jobs were reserved for placement for persons who had been given additional guarantees with regard to employment assistance, including 2,079 persons with disabilities and 5,244 young people under the age of 21. It adds in this regard that 17,100 unemployed persons unable to compete on equal terms in the labour market were placed in permanent jobs in 2013. The Committee further notes the youth employment measures carried out during the reporting period, including the “Youth Practical Work” programme which placed 1,035 young people in employment in 2013. The Committee requests the Government to continue to provide information on the impact of the measures adopted to promote productive employment. It also invites the Government to include an evaluation of the effectiveness of the employment policies and measures implemented in terms of promoting full and productive employment for the unemployed and vulnerable workers, in particular for persons with disabilities and young people.

Regional development. The Government indicates that, in the context of regional action to promote employment, a set of measures contained in the government programme were taken in five small and medium-sized towns and 18 districts with unemployment rates higher than the national average. As a result of these measures, the number of registered unemployed persons in regions covered by the government programme fell by 757 persons in 2013 when compared with the start of the year. The Committee requests the Government to continue to provide information on the measures taken to address higher levels of unemployment in small and medium-sized towns, as well as the results of such measures.

Education and vocational training policies. The Government indicates that 35,400 workers underwent vocational and technical training in 2013. It adds that, in view of the technical and technological changes taking place in sectors of the economy, young workers are being trained to a higher level of qualification in order to increase their mobility and competitiveness in the labour market. As a result, the number of workers with vocational or technical education is increasing each year and now amounts to 31.7 per cent of all workers. The Committee notes that a system of staff training, further training and retraining has been set up in Belarus for small and medium-sized enterprises to stimulate entrepreneurial activity and the involvement of young people. Referring to its 2014 direct request on the Human Resources Development Convention, 1975 (No. 142), the Committee invites the Government to continue to provide information on the impact of the measures taken in the area of education and training policies, including measures targeting small and medium-sized enterprises, and on their relation to prospective employment opportunities. It also invites the Government to include information on the involvement of the social partners in this process.

Article 3. Participation of the social partners. The Committee notes that the General Agreement for 2014–15, signed on 30 December 2013 by the Government and the social partners, includes a specific section devoted to the development of the labour market and employment promotion. The Committee requests the Government to provide further information on the consultations held with the social partners on the implementation of the employment policy and employment measures.

Direct Request (CEACR) - adopted 2012, published 102nd ILC session (2013)

Articles 1 and 2 of the Convention. Measures to promote employment. The Committee notes the Government’s report for the period ending May 2011 in reply to its 2010 observation. It also notes the comments submitted by the Belarusian Congress of Democratic Trade Unions (CDTU) in September 2011. The Government indicates that at the end of 2010, the registered unemployment rate stood at 0.7 per cent of the total economically active population. The priority objectives of the State Employment Promotion Programme for 2009–10 were enhancing the efficient use and improving the quality of labour resources, promoting the employment of unemployed persons and vulnerable categories of workers, encouraging job creation, stimulating self-employment, reducing the imbalance between demand and supply of the labour force, and providing social protection to persons who have temporarily lost their jobs. As a result of the implementation of the State Employment Promotion Programme for 2009–10, 204,100 persons, including 135,600 unemployed persons, were assisted for placement in permanent jobs and 181,800 persons were placed in newly created jobs. As of the first half of 2011, 4,663,000 persons were employed. The CDTU indicates that almost 90 per cent of workers in Belarus are employed under fixed term contracts. It reiterates that the existing legal framework, by extending the possibility of concluding fixed-term contracts, hinders the workers’ right to free choice of employment and is contrary to the Convention. The Committee notes that Decree No. 164 of 31 March 2010 was adopted, which establishes that the employer is entitled to conclude an employment contract for an indefinite term with an employee who has not violated the labour discipline and who has worked for the employer for no less than five years. In the CDTU’s view, Decree No. 164 does not solve the problem of short-term contracts in the country. After five years that a worker has been employed, the applicable national legislation does not envisage the automatic transformation of her/his short-term contract into a contract of indefinite duration. This means that the employer may either decide to conclude a contract of indefinite duration, or to sign a new contract with the worker, or also to dismiss her/him. Referring to its previous comments on Convention No. 122, the Committee requests the Government to provide in its next report information on the measures adopted to generate decent jobs with adequate protection, specifying how it has been possible to satisfy the employment needs of the workers whose fixed-term employment contract has ended. It also invites the Government to include in its next report an evaluation of the effectiveness and relevance of the employment policies and measures implemented in terms of the promotion of full and productive employment for the unemployed and other categories of vulnerable workers.

Equitable regional development. The Government indicates that the State Employment Promotion Programme for 2009–10 included measures to promote employment in 25 small towns affected by higher levels of unemployment. In 2010, as a result of the Programme implementation, 54,200 persons were placed in permanent jobs, including 34,900 unemployed persons; 31,300 persons were placed in newly created jobs, of which 1,600 in subsidized jobs. As of January 2011, the number of unemployed persons in small towns decreased by 18 per cent, i.e. by 1,366 persons, and the number of vacancies increased by 37.7 per cent. The Committee requests the Government to provide information on the measures taken to address high levels of unemployment in small and medium-sized towns, as well as the results of such measures.

Vulnerable categories of workers. The Government indicates that in 2010 the local executive and governing authorities reserved a total of 25,600 jobs for vulnerable categories of workers, which included 1,900 persons with disabilities, 6,100 young persons and 2,600 persons released from correctional institutions. As a result of the implementation of the State Employment Promotion Programme for 2009–10, 21,800 persons who were unable to compete on equal terms in the labour market were placed in permanent jobs; 1,700 persons (more than 50 per cent of which were women) were placed in temporary jobs under the Youth Work Experience Programme; 2,400 persons with disabilities were placed in jobs; 10,700 women, 16,500 young persons and 482 persons with disabilities participated in vocational training, retraining and upgrading courses. The Committee requests the Government to provide information on the active measures adopted to promote employment for vulnerable categories of workers, as well as on the impact of these measures.

Education and vocational training policies. The Government indicates that the State Programme for the Development of Vocational and Technical, Secondary and Higher Education for 2011–15 was adopted, which defines the estimated figures for the vocational training of the regular workforce up to 2016. The Committee notes the Government’s information on new professions, occupational profiles and specializations introduced at the levels of higher education, technical vocational education and retraining. The Government indicates that the Decision of the Council of Ministers No. 954 of 15 July 2011 approved, inter alia, the regulations on lifelong professional education of managers and specialists, lifelong vocational training of workers, and training courses of extended duration for adults. The Committee requests the Government to supply information on the measures taken in the framework of education and training policies and on their impact on the employability and competitiveness of the labour force, as well as the involvement of the social partners in this process.

Article 3. Participation of social partners. The Government indicates that, following the decision of the tripartite National Council on Labour and Social Issues (NCLSI), the General Agreement for 2011–13 was elaborated by the Government, the national employers’ organizations and the trade unions. A tripartite working group was established for this purpose, which was composed, inter alia, of the representatives of the Federation of Trade Unions of Belarus (FPB) and the CDTU. The General Agreement was signed on 30 December 2010. In its section dedicated to the development of the labour market and employment promotion, the Agreement emphasizes the need to continue to create jobs and to prioritize active labour market measures, especially for the most vulnerable categories of workers. The Committee invites the Government to provide information in its next report on how consultations with the social partners have been used in the formulation and implementation of the employment policy.

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

Articles 1 and 2 of the Convention. Measures to promote employment. The Committee notes the Government’s report received in September 2009 containing replies to the 2008 direct request. The Committee also recalls its 2009 observation, including comments submitted by the Belarusian Congress of Democratic Trade Union (CDTU), which indicated that short-term contracts, in practice, limit workers’ rights to free choice of employment. Under Presidential Decree No. 29 of 1999, employers may conclude fixed-term contracts with all categories of employees, including those who already have indefinite contracts. The CDTU argued that such legal framework hinders the workers’ right to free choice of employment and is contrary to the spirit of the Convention. The CDTU drew attention to instances of abuse by some employers in Bobruisk and Novopoltok, who have threatened workers with dismissal and non-renewal of fixed-term contracts. In its General Survey of 2010 concerning employment instruments, the Committee indicated that the realization of the right to work as a basic human right can be attained through the promotion of full, productive and freely chosen employment as the cornerstone of economic and social policies. The Committee, referring to Article 1(2)(c) considered that, similar to the United Nations Committee on Economic, Social and Cultural Rights, the right to work included the obligation to assure individuals their right to freely chosen or accepted work, including the right not to be deprived of work unfairly (paragraphs 48 and 49 and summary on page 24 of the 2010 General Survey). The Committee thus hopes that the Government will report on the regulations adopted to generate decent jobs with adequate protection specifying how it has been possible to satisfy the employment needs of the workers whose short-term contract of employment has ended.

Active employment policy. Coordination with economic and social policy. The Government recalls that the State Employment Promotion Programme, aimed to enhance the effective use of available human resources, is annually approved by the Council of Ministers. According to the data provided by the Government in its report, the unemployment rate was at 0.8 per cent of the total economically active population in January 2009. In 2008, 4,522,600 persons were employed; 162,700 new jobs have been created, including 1,492 temporary jobs under the Youth Work Experience Programme; 23,200 permanent jobs for unemployed persons; and 509 partially subsidized jobs for persons with disabilities. The Committee requests the Government to continue providing information in its next report on policies and programmes promoting full employment and how these policies and programmes will translate into productive and lasting employment opportunities for the unemployed and those categories of workers most affected by the crisis.

Equitable regional development. In reply to previous requests, the Government indicated that, as part of the State Employment Programme for 2008, it had taken several labour market measures to address the consistently high level of unemployment in 36 small and medium-sized towns, villages and regions. The Government indicates that out of 31,000 jobs created, 7,700 were in small towns and contributed to a subsequent decrease in unemployment rates among those which were otherwise consistently high. The Committee asks the Government to continue providing information on the measures taken to address high levels of unemployment in small and medium-sized towns, as well as the results of such measures.

Vulnerable categories of workers. The Committee notes that the State Employment Programme for 2008 includes particular measures for those who are unable to compete on equal terms in the labour market. The Government indicates that in 2008 the local authorities reserved a total of 25,600 jobs for persons with disabilities, young persons, and persons released from correctional institutions. The Government also communicates that subsidized jobs have been created to provide temporary employment to young persons who are graduates of higher educational institutions, specialized schools, and vocational and technical schools. The Government reports that the unemployment rate for women decreased from 66 per cent in January 2008 to 60.6 per cent in 2009. The Committee asks the Government to continue providing information on the active measures adopted to promote employment for vulnerable categories of workers and the impact of such measures.

Education and vocational training policies. The Committee notes that the national system of vocational training is developed and implemented under the Regulations on the Organization of Vocational Training, Retraining and Further Training of the Unemployed (Order No. 1334 of 2006) and the Regulations on the Continuous Training of Manual and Non-Manual Workers (Order No. 599 of 2007). The Government explains that the vocational training provided is shaped by the regional labour market situation, as determined annually by different bodies of the state employment service, and that unemployed persons are provided with compensation during the period of their training. The Government communicates that a total of 22,300 unemployed persons received vocational training in 2008; 11,000 of them were trained in their first occupation, 9,600 underwent retraining, and 1,600 received further training. The Committee invites the Government to provide information on the impact of the measures mentioned above on enabling a better alignment of vocational education and future labour market needs.

Article 3. Participation of social partners. The Committee notes that the Ministry of Labour and Social Protection consulted the Federation of Trade Unions of Belarus (FPB) and the Belarusian Confederation of Industrialists and Entrepreneurs (BCIE) in the design and implementation of the State Employment Programme for 2009–10. The Government indicates that the General Agreement for 2009–10, signed in December 2008 by the Government, the national employers’ organizations, and the trade unions, contains a chapter entitled “Development of the labour market and employment promotion”, emphasizing the need to prioritize active labour market measures. Furthermore, the tripartite National Council for Labour and Social Issues convenes every six months to supervise compliance with the General Agreement. The Committee also notes that the interests of the agricultural sector are represented in the National Council for Labour and Social Affairs by the Agricultural Sector Workers’ Union (ASWU), a workers’ organization, and the Belarusian Agroindustrial Union (BelAPS), an employers’ organization. The Committee invites the Government to continue providing information on participation of the social partners in employment policy formulation and implementation.

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

Measures to promote the employment of vulnerable categories of workers. The Committee notes the comments submitted by the Belarusian Congress of Democratic Trade Unions (BKDP) in August 2009. The BKDP refers to the right to work of the citizens, and argues that short-term contracts, in practice, limit workers’ rights to free choice of employment. The BKDP indicates that short-term contracts are contrary to the spirit of the Convention, because terminating these contracts deprive workers of their right to work. The BKDP refers to non-renewal of fixed-term contracts in enterprises located in Bobruisk and Novopolstok. In this context, the Committee would like to draw the Government’s attention to certain provisions of related international labour instruments (see Article 2, paragraph 3, of the Termination of Employment Convention, 1982 (No. 158), and Paragraph 3 of the Termination of Employment Recommendation, 1982 (No. 166)) that provide for the protection of workers against the use of contracts which can impair the achievement of the objectives of full and productive employment as laid down in Convention No. 122. The Committee invites the Government to reply to the BKDP comments, particularly to specify how it has been possible to satisfy the employment needs of the workers whose short-term contract of employment had ended. It also requests information in the Government’s next report on the measures envisaged with the cooperation of the social partners to improve employment security in the labour market.

The Committee received the Government’s report submitted in September 2009 replying to its 2008 direct request. It looks forward to addressing the Government’s information, as well as any response to the BKDP comments that the Government wishes to set forth, during its next session.

Direct Request (CEACR) - adopted 2008, published 98th ILC session (2009)

1. Articles 1 and 2 of the Convention. Implementation of an active employment policy in the framework of a coordinated economic and social policy. The Committee notes the information contained in the Government’s report received in September 2007 in reply to the previous comments, and the information on the legislative measures adopted during the period examined. The Government indicates that within the framework of the State Programme for the Employment of the Population of the Republic of Belarus for 2006 (hereinafter referred to as State Employment Programme), 119,700 new jobs have been created by the national and local authorities; 134,300 unemployed workers have been placed in permanent employment; 2,800 persons have benefited from financial aid for the creation of a business and 110,400 persons have participated in remunerated public works. The Committee asks the Government to indicate in its next report the results achieved by the new programmes and measures adopted to promote productive employment. Please also indicate the procedures adopted or envisaged to ensure that the main employment policy measures are regularly decided on and kept under review within the framework of a coordinated economic and social policy.

2. Territorial cohesion. The Government indicates that the measures adopted within the framework of the State Employment Programme for 2006 and the provincial programmes have contributed to a more stable employment situation, even improving it, in 42 cities characterized by high unemployment. The Committee asks the Government to provide information in its next report on the specific measures adopted by both the national and local authorities to promote territorial cohesion, and to indicate the results obtained in terms of the creation of lasting and productive employment in areas with high unemployment rates.

3. Vulnerable categories of workers. The Committee notes that, despite a reduction in the unemployment rate for women and young persons during the period covered by the report, these rates remain high (65.8 per cent and 41.7 per cent, respectively). The Government indicates that the State Employment Service has placed 61,400 young persons aged 16 to 29 years and 2,200 persons with disabilities in employment. Furthermore, some 19,200 young persons and 14,700 mothers that have been absent from the labour market for a long period of time have received vocational training. In addition, re-adaptation and vocational training classes were organized for persons with disabilities and other workers suffering difficulties in entering the labour market. The Committee asks the Government to supply information on the measures put in place to promote employment for vulnerable categories of workers, and on the results achieved in terms of the introduction of the workers concerned in lasting and productive employment.

4. Coordination of education and vocational training policies with employment policy. The Committee notes that on 12 October 2006, the Council of Ministers of the Republic of Belarus adopted Decree No. 1334 in respect of the modalities for the organization of vocational training intended to improve the qualifications of unemployed jobseekers. The Committee requests the Government to provide detailed information on the practical application of the new legislation in respect of vocational training and on the other measures adopted or envisaged to coordinate training policies and employment opportunities.

5. Article 3. Participation of the social partners. The Government indicates that in 2006, a draft general agreement had been submitted by the Federation of Trade Unions of Belarus to the National Council on Labour and Social Affairs for discussion. A working group composed of representatives of the social partners and the Government was established with a view to negotiating the draft agreement on an equal footing. The general agreement, which was concluded in March 2006 for 2006–08, sets out the main guidelines for social and professional relations and contains a section on the development of the labour market and employment-related protection. The Committee asks the Government to provide details on the manner in which the experience and views of the social partners are fully taken into account in formulating, applying and keeping under review the State Employment Programme. Considering the importance of the agricultural sector, the Committee also requests the Government to provide information in its next report on the measures taken or envisaged to ensure that representatives of the rural sector participate in the consultations required by the Convention.

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

1. Implementation of an active employment policy. The Committee notes the Government’s report received in September 2005. It notes the adoption of the State Programme for the Employment of the Population of the Republic of Belarus for 2005 (State Employment Programme) whose main objective is to assist unemployed and temporarily unemployed citizens to resume or commence employment. According to figures provided by the Government, there were 59,300 fewer workers in the workforce in 2004 as compared to 2003. Despite more positive trends in 2004 and 2005, the Government states that the labour market continues to be characterized by an excess in labour resources in which there are two unemployed people for every advertised job vacancy. During the period under review, the change in employment structure continued to be characterized by a redistribution of the workforce from industry to the non-production sector. The Committee asks the Government to indicate in its next report the outcomes of the State Employment Programme and its impact on job creation. Recalling its previous comments, the Committee also asks the Government to send information, including statistics disaggregated by age and gender, on the effects of restructuring on employment (Article 1 of the Convention).

2. Regions with high levels of unemployment. In its report, the Government indicates that seven regions in Belarus have consistently high levels of unemployment and that the needs of these areas are taken into account by the State Employment Programme. Accordingly, a number of measures are planned to address regional employment inequalities, including job-search assistance, entrepreneurship grants or loans for the unemployed, vocational training, temporary student employment, resettlement assistance as well as unemployment benefits for jobseekers. The Committee asks the Government to provide information in its next report on regional development trends and on the outcome of the programmes adopted to promote employment in regions of high unemployment.

3. Particular categories of workers. The Committee notes from the Government’s report the legislative amendment adopted with respect to recruiting unemployed orphans, as well as the legislation to facilitate opportunities for young people to study abroad. It further notes that the 2004 State Employment Programme set quotas for the recruitment of workers who were otherwise unable to compete on the labour market on equal terms and that, as a result of these quotas, 15,200 unemployed people were placed in regular jobs in 2004, including 4,100 young people, 2,200 persons with disabilities and 2,900 former prisoners. During the same year, 20,500 young people and 17,600 women received vocational training. The Committee asks the Government to continue providing information on the measures adopted to meet the needs of vulnerable categories of workers, such as women, young people, older workers and workers with disabilities, particularly within the context of its State Employment Programmes. Please also include information on the impact the measures have had in promoting employment among these particular categories of workers.

4. Coordinated economic and social policy. The Government indicates in its report that it closely monitors the labour market and that an assessment is under way to consider the extent to which the State Employment Programme is improving the employment situation and what steps need to be taken in the future. Recalling that, under the terms of the Convention, the measures to be taken to achieve employment objectives should be decided on and kept under review within the framework of a coordinated economic and social policy, the Committee asks the Government to indicate in its next report the manner in which overall and sectoral economic policies and social policies contribute to the promotion of full, productive and freely chosen employment. Please also provide information on any labour market assessments, particularly on how the programmes implemented have contributed to job creation (Article 2).

5. Participation of social partners in the formulation and implementation of policies. In its report, the Government indicates that a general agreement was concluded in March 2004 between the Government and the social partners for 2004-05 addressing the main lines along which social and labour relations would be regulated. The Committee asks the Government to provide detailed information in its next report on the negotiation and content of agreements with the social partners regarding the promotion of employment. It further requests the Government to indicate how the representatives of the social partners, including those working in the rural sector and the informal economy are actively engaged in implementing the State Employment Policy (Article 3).

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

The Committee notes the reports supplied by the Government for the period ending June 2003, as well as the complete information that it provided in reply to its previous comment.

1. Article 1 of the Convention. The Government states that the period in question was characterized by declining employment growth and a reduction in the number of the economically active population. Despite adverse economic conditions in 2001, unemployment remained low at an estimated 2 per cent; this situation is partially explained through the simultaneous decrease in labour force participation. Since 1992, employment has shrunk by approximately 550,000 jobs. In 2001 approximately 770,000 persons, or 12.8 per cent of the working age population, was classified as inactive. Additionally, underemployment grew considerably: 238,000 persons were working on a part-time basis, a 58.3 per cent increase over the year 2000. Redistribution of the labour force continued: in 2000 the manufacturing sector employed 70 per cent of the labour force and the service sector 30 per cent; in 2001 the corresponding figures were 68 and 32 per cent respectively. The Committee would appreciate it if the Government would continue to send statistics that are as detailed as possible, including information on the impact of restructuring of employment and disaggregated data by age and gender.

2. The Committee notes the Government’s statement concerning the development of an active labour market policy through the annual elaboration and implementation of the State National Employment Programme aimed at promoting employment and protecting the population against unemployment while increasing efficiency in the use of labour resources. The main focuses of the active labour market policy are: developing entrepreneurship as a means to job creation; combating long-term unemployment; improving retraining programmes for laid-off workers; the development of a system of vocational guidance for schoolchildren and youths and the development of the system of paid public work. The Committee would appreciate receiving more detailed information in the Government’s report on the various programmes implemented as well as any assessment of their effectiveness and eventual outcomes in terms of employment creation.

3. As regards disadvantaged groups in the labour market, including young people, the Committee notes the measures taken or under consideration; it observes that the Government envisages modifying legislation in view of promoting employment among persons who are not capable of competing on an equal footing in the labour market. Please provide information on developments in these matters as far as they relate to the employment policy objectives identified in the Convention, including any contribution of the measures taken towards attaining the objectives of full, productive and freely chosen employment.

4. Article 2. The Committee notes that the State National Employment Programme, approved by Decision No. 15 of the Council of Ministers of the Republic of Belarus on 8 January 2001, provides for the strengthening of the role of the bodies of state administration, employers and voluntary associations in addressing the problems of local labour markets and giving support to areas with the highest unemployment. The Government states that the process of the elaboration of the employment programme is preceded by forecasting of estimated parameters of the labour markets of the towns, districts, regions and Republic. The information gathered is used to identify measures adapted to mitigating the situation of the labour market and preventing unemployment growth. The Committee would appreciate receiving further information on how employment programmes and policies are reviewed within the framework of a coordinated economic and social policy.

5. Article 3. The Committee notes the information received on the consultative role of the National Council on Labour and Social Matters and in particular of its duty of supervising and controlling the implementation of the employment programmes and its function in the threat of a mass release of workers. It asks the Government to provide more information on the negotiation of tripartite agreements on the matters covered by the Convention within the framework of the National Council on Labour and Social Matters and on any other efforts to effectively engage social partners in the consultations on employment policy.

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

The Committee notes the information provided in the Government’s report for the period to 31 May 2000.

1. Article 1 of the Convention. The Government states that the unemployment rate decreased from 2.8 per cent in 1997 to 2.0 per cent in 1999. Forced administrative leave was taken in 1999 by 4.7 per cent of the employed, which was 14.5 per cent less than in 1998; and 42.6 per cent of those on leave were unemployed. The main focuses of the active labour market policy are: promoting structural adjustment and engaging displaced workers in profitable enterprises; developing a system of training, upgrading of skills, retraining and vocational guidance; increasing economic incentives for enterprises to create jobs, based on flexible forms of employment; and improving the institutional structure of the State Employment Service. The number of participants in vocational training increased from 1997 to 1999 by about 11 per cent. The number of people in public works programmes decreased during the same period by about 5 per cent. In 1999 there were about five times as many people in public works programmes as there were in vocational training. The Government aims to further reduce forced underemployment at work, and to promote employment by expanding its vocational guidance, training and retraining system in professions that are likely to increase in demand in the future. The Government is particularly concerned to prevent or address mass lay offs due to restructuring of enterprises. Measures implemented to address mass unemployment include: assisting people to choose an appropriate profession; vocational training and retraining; providing information concerning vacancies; promoting self-employment; and providing those in special need with reserved jobs. The Committee notes this information. It would appreciate receiving more detailed information in future reports on the various programmes implemented, and their impact on employment promotion.

2. Article 2. The Committee notes the Government’s statement that employment policies and programmes are based on labour market forecasts. Please provide further information on how employment polices and programmes are kept under review within a coordinated economic and social framework.

3. Article 3. The Government provides detailed information on the system of consultations between workers’ and employers’ representatives to prevent mass lay offs or ensure employment for released workers. The Committee would appreciate receiving further information on the manner in which representatives of employers, workers and other sectors affected, such as the rural and informal sectors, are consulted more generally on the formulation, implementation and evaluation of employment policies and programmes.

Direct Request (CEACR) - adopted 1998, published 87th ILC session (1999)

1. The Committee notes the Government's report for the period ending May 1998, as well as the information which it provided in reply to its previous request. It notes that the fall in the number of redundancies and the recovery of demand for labour have resulted in a reduction of the registered unemployment rate, which fell to 2.3 per cent at the end of the period, as well as in the number of workers on "compulsory leave" or who are working part time. The Committee requests the Government to continue providing statistics which are as detailed as possible, not only on registered unemployment, but also on the active population and the various forms of underemployment.

2. The Committee notes that the Government attributes the favourable developments on the labour market to the improvement in the economic situation and the implementation of economic and social reforms. However, it notes that the report does not contain information on the nature of these reforms and on the manner in which they contribute to promoting employment. The Committee recalls in this respect that employment policy measures must, under the terms of Article 2 of the Convention, be adopted "within the framework of a coordinated economic and social policy". It once again requests the Government to provide the information requested in the report form on the principal global and sectoral policies pursued in order to promote full, productive and freely chosen employment. In particular, please indicate the manner in which their actual or expected effects on employment are taken into account in the implementation of structural reforms.

3. The Committee notes the statistics on the number of beneficiaries of vocational training, public works and job creation measures. It would be grateful if the Government would provide any evaluation available of the contribution made by these various measures to the long-term integration of the persons concerned into employment. The Committee also notes the information contained in the latest report on the application of Convention No. 142, and requests the Government to continue providing information on the measures which have been taken or are envisaged to improve the coordination of education and training policies with prospective employment opportunities.

4. Article 3. The Committee notes the Government's statement that representatives of the persons affected, and in particular representatives of employers and workers, are consulted in the formulation of national and regional employment programmes. It requests the Government to describe the procedures for this consultation. With reference to its request concerning Convention No. 88, the Committee asks the Government to describe the manner in which labour and social conciliation commissions participate in the formulation of the annual employment programme and the monitoring of its application.

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

1. With reference to its previous comments, the Committee notes the Government's report for the period ending July 1996. It appreciates the statistics on employment service activity and requests the Government to continue to supply such information. Please indicate also the measures taken or contemplated to collect and analyse the fullest possible data on employment, unemployment and the various types of underemployment (see under Article 2 of the Convention on the report form adopted by the Governing Body).

2. The Committee notes that the report mentions a number of national and regional programmes for job creation, training and social protection for the unemployed. It requests the Government to supply in its next report detailed information on the application of these measures and an assessment of their results.

3. The Committee notes that fewer than half of the unemployed persons who received vocational training in 1996 have been found jobs by the employment service. It requests the Government to indicate the measures envisaged in order better to coordinate training policy with employment opportunities and to ensure that the employment service is associated in the articulation and implementation of employment policy (see under Article 1 of the report form).

4. The Committee recalls its interest in any information allowing it to assess how the employment policy falls "within the framework of a coordinated economic and social policy" (Article 2 of the Convention). It would be grateful if the Government would supply the information required by the report form on the main thrust of the general economic policy and its contribution to the promotion of full, productive and freely chosen employment as a major goal (Article 1).

5. Article 3. With reference to its previous requests, the Committee asks the Government once again to describe the measures taken in order to ensure the consultation of representatives of all the persons concerned by employment policy measures, and particularly the representatives of employers and workers.

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

1. The Committee notes the Government's report for the period ending June 1994 and the information provided in reply to its previous request. It also notes the relevant information provided by the Government in its 1994 report on Convention No. 111.

2. The Committee notes with interest article 41 of the Constitution of 15 March 1994, which confirms that it is the responsibility of the State to ensure the conditions for the full employment of the population and to guarantee free choice of employment.

3. The statistics provided show that registered unemployment affected around 1.5 per cent of the active population at the end of 1993. However, the Government emphasizes the very high rate of underemployment, which is still poorly reflected in the statistics. The underutilization of the productive capacity of many enterprises is resulting in their employees being laid off for technical reasons or sent on unpaid leave for an indeterminate period. The Committee notes that the Government has adopted measures to compile and analyse statistics which should enable it to gain a better knowledge of the characteristics and extent of the phenomenon of underemployment. The Government also states that job-seekers are encountering increasing difficulty in finding employment due to the rapid decline in the demand for labour, and that the average period of unemployment is increasing. The number of unfilled vacancies and the graduate share of total unemployment also bear witness to serious imbalances in the structures for the supply and demand for labour. The proportion of total unemployment accounted for by women (two-thirds) is, according to the Government, a result of the lower level of protection that they enjoy in practice in respect of termination of employment for economic reasons.

4. Faced with this deterioration in the employment situation, the Government states that it has adopted significant measures to develop and modernize public employment services and adapt them to the needs of the various categories of job-seekers. With regard to measures to promote the employment of women, the Committee refers to its request for information under Convention No. 111. The Committee also notes the information concerning the measures adopted to improve the effectiveness of retraining for the unemployed. In view of the imbalance between the supply and demand for skills on the labour market, the Committee invites the Government to indicate whether measures have been taken or are envisaged to achieve a better coordination between education and training policies and prospective employment opportunities.

5. The Committee notes the series of measures intended to combat the rise in unemployment and remedy the imbalances on the labour market. It also notes the statement that the employment policy emphasizes the promotion of small enterprises and self-employment and requests the Government to describe the measures adopted to this effect. In this respect, the Committee is bound to recall that under the terms of the Convention, an active employment policy is not confined to labour market measures, but has to be pursued "within the framework of a coordinated economic and social policy". With reference to its previous request, the Committee would be grateful if the Government would indicate in its next report the manner in which the objective of full, productive and freely-chosen employment is taken into account in the formulation and implementation of structural reforms designed to achieve the transition to a market economy. Please indicate in particular how policies in such fields as investment, prices, incomes and wages, and international trade are coordinated with employment policy.

6. With reference to its previous request, in which it noted that the participation of organizations of employers in consultations on the formulation and implementation of employment policy was not guaranteed, the Committee notes that this failing has been brought to the attention of the legislator who should resolve it when preparing the new Labour Code, now that representative organizations of employers have been established. It requests the Government to supply full information on the manner in which the new provisions ensure in practice the consultation of the representatives of all the persons concerned by employment policy measures, and particularly the representatives of employers and workers, in accordance with Article 3 of the Convention.

7. Finally, the Committee notes the reference in the Government's report to the technical assistance of the ILO in the field of the promotion of small enterprises and self-employment. The Committee recalls the value in this respect of the "Conclusions concerning the promotion of self-employment", adopted by the International Labour Conference in June 1990, and would be grateful if the Government would supply any relevant information on the action taken as a result (Part V of the report form).

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

1. The Committee notes the Government's report and the appended texts of the Act of 30 May 1991 respecting the employment of the population and the Tripartite Agreement of 8 May 1992. The Government indicates that its employment policy is in the context of a transition towards a market economy, involving breaking off former economic ties. As a result of a drop in production and trade, the imbalance between labour supply and demand increased in the first half of 1992. Lay-offs in the public sector as a result of the economic reform are the main cause of the increase in unemployment which particularly affects secondary and higher education graduates and women (who account respectively for 73.9 per cent and 83.4 per cent of the unemployed).

2. The Committee notes with interest the basic principles of the employment policy set out in the Act of 30 May 1991. It notes in particular that the purpose of the policy is to ensure equal opportunity in employment and to guarantee the free choice of jobs, in accordance with the provisions of Article 1, paragraph 2(c), of the Convention. The Committee also notes that under the Act, employment measures must be coordinated with the other objectives of economic and social policy. In this connection, it would be grateful if the Government would indicate in its next report the manner in which account is taken of the objective of full, productive and freely chosen employment in the preparation and implementation of the reforms for the transition towards a market economy. Please indicate in particular how measures in the areas of prices, incomes, wages and foreign trade policies are coordinated with employment policy.

3. The Government indicates that a public employment service was established in July 1991 to assist in finding jobs for the unemployed and workers made redundant and to ensure that they receive social coverage. The Committee asks the Government to continue to provide information which is as detailed as possible on the number and nature of cases dealt with by the employment services. It points out that the standards on employment services (Convention No. 88 and Recommendation No. 83) contain precepts which could be useful in determining the measures to be taken to achieve "the best possible organization of the employment market as an integral part of a national programme for the achievement and maintenance of full employment and the development and use of productive resources". The Committee also hopes that the Government will be able to provide detailed statistics in its next report on the level and trends of employment, underemployment and unemployment, and the length of periods of unemployment, both for the country as a whole and by region, in the various sectors of economic activity and for the various categories of the population such as young people, women, older workers and the disabled. Please provide information on the measures taken or envisaged to collect and analyse relevant statistical data (Article 2 of the Convention).

4. The Committee notes with interest that the employment services are concentrating on measures for vocational guidance and retraining for the unemployed. It notes that the retraining, financed largely by the Employment Fund, enabled 50 per cent of the beneficiaries to find employment in the first half of 1992. Please continue to provide information on training activities for jobseekers and the results obtained in terms of the vocational integration of the persons concerned. The Committee appreciates the detailed information on the establishment of a comprehensive system of vocational training adapted to market economy conditions. It asks the Government in its future reports to provide information on the status of its projects in this area, taking account of the provisions of Convention No. 142 and the Committee's comments on the application of that Convention.

5. The Committee notes the principles of cooperation in the promotion of employment and the development of the labour market agreed upon by the Council of Ministers, the employers' associations and the Trade Union Federation, set out in the Agreement of 8 May 1992. It also notes that the Act of 30 May 1991 provides for the participation of trade unions and employers' associations in the preparation, implementation and monitoring of measures to ensure employment, in cooperation with the bodies of the state administration. However, the Committee observes that while section 11 of the above-mentioned 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, in this connection, recalls that under Article 3 of the Convention, representatives of the persons affected and in particular 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 1991, published 78th ILC session (1991)

The Committee notes the Government's report, and particularly the information supplied in reply to its previous direct request. It notes that a new orientation has been given to the Government's employment policy and that an employment service is being established to assist in the creation of a labour market. It also notes the formulation of an employment programme, a Byelorussian SSR Act on employment and regulations on an employment fund. The Government again refers to the principles that will guide its employment policy, namely equality of opportunity in employment, the free choice of employment, the provision of social and legal guarantees to workers affected by restructuring, the participation of occupational organisations in the implementation of the employment policy, and international co-operation in respect of migration for employment. The Government emphasises the close link between employment policy measures, measures for the development of industrial capacity and the geographical and vocational mobility of the labour force. The Government's report indicates that state bodies are establishing the organisation and procedure for the implementation of the new employment system in the Byelorussian SSR, which was to be submitted to Parliament for its formal approval in November 1990.

The Committee would be grateful if the Government would continue to provide data in its next report on the situation, level and trends of employment, and information on the new orientation of its employment policy, the above employment programme, the organisation and operation of the employment system, including the organisation and activities of the employment service. It also requests the Government to provide with its next report copies of the texts of the above laws and regulations, and of newly adopted ones, which affect the application of the Convention. The Committee would also be grateful if the Government would supply information on macroeconomic policies in fields such as those set out in the report form under Article 1 of the Convention, as they affect the employment policy. Finally, please supply further information in relation to the previous direct request on the following points.

1. The Committee notes the information on the introduction of the new system of management in a number of enterprises and organisations according to the principles of financial autonomy and responsibility for production, sales and the use of revenue. It requests the Government to continue supplying information on the application of the Law of the USSR of 30 June 1987 on state enterprises (amalgamations), and in particular to describe the impact on employment of measures relating to prices and wages that have already been taken or are planned within the framework of sections 14 and 17 of the above Law. Please also refer to the measures set out in section 14 with a view to the introduction of a measure of employment flexibility (part-time work, home work, working time arrangements).

2. The Committee notes the information supplied by the Government concerning vocational guidance, training and retraining, and in particular the measures taken to assist the unemployed, the disabled, persons with a low educational level and women who have been out of the labour market for a long period. It would be grateful if the Government would continue supplying information on the nature of these measures, the number of workers benefiting from them and on any measure that has been taken within the framework of sections 8 and 23 of the Law of the USSR of 30 June 1987 on state enterprises (amalgamations).

3. The Committee notes the information transmitted by the Government concerning the new idea of the organisation of public works as a means of responding to the population's employment needs. It also notes the data on the number of co-operatives, their members and on self-employed workers. With reference to its previous direct requests, it asks the Government to provide further information on the impact of measures that have been taken to create productive jobs.

4. The Committee notes the information supplied by the Government concerning the active participation of workers' collectives in the discussions relating to special regulations, legislative texts and draft legislation throughout 1989 and 1990, the account that was taken of their suggestions in the final texts and the activities of trade unions, particularly in the field of training. It would be grateful if the Government would continue to supply information on the role of representatives of the persons affected, and in particular the representatives of employers and workers, in the formulation and implementation of employment policies (Article 3 of the Convention).

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

The Committee takes note of the Government's report and the detailed statistical information provided in reply to its previous direct request. It notes, in particular, the various measures set forth in the Order of 5 February 1988 to ensure "effective" employment, improve the employment services and the placement system, and strengthen social guarantees for the workers. It would be grateful if, in its next report, the Government would continue to provide data on the situation, level and trends of employment, and information on the implementation of the new economic and employment policy measures. Please refer, in particular, to the following areas.

1. Please describe the effect on employment of the prices and incomes measures taken or contemplated within the framework of section 14 of the Law of the USSR of 30 June 1987 on state enterprises (amalgamations). Please refer also to the measures set forth in the same section to introduce certain flexibility of employment (part-time work, home work, working time arrangements).

2. The Committee takes note of the provisions of sections 8 and 23 of the Law of the USSR of 30 June 1987 on state enterprises (amalgamations) concerning vocational training and retraining. It would be grateful if the Government would provide information on the nature of these activities, the number of workers involved and the characteristics of the retraining courses for redundant workers.

3. In its report, the Government refers to several methods of promoting full employment: the creation of new jobs in certain sectors, the organisation of shift work, the creation of co-operatives and the promotion of individual occupations. The Committee requests the Government to state whether any particular difficulties have been encountered in implementing these measures and to indicate their effect on the creation of productive jobs.

4. The Committee notes the information on the activities of trade unions in the field of training. Please continue to provide information on this subject and, more generally, on the role of the trade unions and persons concerned in implementing the new employment policy measures, particularly those concerning social guarantees (Article 3 of the Convention).