Employment Service Convention, 1948 (No. 88) - Kazakhstan (Ratification: 2001)

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

Articles 1 and 3 of the Convention. Contribution of the employment service to employment promotion. The Committee notes with interest the information provided in the Government's report received in September 2023 about the establishment of 21 labour mobility centres (LMC) in regional centres and megacities under the Social Code since 1 July 2023. The Committee further notes that the main task of the new LMC is to increase the effectiveness of the regional employment policy tailored to local specifics. The Committee also notes the information on the website of the Prime Minister of Kazakhstan (primeminister.kz) which indicates that the LMC will promote not only labour mobility within the administrative region but also inter-district labour migration to reduce the country's unemployment rate. The Committee further observes that as of September 2023, the number of Career centres is 215, and they operate in all districts and all cities of regional importance. In this respect, the Committee requests the Government to continue to provide updated information on the number, nature, scope, and impact of the activities of the labour mobility centres and refers also to its comments on the Employment Policy Convention, 1964 (No. 122). The Committee, further, requests the Government to provide updated statistical information on the number of applications for employment received, the number of vacancies notified, and the number of persons placed in employment by such offices.

Articles 4 and 5. Cooperation with the social partners. Regarding the consultations with social partners, the Government refers to a meeting on 25 August 2023 of the National Tripartite Commission for Social Partnership and the Regulation of Social and Employment Relations, which considered six social and labour issues, including measures to ensure employment. In addition, the Government refers to the entry into force of a General Agreement with national trade union associations and national employers' associations for 2021–23 and the adoption of a corresponding Action Plan. The Committee notes that the Plan includes a section (Ensuring Employment) within the framework of which the Government and social partners worked together to implement the Employment Roadmap for 2020–21 to ensure employment and create additional jobs. The Committee requests the Government to continue giving particulars of the arrangements made for the cooperation of representative organizations of employers and workers in the organization and operation of the employment service and in the development of the employment service policy.

Article 6. Activities of the employment service. Contribution of the public employment service (PES) to employment promotion. The Committee notes the concerns of OECD, expressed in 2021 in the Report “Skills Strategy for Kazakhstan: Assessment and Recommendations” (Chapter “Key insights and recommendations for Kazakhstan”) that jobseekers in Kazakhstan are not motivated or are little motivated to register with the PES because of low quality of services provided, cumbersome registration procedures and lack of focus on vulnerable groups who are most in need. In this respect, the Committee observes that the Government has reported under its report on Convention No. 122 the creation of a skills training architecture with special emphasis on digital learning through a single portal for online training in skills launched in July 2021 by the Ministry of Labour and Social Protection. The main objective of the Portal is to increase the population’s education and professional qualifications by encouraging career development. Recalling the importance of the PES to reach the objectives set in national employment policies, the Committee requests the Government to indicate whether and how the PES is used as a central piece to provide key employment services, including vocational training and learning. The Committee further asks the Government to provide up-to-date information on the measures taken to improve the accessibility and quality of PES and to motivate jobseekers to register to public employment centres.The Committee, further, requests the Government to provide detailed information on activities of the PES to contribute to the employment promotion.

Article 7. Measures for particular categories of workers. The Committee welcomes the detailed information about the measures provided by the Government within the framework of the National Entrepreneurship Development Project for 2021-2025. These measures include providing government grants for citizens from socially vulnerable groups, subsidizing jobs to adapt citizens facing specific barriers to finding jobs, youth internships and Silver Age project, addressed to persons of pre-retirement age. The Committee requests the Government to continue to provide updated information on the concrete measures taken to meet the needs of young people, persons with disabilities and other particular categories of jobseekers, as well as updated information on their impact.

Article 11. Cooperation between public and private employment agencies. The Government indicates that as of 22 September 2023, the number of private employment agencies (PEA) is 42, predominantly represented in major cities and regional centres. As of 1 September 2023, 4,039 people (137 people from rural areas) had contacted PEA regarding labour mediation, of whom 1,542 people were previously unemployed, 949 people were placed in employment through PEA during the reporting period (80 people from rural areas), of whom 543 were previously unemployed. In addition, the Government states that to expand the network of the employment system throughout the country and simplify the application process for job seekers and employers, work is ongoing to outsource labour intermediation and employment services for the unemployed to PEA. The Committee requests the Government to provide detailed updated information on the practical cooperation between the public employment services and private employment agencies and on the outcome of this cooperation in order to achieve the optimal operation of the labour market.

Furthermore, noting that private employment agencies can, in collaboration with a well-functioning public employment service, play a critical role in improving labour market efficiency, the Committee wishes to draw attention to the ILO Campaign to promote the joint ratification of Convention No. 88 and the Private Employment Agencies Convention, 1997 (No. 181). The Committee therefore invites the Government to consider ratifying also Convention No. 181, as it represents the most up-to-date instrument in the area of private employment services which recognizes the role of these agencies to complement and contribute to achieving the effective implementation of the objectives of Convention No. 88.

Application of the Convention in practice. The Committee welcomes the detailed statistics provided by the Government regarding the numbers of unemployed people and job placements by economic sectors. In this context, the Government indicates that 181,900 persons have been employed on a permanent basis and 163,800 – in temporary jobs. The highest number of persons (108,500) have been employed in the public sector, followed by the youth internships (19,300 persons) and the social sector (16,100 persons). The Committee requests the Government to continue to provide updated information on the application of the Convention in practice.

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

Articles 1 and 3 of the Convention. Contribution of the employment service to employment promotion. The Committee notes the information provided by the Government in its report indicating that the Ministry of Health and Social Development is the central executive authority responsible for coordinating the state employment system, which is organized into 224 offices around the country. It further notes that, under the “Employment Roadmap 2020” programme, 208 employment centres have been created to improve employment placement. In line with this programme, employment offices provide career guidance to the self-employed, the unemployed and the low-income population. As at 1 August 2014, 45,800 people had found workplaces, 27,600 had completed courses in basic entrepreneurship and 116,200 had received vocational training, of whom 79,600 had found work. The Committee requests the Government to indicate the measures taken to establish and locate sufficient employment offices to serve the employers and workers in each of the geographical areas of the country. Please indicate what arrangements are made to review the network of employment offices, where necessary, to meet the changing requirements of the economy and the working population.

Articles 4 and 5. Cooperation with the social partners. The Government indicates that it maintains collaboration with the social partners on employment matters through the National Tripartite Commission on Social Partnership. The Committee requests the Government to give particulars of the arrangements made for the cooperation of representative organizations of employers and workers in the organization and operation of the employment service and in the development of employment service policy.

Article 7. Measures for particular categories of workers. The Committee notes that the “Employment Roadmap 2020” contains mechanisms for the training and placement of young people and to facilitate their mobility to regions in need of labour. The Government reports that, as at 1 August 2014, 12,325 young people had received vocational training, 1,270 had been trained in basic entrepreneurship and 1,069 had received microcredits. In addition, 2,560 young people had been employed in infrastructure projects in urban and rural areas. The Government adds that, under the same programme, people over 50 (but not yet of pensionable age) have priority access to vocational training and employment assistance. In this regard, as at 1 August 2014, 10,173 persons in the over 50 age group had taken part in vocational training programmes, of whom 2,831 had found work. The Committee requests the Government to continue providing information on the measures and activities carried out by the public employment service to facilitate the integration of particular categories of workers into the labour market.

Article 11. Cooperation between public and private employment agencies. The Government indicates that the Ministry of Health and Social Development is endeavouring to strengthen collaboration between state employment authorities and private employment agencies. It indicates that under the “Employment Roadmap 2020” programme both public and private employment agencies are required to assist in the provision of career guidance. The Committee requests the Government to provide more specific information on the impact of the measures taken to secure effective cooperation between the public employment service and private employment agencies.

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

Articles 1 and 3 of the Convention. Contribution of the public employment service to employment promotion. The Committee notes that, according to the report received in September 2009, the number of employment agencies is 217 and, up until August 2009, a total of 342,000 jobseekers were registered with the employment services, 236,200 were placed in employment and 98,900 were registered as jobseekers. The number of vacant posts indicated by employers was 27,102. The Committee refers to its comments on the Employment Policy Convention, 1964 (No. 122), and requests the Government to provide information on the manner in which the public employment service fulfils its essential duty, namely to ensure the best possible organization of the employment market for the achievement and maintenance of full employment and the development and use of productive resources (Articles 1, 3 and 6 of Convention No. 88). The Committee requests the Government to supply up‑to‑date statistical information on the number of public employment offices established, the number of applications for employment received, the number of vacancies notified and the number of persons placed in employment by such offices (Part IV of the report form). In order to be able to supply an exhaustive report, the Government might wish to examine Chapter III of the General Survey of 2010 on employment instruments, which contains useful information on the improvement and modernization of employment services.

Articles 4 and 5. Cooperation with the social partners. The Government reiterates in its latest report that employment matters come within the competence of tripartite committees on social partnership and are covered by the regulations on social relations and labour. Under the terms of the Public Employment Act of 2001, local authorities with the participation of workers’, employers’ and voluntary organizations draw up and approve employment programmes in the context of medium-term socio-economic development plans. The Committee hopes that the Government will supply more detailed information on the arrangements made for the appointment of employers’ and workers’ representatives to advisory committees, with a view to ensuring the full cooperation of the social partners in the organization and operation of the employment service.

Article 7 and 8. Measures for particular categories of applicants for employment. The Government again describes the obligations of the competent authorities responsible for the employment service to keep jobseekers and employers informed of vacancies, to provide advice on available training, to establish a database on the labour market and to establish regional programmes targeting vulnerable groups of the population. The Committee requests the Government to supply further information on special measures taken to adequately meet the needs of particular categories of applicants for employment, such as women, young persons, workers with disabilities and older workers.

Article 11. Cooperation with private employment agencies. The Government previously indicated that the Ministry of Labour takes the necessary steps to ensure effective cooperation between the public employment service and private employment agencies. Under the terms of the Public Employment Act, these agencies collaborate with the public employment service and contribute to the placement of jobseekers. The Committee requests the Government to indicate in its next report the specific steps taken to ensure effective cooperation between the public employment service and private employment agencies.

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

1. Contribution of the public employment service to employment promotion. The Committee notes the information contained in the Government’s report received in February 2006 in reply to its 2004 direct request. It notes that the Ministry of Labour is in charge, amongst other functions, of creating a single data base for the labour market, of monitoring the supply and demand of labour on the basis of this database; of informing the public on the situation of the labour market; of determining, together with the institutions concerned, the needs in vocational training in accordance with the demands of the labour market; and of distributing foreign labour between the regions of Astan and Almaty. The Committee refers to its comments on the Employment Policy Convention, 1964 (No. 122), and requests the Government to continue to report on the manner in which the public employment service carries out its essential tasks, ensuring the best possible organization of the employment market for the achievement and maintenance of full employment and for the development and use of productive resources (Articles 1, 3 and 6 of Convention No. 88). Please also provide statistical information on the number of existing public employment offices, job applications received, job offers notified and persons placed in employment by these offices (Part IV of the report form). It also invites the Government to provide further information in its next report on Convention No. 88 on the following points.

2. Cooperation with the social partners. The Government indicates that, together with the local bodies of the executive branch, and with the participation of the social partners, it adopts public employment programmes on the basis of medium-term plans for the country’s social development. The Committee hopes that in its next report the Government will provide the indications requested by the report form on the arrangements made to appoint the employer and worker representatives in the advisory committees in order to secure the full cooperation of the social partners in the organization and operation of the employment service (Articles 4 and 5).

3. Measures for particular categories of applicants for employment. The Committee notes that the public employment service is responsible for implementing special measures to provide assistance to target groups. In particular, it notes that the local bodies of the executive branch are in charge of establishing quotas for the placement of workers with disabilities amounting to 3 per cent of the overall number of posts, as well as establishing special positions for the placement of persons with disabilities. The Committee would appreciate continuing to receive data on the impact of the activities carried by the public employment service for particular categories of applicants such as women, young workers, workers with disabilities, and older workers (Articles 7 and 8).

4. Cooperation with private employment agencies. The Committee takes note of the role of private employment agencies, as well as the existing measures that ensure cooperation between the public employment service and private employment agencies. It asks the Government to keep providing information on the measures taken in order to secure effective cooperation between these two entities (Article 11).

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

The Committee notes that the Government’s report has not been received. It hopes that a report will be supplied for examination by the Committee at its next session and that it will contain full information on the matters raised in its 2004 direct request, which read as follows:

The Committee notes the Government’s first report on the application of the Convention. In particular it notes with interest the provisions of Act No. 149 of 23 January 2001 concerning employment of the population, which assign to the public employment service a key role in the preparation and implementation of national employment policy. It refers to its comments on the application of the Employment Policy Convention, 1964 (No. 122), and requests the Government to indicate the manner in which the public employment service participates in the implementation of the national programme for combating poverty and unemployment (Article 1, paragraph 2, of the Convention). The Committee would be grateful if the Government would also send a copy of the text of any regulation or circular adopted to give effect to the provisions of the Employment Act. It also invites the Government to provide further information in its next report on the following points.

1. Organization of the employment offices network (Article 3 of the Convention and Part IV of the report form). Please indicate the volume of activity of local employment offices operating in towns and rural areas. Please describe the measures adopted or envisaged to ensure that the network of employment offices is sufficient to serve the employers and the workers throughout the country.

2. Cooperation of employer and worker representatives (Articles 4 and 5). The Committee recalls that the Convention requires the setting up in the employment service of one or more advisory committees, which should include employers’ and workers’ representatives in equal numbers, in order to ensure their cooperation in the organization and operation of the employment service, and in the development of its general policy. It requests the Government to describe the arrangements made or envisaged to give effect to these important provisions of the Convention.

3. Activities of the employment service (Article 6). Please describe the measures taken to promote the communication of job vacancies and applications from one employment office to another where necessary. Please indicate all measures taken by the employment service to favour the professional or geographical mobility of workers. Please describe the manner in which the employment service collaborates in the administration of unemployment insurance and in the application of other social protection measures for the unemployed.

4. Specialization within employment offices (Article 7(a)). Please indicate whether measures have been adopted or are being contemplated to enable employment offices to offer specialized services according to profession or branch of activity.

5. Measures for particular categories of applicants for employment (Article 7(b)). The Committee notes that the Employment Act provides for special measures to be taken for particular categories of applicants for employment, such as disabled persons. It requests the Government to describe the measures taken by the employment service to apply this provision.

6. Special arrangements for young people (Article 8). The Committee notes that the Employment Act provides for special measures to be taken for young people. It requests the Government to describe the measures adopted by the employment service to apply this provision.

7. Staff of the employment service (Article 9). Please describe recruitment methods and conditions of service of the employment service staff. Please describe the measures taken to provide their initial and ongoing training.

8. Encouraging the use of the employment service (Article 10). Please indicate the measures adopted, in collaboration with employers’ and workers’ organizations, to encourage full use of the employment service by employers and workers.

9. Cooperation with private employment agencies (Article 11). The Committee notes the provisions of the Employment Act concerning the role of private employment agencies. It invites the Government to describe the measures taken or contemplated in order to secure effective cooperation between the public employment service and private employment agencies.

Direct Request (CEACR) - adopted 2004, published 93rd ILC session (2005)

The Committee notes the Government’s first report on the application of the Convention. In particular it notes with interest the provisions of Act No. 149 of 23 January 2001 concerning employment of the population, which assign to the public employment service a key role in the preparation and implementation of national employment policy. It refers to its comments on the application of the Employment Policy Convention, 1964 (No. 122), and requests the Government to indicate the manner in which the public employment service participates in the implementation of the national programme for combating poverty and unemployment (Article 1, paragraph 2, of the Convention). The Committee would be grateful if the Government would also send a copy of the text of any regulation or circular adopted to give effect to the provisions of the Employment Act. It also invites the Government to provide further information in its next report on the following points.

1. Organization of the employment offices network (Article 3 of the Convention and Part IV of the report form). Please indicate the volume of activity of local employment offices operating in towns and rural areas. Please describe the measures adopted or envisaged to ensure that the network of employment offices is sufficient to serve the employers and the workers throughout the country.

2. Cooperation of employer and worker representatives (Articles 4 and 5). The Committee recalls that the Convention requires the setting up in the employment service of one or more advisory committees, which should include employers’ and workers’ representatives in equal numbers, in order to ensure their cooperation in the organization and operation of the employment service, and in the development of its general policy. It requests the Government to describe the arrangements made or envisaged to give effect to these important provisions of the Convention.

3. Activities of the employment service (Article 6). Please describe the measures taken to promote the communication of job vacancies and applications from one employment office to another where necessary. Please indicate all measures taken by the employment service to favour the professional or geographical mobility of workers. Please describe the manner in which the employment service collaborates in the administration of unemployment insurance and in the application of other social protection measures for the unemployed.

4. Specialization within employment offices (Article 7(a)). Please indicate whether measures have been adopted or are being contemplated to enable employment offices to offer specialized services according to profession or branch of activity.

5. Measures for particular categories of applicants for employment (Article 7(b)). The Committee notes that the Employment Act provides for special measures to be taken for particular categories of applicants for employment, such as disabled persons. It requests the Government to describe the measures taken by the employment service to apply this provision.

6. Special arrangements for young people (Article 8). The Committee notes that the Employment Act provides for special measures to be taken for young people. It requests the Government to describe the measures adopted by the employment service to apply this provision.

7. Staff of the employment service (Article 9). Please describe recruitment methods and conditions of service of the employment service staff. Please describe the measures taken to provide their initial and ongoing training.

8. Encouraging the use of the employment service (Article 10). Please indicate the measures adopted, in collaboration with employers’ and workers’ organizations, to encourage full use of the employment service by employers and workers.

9. Cooperation with private employment agencies (Article 11). The Committee notes the provisions of the Employment Act concerning the role of private employment agencies. It invites the Government to describe the measures taken or contemplated in order to secure effective cooperation between the public employment service and private employment agencies.