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

Direct Request (CEACR) - adopted 2019, published 109th ILC session (2021)

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

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

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

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

1. Articles 1 and 2 of the Convention. Active labour market measures and employment policy. The Committee notes the Government’s detailed report received in November 2008 including replies to the 2007 direct request. The Government stressed that the labour market reforms implemented until May 2008 represented an essential component within the framework of economic and social reforms for increasing welfare in Slovenia. Among the main challenges Slovenia faced in the field of employment, the Government identified the high proportion of long-term unemployed (53.1 per cent in May 2008), the relatively high youth unemployment rate (13.7 per cent) and the increasing unemployment of women (7.9 per cent). It indicated that the Active Employment Policy Framework Programme (AEP), adopted yearly until 2006, had been programmed for a period of six years (2007–13) implemented through two-year plans, which provided more flexibility and better responsiveness to changes occurring in the labour market. The Committee notes that an increased share of funds has been earmarked for employment incentives and direct job creation, namely in the area of public works, and that, in order to achieve more permanent employment solutions for the most vulnerable groups, additional efforts will be made in pursuing the following development priorities established under the AEP and the Operational Programme for Human Resources Development for the period 2007–13: promotion of entrepreneurship and adaptability; promotion of employability of jobseekers and inactive individuals through training, vocational orientation and jobseeking assistance; and promotion of lifelong learning and social inclusion. The Committee also notes the adoption in 2007 of a national lifelong learning strategy, which is currently being implemented. The Committee asks the Government to continue to provide an evaluation in its next report of the impact of the various labour market reform measures undertaken in the current employment situation. The Committee further invites the Government to provide information in its next report on the results achieved through active labour market measures.

2. Vulnerable workers. In reply to previous comments made concerning the impact of the measures taken to increase the employment rate among vulnerable groups, in particular young workers, first-time jobseekers and older workers, the Government indicates that the proportion of unemployed persons aged under 26 and first-time jobseekers decreased significantly in 2008 compared to 2006 (from 21.6 per cent to 13.7 per cent, and from 22.4 per cent to 16.9 per cent, respectively) whereas the proportion of unemployed persons aged 50 or over increased from 25.1 per cent in 2006 to 35.8 per cent in 2008. With reference to the measures being implemented to integrate young persons into the labour market, the Government’s report describes a number of activities within the framework of the 2007–13 Operational Programme for Human Resources Development, including, inter alia, on-the-job training, job rotation, exchange of work experience, intergenerational mentoring and instruction programmes to exchange knowledge between different target groups, and specific programmes for young persons who are threatened by discrimination or social exclusion. Concerning the measures to promote the employment of older workers, the Committee notes that a national active ageing strategy is under preparation with the objective of bringing the employment rate for older workers aged 55–64 as close as possible to the Lisbon Strategy target of 50 per cent by the year 2010. A set of policy measures have been proposed in order to overcome the barriers to employment for older persons: introducing incentives to hire them, in the form of subsidies, allowing them greater mobility and flexible forms of employment, improving care for older workers in terms of health and safety at work, encouraging the employment of inactive persons; promoting self-employment and social inclusion; and encouraging the inclusion of older workers and persons in lifelong learning. The Committee asks the Government to continue to provide detailed information on the impact of the activities designed to encourage and support employment levels of vulnerable categories of workers, particularly women, young workers, first-time jobseekers and older workers.

3. Article 3. Participation of the social partners in the formulation and application of policies. The Government indicates that consultations with social partners on the EU employment policy strategy are held annually within the National Assembly. Representatives of employers and workers have been actively involved in the reform coordination process through the national Economic and Social Council, in which they expressed their support for the measures to be adopted under the AEP and the national action plan for persons with disabilities for the period 2007–13 which were proposed by the Government. The Committee notes that amendments were made to the Employment Relationship Act, in 2007, with the agreement of the social partners so as to ensure a suitable degree of employment security while encouraging labour market flexibility. The Committee requests the Government to continue to provide information on the progress made in involving the social partners in the design and application of employment policies.

Direct Request (CEACR) - adopted 2007, published 97th ILC session (2008)

1. Articles 1 and 2 of the Convention. Labour market trends and employment policy. The Committee notes the information contained in the Government’s report for the period ending May 2006, which included detailed information in reply to its previous comments. The Government reported that the employment rate increased in general by 1 per cent between May 2005 and May 2006 and in particular in leasing and business activities (up 6.8 per cent), the construction industry (up 6.3 per cent) and the community, social and personal service industry (up 2.9 per cent). From 2000 to 2006, the total number of unemployed persons dropped by 17.5 per cent and there was a significant drop in the number of long-term unemployed persons (64,000 persons in December 2000 compared to 42,279 persons in May 2006). The demand for highly educated workers has grown, with redundant workers and the long-term unemployed facing the problem of not having the specific skills and knowledge required for employment reintegration.

2. The objectives of the Active Employment Policy Programme (AEPP) for 2006 were increasing vocational orientation and assistance in obtaining employment; training and education; developing employment incentives; direct creation of new jobs; and introduction of experimental programmes. Within the framework of the AEPP, resources had been increased for a number of activities including: on-the-job training and integrated programmes of training and formal education which aimed at increasing the education level of youth, long-term unemployed and beneficiaries; project learning for young adults for the academic year 2006–07; project of non-market employment programmes; and on-the-job training in workshops and learning companies. The Committee would appreciate continuing to receive information on how the measures taken to promote full and productive employment operate within a “framework of a coordinated economic and social policy”. Please also include in the Government’s next report information on the results of any evaluation done by the Government and the social partners on the difficulties encountered and the results obtained with respect to the employment policy orientations included in the AEPP.

3. Vulnerable workers. In reply to previous comments made concerning measures taken to increase the employment rate among vulnerable groups, in particular older workers and those faced with structural changes, the Government indicated that special attention was being devoted to unemployed women who are particularly affected by structural changes in the economy. The assistance in employing long-term unemployed women has helped 411 women between 2005 and the first half of 2006 into employment. Under the promoting new employment for the elderly programme, financial subsidies were available to support the reintegration of older workers into employment. Between 2005 and the first half of 2006, 191 unemployed persons had been integrated into the labour market. An experimental programme had also been introduced to fight against age-based discrimination in the labour market and promote employment of older workers. A subsidy had been introduced to promote the employment of disadvantaged groups such as the unemployed and workers from industrial sectors undergoing restructuring. In 2005, 2,819 persons had benefited from this subsidy. The Committee asks the Government to keep it informed on the impact of the measures taken to provide lasting employment to young workers under the age of 26 years and first-time employment seekers, as well as to keep older workers in the active life.

4. Article 3. Participation of the social partners in the formulation and application of policies. The Government indicated that the partnership councils for human resources development had been established in each of the 12 regional offices of the employment service of Slovenia, in which all relevant institutions of regional and local importance had been invited to participate. The councils meet twice a year and establish the state of the labour market, as well as development programmes in local communities and educational programmes and propose measures in the field of the active employment policy. They played a primary role in developing the National Development Plan 2007–13, the National Strategic Reference Framework 2007–13 and the Human Resources Operative Programme 2007–13. The councils are also involved in the preparation of regional development programmes which form an integral part of the national development plan. The Committee requests the Government to continue providing information on the manner in which the representatives of the persons affected are consulted in relation to employment policies.

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

1. The Committee notes the Government’s report for the period ending in May 2004 containing detailed information in reply to previous comments. In its report, the Government refers to the implementation of the National Action Employment Programme for 2004, prepared on the basis of the European Employment Strategy. The Government reports that the working active population had increased (from 758,473 in 1999 to 783,686 in June 2004), and the number of employed in the industrial activities and in the services sector also increased. In August 2004, there were 90,314 unemployed persons. It is expected that approximately 15,000 direct entries to employment will be achieved and at least 11,400 unemployed persons will be included in programmes of education and vocational training. The Government indicates that, despite certain positive shifts, the pattern of unemployment still remains problematic, disproportionately affecting older persons, persons without vocational education, women and long-term unemployed. The Committee would appreciate receiving further information on how the measures taken to promote full and productive employment operate within a "framework of a coordinated economic and social policy". Please also include in the Government’s next report information on the achievements in terms of employment generation of the National Action Employment Programme (Articles 1 and 2 of the Convention).

2. The Government indicates that special attention is devoted to unemployed women who are particularly affected by the poor state of the textile, leather and footwear industries. A large proportion of the workers affected by redundancies in the garment sector are workers aged from 45 to 54 years for the most part without vocational education. The Committee asks the Government to submit information on the measures taken to increase the employment rate among older workers and to protect workers affected by structural changes in the economy. Please also indicate the results achieved by the programmes implemented at regional level by the Employment Institute.

3. Consultation with representatives of employers’ and workers’ organizations and other sectors in connection with employment policy. The Committee notes with interest the information provided by the Government indicating that, in the future, a second level of consultation will be established at regional level. Partners councils will be established by the Employment Institute in which all relevant institutions of regional and local importance will be invited to participate. The strategy of development for the labour market and employment policy will be defined by the local environment. The Committee would appreciate continuing to receive information in this regard (Article 3).

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

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 2003 direct request, which read as follows:

The Committee notes the Government’s report received in February 2003 for the period ending May 2002 and the detailed replies to the 2000 direct request.

1. Article 1 of the Convention. The Government indicates that employment grew by 1.7 per cent in 2001, which represents the highest annual level since 1987. The employment rate stood at 63.9 per cent. In spite of recent progress, this figure has regressed since 1998 when it stood at 65.1 per cent. In terms of employment, the service sector grew by 2.7 per cent while the manufacturing sector grew by 0.9 per cent. The unemployment rate decreased from 7.9 per cent in 1998 to 6.4 per cent in 2001. Youth unemployment also decreased slightly - by 0.5 per cent - as compared to 1998 but remains disproportionately high at 18.1 per cent. Please continue to provide information on the impact of restructuring of employment and relevant data by age and gender.

2. The Government states that it is pursuing an active employment policy modelled on guidelines recommended by the European Union and has adopted a National Programme of Development of the Labour Market and Employment to 2006 that introduces an integral approach to reducing unemployment and stimulating employment through active and coordinated cooperation among economic, educational and financial spheres. The Committee would appreciate being kept informed of progress made in this respect.

3. The Government acknowledges the significant regional gaps in terms of employment and the sizeable dimension of informal economy employment in Slovenia. Please continue to report on government efforts to promote employment in disadvantaged regions and to provide productive work for informal economy workers.

4. Article 2. The Government indicates that all employment programmes adopted are regularly monitored by the Employment Institute and are evaluated on the basis of the content, suitability and effectiveness of the programme. This information is used in assessing their impact on employment promotion and to formulate changes in policy as necessary. The Committee would be grateful if the Government would provide some examples of how policy has changed. The Committee would also appreciate receiving further information on how employment programmes and policies are reviewed within the framework of coordinated economic and social policies.

5. Article 3. The Committee notes the information received on the consultative role of the Economic and Social Council (ESSS) in the preparation of legislation and its capacity to issue standpoints and opinions on different matters, such as working and draft documents. It asks the Government to provide more information on the negotiation of tripartite accords within the framework of the ESSS and on any other efforts to engage social partners and other groups in employment promotion.

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

The Committee notes the Government’s report received in February 2003 for the period ending May 2002 and the detailed replies to the 2000 direct request.

1. Article 1 of the Convention. The Government indicates that employment grew by 1.7 per cent in 2001, which represents the highest annual level since 1987. The employment rate stood at 63.9 per cent. In spite of recent progress, this figure has regressed since 1998 when it stood at 65.1 per cent. In terms of employment, the service sector grew by 2.7 per cent while the manufacturing sector grew by 0.9 per cent. The unemployment rate decreased from 7.9 per cent in 1998 to 6.4 per cent in 2001. Youth unemployment also decreased slightly - by 0.5 per cent - as compared to 1998 but remains disproportionately high at 18.1 per cent. Please continue to provide information on the impact of restructuring of employment and relevant data by age and gender.

2. The Government states that it is pursuing an active employment policy modelled on guidelines recommended by the European Union and has adopted a National Programme of Development of the Labour Market and Employment to 2006 that introduces an integral approach to reducing unemployment and stimulating employment through active and coordinated cooperation among economic, educational and financial spheres. The Committee would appreciate being kept informed of progress made in this respect.

3. The Government acknowledges the significant regional gaps in terms of employment and the sizeable dimension of informal economy employment in Slovenia. Please continue to report on government efforts to promote employment in disadvantaged regions and to provide productive work for informal economy workers.

4. Article 2. The Government indicates that all employment programmes adopted are regularly monitored by the Employment Institute and are evaluated on the basis of the content, suitability and effectiveness of the programme. This information is used in assessing their impact on employment promotion and to formulate changes in policy as necessary. The Committee would be grateful if the Government would provide some examples of how policy has changed. The Committee would also appreciate receiving further information on how employment programmes and policies are reviewed within the framework of coordinated economic and social policies.

5. Article 3. The Committee notes the information received on the consultative role of the Economic and Social Council (ESSS) in the preparation of legislation and its capacity to issue standpoints and opinions on different matters, such as working and draft documents. It asks the Government to provide more information on the negotiation of tripartite accords within the framework of the ESSS and on any other efforts to engage social partners and other groups in employment promotion.

Direct Request (CEACR) - adopted 2002, published 91st ILC session (2003)

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 2000 direct request which read as follows:

Article 1 of the Convention.   The Committee notes the information contained in the Government’s detailed report, as well as the Joint Assessment of the Employment Policy Priorities of Slovenia (July 2000). In 1998 GDP growth was 3.9 per cent, the employment rate was 65.1 per cent, and the growth in employment was 0 per cent, but the negative trend in employment growth has stopped. The sector experiencing an increase in employment was mainly in services. The participation and employment rates for both men and women have been increasing. The unemployment rate was 7.9 per cent, slightly up from 1996 and 1997. Long-term unemployment comprised 62.4 per cent of total unemployment. The workers under 25 years of age comprise 18.2 per cent of total unemployment. Unskilled workers are also disproportionately affected.

Labour market policies include employability (through education and training), entrepreneurship (through self-employment and regional development), adaptability (retraining and subsidies for hiring the long-term unemployed) and equal opportunities (including programmes for the disabled and the Romany community). The Government also seeks to improve the delivery and monitoring of programmes. In particular, it aims to improve the public employment service by concentrating resources on those most in need, and improving VET, through the PHARE programme, by tailoring programmes more closely to the needs of target groups and making training more relevant to work. The Committee notes this information and would appreciate being kept informed of the improvements made. The Committee also requests that the Government provide further information on measures taken to reduce long-term unemployment and to address the special needs of regions with particularly high levels of unemployment.

Article 2.   The Committee notes that the Government is in the process of carrying out an employment policy review with the European Commission. It would appreciate receiving a copy of this report when it is completed and information on any follow-up action taken.

Article 3.   The Committee also notes the Government’s intention to engage social partners more in employment promotion. The Committee asks the Government to continue to provide information on the progress made in this respect, in particular on the role of the Economic and Social Council in setting policies, and whether groups other than the social partners (such as rural and informal sector workers) are consulted.

Direct Request (CEACR) - adopted 2000, published 89th ILC session (2001)

Article 1 of the Convention.  The Committee notes the information contained in the Government’s detailed report, as well as the Joint Assessment of the Employment Policy Priorities of Slovenia (July 2000). In 1998 GDP growth was 3.9 per cent, the employment rate was 65.1 per cent, and the growth in employment was 0 per cent, but the negative trend in employment growth has stopped. The sector experiencing an increase in employment was mainly in services. The participation and employment rates for both men and women have been increasing. The unemployment rate was 7.9 per cent, slightly up from 1996 and 1997. Long-term unemployment comprised 62.4 per cent of total unemployment. The workers under 25 years of age comprise 18.2 per cent of total unemployment. Unskilled workers are also disproportionately affected.

Labour market policies include employability (through education and training), entrepreneurship (through self-employment and regional development), adaptability (retraining and subsidies for hiring the long-term unemployed) and equal opportunities (including programmes for the disabled and the Romany community). The Government also seeks to improve the delivery and monitoring of programmes. In particular, it aims to improve the public employment service by concentrating resources on those most in need, and improving VET, through the PHARE programme, by tailoring programmes more closely to the needs of target groups and making training more relevant to work. The Committee notes this information and would appreciate being kept informed of the improvements made. The Committee also requests that the Government provide further information on measures taken to reduce long-term unemployment and to address the special needs of regions with particularly high levels of unemployment.

Article 2.  The Committee notes that the Government is in the process of carrying out an employment policy review with the European Commission. It would appreciate receiving a copy of this report when it is completed and information on any follow-up action taken.

Article 3.  The Committee also notes the Government’s intention to engage social partners more in employment promotion. The Committee asks the Government to continue to provide information on the progress made in this respect, in particular on the role of the Economic and Social Council in setting policies, and whether groups other than the social partners (such as rural and informal sector workers) are consulted.

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

The Committee notes with regret 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 previous direct request, which read as follows:

1. The Committee notes that despite the fact that economic activity has continued to grow at a relatively high rate since 1993, the employment situation has not improved significantly during this period. The registered unemployment rate, which stood at 14.4 per cent at the end of 1994, was still 13.7 per cent in September 1996. The Government indicates that the processes of restructuring and adjustment of production to market economy conditions are continuing and that, although the demand for labour has increased since the economy came out of recession, this is expressed in more than 60 per cent of cases in the form of offers of temporary employment. In addition, the inappropriate nature of qualifications offered relative to those required, the proportion of long-term unemployment which represents over half of all unemployment and particularly affects older and unskilled workers, along with the strong regional disparities, tend to confirm the structural nature of the labour market problems.

2. Furthermore, the Committee observes the significant discrepancy between the registered rate of unemployment, established on the basis of data provided by the National Employment Office, and the much lower rate resulting from the labour force surveys conducted by the Statistical Office. In the view of the Association of Free Trade Unions, the contradiction between statistics showing a continuous fall in employment and an apparent improvement in the unemployment figures is due primarily to the removal from the unemployment registers of people who are recruited without a contract; this practice is illegal but the Labour Inspectorate appears to be powerless to combat it. The trade union emphasizes that the number of unemployed people who have lost their jobs following the bankruptcy of their employers, or as a result of privatization, is on the increase. It considers that industrial workers who lose their jobs have no other solution than to withdraw from the labour market in order to receive a retirement pension, which explains the widening gap between the size of the population of working age and that of the population actually working. The Committee invites the Government to provide details of its own analyses on each of these points, by indicating in its next report the factors which explain the discrepancy between the results obtained by the two statistical assessment methods for unemployment, the considerable use of temporary employment and the apparent growth in different types of informal employment, by providing information on the consequences of privatization on employment and by specifying its policy with regard to the early withdrawal from the labour market of workers who have lost their jobs.

3. In its report the Government describes the series of active employment policy measures which are implemented to preserve existing employment in the form of preventive measures to support, in particular, export-based or highly labour-intensive activities, to promote self-employment and to respond to the particular difficulties of the long-term unemployed. It indicates that since April 1996, these measures have been implemented by means of public tenders which allow a more effective allocation of subsidies and co-financing. In addition, a subsidy for the transformation of temporary jobs into indefinite employment has been introduced. While observing the large number of beneficiaries of such measures, the Committee notes that, according to the Association of Free Trade Unions, no assessment of the effectiveness of each of the measures has been conducted. Furthermore, the organization considers that the funding allocated to them is insufficient. The Committee would be grateful if the Government would provide details of any assessment available of the results obtained by these measures in terms of the effective and lasting integration of their beneficiaries into employment.

4. The Association of Free Trade Unions regrets that the programme of active employment policy measures was adopted in April 1996 without the cooperation of the social partners and without having been discussed by the Economic and Social Council. For its part, the Government points out that the programme was devised on the basis of the 1996 Social Agreement reached with the trade unions, including the Association of Free Trade Unions. The Committee invites the Government to reconsider the procedures adopted in order to ensure regular and effective consultation with the representatives of those affected by the employment policy measures, and in particular representatives of employers and workers, in accordance with Article 3 of the Convention. It also requests the Government to indicate, whether the Economic and Social Council has been granted the status of a legal institution, as provided for in the 1996 agreement, and whether issues relating to employment policy, as defined in the Convention, are referred to it.

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

The Committee notes that the Government's report has not been received. It must therefore repeat its previous comment which read as follows:

1. The Committee took note with interest of the Government's report for the period 1 July 1994 to 30 September 1996, which contains a series of detailed information and includes comments by the Association of Free Trade Unions of Slovenia.

2. The Committee notes that despite the fact that economic activity has continued to grow at a relatively high rate since 1993, the employment situation has not improved significantly during this period. The registered unemployment rate, which stood at 14.4 per cent at the end of 1994, was still 13.7 per cent in September 1996. The Government indicates that the processes of restructuring and adjustment of production to market economy conditions are continuing and that, although the demand for labour has increased since the economy came out of recession, this is expressed in more than 60 per cent of cases in the form of offers of temporary employment. In addition, the inappropriate nature of qualifications offered relative to those required, the proportion of long-term unemployment which represents over half of all unemployment and particularly affects older and unskilled workers, along with the strong regional disparities, tend to confirm the structural nature of the labour market problems.

3. Furthermore, the Committee observes the significant discrepancy between the registered rate of unemployment, established on the basis of data provided by the National Employment Office, and the much lower rate resulting from the labour force surveys conducted by the Statistical Office. In the view of the Association of Free Trade Unions, the contradiction between statistics showing a continuous fall in employment and an apparent improvement in the unemployment figures is due primarily to the removal from the unemployment registers of people who are recruited without a contract; this practice is illegal but the Labour Inspectorate appears to be powerless to combat it. The trade union emphasizes that the number of unemployed people who have lost their jobs following the bankruptcy of their employers, or as a result of privatization, is on the increase. It considers that industrial workers who lose their jobs have no other solution than to withdraw from the labour market in order to receive a retirement pension, which explains the widening gap between the size of the population of working age and that of the population actually working. The Committee invites the Government to provide details of its own analyses on each of these points, by indicating in its next report the factors which explain the discrepancy between the results obtained by the two statistical assessment methods for unemployment, the considerable use of temporary employment and the apparent growth in different types of informal employment, by providing information on the consequences of privatization on employment and by specifying its policy with regard to the early withdrawal from the labour market of workers who have lost their jobs.

4. In its report the Government describes the series of active employment policy measures which are implemented to preserve existing employment in the form of preventive measures to support, in particular, export-based or highly labour-intensive activities, to promote self-employment and to respond to the particular difficulties of the long-term unemployed. It indicates that since April 1996, these measures have been implemented by means of public tenders which allow a more effective allocation of subsidies and co-financing. In addition, a subsidy for the transformation of temporary jobs into indefinite employment has been introduced. While observing the large number of beneficiaries of such measures, the Committee notes that, according to the Association of Free Trade Unions, no assessment of the effectiveness of each of the measures has been conducted. Furthermore, the organization considers that the funding allocated to them is insufficient. The Committee would be grateful if the Government would provide details of any assessment available of the results obtained by these measures in terms of the effective and lasting integration of their beneficiaries into employment.

5. The Association of Free Trade Unions regrets that the programme of active employment policy measures was adopted in April 1996 without the cooperation of the social partners and without having been discussed by the Economic and Social Council. For its part, the Government points out that the programme was devised on the basis of the 1996 Social Agreement reached with the trade unions, including the Association of Free Trade Unions. The Committee invites the Government to reconsider the procedures adopted in order to ensure regular and effective consultation with the representatives of those affected by the employment policy measures, and in particular representatives of employers and workers, in accordance with Article 3 of the Convention. It also requests the Government to indicate, whether the Economic and Social Council has been granted the status of a legal institution, as provided for in the 1996 agreement, and whether issues relating to employment policy, as defined in the Convention, are referred to it.

Observation (CEACR) - adopted 1997, published 86th ILC session (1998)

1. The Committee took note with interest of the Government's report for the period 1 July 1994 to 30 September 1996, which contains a series of detailed information and includes comments by the Association of Free Trade Unions of Slovenia.

2. The Committee notes that despite the fact that economic activity has continued to grow at a relatively high rate since 1993, the employment situation has not improved significantly during this period. The registered unemployment rate, which stood at 14.4 per cent at the end of 1994, was still 13.7 per cent in September 1996. The Government indicates that the processes of restructuring and adjustment of production to market economy conditions are continuing and that, although the demand for labour has increased since the economy came out of recession, this is expressed in more than 60 per cent of cases in the form of offers of temporary employment. In addition, the inappropriate nature of qualifications offered relative to those required, the proportion of long-term unemployment which represents over half of all unemployment and particularly affects older and unskilled workers, along with the strong regional disparities, tend to confirm the structural nature of the labour market problems.

3. Furthermore, the Committee observes the significant discrepancy between the registered rate of unemployment, established on the basis of data provided by the National Employment Office, and the much lower rate resulting from the labour force surveys conducted by the Statistical Office. In the view of the Association of Free Trade Unions, the contradiction between statistics showing a continuous fall in employment and an apparent improvement in the unemployment figures is due primarily to the removal from the unemployment registers of people who are recruited without a contract; this practice is illegal but the Labour Inspectorate appears to be powerless to combat it. The trade union emphasizes that the number of unemployed people who have lost their jobs following the bankruptcy of their employers, or as a result of privatization, is on the increase. It considers that industrial workers who lose their jobs have no other solution than to withdraw from the labour market in order to receive a retirement pension, which explains the widening gap between the size of the population of working age and that of the population actually working. The Committee invites the Government to provide details of its own analyses on each of these points, by indicating in its next report the factors which explain the discrepancy between the results obtained by the two statistical assessment methods for unemployment, the considerable use of temporary employment and the apparent growth in different types of informal employment, by providing information on the consequences of privatization on employment and by specifying its policy with regard to the early withdrawal from the labour market of workers who have lost their jobs.

4. In its report the Government describes the series of active employment policy measures which are implemented to preserve existing employment in the form of preventive measures to support, in particular, export-based or highly labour-intensive activities, to promote self-employment and to respond to the particular difficulties of the long-term unemployed. It indicates that since April 1996, these measures have been implemented by means of public tenders which allow a more effective allocation of subsidies and co-financing. In addition, a subsidy for the transformation of temporary jobs into indefinite employment has been introduced. While observing the large number of beneficiaries of such measures, the Committee notes that, according to the Association of Free Trade Unions, no assessment of the effectiveness of each of the measures has been conducted. Furthermore, the organization considers that the funding allocated to them is insufficient. The Committee would be grateful if the Government would provide details of any assessment available of the results obtained by these measures in terms of the effective and lasting integration of their beneficiaries into employment.

5. The Association of Free Trade Unions regrets that the programme of active employment policy measures was adopted in April 1996 without the cooperation of the social partners and without having been discussed by the Economic and Social Council. For its part, the Government points out that the programme was devised on the basis of the 1996 Social Agreement reached with the trade unions, including the Association of Free Trade Unions. The Committee invites the Government to reconsider the procedures adopted in order to ensure regular and effective consultation with the representatives of those affected by the employment policy measures, and in particular representatives of employers and workers, in accordance with Article 3 of the Convention. It also requests the Government to indicate, whether the Economic and Social Council has been granted the status of a legal institution, as provided for in the 1996 agreement, and whether issues relating to employment policy, as defined in the Convention, are referred to it.

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

The Committee notes that the Government's report has not been received. It must therefore repeat its previous comments which read as follows:

1. The Committee notes with interest the Government's very helpful report for the period ending June 1994. In reply to the request addressed directly to it, the Government has provided a set of detailed information which bears witness to its commitment to achieving the objectives of the Convention and make it possible to assess the results of the policies adopted with a view to their achievement.

2. The information provided in the report shows that, following a period of profound recession, still evident in a decline of 5.4 per cent in gross domestic product in 1992, the economy started to grow once again in 1993 and should achieve an annual growth rate of around 5 per cent in both 1994 and 1995. This recovery in the growth rate can largely be attributed to the improvement in the economic situation of the country's principal trading partners, but also to the choice of economic policy, which has allowed the country to benefit fully from the more favourable environment. Reference may be made in this respect to the active policy to stimulate economic activity and employment pursued during the period, which took the form, in particular, of measures designed to reduce the indirect costs of labour for employers and the adoption of a wages policy, under the terms of the general agreement of April 1994 on wages policy in the private sector, to moderate the real growth of wages within the limits of productivity growth. In order to increase employment stability, the Government also made use of fiscal policy, for example penalizing undue recourse to subcontracting and temporary employment. Greater competitiveness in exports encouraged the necessary reorientation of foreign trade. The Government considers that the positive impact of its stabilization policy in terms of a recovery in economic activity, employment and the containment of inflation are now prevailing over the short-term costs of adjustment. It considers that, during the current period of transition to a market economy, the role of the State remains important, particularly to sustain growth through public investment, and that in the longer term the role of the State is linked to the process of the privatization of the economy, which is proceeding at a relatively slow pace at the present time.

3. In this context, the decline in total employment slowed down over the reference period and the unemployment rate, which reached a peak of 15.3 per cent in December 1993, flattened out at 14.4 per cent at the end of 1994. According to the information provided by the Government, this rate may be even lower (9 per cent) taking into account the fact that around 20 per cent of registered unemployed persons may have a job and are not actively seeking employment. The average increase of 40 per cent per month in the number of vacancies between 1993 and 1994 illustrates the recovery of demand for labour and reflects the improvement in the economic situation. However, the Government emphasizes that the large proportion of long-term unemployment (62 per cent of total unemployment in 1994, as compared with 51 per cent in 1992), as well as the continued high rate of unemployment among young persons under 26 years of age (of whom 33.5 per cent were unemployed in 1994, compared with 41 per cent in 1992) and the fact that nearly half of unemployed persons have no skills, are all indicators of the essentially structural nature of unemployment.

4. The Government describes in detail all the active labour market policy measures implemented by the national employment service to prevent and combat unemployment. The Committee notes in particular the emphasis placed on training and the measures to prevent terminations of employment for economic and structural reasons. It also notes the increase in the number of beneficiaries of the programme to promote self-employment, and the facility offered to jobseekers to receive their unemployment benefit in the form of a lump-sum payment so that they can embark upon a self-employed activity. The Committee also notes that, despite their temporary nature, public works programmes promote the long-term employment of their participants, whereas assignments in enterprises appear to have been less effective. Furthermore, the Committee notes with interest the information provided on the activities and policy of the employment service in the Government's first report on the application of Convention No. 88.

5. The Committee notes the Government's concern that the effectiveness of each of these employment policy measures should be evaluated and that new and more suitable measures should be sought, where appropriate, to regulate the labour market and assist the unemployed. It has also been informed of the Government's intention to hold a tripartite national conference in 1996 to discuss these matters. The Committee requests the Government to continue supplying detailed information on the manner in which employment policy measures are determined and kept under review, within the framework of a coordinated economic and social policy, in consultation with the representatives of the persons affected, in accordance with Articles 2 and 3 of the Convention. It hopes that all the policies that are implemented will make it possible to achieve a significant improvement in the employment situation in the near future.

Observation (CEACR) - adopted 1995, published 83rd ILC session (1996)

1. The Committee notes with interest the Government's very helpful report for the period ending June 1994. In reply to the request addressed directly to it, the Government has provided a set of detailed information which bears witness to its commitment to achieving the objectives of the Convention and make it possible to assess the results of the policies adopted with a view to their achievement.

2. The information provided in the report shows that, following a period of profound recession, still evident in a decline of 5.4 per cent in gross domestic product in 1992, the economy started to grow once again in 1993 and should achieve an annual growth rate of around 5 per cent in both 1994 and 1995. This recovery in the growth rate can largely be attributed to the improvement in the economic situation of the country's principal trading partners, but also to the choice of economic policy, which has allowed the country to benefit fully from the more favourable environment. Reference may be made in this respect to the active policy to stimulate economic activity and employment pursued during the period, which took the form, in particular, of measures designed to reduce the indirect costs of labour for employers and the adoption of a wages policy, under the terms of the general agreement of April 1994 on wages policy in the private sector, to moderate the real growth of wages within the limits of productivity growth. In order to increase employment stability, the Government also made use of fiscal policy, for example penalizing undue recourse to subcontracting and temporary employment. Greater competitiveness in exports encouraged the necessary reorientation of foreign trade. The Government considers that the positive impact of its stabilization policy in terms of a recovery in economic activity, employment and the containment of inflation are now prevailing over the short-term costs of adjustment. It considers that, during the current period of transition to a market economy, the role of the State remains important, particularly to sustain growth through public investment, and that in the longer term the role of the State is linked to the process of the privatization of the economy, which is proceeding at a relatively slow pace at the present time.

3. In this context, the decline in total employment slowed down over the reference period and the unemployment rate, which reached a peak of 15.3 per cent in December 1993, flattened out at 14.4 per cent at the end of 1994. According to the information provided by the Government, this rate may be even lower (9 per cent) taking into account the fact that around 20 per cent of registered unemployed persons may have a job and are not actively seeking employment. The average increase of 40 per cent per month in the number of vacancies between 1993 and 1994 illustrates the recovery of demand for labour and reflects the improvement in the economic situation. However, the Government emphasizes that the large proportion of long-term unemployment (62 per cent of total unemployment in 1994, as compared with 51 per cent in 1992), as well as the continued high rate of unemployment among young persons under 26 years of age (of whom 33.5 per cent were unemployed in 1994, compared with 41 per cent in 1992) and the fact that nearly half of unemployed persons have no skills, are all indicators of the essentially structural nature of unemployment.

4. The Government describes in detail all the active labour market policy measures implemented by the national employment service to prevent and combat unemployment. The Committee notes in particular the emphasis placed on training and the measures to prevent terminations of employment for economic and structural reasons. It also notes the increase in the number of beneficiaries of the programme to promote self-employment, and the facility offered to jobseekers to receive their unemployment benefit in the form of a lump-sum payment so that they can embark upon a self-employed activity. The Committee also notes that, despite their temporary nature, public works programmes promote the long-term employment of their participants, whereas assignments in enterprises appear to have been less effective. Furthermore, the Committee notes with interest the information provided on the activities and policy of the employment service in the Government's first report on the application of Convention No. 88.

5. The Committee notes the Government's concern that the effectiveness of each of these employment policy measures should be evaluated and that new and more suitable measures should be sought, where appropriate, to regulate the labour market and assist the unemployed. It has also been informed of the Government's intention to hold a tripartite national conference in 1996 to discuss these matters. The Committee requests the Government to continue supplying detailed information on the manner in which employment policy measures are determined and kept under review, within the framework of a coordinated economic and social policy, in consultation with the representatives of the persons affected, in accordance with Articles 2 and 3 of the Convention. It hopes that all the policies that are implemented will make it possible to achieve a significant improvement in the employment situation in the near future.

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

The Committee notes with interest the Government's report for the period ending June 1992 containing most useful information on trends in employment and unemployment, the principles of the employment policy and measures to combat unemployment. It would be grateful if in its next report the Government would again provide information which is as detailed as possible in answer to the questions in the report form, with particular reference to the following points.

1. The Government indicates that the employment situation started to deteriorate in 1988 and has continued to do so in the period covered by the report. Total employment dropped by 8 per cent between 1988 and 1992 and unemployment rose rapidly. The unemployment rate, which was less than 2 per cent in 1988, reached 5.9 per cent at the end of 1990, 10.1 per cent at the end of 1991 and 11 per cent by June 1992. The Committee notes that unemployment particularly affects the under-26 age group which at that date showed an unemployment rate of over 20 per cent, and skilled workers who accounted for 62.7 per cent of all unemployed persons. Another feature of unemployment which is becoming a source of concern is its length: at 30 June 1992, more than 50 per cent of the unemployed had been without a job for over a year. The Government also indicates that the total active population has dropped over the period.

2. The Committee appreciates the Government's efforts to provide statistical information which is as detailed as possible. It notes in this connection that the methods for collecting and analysing employment and unemployment data are being changed to improve information on levels of activity. The Committee asks the Government to indicate in its next report any progress made in this area.

3. The Committee notes that, according to the Government, the deterioration in the employment situation is linked to the changing economic and social conditions brought about by the transition to a market economy in an unfavourable economic context characterized by low financial resources, modest investment activity and numerous company bankruptcies. The Government states that in order to cope with the situation, and particularly precarious employment and growing unemployment, in early 1991 it adopted a social programme to stimulate the creation of new jobs by direct intervention in the labour market. In this connection the report refers to the 1991 Act on Employment and Insurance in Case of Unemployment, aimed at ensuring social protection for the unemployed and providing for active employment policy measures. The Committee would be grateful if the Government would provide information on the application of the provisions of the above Act in relation to the provisions of the Convention. It also asks the Government to provide additional information on other aspects of the employment policy which are likely to have an impact on employment, such as measures in the areas of investment policy, budgetary and monetary policy, prices, incomes and wages policies. The Government is asked to state how it ensures that the objective of full, productive and freely chosen employment is taken fully into account in the adoption of any decisions on these matters, in accordance with Articles 1, paragraph 3, and 2 of the Convention.

4. The Committee notes with interest the information on measures to combat unemployment by helping employers to create and maintain productive jobs and helping individuals to adapt, particularly through training, to new labour market conditions. The Committee asks the Government to continue to supply information on jobs created by means of the programme to subsidize employers who recruit for an indefinite period, the results obtained by the programme for the promotion of self-employment and the public works programmes. Please also state to what extent the programme to co-finance trainee income has led to lasting employment for the persons concerned. The Committee notes with interest that a special programme for the employment of the disabled was among the labour market policy measures. In this connection, it draws the Government's attention to the relevant provisions of other international labour conventions to which Slovenia is also a party such as the Human Resources Development Convention (No. 142), 1975, and the Vocational Rehabilitation and Employment (Disabled Persons) Convention (No. 159), 1983.

5. In its report the Government refers to the provisions of the Act on Employment and Insurance in the Case of Unemployment, which refer to the representation of employers' and workers' organizations. The Committee would be grateful if in its next report the Government would supply more detailed information on the methods used to ensure that, in conformity with Article 3 of the Convention, representatives of all persons affected by the measures to be taken are 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". The Committee recalls that such consultations should cover all aspects of economic policy that have an impact on employment, and emphasizes the particular importance of giving full effect to this essential provision of the Convention, particularly at a time of far-reaching changes in labour market conditions.