Human Resources Development Convention, 1975 (No. 142) - Russian Federation (RATIFICATION: 1979)

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Articles 1, 2 and 5 of the Convention. Formulation and implementation of policies and programmes of vocational guidance and vocational training. Cooperation of the social partners. In its previous comments, the Committee requested the Government to provide information about the policies and programmes of lifelong vocational guidance and training for young persons and adults, and to indicate the manner in which it ensures effective coordination between these policies and programmes, as well as between employment and the public employment services. The Committee further requested the Government to provide information on cooperation with employers’ and workers’ organizations, as well as other interested bodies, in the formulation and implementation of vocational guidance and training policies and programmes, such as the Multisector Centres of Continuing Professional Development. The Committee also requested the Government to provide information such as extracts of reports, studies, inquiries and statistical data regarding training policies and programmes. The Government reports that the State provides vocational guidance services to citizens, including unemployed persons, who: do not have a profession; have lost the ability to work in their former profession; are experiencing difficulties in choosing a profession; or cannot find an appropriate job because they lack the necessary qualifications or experience. The Government adds that it considers vocational guidance services for young persons to be one of the most important elements of human resources development. It provides specialist vocational guidance services aimed at helping young persons, including orphans and children without parental care, to choose an occupation, employment, or vocational training in accordance with their needs and those of the labour market. The Government adds that, in providing vocational guidance services, the public employment services work closely with various bodies, including juvenile affairs commissions, departments for youth affairs, social protection institutions and vocational education organizations. The Government reports that the public employment services provide vocational guidance services each year to about 2,500,000 people, more than half of whom are between the ages of 14 and 29. It indicates that special attention is paid to providing vocational guidance services to persons with disabilities. Noting that the Government has not provided a full reply to its 2016 direct request, the Committee once again requests the Government to provide additional information on the policies and programmes adopted to provide vocational guidance and vocational training throughout the life of both young persons and adults. In particular, the Committee requests the Government to provide detailed information, including statistical information disaggregated by age and sex, on the nature and content of vocational guidance services provided to persons with disabilities and the number of beneficiaries of such services. It also reiterates its request that the Government indicate the manner in which it ensures effective coordination between these policies and programmes, on the one hand, and employment and the public employment services, on the other. It requests the Government to provide information on cooperation with employers’ and workers’ organizations and other interested bodies in the formulation and implementation of vocational guidance and vocational training policies and programmes, such as in the activities of the Multisector Centres of Continuing Professional Development. In addition, the Committee requests the Government to provide detailed information in the form of extracts of reports, studies and inquiries, and statistical data regarding vocational training policies and programmes.

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Articles 1, 2 and 5 of the Convention. Formulation and implementation of policies and programmes of vocational guidance and vocational training. Cooperation of the social partners. The Government provides information in its report on the vocational guidance and training programmes offered throughout the country. Among the measures taken, the Committee notes that, in accordance with the List of Measures to Increase the Number of Highly Skilled Workers by 2020, approved by Government Directive No. 2108-r of 13 November 2013, multifunctional practical qualification centres are being set up in the constituent entities the Russian Federation. In this regard, according to data provided, 262 Multisector Centres of Continuing Professional Development (MCCPDs) had been set up as at December 2014 and were operational in 150 towns, cities and urban areas in 74 constituent entities of the county. Furthermore, over 1,500 firms and organizations are partners of operational MCCPDs.

The Committee notes that, for the purposes of developing the vocational guidance system and preparing recommendations on how to develop the vocational guidance given to young people and promote their employment, the Ministry of Labour, together with the Ministry of Education and Science, published a joint order setting up the Interdepartmental Coordination Council on Vocational Guidance to Young People (Coordination Council). The Coordination Council’s first meeting was held on 3 October 2013 and was attended by representatives of the federal and regional executive authorities and other organizations, including youth organizations. At the meeting, the decision was taken to create an internet platform on the site of the Ministry of Labour that would focus on the issues surrounding the development of vocational guidance to young people. The Internet platform would be regularly updated with current information on youth vocational guidance and employment. With respect to vocational guidance programmes, the Government indicates that, in 2014, 2,728,300 people (30.3 per cent of the total number of people who had applied for State-provided vocational guidance) received this service, whereas this figure was 2,998,700 people (31.9 per cent) in 2012. Of the total number of people receiving this service, 1,409,300 people (51.7 per cent of the total number of service recipients) were aged between 14 and 29 years old; and 766,600 people (28.1 per cent) were aged between 14 and 17 years old.

The Committee requests the Government to further describe the policies and programmes of vocational guidance and vocational training throughout the life of both young persons and adults, which have been adopted, indicating the manner in which it ensures effective coordination between these policies and programmes, on the one hand, and employment and the public employment services, on the other. It also requests the Government to provide information on the cooperation of employers’ and workers’ organizations and other interested bodies in the formulation and implementation of vocational guidance and vocational training policies and programmes, such as in the activities of the Multisector Centres of Continuing Professional Development. Please also provide extracts of reports, studies and inquiries, and statistical data regarding training policies and programmes.

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Articles 1, 2 and 5 of the Convention. Formulation and implementation of policies and programmes of vocational guidance and vocational training. Cooperation of the social partners. The Committee notes the Government’s report received in August 2013 in which it indicates that a number of amendments were made in November 2011 to the Law on Employment in the Russian Federation. These amendments were passed in order to enable a more effective implementation of active employment policy measures and a better division of functions between federal and regional authorities, notably by redefining the powers of the Russian Federation in employment promotion to include the provision of State services in vocational guidance and vocational training, retraining and the raising of qualifications, as of January 2012. The Government indicates that the proportion of unemployed people who received State services in vocational training, retraining and further training in 2011 and 2012 exceeded the rate prescribed by regulations. Moreover, the Committee notes that the percentage of citizens classified as unemployed after completing vocational training courses declined by three percentage points from 2011 to 2012, from 8.6 to 5.6 per cent. The Committee refers to the observation formulated in 2013 on the application of the Employment Policy Convention, 1964 (No. 122), and invites the Government to further describe in its next report on Convention No. 142 the policies and programmes of vocational guidance and vocational training which have been adopted, indicating the manner in which it ensures effective coordination between these policies and programmes, on the one hand, and employment and the public employment services, on the other. The Committee also invites the Government to provide information on the cooperation of employers’ and workers’ organizations and other interested bodies in the formulation and implementation of vocational guidance and vocational training policies and programmes. Please also provide extracts of reports, studies and inquiries, and statistical data regarding training policies and programmes relating to particular areas or branches of economic activity or to specific categories of persons (Part VI of the report form).

[The Government is asked to reply in detail to the present comments in 2015.]

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Articles 1 and 2 of the Convention. Formulation and implementation of education and training policies. The Committee notes the Government’s report received in September 2009. The Government describes systems of general, technical and vocational education, referring to the Education Act of 10 July 1992. The Government indicates that approved general education establishments may conclude vocational apprenticeship agreements with enterprises in order to provide the recipients with vocational education. Vocational training may be followed both in approved education establishments and in an enterprise or with a specialist qualified in the provision of individual training. In its 2010 General Survey concerning employment instruments, the Committee emphasizes that Convention No. 142, together with Recommendation No. 195, forms part of the framework for the pursuit of the objective of full employment, decent work and the achievement of education for all. In this regard, the Committee requests the Government to supply information in its next report on the policies and programmes of vocational guidance and vocational training which have been adopted, indicating the manner in which it ensures effective coordination between these policies and programmes, on the one hand, and employment and the public employment services, on the other (Article 1(1) of the Convention).

Measures to overcome the economic crisis. The Government indicates that, in order to prevent the negative consequences of long-term unemployment and to provide the public with better information on the services available for promoting and finding employment, measures have been taken to extend periods of vocational and further training from three to six months and increase allowances for vocational training (from 5,400 to 10,800 roubles per unemployed person). Moreover, a programme of vocational and further training has been launched primarily targeting workers threatened with redundancy. From February to July 2009, a total of 12,800 agreements were concluded in the regions of the Russian Federation, with the aim of providing training for 83,900 persons. The Committee refers to the comments which it is making this year on Convention No. 122 and requests the Government to indicate the way in which vocational training activities designed to tackle the economic crisis contribute towards the placement in employment of the workers affected. The Committee also requests the Government to indicate the manner in which the social partners cooperate in the formulation and implementation of policies and programmes of vocational guidance and vocational training (Article 5).

Article 3. Information for vocational guidance purposes. The Government indicates that, as at 1 January 2008, a total of 3,207 establishments were recorded as providing initial vocational training for 1,413,000 recipients. In 2006, there were 630,000 recipients compared with 783,000 in 2004. In 2006, a total of 680,000 persons had completed training compared with 708,000 in 2004. Initial vocational training establishments provide skills training in 291 occupations and propose accelerated training courses. The Government indicates that institutes for specialist studies and intermediate education faculties provide basic vocational education as preparation for intermediate vocational training from an advanced level. As at 1 January 2008, a total of 2,847 establishments were registered as providing intermediate vocational education, comprising 2,631 public establishments and 216 private establishments, catering for a total of 2,514,000 students. These establishments provide skills training in 260 specialist areas. The Committee requests the Government to supply further information in its next report enabling an examination of the results achieved as regards the occupational integration of the recipients of these activities provided by various vocational establishments.

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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 previous direct request, which read as follows:

1. The Committee notes the Government’s report and observes that it mainly covers the area of vocational guidance and replies only in part to its previous request. It invites the Government to provide in its next report the fullest possible information on the effect given to the Convention as a whole, referring to the following points.

2. Article 3 of the Convention. The Committee notes the detailed information on the nature and volume of vocational guidance activities and invites the Government to continue to provide such information. It also notes the information relating to measures assisting in the search for employment implemented in the context of active employment policy programmes and invites the Government to continue to provide information on these measures and their results in its forthcoming reports on the application of Convention No. 122.

3. Articles 2 and 4. The Committee notes the brief information on the programme for the development and modernization of education. Please describe to what extent this programme contributes to the development of open, flexible and complementary systems of education and training, both within and outside the formal education system, which meet the needs for initial and further training of young people and adults at different levels of skill.

4. Article 5. Please indicate the manner in which the cooperation of employers’ and workers’ organizations is ensured in the formulation and implementation of policies and programmes of vocational guidance and vocational training. Please describe any procedure or any consultative machinery instituted for this purpose.

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1. The Committee notes the Government’s report and observes that it mainly covers the area of vocational guidance and replies only in part to its previous request. It invites the Government to provide in its next report the fullest possible information on the effect given to the Convention as a whole, referring to the following points.

2. Article 3 of the Convention. The Committee notes the detailed information on the nature and volume of vocational guidance activities and invites the Government to continue to provide such information. It also notes the information relating to measures assisting in the search for employment implemented in the context of active employment policy programmes and invites the Government to continue to provide information on these measures and their results in its forthcoming reports on the application of Convention No. 122.

3. Articles 2 and 4. The Committee notes the brief information on the programme for the development and modernization of education. Please describe to what extent this programme contributes to the development of open, flexible and complementary systems of education and training, both within and outside the formal education system, which meet the needs for initial and further training of young people and adults at different levels of skill.

4. Article 5. Please indicate the manner in which the cooperation of employers’ and workers’ organizations is ensured in the formulation and implementation of policies and programmes of vocational guidance and vocational training. Please describe any procedure or any consultative machinery instituted for this purpose.

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1. The Committee notes the Government's report which contains detailed information on the decisions taken by the different competent authorities in order to develop a state system of vocational guidance and training of both young persons and adults. It further notes that the Russian Federation Employment Service and the Ministry of Labour and Social Development have adopted a number of decisions to improve the system of vocational education of unemployed persons. The Committee would be grateful if in its next report the Government would include further information on the way in which effective coordination is assured and the manner in which the policies and programmes of vocational guidance and vocational training are linked with employment and public employment services (Article 1, paragraphs 1 to 4, of the Convention).

2. Please indicate whether special difficulties have been encountered in attaining the objectives of the Federal Programmes for 1998-2000 to promote vocational training through the concerted efforts of the Ministry of Labour and other concerned bodies at federal and regional levels.

3. Please continue to describe the systems implemented at federal, regional and local level of general, technical and vocational education and educational and vocational guidance and vocational training (Article 2).

4. The Committee notes the figures provided by the Government's report on the number of young persons and adult citizens applying for vocational guidance at the employment services between 1995 and 1997. It would be grateful if the Government would continue to supply quantitative information on the activities of the vocational guidance services. Please describe the types of information made available for vocational guidance purposes and supply specimens of the documentation made available, as requested by the report form under Article 3, paragraphs 2 and 3.

5. The Committee notes that the human resources development policy is implemented through the Russian Federation Employment Promotion Programme for 1998-2000 by a series of measures designed to improve the quality and competitiveness of the labour force by means of vocational education. Please indicate the extent to which the vocational education programmes have succeeded in meeting vocational training needs throughout the lives of both young persons and adults in all sectors of the economy and branches of economic activity and at all levels of skills and responsibility as required by Article 4.

6. The Committee notes with interest that the Personnel Development Association (PDA) has been created to assist enterprises in implementing the vocational training assistance programme. The PDA, which operates at national and regional levels, is an enterprise-based initiative and receives government support. Please provide further indication on the manner in which cooperation with employers' and workers' organizations is assured in the formulation and implementation of vocational guidance and vocational training policies and programmes (Article 5).

7. The Committee notes with interest the indications provided on the introduction of the module training system elaborated by the ILO into training practice in the Russian Federation. Please continue to provide information of any action taken as a result of ILO assistance.

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The Committee notes the Government's report with interest, and in particular the contribution from the Directorate for the occupational training and retraining of managerial staff, which contains useful information on recent developments in vocational guidance and training. It asks the Government to continue to supply detailed information in reply to the questions in the report form, referring particularly to the following points:

1. The Government states that it attaches particular importance to developing vocational training and retraining programmes in the transition towards a market economy. It points out in this connection that workers are given the opportunity to acquire new skills, which is their best means of protection against unemployment. The Committee notes that the Government considers vocational training to be an important instrument of its employment policy and that it is attending to the evaluation of enterprises' requirements in skilled labour. It also notes that regional training centres are being organized and that their coordination is ensured by the employment services. Please continue to provide detailed information on the development of policies and programmes of vocational training closely linked with employment, in accordance with Article 1, paragraphs 1 and 2, of the Convention, if such information has not been supplied in the report on the application Convention No. 122;

2. The Committee notes with interest the principles concerning the right to education and the objectives of the education and vocational training programmes established in the Act of 10 July 1992 on education. Please provide information on any new measures to give effect to the provisions of Article 1, paragraphs 4 and 5, and Article 2;

3. The Government indicates that it has undertaken to establish a public system of vocational guidance closely linked to the employment services. Please continue to supply information on the number of consultations held on vocational guidance and describe the type of information available for the purposes of vocational guidance (Article 3, paragraphs 2 and 3);

4. The Committee notes that the main priorities of the Government's human resources development policy are to develop training in the services sector, to reform the system of training of medium-level specialists and to strengthen management training for managerial staff and heads of enterprises. Please provide information on the results obtained in each of these areas and indicate the measures taken to extend the vocational training systems to new branches of economic activity or new levels of occupational skills and responsibility, in accordance with Article 4.

5. Please indicate how cooperation with employers' and workers' organizations is ensured in the formulation and implementation of policies and programmes of vocational guidance and vocational training, in accordance with Article 5.

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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 previous direct request, which read as follows:

The Committee notes with interest the detailed information supplied by the Government in reply to its previous comments dealing principally with the application of the reform of general education and vocational colleges, as set out in 1984. In particular, it notes the emphasis and increasing efforts given to questions of vocational guidance, training, readaptation and further training, in view of the problems regarding the reintegration and redeployment of human resources resulting from the implementation of the new strategy of economic restructuring.

The Committee would be grateful if the Government would continue supplying information in its future reports on new developments in these fields, with particular reference to the factors set out in paragraphs 2 to 4 of Article 1 of the Convention, and the measures taken to apply Article 4 to promote the adaptation of training systems to meet the changing needs of individuals and of the economy.

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The Committee notes with interest the detailed information supplied by the Government in reply to its previous comments dealing principally with the application of the reform of general education and vocational colleges, as set out in 1984. In particular, it notes the emphasis and increasing efforts given to questions of vocational guidance, training, readaptation and further training, in view of the problems regarding the reintegration and redeployment of human resources resulting from the implementation of the new strategy of economic restructuring.

The Committee would be grateful if the Government would continue supplying information in its future reports on new developments in these fields, with particular reference to the factors set out in paragraphs 2 to 4 of Article 1 of the Convention, and the measures taken to apply Article 4 to promote the adaptation of training systems to meet the changing needs of individuals and of the economy.