Observation (CEACR) - adopted 2018, published 108th ILC session (2019)

Employment Policy Convention, 1964 (No. 122) - Greece (Ratification: 1984)

The Committee notes the observations of the Greek General Confederation of Labour (GSEE), received on 1 September 2017. The Committee requests the Government to provide its comments in this respect.

Articles 1 and 2 of the Convention. Active employment policy and labour market measures implemented under the adjustment programme. Employment trends. In its previous comments, the Committee noted the persistent high levels of unemployment in Greece and requested the Government to report on the measures taken to address the situation. The Committee notes that the GSEE has been reiterating concerns since 2010 that the Government’s imposition of austerity measures as part of the implementation of the adjustment programmes has led to an extensive and arbitrary deregulation of the Greek labour market which has resulted in the violation of the provisions of the Convention. The GSEE stresses that no progress has been made with regard to the application of the Convention, as the legislative provisions which it considers to be incompatible with the Convention have not been modified or repealed. It further notes the high levels of unemployment as well as the deterioration of the living conditions of Greek people due to the economic recession. The GSEE maintains that the dramatic increase in unemployment in the country is related to three developments: (i) the dismantling of legislation on temporary employment which had the effect of deterring hirings; (ii) bankruptcies and lay-offs; and (iii) new legislation that facilitated dismissals. The Committee notes that, according to the Government, the general unemployment rate decreased from 26.5 per cent in 2014 to 24.9 per cent in 2015. According to the ILOSTAT database, the overall unemployment rate was 21.5 per cent in 2017. The Committee notes that, despite the continued decrease, the unemployment rate remains high. The Committee further notes that the employment rate increased during the same period, from 49.6 per cent in 2014 to 51.3 per cent in 2015. The GSEE observes that Greece continues to have the lowest employment rate among the EU countries, noting that, in 2016, the employment rate stood at 56.2 per cent, compared with an EU average of 71.1 per cent. The GSEE maintains that the Government has not presented any specific examples of job creation and active employment policies, or of efforts made to encourage the unemployed to return to work. On the other hand, the Government reports a number of legislative developments and labour market reforms, in the framework of the third economic adjustment programme for Greece, which began on 19 August 2015 and ended on 20 August 2018. In this respect, the Government refers to the recommendations formulated in the updated Memorandum of Understanding on Specific Economic Policy Conditionality (May 2013), according to which, during the 2014–20 period, accelerated efforts are required to prevent unemployment from becoming permanent, focusing on the integration of the long-term unemployed, disadvantaged persons and persons in greater need of income support, on easing labour market mismatches and facilitating the mobility of workers across occupations and sectors and strengthening the social economy. The Committee notes that the active employment policies reported by the Government are primarily employment enhancement programmes implemented by the Greek Manpower Employment Organization (OAED). The Committee also notes that the programmes for the creation of new jobs and for acquisition of work experience constitute an important priority of the Ministry of Labour with regard to employment activation policy programmes, especially through community work programmes which focus on the long-term unemployed, subsidization of enterprises to encourage them to hire unemployed persons, education and training programmes in cutting edge sectors of the Greek economy and also subsidization of new freelance professionals. According to EUROSTAT, the part-time employment rate in Greece has shown an upward trend since 2012, reaching 9.4 per cent in 2015. This percentage is considerably higher among young persons compared to the population in general (23.1 per cent in 2015). The Committee notes that, in 2015, the risk of poverty for workers with full-time jobs was 11.6 per cent, while for workers with part-time jobs the risk rose to 28.2 per cent. It also notes that the rate of long-term unemployment remains high, reaching 73.2 per cent in 2015. With respect to measures taken for the compilation of statistics and other data concerning the size and distribution of the labour force, the Committee notes with interest the establishment in 2016 of a Mechanism to Identify Labour Market Needs. Taking into account the persistent high levels of unemployment in Greece, the Committee requests the Government to provide more detailed information on how, pursuant to Article 2 of the Convention, it keeps under review the employment policies and measures adopted or undertaken to pursue the objectives of full, productive and freely chosen employment, in consultation with the social partners. It further requests the Government to include information on the measures taken or envisaged to address the national employment situation and to provide information, including statistical information disaggregated by sex and age, on the impact of employment initiatives adopted within the implementation of an active employment policy, including on the impact of the measures taken to promote the integration of the long-term unemployed in the labour market. The Committee requests the Government to continue to provide statistical data disaggregated by sex and age concerning the size and distribution of the labour force, including the size of the informal economy and employment trends in relation to employment, unemployment, and visible underemployment.

Workers vulnerable to decent work deficits. The Committee notes the information provided by the Government concerning targeted employment measures for specific groups of persons vulnerable to decent work deficits. In this respect, the Government is implementing subsidy programmes to provide financial assistance to employers in order to encourage recruitment and job retention of unemployed people with disabilities, ex-addicts, ex-convicts, disadvantaged persons, and very disadvantaged persons. The Committee notes that disadvantaged persons are defined by the Government as those who during the last six months were not employed for more than one month in a full-time regularly paid job, graduates of compulsory education schools who have not completed secondary education, or have not attended any vocational training programmes, people over 50 years old, and leaders of single-parent families, while very disadvantaged persons are defined as those who are holders of a valid unemployment card for a period of at least 24 months, young delinquents or young people at social risk. The Committee requests the Government to provide updated information on the nature and impact of measures taken to promote full, productive, freely-chosen and sustainable employment for persons vulnerable to decent work deficits.

Youth employment. The Committee notes that youth unemployment rates have steadily decreased, but still remain alarmingly high. According to data from the Hellenic Statistical Authority (ELSTAT), the unemployment rate among young persons aged 15 to 24 decreased from 51.9 per cent in 2015 to 50.9 per cent in 2016. According to the ILOSTAT database, the youth unemployment rate was 43.6 per cent in 2017. The Government indicates that facilitating access to employment for young persons up to 29 years old is one of its priorities. The Committee notes the information provided by the Government in relation to a series of employment activation programmes, implemented in the framework of the Youth Guarantee scheme, which aim to increase the employability of young people, to enable them to be more competitive and facilitate their reintegration into the labour market. In this respect, the Committee notes, inter alia, the entry vouchers and apprenticeship programmes provided to young persons aged 15 to 24. It also notes the subsidy programmes for the acquisition of work experience and employment integration of young people and the training and accreditation programmes, implemented under the Youth Employment Initiative, established within the framework of the Youth Guarantee. The Government indicates that the “brain drain” phenomenon has become a matter of increasing concern given that, according to data from the Bank of Greece, from 2008 to 2013, almost 223,000 young persons aged 25 to 39 permanently left the country in search of better paid employment and better social and financial prospects in foreign labour markets. The Committee notes that, while the Government’s report provides detailed information concerning problems identified and intended actions, it does not contain information regarding the outcomes of specific programmes. Noting the persistent high levels of youth unemployment, the Committee requests the Government to provide detailed information on the results of the measures adopted to address youth unemployment as well as the challenges encountered. The Committee also requests the Government to continue to provide statistical information on trends in youth employment, disaggregated by gender and age. The Committee requests the Government to provide information on measures taken or envisaged with a view to reversing the “brain drain” phenomenon.

Older workers. The Committee notes that older workers are disadvantaged compared to other categories of workers, as the participation rate in the labour market for persons belonging to the age group 55 to 64 is considerably lower than the rate for persons aged 15 to 64. The Government indicates that the unemployment rate for older workers stood at 34.3 per cent in 2015. Women aged 55 to 64 had even higher unemployment rates (29.6 per cent in 2015). The Government refers to a number of measures to promote the employment of older persons, including the provision of financial support to employers in order to encourage them to employ older workers. The Committee requests the Government to provide information on other measures adopted to increase the employability of older workers and promote their integration and retention in the labour market, as well on their impact.

Women’s employment. The Committee notes that the unemployment rate for women continues to be higher than that for men. According to the ILOSTAT database, in 2017, the unemployment rate for women stood at 26.1 per cent, compared to 17.8 per cent for men, while the unemployment rate for young women was 48.2 per cent, compared to 39.3 per cent for young men. The Committee further notes that part-time employment is more widespread among women (13.1 per cent in 2015 compared to 6.7 per cent among men). The Government emphasizes that strengthening female employment constitutes a priority axis of its new National Action Plan for Gender Equality 2016–20. The Committee notes the information provided by the Government regarding the project “Supporting Female Employment by Fostering Entrepreneurship” which seeks to offer multiple employment opportunities to women and assistance to enable them to set up their own businesses. The Committee also notes the subsidy programme to support new freelance professionals, especially women. Recalling the 2003 ILO Global Report Time for equality at work, which points out that the “interplay of identities results in experiences of exclusion and disadvantage that are unique to those with multiple identities”, the Committee observes that women who also belong to disadvantaged groups face double discrimination. Noting the higher rates of unemployment for women, the Committee requests the Government to provide information on the nature and impact of measures adopted with a view to promoting the employment of women, particularly women who belong to disadvantaged groups or older female workers, as noted above, to enable them to access decent and lasting employment at all levels and across all economic sectors.

Education and training policies and programmes. The Government indicates that upgrading and expanding vocational education and training is among its key priorities. The Committee notes the conclusion of the “National Strategic Framework for the upgrade of vocational education and training and apprenticeships”. The Government refers to a series of actions implemented by the OAED in the context of vocational training, including the operation of 51 occupational schools of secondary education offering apprenticeships, the provision of vouchers to improve the labour market relevance of tertiary education for the unemployed, training vouchers, labour market entry vouchers and reintegration vouchers for unemployed people, especially for young people. The Committee also notes that the employment programmes implemented in the context of the Operational Programme “Human Resources Development, Education and Life-Long Learning 2014-2020”, focus on the design and implementation of programmes to upgrade human resources knowledge and skills especially for persons with low qualifications seeking to enter or reintegrate into the labour market. The Government indicates that the Mechanism to Identify Labour Market Needs aims to improve the links between education and training and labour market needs. It provides input to the bodies responsible for designing and implementing employment and training programmes to eliminate skills mismatches. The Committee requests the Government to provide updated information on the number of persons participating in educational and training programmes and the impact of these programmes on productive and lasting employment opportunities for young people. It also requests the Government to provide information on the impact of the Mechanism to Identify Labour Market Needs on the design of policies on vocational education and training and human resources development.

Promotion of small and medium-sized enterprises (SMEs). Entrepreneurships. The Committee notes the information provided by the Government on the measures to promote SMEs, in the context of the Operational Programme “Competitiveness and Entrepreneurship of the National Strategic Reference Framework 2007-2013”. The Government refers to the establishment of the social entrepreneurship and social economy, the creation of the policy coordinating body for the development of social economy, as well as the establishment of the social Entrepreneurship Fund and the Central Support Mechanism for the Development and Promotion of Social Enterprises. The Government indicates that the necessary framework shall be finalized for the promotion of social economy, during the programming period 2014–20 and in accordance with the “Strategic Plan for the Development of Social Entrepreneurship”. The Committee requests the Government to provide information on the measures taken to improve the business environment with a view to supporting the development of SMEs and creating employment opportunities for the unemployed. It also requests the Government to provide information on the finalized framework for the promotion of the social economy. Referring to the Promotion of Cooperatives Recommendation, 2002 (No. 193), it requests the Government to provide information on the measures taken to promote productive employment through cooperatives.

Modernization of labour market institutions. The Government indicates that, during the 2007–13 period, the OAED began to redefine its operational model, aiming at the overall reform of the Public Employment Service. The Committee notes, among other achievements of the reform, the operation of the first fast-track Employment Promotion Centres and the creation of the first consortiums with social agents, manpower companies and large companies for the training of jobseekers. The Government indicates that, during the 2014–20 period, actions concerning the OAED reorganization were to be financed, on the basis of the agreed Action Plan with the European Union. It adds that it will provide more detailed information concerning the effectiveness of the reorganization of the labour market institutions in its next report. Referring to its 2016 direct request on the Employment Service Convention, 1948 (No. 88), the Committee requests the Government to provide further information on the effectiveness of the reorganization of its labour market institutions.

Article 3. Participation of the social partners. The Government indicates that the Mechanism to Identify Labour Market Needs operates in continuous consultation with representatives of productive bodies and public organizations. In this respect, the Committee notes that, five of the signatories to the National General Labour Collective Agreement participate in the Coordination Committee and the Operational Network of Bodies for the Mechanism to Identify Labour Market Needs. It also notes that the social partners, in the context of the Mechanism, carried out an employer and employee survey throughout the country in order to assess vacant posts and the adequacy of the skills of the labour force, with a view to identifying mismatches between occupations and skills. The GSEE maintains that tripartite dialogue processes remain superficial and have not been restored in practice adding that successive legislative interventions were undertaken with no regard for social dialogue. It also notes that, in November 2015, all the national social partners agreed on a joint policy paper on “Strengthening the effectiveness of tripartite social dialogue”, which was sent along with the joint policy papers on “Social dialogue and vocational education and training issues” and “Social dialogue and discrimination at the workplace” to the Ministry of Labour, but were never taken into consideration. The GSEE also expresses its concern regarding its exclusion from the National Vocational Education and Training Committee, which was established in 2017. The GSEE highlights the processes relating to technical assistance programmes under the auspices of ILO, especially the undeclared work programme, where the presence of the ILO officials and the consistent monitoring of the procedure ensured the participation of social partners in tripartite social dialogue procedures. The Committee reiterates its request that the Government provide specific information on the manner in which representative organizations of workers and employers and other stakeholders are consulted concerning the formulation and implementation of active employment policies, and the manner in which their support is ensured in the development and implementation of such policies.