Human Resources Development Convention, 1975 (No. 142) - Serbia (Ratification: 2000)

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

The Committee notes the Government’s report, as well as the observations made by the Confederation of Autonomous Trade Unions of Serbia (CATUS), received on 7 November 2018. The Committee requests the Government to provide its comments in this respect.

Articles 1(1)–(4) and 5 of the Convention. Formulation and implementation of education and training policies. Cooperation with the social partners. The Committee notes that the priorities established by the National Employment Action Plan for 2018 (NEAP 2018) include improving labour market institutions, improvement in labour force quality and investment in human capital, in order to build the capacities of the unemployed and reduce mismatches between demand and supply on the labour market. The Government adds that employment-related services provided by the National Employment Service (NES) and private employment agencies include vocational guidance and career counselling. In response to the Committee’s 2013 request, the Government indicates that institutions in the areas of education, employment, youth support and other stakeholders from the public sector and civil society collaborated in implementing the Strategy for Vocational Guidance and Counselling, the Strategy for the Development of Education in Serbia and the Strategy for the Development of Adult Education (SEDS) through a range of activities aimed at the development of an efficient system for vocational guidance and counselling. The Government reports that an evaluation of the first five years of implementation of the National Employment Strategy 2011–2020 showed significant improvement in the vocational counselling services provided by the NES. Moreover, the NES implementation procedures have been modernized, and instruments for employability assessment and further enhancement of individual employment plans were developed. In its observations, the CATUS indicates that, to establish a balance in offer and demand in the labour market, priority must be placed on improving the adult education system, vocational secondary education, higher education, and on the adjustment of vocational standards. In respect of cooperation with the social partners, the Government indicates that the NEAP is developed and implemented with the involvement of the social partners, relevant ministries, institutions and other stakeholders. Moreover, during the preparation of the NEAP 2018, the Ministry of Labour, Employment, Veteran and Social Affairs organized consultative meetings with the representatives of local self-government units and local employment councils, to obtain information concerning potential problems and obstacles encountered at the local level. The Committee requests the Government to continue to provide updated detailed information on the nature and impact of the vocational education, guidance and training policies and programmes adopted and implemented. The Committee further requests the Government to continue to provide specific information on the involvement of employers’ and workers’ organizations in the development, implementation, monitoring and review of such policies and programmes.

Article 2. Openness, flexibility and complementarity of systems. The Government reports that measures taken in the field of vocational education and training include the provision of job matching services for jobseekers, active job search training and job clubs, vocational guidance and career planning counselling, and further education and training for both unemployed and employed persons. The Government adds that its Annual Further Education and Training Programme for 2018 is based on labour market needs analysis, and promotes lifelong learning. The Committee notes that vocational counselling services for students, unemployed persons and employed persons who wish to change their employment are provided by all NES branch offices throughout Serbia, as well as in centres for information and vocational guidance, located in NES branch offices and local self-government units. The Government indicates that one of the most important measures taken to increase the relevance of education in Serbia is the adoption of the Law on the National Qualifications Framework in April 2018. The National Qualification Framework (NQF) seeks to orient the national education system towards learning outcomes that build competencies defined by qualification standards, and affirm the importance of key, general and cross-cutting competencies for lifelong learning. The Law establishes a National Qualifications Framework Council, which gives recommendations on the planning and development of human potential in accordance with public policies in the areas of lifelong learning, employment, vocational guidance and counselling. In addition, the Committee notes the adoption of the Law on Dual Education in November 2017, which establishes an educational model for the vocational secondary education system according to which students acquire competencies in accordance with qualification standards and school curricula, through lectures and practice in school as well as through working for an employer. The Committee notes that there was a significant increase in the number of spots for students in dual education from 1,482 in the 2017–18 school year to 3,500 in the 2018–19 school year. In addition, during the reporting period, service standards for career guidance and counselling were developing by a working group led by the Institute for the Improvement of Education, which are intended to improve guidance and counselling services provided to different target groups and sectors. The Committee requests the Government to continue to provide detailed updated information on the development of open, flexible and complementary systems of general, technical and vocational education, educational and vocational guidance and vocational training, as well as on the impact of such systems.

Articles 1(5) and 3. Specific categories of persons. The Government indicates that the educational system in Serbia is legally required to ensure inclusive education. It adds that, due to the need to improve the position of young persons, workers who were made redundant, workers with no or low qualifications, long-term unemployed persons and persons with disabilities, special service packages have been developed. These provide for inclusion in further education and training programmes, entrepreneurship training – particularly for young persons – and training in active job seeking, among other services. In its observations, the CATUS expresses the view that it is necessary to, among other measures, improve the quality of the labour force. The Committee notes that, in accordance with the NEAP 2018, active employment policy measures prioritize certain categories of persons deemed to be “hard to employ”. These include young people of up to 30 years of age, persons over the age of 50, persons with no or low qualifications, persons with disabilities, persons belonging to the Roma community and the long-term unemployed. Special priority is given to unemployed persons who simultaneously face multiple factors that affect their employability. The Committee notes the information provided by the Government regarding a series of professional rehabilitation activities implemented by the NES and educational institutions, among other actors, which seek to increase the employability of persons with disabilities. These activities include vocational guidance, professional information, counselling and individual employment plans, vocational training, further training and retraining. The Committee notes that in 2017, a total number of 8,621 unemployed persons with disabilities benefitted from active employment policy measures. The Government also prioritizes the inclusion of persons belonging to the Roma minority, referring to the development of a project on “Tools for Preventing Roma Dropout” in June 2018. With respect to young persons, the Committee notes that, in 2017, 4,977 persons under the age of 30 benefited from information and counselling services on entrepreneurship. The NES training “Road to Successful Entrepreneur” was completed by 3,262 persons under the age of 30. The Committee notes that, in 2017, 56,617 young people were included in active employment policy measures, with the most popular measures being active job search training (17,366 participants) and job fairs (19,893 participants). The CATUS observes that there are currently 22,000 unemployed persons with higher education degrees, affirming that the waiting time for a job according to official data is two years, but that in practice this period is twice as long. It also expresses the view that reforms in education and training in Serbia have not yet been fully implemented. The Committee requests the Government to continue to provide detailed up-to-date information on vocational training and vocational guidance measures for persons with disabilities, persons from the Roma community and young persons, as well as other categories of “hard-to-employ” persons. It also requests the Government to continue to provide detailed up-to-date information on measures taken to increase the participation of these categories of persons in education, including compulsory basic education. The Committee further requests the Government to provide detailed information, including disaggregated statistical data on the impact of such measures on access to lasting employment.

Article 4. Lifelong learning. The Government indicates that, in accordance with the NEAP 2018, it promotes lifelong learning, aimed at improving the competitiveness of the labour force. The Government refers to the Further Education and Training Programme, which is a component part of the annual National Employment Action Plan, and is adjusted to the demands of the labour market each year. The Committee notes that, within the Programme for Further Education and Training 2018, the following are realized: internship programmes, programmes for acquisition of practical knowledge for persons without vocational qualifications, workers made redundant and long-term unemployed persons by entering into an employment contract with a private sector employer, labour market training aimed at enhancing employability of unemployed persons, specialist IT training and training at the employer’s request. Vocational training programmes are offered to different target groups of young people, such as unemployed young persons who have completed their secondary education and have no work experience, as well as young people with no qualifications. The Government indicates that, by participating in the programme, young people acquire work experience and concrete practical vocational and general knowledge and skills, which is reflected in increased employability and competitiveness on the labour market. The Committee notes that, in 2017, more than 6,916 unemployed persons were included in the Further Education and Training Programme realized by the NES. The Committee requests the Government to continue to provide information on the nature and impact of the measures adopted to promote an inclusive system of lifelong learning.

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

Formulation and implementation of education and training policies. The Committee notes the Government’s report received in September 2013 as well as the observations made by the Union of Employers of Serbia, the Confederation of Autonomous Trade Unions of Serbia (CATUS) and the Labour Union Confederation “Nezavisnost”. The Government indicates that active employment policy measures are implemented by the National Employment Service (NES) pursuant to the National Employment Strategy 2011–20, the National Employment Action Plan adopted annually and the NES Work Plan. The Committee notes that in 2010 the Government adopted a Career Guidance and Counselling Strategy and Action Plan 2009–14. This Strategy and its Action Plan set goals for the establishment of a National Career Guidance and Counselling Programme in education and employment. The Committee also notes that major efforts are under way to further develop three Information and Professional Counselling Centres open to all NES beneficiaries and to establish new ones, including mobile centres in rural areas. The Committee invites the Government to include in its next report further information on the results of the measures taken to develop comprehensive and coordinated policies and programmes of vocational guidance and vocational training closely linked with employment and public employment services (Article 1(1)–(2) of the Convention). The Government is invited to include information on the bodies competent in the field of vocational guidance and vocational training, with an indication of the cooperation procedures that have been established between them (Article 1(1)–(4)). Please also provide further information on the National Career Guidance and Counselling Programme in education and employment.

Openness, flexibility and complementarity of systems. The Government provides details of its training programmes and highlights that the Ministry of Labour, Employment and Social Policy provides substantial support to the Ministry of Education, Science and Technological Development in its efforts to develop vocational education. The Committee invites the Government to continue providing up-to-date information on the ways in which open, flexible, and complementary systems of general, technical and vocational education, educational and vocational guidance and vocational training have been developed (Article 2).

Youth employment and training. The Government indicates that the National Employment Strategy 2011–20 and the National Employment Action Plan 2013 define programmes and measures to promote youth employment, including through counselling, internships and support to young entrepreneurs. The Committee takes note that in 2013 the NES implemented the “Work Placement Programme” aimed exclusively at young unemployed people, enabling them to gain practical knowledge and skills for self-employment in a chosen vocation or to take a licensing or professional examination. The Committee invites the Government to provide detailed information on the results achieved with regard to vocational training and vocational guidance through the programmes and measures to promote youth employment included in the National Employment Strategy 2011–20, the Action Plan 2013 and in the “Work Placement Programme”.

Vulnerable groups. The Committee notes that in 2012 persons with disabilities were involved in various active employment policy measures, including training to more than 1,200 persons, career counselling to more than 700 persons, and subsidies granted to employers to create new jobs for more than 150 persons. The Committee also notes that the NES is to establish cooperation with the Forum of Young People with Disabilities, the Beli Stap Association, primary and secondary schools and other partners. The Committee invites the Government to continue to provide in its next report information on the policies and programmes intended to promote access to education, training and lifelong learning for people with special needs (Paragraph 5(h) of the Human Resources Development Recommendation, 2004 (No. 195).

Cooperation with the social partners. The Government indicates that it cooperates with its social partners and other relevant institutions when drafting strategic and operational documents, such as the National Career Guidance and Counselling Programme in education and employment. It also indicates that the NES continues to cooperate with schools and other partners as part of the Professional Orientation Programme in Serbia. The Committee notes the concern expressed by the Union of Employers of Serbia at the lack of their involvement in the development of strategic documents on the development and promotion of the education system. The Union of Employers highlights the need to reform the education system and stresses that all social partners have a significant role to play. The CATUS reiterates its concern previously expressed as to the necessity to adjust the Serbian education system to the new trends emerging in the contemporary economic and social context. The “Nezavisnost” points out that, although present policies and programmes have been designed with the involvement of the social partners, they fail to give satisfactory results in practice because these policies do not take into account the employment needs and government institutions that implement them without consulting other stakeholders. The Committee reiterates its previous comments and invites the Government to indicate, in its next report, the specific measures adopted to ensure the collaboration of the employers and workers and other interested bodies in the formulation and implementation of vocational guidance and vocational training policies and programmes, so as to fully take into account their experiences and views (Article 5).

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

The Committee notes the Government’s report received in September 2008 in reply to its 2005 direct request as well as the comments made by the Confederation of Autonomous Trade Unions of Serbia (CATUS). The Committee also notes the Government’s reply to the questionnaire for the General Survey on employment received in May 2009.

1. Formulation and implementation of education and training policies. The Government states in its report that the ability of the educational system to meet the needs of the labour market has become one of the major strategic issues for Serbia. Several crucial problems have been identified in the last few years, such as youth employment, accreditation and certification of skills, adult education, social partners’ involvement in decision-making within the educational system, and the definition of a human resources strategy. The Committee notes the concern expressed by CATUS as to the necessity to adjust the Serbian education system to labour market requirements and employers’ needs, and more generally as to the new trends emerging in the contemporary economic and social context. The Committee notes that human resources development is identified as one of the national priorities under Serbia’s poverty reduction strategy, the National Employment Action Plan for 2006–08 and the National Sustainable Development Strategy 2008–13, with the aim of promoting the creation of a knowledge-based economy providing a high standard of living and full and quality employment. The Committee invites the Government to provide in its next report information illustrating the way in which it ensures effective coordination between the programmes of vocational guidance and training implemented and employment (Article 1(1) of the Convention). The Government is also invited to include information on the bodies competent in the field of vocational guidance and vocational training, with an indication of the cooperation procedures that have been established between them
(Article 1(1) to (4)).

2. Openness, flexibility and complementarity of systems. In its report, the Government refers to the Strategy of Development of Secondary Vocational Education and the Strategy of Development of Adult Education which were adopted in 2006 in the context of the reforms undertaken to modernize the education and training system. The two strategies are deemed to be complementary and harmonized with the concept of lifelong learning. The Committee notes that the Serbian vocational education and training system as well as adult education policies are currently being re-aligned to European Union standards. The Committee asks the Government to provide up to date information on the ways in which open, flexible and complementary systems of general, technical and vocational education, educational and vocational guidance and vocational training have been developed (Article 2).

3. Youth employment and training. The Committee notes that a National Youth Employment Policy and Action Plan 2009–11 has been prepared with the assistance of the ILO. A key outcome is to promote youth employment by enhancing the employability of young people, in particular through the development of an employment-oriented training system as well as better targeted active labour market policies, including motivation and career orientation training as well as enterprise-based training. The Committee notes from the analysis carried out in the Country Review of Employment Policy on Serbia, prepared by the ILO and the Council of Europe in 2006, that the content and quality of the skills and knowledge offered by the Serbian education system to young people do not meet employers’ needs and that young people, especially youth with low educational and training levels and those living in rural areas, are insufficiently covered by active employment measures. The Committee invites the Government to provide detailed information on the results achieved with regard to vocational training and vocational guidance through the measures taken to promote youth employment, particularly as regards young people with few or no qualifications and those living in rural areas.

4. Vulnerable groups. The Government reports that active employment policy measures implemented by the National Employment Service include education and training programmes, job mediation, professional orientation and job counselling with the purpose of ensuring a balance between labour demand and supply. Specific reference is made to training programmes promoting entrepreneurship. The Committee notes that under the new human resources development policies and programmes an effort is being made to refocus active labour market policy measures so as to reach in particular persons belonging to socially vulnerable groups. The Committee invites the Government to provide in its next report additional information on the policies and programmes intended to promote access to education, training and lifelong learning for people with special needs (Paragraph 5(h) of the Human Resources Development Recommendation, 2004 (No. 195)).

5. Cooperation with the social partners. The Committee notes CATUS’ remark that issues relating to employment and human resources development, although being vital for the country, are not submitted to tripartite consultation within the Economic and Social Council. The Government indicates in its report that the Economic and Social Council regularly examines education and training issues. The Committee asks the Government to indicate the measures adopted to ensure the collaboration of the social partners and other interested bodies in formulating and implementing vocational guidance and vocational training policies and programmes. The Committee asks the Government to supply additional information on the consultations held within the framework of the Economic and Social Council and at local level regarding the questions covered by the Convention (Article 5).

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

The Committee notes that the Government’s report for the period ending July 2003 contains information of a general nature which only relates to the Republic of Serbia. It asks the Government to provide a detailed report for the whole of the country containing full information in reply to each of the questions in the report form approved by the Governing Body. The Committee asks the Government to ensure that its next report contains the necessary information on the following aspects of the application of the Convention, in both the Republic of Serbia and in the Republic of Montenegro.

1. Close link with employment. Please indicate the various bodies that are competent in the field of vocational guidance and vocational training, with an indication of whether formal cooperation procedures have been established or are envisaged between them. Please indicate the manner in which it is ensured that policies and programmes of vocational guidance and vocational training are closely linked with employment prospects (Article 1, paragraphs 1 to 4, of the Convention).

2. Openness, flexibility and complementarity of systems. Please provide a full description of the systems of general, technical and vocational education, educational and vocational guidance and vocational training. Please indicate the manner in which the complementarity is ensured of initial and further vocational training activities which take place within and outside the school system (Article 2).

3. Vocational guidance. Please describe the measures adopted to ensure that comprehensive and updated information and the broadest possible guidance are made available to all children, young persons and adults. Please describe the types of information made available and provide examples of the documentation made available (Article 3).

4. Vocational training. Please provide detailed information on the measures adopted or envisaged to extend initial and further vocational training systems and to adapt them to changing requirements, in accordance with Article 4 of the Convention.

5. Cooperation of employers’ and workers’ organizations. Please describe the measures adopted to ensure the cooperation of employers’ and workers’ organizations and, where applicable, other interested bodies in the formulation and implementation of vocational guidance and vocational training policies and programmes. Please provide detailed information on any consultative machinery which may have been instituted for this purpose.

6. Application in practice. Please provide any extracts of reports, studies, inquiries or statistical data which make it possible to assess the effect given to the provisions of the Convention in practice (Part VI of the report form).