Direct Request (CEACR) - adopted 2025, published 114th ILC session (2026)

Employment Policy Convention, 1964 (No. 122) - Austria (Ratification: 1972)

The Committee notes the observations made by the Federal Chamber of Labour (BAK) transmitted together with the Government’s report. The Committee requests the Government to provide its comments in this regard in its next report.

Articles 1 and 2 of the Convention. Employment trends and active labour market measures. The Committee notes the detailed statistical information submitted by the Government. The Government indicates that in 2023, Austria had a total unemployment rate of 5.1 per cent (men: 5.3 per cent, women: 4.9 per cent) and that the employment rate of older workers (persons aged between 55 and 64) was of 57.3 per cent, while the employment rate among young persons (aged 15 to 25) was 53.1 per cent. The Government explains that the European Employment Strategy (EES) is implemented through the following four steps: the employment guidelines of the Member States; the Commission’s Annual Growth Survey (AGS) and the Joint Employment Report (JER); the National Reform Programmes (NRPs) of the individual countries; and the Country-Specific Recommendations (CSR). The Committee notes in particular: (i) Austria’s National Recovery and Resilience Plan, which identifies horizontal priorities (such as gender equality, equal opportunities, social and territorial cohesion, and creation of employment) that all components of the plan are meant to address; and (ii) the National Reform Programme 2024, which addresses selected reforms Austria has undertaken in order to implement the challenges described in the CSR. In its observations, the BAK emphasizes that in April 2024, 11.1 per cent more people were registered as unemployed or in training than in the same month the previous year. The BAK considers that there should be an increase in unemployment benefit to a net replacement rate of 70 per cent, combined with a corresponding valorization of unemployment insurance payments, and that the period for which benefits can be drawn should be extended to nine months. The BAK states that in many cases, the workers available on the labour market do not possess the professional skills companies expect. The BAK considers that although the Government has taken some positive measures, namely the introduction of the nursing grant (“Pflegestipendium”), the extension of the skilled workers’ grant (“Fachkräftestipendium”) and the redesign of the education bonus (Bildungsbonus), there is an urgent need for further actions.

The Committee requests the Government to continue providing detailed, updated information on employment trends and active labour-market measures (ALMMs), disaggregated by sex, age, migration status and region. In particular, please indicate: (i) measurable outcomes of key programmes in terms of job placements, employment sustainability and transitions to regular employment; (ii) mechanisms used to evaluate their effectiveness and cost-efficiency; and (iii) coordination of ALMMs with Austria’s National Reform Programme, the National Recovery and Resilience Plan and the European Employment Strategy to ensure coherence with the objective of full, productive and freely chosen employment.

The Committee further requests information on regional employment disparities, including job-vacancy rates, skill-mismatch indicators and job-to-job mobility, and on measures taken within the National Employment Policy to address such imbalances. Please also indicate how employment-policy measures are linked to structural reforms in labour costs, taxation and incentive schemes to promote the creation of quality employment and prevent the persistence of low-wage traps.

The Committee also requests up-to-date information on the evolving skill composition of the Austrian labour market and on how the Public Employment Service (AMS) and training providers adapt placement and training policies to emerging needs, including digital and green sectors. Please also indicate how the employment policy integrates the green transition, in particular through: (i) assessment of job-loss risks in high-emission sectors; (ii) promotion of employment in low-emission sectors; and (iii) reskilling and upskilling programmes for workers affected by structural change.

The Committee asks the Government to communicate indicators of job quality and mobility – such as the share of jobseekers moving into full-time, permanent employment, and job-to-job transition rates after six and twelve months – disaggregated by sex, age (particularly 45+) and employment status (part-time/full-time). Please also describe measures to address the persistently high part-time employment of women and limited mid-career mobility.

Finally, the Committee requests information on consultations held with employers’ and workers’ organizations concerning the design and review of employment programmes, and on any measures envisaged to address the skills mismatches identified by the Federal Chamber of Labour (BAK).

Older workers. The Committee notes the detailed information submitted by the Government on the numerous measures adopted to minimize long-term unemployment affecting older workers, including social enterprises like socio-economic enterprises (“Sozialökonomische Beschäftigungsbetriebe”, SÖB), non-profit employment projects (“Gemeinnützige Beschäftigungsprojekte”, GBP), integration assistance (“Eingliederungsbeihilfe”), wage subsidies (“Kombilohn”), and counselling and support projects. The Government adds that the Austrian Public Employment Service (AMS)’s priorities in subsidizing employment for older jobseekers are the “50+ Employment Initiative” (“Beschäftigungsinitiative 50+”), social companies (including the circular economy) and the integration assistance (a wage subsidy for companies). The Government explains that the “Kombilohnbeihilfe” wage subsidy programme is an important instrument in incentivizing unemployed persons over the age of 50, in particular, to take up work. In its observations, the BAK maintains that older workers are still disproportionately affected by long-term unemployment (more than half of all persons in long-term unemployment are aged over 50) and are regularly subject to discrimination during the application process. In the opinion of the BAK, it is unclear to what extent increasing the minimum age of the “semi-retirement scheme” (“Altersteilzeitregelung”) will contribute to the intended expansion of age-appropriate employment options. In the BAK’s opinion, working conditions that increase the number of healthy years workers can expect must be ensured and promoted. The BAK states that despite the alarming figures, there is no access to treatment for mental illnesses as there is for physical illnesses and that currently available psychotherapeutic treatment offerings can only treat half of the affected persons registered. The Committee requests the Government to continue providing updated, detailed information on the nature, scope and impact of measures adopted or envisaged to promote the employment of older workers, particularly the long-term unemployed and those exposed to intersectional discrimination. Please include evaluation results or monitoring data on the effectiveness of the “50+ Employment Initiative”, “Kombilohnbeihilfe”, and other wage-subsidy and counselling schemes in securing lasting employment for this group. The Committee further requests information on measures taken to combat age-based discrimination in recruitment and to promote healthy, age-appropriate working conditions that extend employability and prevent early labour-market exit.

Education and training. The Committee notes the detailed information provided by the Government on the different education and training mechanisms available for workers and jobseekers. The Government indicates that different vocational training legislation has been amended, including: (1) the revision of the Vocational Training Act (“Berufsausbildungsgesetz”, BAG) (BAG-Novelle 2022), Federal Law Gazette I No. 86/2022; (2) the revision of the Labour Market Policy Financing Act (“Arbeitsmarktpolitik-Finanzierungsgesetz”) (AMPFG-Novelle 2022), Federal Law Gazette I No. 185/2022; (3) the revision of the Vocational Training Act 2023, Federal Law Gazette I No. 62/2023; and (4) the Act on Higher Vocational Education and Training (“Bundesgesetz über die höhere Berufliche Bildung” (HBB-Gesetz)), Federal Law Gazette I No. 7/2024. The Government points out that increasing skills among persons with low skills and the initial and further training of skilled workers is being achieved through general programmes to promote employment, like the integration subsidy (“Eingliederungsbeihilfe”, EB), as well as through more specific programmes. The Government indicates that the “Strategy Committee on International Skilled Workers” (“Strategieausschuss internationale Fachkräfte”) was created in order to combat the increasing shortage of skilled workers through even closer collaboration. The Committee also notes his recent comments addressed to Austria concerning the Human Resources Development Convention, 1975 (No. 142). In its observations, the BAK maintains that although the AMS provides a large number of measures to address the problem of a lack of employment options for persons with low levels of educational attainment, many jobseekers are not eligible to take advantage of them. The BAK observes that the Government has announced the introduction of a training account (“Bildungskonto”), but it has not been implemented yet. The BAK considers that the skilled workers’ grant (“Bildungskarenz”) should be used to help meet Austria’s need for well-trained workers. While the BAK welcomes the extension of that grant, it regrets that it will expire on 31 December 2025. The Committee requests the Government to continue to provide updated information on the nature, scope and impact of the education and training measures implemented, including those arising from recent legislative amendments (BAG-Novelle 2022 and 2023, AMPFG-Novelle 2022, HBB-Gesetz 2024). Please indicate how these measures are coordinated with national employment objectives and the work of the Austrian Public Employment Service (AMS) to ensure that training responds to current and future labour-market needs.

The Committee further requests the Government to provide information on: (i) progress in establishing the announced “training account” (Bildungskonto) and its expected impact on lifelong learning; (ii) the number of participants and employment outcomes of training programmes targeting low-skilled and unemployed persons; and (iii) the operation and results of the Strategy Committee on International Skilled Workers in addressing skills shortages.

Youth employment. The Committee notes the Government’s detailed information on training measures and labour market policies for young persons, which include, among others the following: (1) in-company apprenticeship positions in accordance with the Vocational Training Act from the Insolvency Remuneration Fund (“Insolvenzentgeltfonds”, IEF); (2) the “Education until 18” (“AusBildung bis 18”) scheme to support young persons in attaining further qualifications; (3) the “Strategic Measures Plan to Combat Skilled Worker Shortages” (“Strategische Maßnahmenplan gegen den Fachkräftemangel”); (4) the “Intensive Programme for the Integration of Persons Entitled to Asylum or Subsidiary Protection” (“Intensivprogramme zur Integration von Asylberechtigten und subsidiär Schutzberechtigten)”; and (5) the “Ready for Education and Training” (“AusbildungsFit”) initiative, aimed at young persons who, upon completion of their school education, need additional time and support to prepare for their initialvocational training. The Government indicates that every young person who cannot be placed in an in-company apprenticeship position in a company is guaranteed a place in a supra-company training institution (“überbetriebliche Ausbildungseinrichtung”, ÜBA), which offers training equal to an apprenticeship right through to the final apprenticeship examination. The Government further indicates that the number of unfilled apprenticeship places nationwide was calculated as 8,061 at the end of December 2023. The Committee requests the Government to continue providing detailed information on the vocational-education and employment-promotion measures for young persons, including “Education until 18”, “AusbildungsFit”, “Strategic Measures Plan to Combat Skilled Worker Shortages” and the integration programmes for young refugees and asylum beneficiaries. Please include disaggregated statistical data on participation, completion and placement rates, as well as information on how these initiatives facilitate transitions from education or training to stable employment. The Committee further requests information on coordination between the AMS, schools and enterprises in the design of these programmes, and on consultations held with youth organizations and social partners.

Women. The Government indicates that one of its goals is for more women to work in future-oriented fields with higher earning opportunities and that women are assigned a higher labour market funding budget relative to the percentage of the unemployed population they make up. The Committee notes the detailed information submitted by the Government on the measures adopted to increase the participation of women in the labour market. These measures include: (1) the “Women in Trades and Technology” (“FiT – Frauen in Handwerk und Technik”), which enables women to complete training in skilled trades and technical professions, including green jobs; (2) the “Support for returning to work” (“Wiedereinstieg unterstützen”) programme, which provides support from specially qualified counsellors for persons returning to work after parental leave; (3) the “Women’s Career Centres” (“Frauenberufszentren” (FBZ)), which provides comprehensive counselling and services to women interested in gaining a qualification; and (4) the “Job Navi” scheme for young mothers with care responsibilities, which was extended for a further year and enables young mothers without a completed apprenticeship to complete one through the AMS. The Government adds that the Kinderbetreuungsbeihilfe, a supplement from the AMS to help with the costs of work-compatible childcare, makes it financially easier for persons with dependent children, primarily women, to access the labour market, take part in training, or secure employment. The Committee requests the Government to continue providing updated, detailed information on the nature, scope and impact of measures to promote women’s participation in the labour market, including in non-traditional and higher-paying sectors. Please include sex-disaggregated data on beneficiaries and employment outcomes of programmes such as “Women in Trades and Technology (FiT)”, “Support for Returning to Work”, “Women’s Career Centres” and “Job Navi”. The Committee also requests information on the monitoring and evaluation of these measures, particularly regarding improvements in women’s earnings, career progression and access to full-time and permanent employment, as well as on measures to ensure adequate childcare and work-life-balance support.

Persons with a migration background. The Government indicates that in 2023, around 232,000 persons with migration backgrounds were supported by AMS funding measures (around 117,700 were women). The Committee notes the detailed information provided by the Government on the different funding programmes for persons with migration backgrounds, which include language support, (re)training or target-group-specific counselling. The Government indicates that ongoing efforts are being made to facilitate and accelerate the recognition of qualifications gained abroad. The Government indicates that persons displaced from Ukraine are issued with a Blue Card and, since 21 April 2023, have free access to the Austrian labour market. In its observations, the BAK considers that an active and integrative migration policy is required since a major flaw in Austria’s immigration strategy is the insufficient integration of immigrant workers and their families. In BAK’s opinion, for persons with migration backgrounds obtaining affordable accommodation and childcare places poses an even bigger challenge than it does for Austrians without a migration background. The Committee requests the Government to continue providing information on the nature, scope and impact of measures adopted to promote the integration of persons with migration backgrounds into the labour market, including language and skills-recognition programmes, targeted counselling and support for women migrants. Please provide outcome data – placements achieved, duration of employment, and career progression – and describe how these initiatives are coordinated with broader migration, housing and childcare policies to facilitate sustainable integration. The Committee further requests information on consultations with social partners and migrant-representative organizations in the design and monitoring of these measures.

Persons with disabilities. The Government indicates that the strategic orientation of the funding policy is no longer carried out a by a BABE (Berufsvereinigung der ArbeitgeberInnen privater BildungsEinrichtungen) but instead within the framework of the National Action Plan (NAP) on Disability 2022−2030 (Nationale Aktionsplan Behinderung 2022−2030). The Committee notes the detailed information on different funding support initiatives provided by the Government. The Committee also notes that the legislative amendment introducing the “Capable of Work Until 25” (“Arbeitsfähigkeit bis 25”) regulation means that, it has, since 1 January 2024, no longer been possible for the assessment centre (“Kompetenzzentrum Begutachtung”) to declare persons under the age of 25 permanently incapable of working. This change means that young persons and young adults whose capacity for work may be in question can register with and be mentored by the AMS and can utilize its services. While welcoming the “Capable of Work Until 25” regulation, the BAK considers that due to the Government’s restrictive budget for labour market policies, the AMS lacks the human and financial resources. The Committee requests the Government to continue providing detailed, updated information, including sex-and age-disaggregated data, on the nature and impact of measures to promote employment opportunities for persons with disabilities in the open labour market, including implementation of the “Capable of Work Until 25” regulation. Please include information on the number of young persons benefiting, placement rates and types of employment obtained, and on the resources allocated to the AMS to ensure effective mentoring and individualized support. The Committee also requests information on the monitoring and evaluation mechanisms under the National Action Plan on Disability 2022–2030 and their contribution to achieving inclusive employment outcomes.

The Committee encourages the Government to continue strengthening the coherence between its active labour-market, education, skills and inclusion policies to achieve full, productive and freely chosen employment for all groups. It requests that future reports provide both quantitative and qualitative evidence of impact and consultation with social partners and affected persons, in accordance with Articles 1 to 3 of the Convention.