Direct Request (CEACR) - adopted 2020, published 109th ILC session (2021)

Direct Request (CEACR) - adopted 2017, published 107th ILC session (2018)

Direct Request (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)

The Committee notes the information contained in the Government’s report received in October 2008, incorporating the observations made by the Norwegian Confederation of Trade Unions, as well as the replies to its 2007 direct request.

Articles 1 and 2 of the Convention. Active labour market measures. The Government recalls that after a recession in 2002 and 2003, the strong economic upturn continued until the first half of 2008, when the unemployment rate reached an all time low of 2.5 per cent, the lowest among all members of the Organisation for Economic Co-operation and Development (OECD). The number of registered full-time unemployed fell to 46,000 persons in 2007, of which 25 per cent were out of work for over six months, and less than 10 per cent were long-term unemployed, which was well below the OECD average. Among the registered unemployed, less than half received unemployment benefits, and a small additional proportion of recipients benefited from other benefits such as rehabilitation benefits. The Committee notes the Government’s explanations that the rapid employment growth after 2005 resulted in a higher labour force participation rate in the Norwegian population, lower unemployment rates and an increase of labour immigrants. However, the Committee remains concerned about the low unemployment rate and the high share of welfare benefit recipients, amounting to 18 per cent of the population as indicated in the 2009 OECD Social, Employment and Migration Working Papers No. 78. In this regard, the impact of the merger of the Public Employment Service (NAV) and the National Insurance Service, which will be completed by 2010 and result in the establishment of the Labour and Welfare Organization, is a focus of the Committee’s interest. The Committee asks the Government to provide an evaluation in its next report of the impact the merger of the NAV and the National Insurance Service is having on increasing participation in the labour force. The Committee also invites the Government to provide information in its next report on how the measures adopted to support employment lie within the framework of a coordinated economic and social policy (Article 2(a)).

Vulnerable categories of workers. Considering work and participation in the labour market as an important strategy to counteract poverty and social exclusion, the Government continued to use measures to promote employment for vulnerable categories of workers. As compared to 2006, the OECD data for 2007 show increases in the participation rates of women by 1.2 percentage points to 73.1 per cent (men: 79.5 per cent), while this group’s unemployment rate fell by one percentage point to 3.4 per cent, which is even lower than that of men with 3.6 per cent. The participation rate of young persons aged between 15 and 24 years increased by 2.9 percentage points to 55.8 per cent. The Government reported that, from the first quarter of 2007 to the first quarter of 2008, the participation rates increased by 1.4 percentage points for workers between 55 and 66 years and 0.7 percentage points for workers between 67 and 74 years. The Government’s measures to increase the participation rate included policies such as the “day-by-day labour market policy”. The Government introduced a new pension system, aimed at providing incentives for older persons to extend their working career; programmes to help long-term unemployed persons into work, for example, through a wage subsidy. It also adjusted procedures for immigration from outside the EEA, especially for persons from the new EU Member States. The Committee would welcome receiving information in the Government’s next report on the impact of the abovementioned measures on promoting employment and achieving lasting integration of vulnerable categories of workers into the labour market.

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

1. The Committee takes note of the detailed information contained in the Government’s report, received in October 2006 which included informative documents such as the Government Paper “Increasing female employment rates through flexible working arrangements: Norwegian Policy”, and the booklet A new employment and welfare administration.

2. Articles 1 and 2 of the Convention. Labour market policies. The Government indicates that, following a recession in 2002 and 2003, there was strong economic growth over the following three years. This flowed on into the labour market with the highest number of persons in employment being reached at the beginning of 2006. According to the Organisation for Economic Co-operation and Development (OECD) statistics, 78.9 per cent of the population (15–64 years) participated in the labour force in 2005. Correspondingly, the unemployment rate has declined for all occupational groups and with the decline most pronounced in the manufacturing and construction industry as well as in engineering and information and communications technology occupations. At the end of May 2006, the unemployment rate stood at 2.5 per cent of the labour force. The main reason for economic inactivity among the working age population continued to be due to health related reasons. In 2005, the number of persons on disability benefits accounted for 11 per cent of the working population. The aim of Norwegian labour market policy is to have an inclusive policy and ensure a satisfactory income level for everybody. The challenge is to keep unemployment, in particular long-term unemployment, at a low level by curbing exits from the labour force due to health-related problems and redirecting these persons into alternative employment. As of 1 July 2006, the Public Employment Service (PES), which implements the labour market policy, was merged with the National Insurance Service establishing the new Employment and Welfare Agency. The Committee takes due note of this information including the extension of the Tripartite Agreement for the period 2006–09, the objectives of which are to reduce sickness-related absence by 20 per cent, to increase the number of persons with reduced function capacity in employment and to raise the average pension age. The Committee asks the Government to provide information in its next report on the impact the merger of the PES and the National Insurance Service have had on increasing participation in the labour force and reducing the number of beneficiaries of disability benefits. Please also include information on the manner in which the measures adopted for the promotion of employment lie within the framework of a “coordinated economic and social policy” (Article 2(a)).

3. As regards labour force participation, the Government indicates that persons with an immigrant background still face greater problems in the labour market. To counter this, the Government places a greater emphasis on user-orientation and to tailoring efforts to the individual jobseeker. The special unit Aetat intro provides extended assistance to jobseekers with an immigrant background in some larger towns. Measures in which job practice and language tuition go hand-in-hand and are often seen as useful tools for immigrants. The Government implemented several new tools to combat racism and discrimination in the labour market. A new Equality and Anti-Discrimination Ombudsperson and Equality and Anti-Discrimination Tribunal were also established as was a separate Directorate of Integration and Diversity (IMDi), to ensure equality in living conditions and diversity through employment, integration and participation. The Committee would welcome to receiving in the Government’s next report information on the measures adopted to promote the employment of vulnerable categories of workers, such as women, young persons, older workers, ethnic minorities and workers with disabilities, and on the results achieved in terms of lasting integration into the labour market.

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

The Committee takes note of the detailed information contained in the Government’s report, received in October 2004, which describes the main trends in employment and provides data on specific groups in the labour market.

1. Labour market policies. The Government indicates that, while Norway has one of the highest labour market participation rates and one of the lowest unemployment rates in the Organisation for Economic Co-operation and Development (OECD), four years of slow economic growth have brought a levelling off and some decline of labour market participation and rising unemployment. However, in the second half of 2003, there were clear signs of economic recovery and this trend was expected to continue, bringing higher employment and falling joblessness. As of May 2004, the unemployment rate had fallen to 4.3 per cent. The Government points out that both the OECD and the International Monetary Fund (IMF) consider that the Norwegian labour market functions generally well, while expressing concern over the growth in the number of social security recipients. The Government indeed indicates that 12.3 per cent of the labour force receives disability pension, 3.5 per cent of the labour force is registered as vocationally handicapped and sickness absence represents 8.5 per cent of all days worked. In this regard, the Government insists that the vocationally handicapped are a priority group and a proactive rehabilitation process, in most cases using labour market measures, has been designed to get as many as possible back to work. In fact, a condition for receiving disability benefits is that vocational rehabilitation has been considered and tried out. The Committee takes due note of this information. With reference to its 2003 direct request, in which the Government had mentioned objectives of reducing absence due to sickness by at least 20 per cent over the period 2001-05 as well as ensuring that a significantly higher percentage of employees with impaired functional capacities are in employment, the Committee asks the Government to continue to provide information on the achievement of these objectives and how the key objectives of welfare policy and labour market policy are fulfilled.

2. As regards labour force participation amongst men and women, the Government indicates that, although women’s labour force participation rate is high (47.2 per cent of the work force), 42.6 per cent of employed women work part time compared with 12 per cent for men. However, in recent years, unemployment has shown wider fluctuation among men than women, mainly due to the fact that men are to a greater degree employed in manufacturing and competitively exposed sectors. The Government also indicates that low participation rate and high unemployment (9.6 per cent) weaken immigrants’ opportunity to become integrated in society. Therefore, the Government states that greater emphasis has been given to user orientation and to tailoring efforts and measures to the individual jobseekers, which is significant in terms of meeting immigrants’ particular needs. The Committee looks forward to receive, from the Government in its next report, an assessment of the impact of its active labour market measures, including information on the extent to which these measures have been successful in achieving its objectives of increasing the labour force and reducing unemployment.  Please also continue to include detailed disaggregated information on labour market trends (Articles 1 and 2 of the Convention).

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

1. The Committee notes the information contained in the Government’s report for the period ending May 2002, which describes the main trends in employment and provides detailed information on specific groups in the labour market. The Government recalls that, due to several years of rapid growth and rising employment rates, Norway has one of the highest employment rates and lowest jobless rates in the OECD area. It also indicates that the rise in the number of disabled persons has led to a decrease in the size of the labour force. During the reporting period, about 10 per cent of the working-age population claimed disability benefits and 2.7 per cent of the labour force was occupationally disabled and undergoing rehabilitation. Furthermore, data provided by the Government also indicates an increasing trend in the number of people leaving the labour force to receive disability pensions or make use of early retirement schemes. The Committee also notes that in October 2001 the Government and the social partners concluded an agreement with a view to achieving a more inclusive workplace. The agreement provides for cooperation with responsibilities shared between the Government and individual companies. The objectives of the agreement are: to reduce absence due to sickness by at least 20 per cent over the period 2001-05; to ensure that a significantly higher percentage of employees with impaired functional capacity are in employment; and to raise the average effective retirement age. The Committee notes that the objectives of this agreement, within the context of the Norwegian labour market situation, are of particular importance towards achieving the objectives of the Convention. Please continue to provide information on the implementation of this agreement and on its impact on the labour market. Please also include the information about the results of the survey that, as mentioned by the Government’s report, is being conducted to ascertain how key objectives of welfare policy and labour market policy are fulfilled.

2. The Committee notes that, while Norway has one of the highest female labour force participation rates internationally (69 per cent), it also has a relatively high proportion of women being employed in part-time work. Recent data from the Central Bureau of Statistics indicates that, in the second quarter of 2002, 44 per cent of employed females had a part-time job compared with 11 per cent among males. The data also indicates that, while the labour force participation rate increased slightly among women in 2002, the growth largely reflects an increase in part-time work. A large proportion of female employment is in the service sector and in particular in the health and education sectors. The Committee wishes to remain informed on developments in this respect, including any information on the Government’s design to ensure a supply of labour that matches the needs of the labour market.

3. The Committee would also appreciate receiving further details on the Government’s active labour market policy orientations with regard to the shortage of labour in several sectors of the economy (such as the health sector, construction and certain industrial branches) mentioned in the Government’s report. Please also continue to provide detailed disaggregated information on labour market trends and the impact of the rules introduced for calculating rehabilitation benefits and the insertion in the labour market of the working-age population (that is, 10 per cent of the population in 2001) that were claiming disability benefits.

Direct Request (CEACR) - adopted 2001, published 90th ILC session (2002)

The Committee notes the information contained in the Government’s report for the period ending 31 May 2000.

1. The Government states that the economy had slowed down in 1999, after a prolonged boom, but has started to pick up again. The labour force growth rate has slowed down, from an average of 2 per cent for 1995-1997 to about 0.6 per cent from 1998 to 1999, and was negative for men. Growth in jobs occurred mainly in the health and social services sectors. Growth in unemployment was 6.9 per cent from 1999 to 2000, and mainly affected men and older workers due to a slump in manufacturing. Unemployment decreased for workers over 60, due to increased use of early retirement and disability pensions. There was a slight increase in the number of partially employed.

2. The Government indicates in its report that unemployment increased 12.4 per cent for non-native speakers, due to an increase in the number of refugees admitted. The Government provides "individual action plans" for immigrants, which include language and vocational training and it works closely with the Federation of Norwegian Business and Industry, the Norwegian Federation of Trade Unions, the Federation of Norwegian Commercial and Services Enterprises. The Committee would appreciate continuing to receive indications on how far the employment difficulties of non-native speakers have been overcome.

3. Labour market programmes include wage subsidies, employment in public enterprises, job qualification programs, and temporary placement as a substitute for someone on leave. Special programs for people with disabilities include schooling, in-company rehabilitation, wage subsidies, and employment subsidies for public enterprises. Recruitment services are Internet-based. Please continue to provide information on the outcome of these measures, particularly regarding displaced workers.

4. The Committee also notes the comments of the Norwegian Oil Workers’ Federation, which expressed doubts about the accuracy of Aetat’s labour statistics. The Committee recalls the importance of accurate labour statistics for the development of appropriate employment policies and programs in applying Article 2 of the Convention. It asks the Government to continue to supply information on any action taken or envisaged to verify the accuracy of the statistics used.

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

The Committee notes the information contained in the Government's report for the period ending June 1998. The Government states that unemployment has decreased by around 17,000 between 1996 and 1997, and was continuing to decline into 1998. The greatest decline in unemployment was among youth (20-25 years of age). At the same time, the labour force expanded by 53,000 in 1996 and 46,000 in 1997. The OECD statistics indicate that the standardized unemployment rate dropped to 3.3 per cent in 1998, and was less than 3 per cent by the end of 1998.

The Government states in its report that the sharp increase in the number of vacancies and some labour shortages has challenged the Labour Market Service to mobilize sufficient labour. It is doing this through information, guidance, follow-up, recruitment assistance, placement and upgrading of skills. However, the Government identifies a continuing problem of discrimination against foreign-born workers, even those with good qualifications. The Committee notes the Government's intention to reduce the number of foreign-born unemployed through placements, upgrading of skills, training and wage subsidies, and would appreciate receiving further information on the Government's progress in this respect, including details on the levels and trends of employment of this particular category of workers, as requested in the report form under Article 1 of the Convention. It also draws the Government's attention to the prohibition against discrimination based on national extraction contained in the Discrimination (Employment and Occupation) Convention, 1958 (No. 111), which Norway has ratified.

The Confederation of Trade Unions in Norway (LO) considers the Government's report to be thorough but would add that the labour market outlook is now poor. The LO believes that unemployment will grow in 1999. The Committee notes these comments, and asks the Government to keep it informed of changes in the labour market, and of the Government's response, as requested in the report form under Article 1.

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

1. The Committee took note of the Government's report for the period ending June 1996, which describes the main trends in employment and provides some more detailed information on the number of beneficiaries of active labour market policy measures. Supplemented by the data published by the OECD, the report demonstrates an acceleration during the period in employment growth. The accompanying upturn in activity rates has, however, lessened the reduction in unemployment rates, from 5.4 per cent in 1994 and 1995 to 4.9 per cent in 1996.

2. With reference to its previous observation, in which it noted with interest the information provided by the Government in its report on its economic strategy for the promotion of growth, competitiveness and employment, the Committee hopes that the Government will provide, in its future reports, the information necessary to assess the manner in which the measures taken with a view to promoting full employment are decided and kept under review "within the framework of a coordinated economic and social policy" and in consultation with the representatives of the persons affected, in accordance with Articles 2 and 3 of the Convention. In particular, it requests the Government to provide the information required in the report form on the manner in which the measures taken, in areas such as budgetary and monetary policy, investment policy and incomes policy, help to further employment aims. Noting that the scope of the active labour market policy measures has been reduced during the period in line with the decrease in unemployment, the Committee invites the Government to provide any assessment available of the effectiveness of the measures implemented towards the effective and lasting integration of their beneficiaries into employment. It also reiterates its interest in obtaining any information on the manner in which the unemployment benefit scheme is coordinated with employment policy.

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

1. The Committee notes the Government's report for the period ending June 1994, which was characterized by an improvement in the employment situation as of the second half of 1993. The more sustained level of economic growth made it possible to end the continued tendency reported over previous years for employment to contract. Total employment increased by 1.5 per cent in 1994 and, despite the simultaneous rise in the growth of the active population, the OECD standardized unemployment rate, which had reached 6 per cent in 1993, was reduced to 5.5 per cent. According to the OECD, the growth of employment should continue and should allow the country to return to an unemployment rate of below 5 per cent in 1995.

2. In reply to the request addressed to it by the Committee in its previous observation, the Government provides information on the long-term economic policy programme (1994-97), which was submitted to Parliament under the title the "Solidarity Alternative". The Committee notes with interest in this respect that the strategies decided upon are based in part on the recommendations of the Employment Commission, which includes the social partners. The strategy for increased growth, competitiveness and employment includes the improvement of the system of wage formation through a two-tier negotiation system aimed at taking into account more effectively the impact of wages on competitiveness, inflation and employment. The creation of employment is also the principal objective of the investment policy and the policy to promote small and medium-sized enterprises, as well as the budget policy, which aims to reduce the medium-term budget deficit in order to give economic policy the necessary margin of manoeuvre to promote employment. The Committee appreciates the careful and helpful replies to its previous comments and welcomes the constructive dialogue. It requests the Government to continue supplying information on the measures that are taken to promote full employment "in the framework of a coordinated economic and social policy" and in consultation with the representatives of the persons affected, in accordance with Articles 2 and 3 of the Convention.

3. The Committee notes that the strengthening of active labour market policies and education and training systems are also among the priorities of the Government's employment policy. The Government provides interesting information in its report on the evaluation of the programmes which have been implemented, illustrating that they have had a positive but limited effect on the employment prospects of beneficiaries. The Committee would be grateful if the Government would indicate the manner in which the various measures to intervene on the labour market are decided upon and kept under review dependent upon the results achieved. The Committee also notes the statement that the qualifying conditions for unemployment benefit have been made more restrictive in the case of partial unemployment. In this respect, it requests the Government to continue supplying information on any new measure that is taken to improve the coordination of the unemployment benefit scheme with the employment policy, taking into account the relevant provisions of the Employment Promotion and Protection against Unemployment Convention, 1988 (No. 168), and the Committee's comments on the application of that instrument.

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

1. The Committee notes the Government's report for the period ending June 1992. According to the information in the report, employment continued to decline and unemployment to increase. The OECD data which bear out the detailed information supplied by the Government, show a drop in total employment of 0.9 per cent in 1990, 1 per cent in 1991 and 0.3 per cent in 1992. The unemployment rate rose from 5.2 per cent in 1990 to 5.5 per cent in 1991 and 5.9 per cent in 1992. The unemployment rate of the under 25 age group reached 13.9 per cent in 1992 and almost 25 per cent of the unemployed that year had been without work for more than one year. The Government also indicates an increase in underemployment, which particularly affects women and young people, in the form either of partial unemployment or involuntary temporary work. The continuation of relatively sustained growth in economic activity seems, at the moment, insufficient to reverse the downward trend in the labour market, which is appreciably less marked, however, than in most other OECD countries.

2. The Government indicates that the main objectives of its labour market policy are, in this context, to ensure speedy placement of jobseekers, prevent exclusion from working life, provide jobseekers with the right skills and curb the harmful effects of an imbalanced labour market. To this end, priority is given to promoting employment, as reflected in the importance attached to training measures and specially devised programmes for the most vulnerable categories of the population. The number of participants in employment programmes continued to increase in the reporting period, and the Committee notes with interest that follow-up surveys were carried out to assess the effect of these programmes on the employment of those concerned.It would be grateful if the Government would continue to provide the results of such surveys. The Committee notes the importance that the Government attaches to "active" labour market policy measures, as opposed to "passive" measures (to guarantee resources); it asks the Government to provide information in its next report on developments in the disbursement of public funds on this type of measure, since the data in the 1993 OECD economic survey do not appear to bear out the Government's assertion in this respect.

3. The Committee notes the indication that labour market policy objectives are integrated into the general economic policy, one of whose main priorities is to ensure conditions in which the economy can create stable employment. With reference to its previous comments, the Committee hopes that the next report will state, in answer to the questions in the report form, the manner in which the measures taken particularly in the areas of monetary and budgetary policies, prices, incomes and wages policies, investment policies or policies on balanced regional development contribute "within the framework of a coordinated economic and social policy" to pursuing the objective of full, productive and freely chosen employment. It would be grateful if the Government would state the role played in this area by the Employment Commission mentioned in the report. The Committee regrets to note that the report does not contain the information requested on how representatives of persons affected, particularly representatives of employers and workers, are consulted on employment policy, in accordance with Article 3 of the Convention. It trusts that the next report will also contain detailed information on the effect given to this important provision of the Convention.

Observation (CEACR) - adopted 1992, published 79th ILC session (1992)

1. The Committee notes the Government's report for the period ending June 1990, in which it describes worrying developments in the employment situation. According to the Government, the 3.5 per cent drop in employment recorded in 1989 is the sharpest experienced by the country since 1945. The contraction of the labour market continued in 1990 at a slower rate of 0.9 per cent. The unemployment rate, which was 3.2 per cent in 1988, reached 4.9 per cent in 1989 and 5.2 per cent in 1990. According to OECD data, in the absence of a recovery in employment growth, the unemployment rate stabilised in 1991 at this unusually high level in Norwegian terms.

2. The Government states that, in order to deal with this high and growing rate of unemployment, the scope of various labour market policy measures has been considerably extended. The total number of those benefiting from these measures, which has increased very markedly, represented 2.2 per cent of the active population in the first half of 1990, compared with 0.4 per cent in 1988. Emphasis has been placed on training measures, particularly for young persons and workers threatened by long-term unemployment. In this connection, the Committee notes the information supplied by the Government in its report on Convention No. 142 Human Resources Development, 1975 for the period ending 30 June 1991. The existing programmes have been supplemented since 1989 by a special public employment scheme.

3. The Committee notes this information with interest. It hopes that the Government will continue to supply detailed information on the various labour market policy programmes and measures and that it will indicate the results achieved. Further to its previous comments, and in relation to the worrying employment situation, the Committee trusts that the Government's next report will also contain the information required by the report form on the measures taken, within the framework of a coordinated economic and social policy, to promote full, productive and freely chosen employment, as a major goal. It would be grateful if the Government would indicate in particular the manner in which the measures taken in fields such as monetary and budgetary policies, prices, incomes and wages policies and investment policy contribute to promoting employment objectives. The Committee also requests the Government to indicate the manner in which representatives of the persons affected, and in particular representatives of employers and workers, are consulted concerning employment policies in accordance with Article 3 of the Convention.

Observation (CEACR) - adopted 1990, published 77th ILC session (1990)

1. Further to its previous comments, the Committee notes the information on the employment and unemployment situation and trends supplied in the Government's clear and helpful report. It also takes into consideration information contained in the Government's report to the Fourth Conference of European Ministers of Labour (Copenhagen, October 1989), and in the annual OECD reports. The Government points out that the very marked increase in employment during 1986 and 1987 was due to both high output growth and the cut in normal working hours. The contractual weekly working hours were reduced from 40 to 37.5 with effect from January 1987. The weakening of economic activity during 1988 and the tighter economic policy led to a sharp slow-down in employment growth in 1988. Unemployment climbed to an unusually high level in Norwegian terms, with 108,000 unemployed or 5 per cent of the labour force in the first quarter of 1989, compared with a rate of 2.2 per cent noted by the Committee in its 1987 observation. Unemployment rose in the case of both women and men, and most markedly among young workers. The increase in unemployment has been strongest in the larger conurbations, especially in western Norway.

2. With a view to curbing the increase in unemployment, the Government has called for intensive use of labour market programmes. As indicated in the 1989 Government's report on Convention (No. 88) concerning the Employment Service, 1948, the Labour Market Administration's overall priority is "to get people back to work". The deterioration of labour market conditions has led the Government to introduce or to propose in 1989 various measures ranging from a reinforcement of already existing labour market programmes - with emphasis on skills training - to measures like speeding up public investments in roads, public buildings, etc., or concerning incomes policy legislation.

3. The Committee trusts that in its next report the Government will make reference to the results, in terms of job creation, of the programmes mentioned above and will also describe the overall and sectoral development policies, with particular reference to prices, incomes and wages and other measures taken with a view to ensuring that there is work for all who are available and seeking work (see report form under Article 1 of the Convention). It hopes that the Government will pursue and intensify its efforts to obtain again the positive results achieved in the recent past in promoting full employment, in consultation and co-operation with representatives of the persons affected by the measures to be taken, as required by the Convention.