PUBLIC EMPLOYMENT SERVICES IN THE COVID-19 MSIS: EXPERIENCES AND IMPLICATIONS FOR SUSTAINABLE RECOVERY Текст научной статьи по специальности «Экономика и бизнес»

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ОRIGINAL PAPER

DOI: 10.34022/2658-3712-2020-43-2-141-150 УДК 33.332.14 JELJ21

PUBLIC EMPLOYMENT SERVICES IN THE COVID-19 CRISIS: EXPERIENCES AND IMPLICATIONS FOR SUSTAINABLE RECOVERY

M. Pouchkin a, K. Tada b, R. Pizarro c

a b c ILO Decent Work Technical Support Team and Country Office for Eastern Europe and Central Asia, Moscow, Russia

ABSTRACT

This article discusses how Public Employment Services (PES) have dealt globally with the crisis due to the COVID-19 pandemic and how policies and measures related to PES can be enhanced for sustainable socioeconomic recovery. The COVID-19 crisis has been historically unique, particularly in that it has been necessary to comply with physical-distancing measures implemented by governments in order to avoid further spread of the virus. In such circumstances, reactivity and flexibility have been key for PES to effectively operate and support jobseekers and other clients during this challenging time. Globally, PES have adapted and changed their priorities according to three different phases during the crisis. Based on these experiences, the enhancement of and investment in PES are recommended in order to facilitate a human-centred, sustainable, and resilient socio-economic recovery from the crisis. The enhancement of services along with the operation and management of PES is possible through accelerated digitalization, further focus on supporting vulnerable groups of citizens, building and strengthening partnerships with various actors, and increasing the skills of staff. This is similarly true for PES in the Russian Federation. They have significant potential to accomplish such reforms and greatly contribute to the sustainable recovery of economy and society in the country.

Keywords: government employment services; COVID-19 pandemic; unemployment benefits; digitalization; labour market.

For citation: Pouchkin M., Tada К., Pizarro R. Public Employment Services in the COVID-19 crisis: experiences and implications for sustainable recovery. Social and labor research. 2021;43(2):141-150. DOI: 10.34022/2658-3712-2021-43-2-141-150.

ОРИГИНАЛЬНАЯ СТАТЬЯ

ГОСУДАРСТВЕННЫЕ СЛУЖБЫ ЗАНЯТОСТИ В КРИЗИС ОЭДШ-19: ОПЫТ И ПОСЛЕДСТВИЯ ДЛЯ УСТОЙЧИВОГО ВОССТАНОВЛЕНИЯ

М. Пушкин а, К. Тада ь, Р. Пизарро с

3 ь с Группа технической поддержки по вопросам достойного труда и Бюро МОТ для стран Восточной Европы и Центральной Азии, Москва, Россия

АННОТАЦИЯ

В статье исследуется как государственные службы занятости (ГСЗ) во всем мире справлялись с кризисом в сфере труда, вызванным пандемией COVID-19, а также меры по улучшению политики в области занятости населения для устойчивого восстановления социально-экономической сферы. Службы занятости выступают посредниками на рынке труда, оказывая услуги соискателям по трудоустройству и работодателям по поиску сотрудников. Также они обеспечивают вовлечение уязвимых и незащищённых групп населения в сферу труда и занятости, способствуя развитию инклюзивной экономики. Кризис COVID-19 уникален с точки зрения необходимости соблюдения мер социальной дистанции, принятых правительствами для предотвращения дальнейшего распространения коронавируса. Таким образом, ГСЗ был необходим новый подход для преодоления кризиса. В сложившихся обстоятельствах ключевым фактором эффективной работы ГСЗ, поддержки соискателей и других клиентов в это непростое время стала способность быстро реагировать и проявлять гибкость.

© Пушкин М., Тада К., Пизарро Р., 2021

В частности, цифровизация сыграла ключевую роль в вопросе успешной адаптации деятельности и услуг ГСЗ к новым условиям. Государственные службы занятости во всем мире изменяли приоритетные направления деятельности в три этапа. На начальном этапе ГСЗ скорректировали свою работу в условиях принятых мер социальной дистанции, реализуя при этом выполнение основных услуг и регулируя повышенный спрос на получение пособий по безработице путем перераспределения своих ресурсов. Во время пика кризиса различные меры воздействия на рынок труда, начатые на первом этапе, стали наиболее приоритетными услугами ГСЗ. На этапе восстановления после кризиса ГСЗ сосредоточились на предоставлении услуг по содействию занятости населения в рамках целевых программ. На основе имеющегося опыта рекомендуется усиление политики в сфере занятости и дальнейшее финансирование ГСЗ для обеспечения ориентированного на потребности людей, долгосрочного и устойчивого восстановления социально-экономической сферы. Расширение услуг наряду с улучшением функционирования и управления ГСЗ возможно за счет ускоренной цифровизации, дальнейшей поддержки незащищенных групп населения, принятия комплексного подхода по созданию и укреплению партнерских отношений с различными акторами, и повышения квалификации персонала.

Пандемия COVID-19 аналогичным образом повлияла и на российский рынок труда. Российские ГСЗ испытали всплеск спроса на свои услуги наряду с беспрецедентным увеличением числа зарегистрированных безработных в результате повышения сумм пособий по безработице и возросшей потребности в них, а также в дополнительных денежных переводах. ГСЗ справились с повышенным спросом на свои услуги за счет активного использования интерактивного портала. Были предприняты усилия по поддержке рынка труда во время переходного периода. Упомянутые выше рекомендации также справедливы и для российских служб занятости. Одним из положительных моментов является то, что многие рекомендации были включены в проходящую в настоящий момент национальную реформу ГСЗ. В то время как некоторые изменения могут быть внесены в проект реформы в процессе его доработки, российские службы занятости обладают существенным потенциалом для достижения рекомендованных

и V и I и и

улучшений в ходе дальнейшей реализации реформы и в значительной степени устойчивого восстановления социально-экономической сферы.

Ключевые слова: государственные службы занятости; пандемия COVID-19; пособия по безработице; цифровизация; рынок труда.

Для цитирования: Пушкин М., Тада Р., Пизарро Р. Государственные службы занятости в кризис COVID-19: опыт и последствия для устойчивого восстановления. Социально-трудовые исследования. 2021;43(2):141-150. DOI: 10.34022/2658-3712-2021-43-2-141-150.

INTRODUCTION

The unprecedented COVID-19 crisis has globally hit the labour market, unevenly increasing unemployment and labour inactivity and reducing income.1 Youth, women, informal workers, and other groups had existing vulnerabilities that were exacerbated in the crisis. Similarly, the crisis has hit the Russian labour market. Past economic downturns were only about a fall in aggregate demand, but in this crisis policy makers have also faced lockdown restrictions and physical distancing measures to minimize the spread of the novel coronavirus. How have Public Employment Services (PES), which act as a mediator in the labour market, dealt with this unique crisis? How have PES effectively adapted to the unexpected labour market situation and facilitated socio-economic recovery? They have adjusted their services for different stages of the crisis, cush-

1 ILO. (2021) "ILO Monitor: COVID-19 and the world of work. 7th edition: Updated estimates and analysis." https://www.ilo. org/wcmsp5/groups/public/---dgreports/---dcomm/documents/ briefingnote/wcms_767028.pdf (Accessed on 9 April 2021)

ioning against the negative impact and facilitating inclusive recovery. For job-rich human-centred recovery, policy makers, including those in the Russian Federation, should invest in and further enhance various aspects of PES. This report discusses how PES have adapted during the COVID-19 crisis and facilitated socio-economic recovery. Doing so, it provides implications so that policy makers, other practitioners and researchers can achieve an inclusive human-centred recovery from the crisis. The following will briefly introduce the functions and significance of PES and discuss challenges due to the COVID-19 crisis and how PES have delivered services and operated in different phases of the crisis. This report will include policy implications and a brief discussion on Russian PES.

PES FUNCTIONS AND CRISIS RESPONSES

Employment services constitute a mediator in the labour market, mainly through their support for unemployed people seeking a job and for enterprises demanding human resources. The ILO's

Employment Service Convention of 1948 (No. 88) and the Employment Service Recommendation of 1948 (No. 33) call PES 'a key institution implementing employment and labour market policies.' At the same time, with a provision of active labour market programmes, PES can also facilitate to include vulnerable and disadvantaged groups in the labour market and achieve a more inclusive economy.2 Furthermore, employment services are one of the most cost-effective active labour market interventions to facilitate labour market transitions for workers and businesses.3 The majority of PES dealt with the last global economic crisis by expanding existing job-matching services or by making the eligibility criteria for unemployment benefits, intermediation services or labour market programmes more flexible. Some PES reactivated or redesigned incentives or other programmes previously used as a crisis response.4 However, the different nature of this COV-ID-19 crisis means such responses have not been enough for PES to fully deal with the situation.

responsiveness to increase capacity to manage increasing demand for critical services.5

Among the abovementioned key PES actions, digitalization has been crucial. Various governmental restrictions on movement during the pandemic have accelerated the digitalization of services in economy. The digitalization of PES has also been facilitated. Various tools (including live video, free calls and chat) were used to provide information and advice to clients. Naturally, more digitalized PES adapted better to the pandemic. At the same time, PES have faced different challenges. It was difficult to diversify e-service modalities to meet clients' demands and make them fully interactive. Ensuring equal access to digitalized employment services has also been difficult. The following section will explore the key actions and challenges related to the COVID-19 crisis, discussing the phases of the crisis. It will also provide policy implications regarding PES for a human-centred, sustainable recovery.

KEYS AND CHALLENGES FOR RESPONDING TO THE COVID-19 CRISIS

The economic crisis due to the COVID-19 pandemic has differed from the last financial crisis in that employers and workers must comply with governmental restrictions aimed at slowing the virus's spread. Therefore, while PES that fully reacted to the last economic crisis were considered best placed to respond to the COVID-19 crisis, a new approach has been also necessary for PES to deal with the crisis.

A key for PES' response to the COVID-19 crisis has been increasing reactivity and flexibility by adapting delivery and operations; increasing capacity to meet rising demand for core services; and providing employability-oriented support and promoting labour market attachment. Adapting delivery and operations to ensure service continuity includes a secure office environment, crisis management plans, and digitalising core services with different tools. Having broad partnerships can help enhance

2 For details on PES operations and services, please refer to Pouchkin, M. P. et al. (2020) "Public Employment Services and the Future of Work: Guidelines for the Development of Innovative Programmes." SOCIAL & LABOR RESEARCH. No. 3 (40) pp. 160169.

3 ILO. (2020) "COVID-19: Public employment services and labour market policy responses." Policy Brief. https://www.ilo. org/emppolicy/areas/covid/WCMS_753404/lang--en/index.htm (Accessed on 15 March 2021) p.4

4 ILO. (2009) "Public Employment Services Responses to the Global

Economic Crisis." https://www.ilo.org/wcmsp5/groups/public/--

-ed_emp/---ifp_skills/documents/publication/wcms_117382.pdf

(Accessed on 15 March 2021)

PES AND PHASES OF THE COVID-19 CRISIS

The PES response to the COVID-19 crisis comprises three phases: 1) the initial onset of the crisis, 2) the peak of the crisis, and 3) the recovery stage. PES have prioritized different services and measures and reallocated resources according to these priorities. During the first phase, the challenge for PES was ensuring operational continuity and scaling up service capacities while complying with governmental health and safety guidelines. PES prioritized protecting their staff and clients by temporarily closing the office to the public, reducing the staff working in the office, making work flexible (e.g., through telework), and reinforcing hygiene and sanitation at the office. Telework was more common among PES in high- and upper-middle-income countries, while simply reducing the number of staff present on the premises was more adopted in lower-middle-income and low-income countries (Figure 1). The less frequent use of telework in the latter income group may be due to a lack of ICT infrastructure in those countries.6

In this phase, with the increased unemployment in the labour market, the number of people registered at PES rapidly rose, and PES faced increased demand for unemployment benefits. Adopting the

5 ILO. (2020) "COVID-19: Public employment services and labour market policy responses." Policy Brief. https://www.ilo. org/emppolicy/areas/covid/W CMS_753404/lang--en/index.htm (Accessed on 15 March 2021)

6 Ibid.

Fig. 1 / Рис. 1. Application of flexible plans at PES premises (%) / Применение гибких планов в помещениях ГСЗ (%)

Source/ Источник: ILO. (2020) "COVID-19: Public employment services and labour market policy responses." Policy Brief. https://www.ilo.org/ emppolicy/areas/covid/WCMS_753404/lang--en/index.htm p.6 / МОТ. (2020) "COVID-19: Государственные службы занятости и ответные меры на рынке труда". Краткий обзор политики. https://www.ilo.org/emppolicy/areas/covid/WCMS_753404/lang--en/index.htm

new flexibility arrangements and a rapid reallocation of resources, PES maintained their core services (services for jobseekers) and reacted to increased demands while complying with governmental restrictions. [1] On the other hand, this reallocation of resources meant temporarily stopping targeted support for specific groups, such as young people, women, and other disadvantaged groups.7 Therefore, the measures most implemented during this initial phase were to compensate for a reduction or loss of income due to unemployment or reduced working hours. They had significance more as immediate reliefs, rather than long-term support for recovery.

At the same time, national governments started to address the risk of more job losses through interventions such as 1) short-term work (STW) schemes, 2) support for recruitment in sectors that still generate labour demand and 3) services to enhance employability for smooth transition in the labour market and maintain attachment to the labour market. PES have been deeply involved in all three interventions. Particularly in European and other advanced countries, STW schemes were used to preserve jobs (Figure 2). Defined as 'public programmes that allow firms experiencing economic

7 Santos R. and Metcalfe H., (2020). "Introduction to How Core PES Services Have Been Adapted in Response to the COVID-19 Crisis." Presentation at ILO Moscow Webinars "PES Role in Overcoming the COVID-19 Crisis, and the Future of Work", Module V "COVID-19 crisis and experiences on the ground" held on 2 December 2020. https://www.ilo.org/moscow/information-resources/publications/ WCMS_763128/lang--en/index.htm

difficulties to temporarily reduce the hours worked while providing their employees with income support from the State for the hours not worked,8 STW schemes are usually linked with unemployment insurance systems or special employment funds to partially cover subsidies for wages. Workers typically receive 60-70% of their salaries, and employers can maintain their workforce to avoid hiring or training costs when they fully resume their businesses. PES directly manage STW schemes or support their implementation in some countries. In the COVID-19 crisis, eligibility criteria for many STW schemes were relaxed, and coverage was expanded. Due to their cost, developing countries have not used STW schemes much.9

Since the crisis began, PES have met the sharply increasing need for labour in industries such as health care, ICT, energy and utilities, water, food, safety and government by continuously providing job-matching services. Most services have been delivered remotely through web-based job-matching systems, telephone and call centres, online chat, and video conferences. These are combined with limited face-to-face meetings that respect social distance restrictions [2].

8 European Foundation for the Improvement of Living and Working Conditions (Eurofound). Industrial Relations Dictionary. "Short-time work" https://www.eurofound.europa.eu/observatories/ eurwork/industrial-relations-dictionary/short-time-work (Accessed on 12 April 2021)

9 ILO. (2020) "COVID-19: Public employment services and labour

market policy responses." Policy Brief. https://www.ilo.org/ emppolicy/areas/covid/WCMS_753404/lang--en/index.htm

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Fig. 2/ Рис. 2. Countries with special COVID-19 short-time work schemes / Страны со специальными схемами краткосрочной работы на время ограничений, вызванных пандемией COVID-19

Source/ Источник: ILO. (2020) "COVID-19: Public employment services and labour market policy responses." Policy Brief. https://www. ilo.org/emppolicy/areas/covid/WCMS_753404/lang--en/index.htm p.12 / МОТ. (2020) "COVID-19: государственные службы занятости и меры политики на рынке труда." Краткое изложение политики. https://www.ilo.org/emppolicy/areas/covid/WCMS_753404/lang--en/ index.htm с. 12

PES has also maintained people's job readiness during the pandemic through services to develop abilities to search for jobs, update résumés, identify and understand labour market information and update and refresh competencies and skills. Using digital technology, including free online tools and resources, PES have provided flexible and low-cost training and facilitated access to such training while following physical distancing protocols.10

During the following phase, at the peak of the crisis, PES continued providing these services. By supporting recruitment in essential sectors and industries that demand labour, they provided job-seekers with access to jobs. Through remote skills training for people, including those who lost jobs or were experiencing reduced working hours, PES maintained their attachment to the labour market or prepared them for new job opportunities. The STW programmes continued to be extensively used in European countries. [3]

PES' counselling role, including introducing job-seekers to sectors with high demands for labour and encouraging jobseekers to consider a wider range of employment opportunities, was crucial in this uncertain and challenging period. In other words, PES during this phase prioritized the facilitation and preservation of employment.

10 Ibid.

In the third phase, employment services have focused on a job-rich recovery. With increased unemployment, the significance of supporting disad-vantaged groups, including through active labour market programmes, has increased. With needs differing from those in the initial phase, many PES reallocated resources to targeted active labour market programmes, such as public employment programmes, wage and hiring subsidies, and incentives for entrepreneurships.11 At the same time, PES job-

matching services continued to be important in the

12

recovery process.12

Various policies related to PES are necessary for a job-rich and human-centred recovery. The ILO has developed and recommended a policy framework to respond to the COVID-19 crisis, comprising four pillars: stimulating the economy and employment;

11 Santos R. and Metcalfe H., (2020). "Introduction to How Core PES Services Have Been Adapted in Response to the COVID-19 Crisis." Presentation at ILO Moscow Webinars "PES Role in Overcoming the COVID-19 Crisis, and the Future of Work", Module V "COVID-19 crisis and experiences on the ground" held on 2 December 2020. https://www.ilo.org/moscow/information-resources/publications/ WCMS_763128/lang--en/index.htm

12 Santos R. and Metcalfe H., (2020). "Role of Institutions, including PES, in Protecting jobs, Incomes and Skills, and Delivering Inclusive

Services to Vulnerable Groups." Presentation at ILO Moscow Webinars "From the immediate crisis response to COVID-19 pandemic towards economic recovery - decent work in focus." Part II: "Role of institutions, including PES, in protecting jobs and delivering services to vulnerable groups" held on 1 June 2020. https://www.ilo.org/moscow/information-resources/publications/ WCMS_746683/lang--en/index.htm

Pillar 2

Supporting enterprises, jobs and incomes

► Extend social protection for all

► Implement employment retention measures

► Provide financial/tax and other relief for enterprises

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Pillar 3

Protecting workers in the workplace

► Strengthen OSH measures

► Adapt work arrangements (e.g. teleworking)

► Prevent discrimination and exclusion

► Provide health access for all

► Expand access to paid leave

Fig. 3/ Рис. 3. Policy framework to respond to the COVID-19 crisis / Политические рамки для реагирования на кризис COVID-19

Source/ Источник: ILO. (2020) "COVID-19 and the world of work. 2nd edition." https://www.ilo.org/wcmsp5/groups/public/---dgreports/---dcomm/documents/briefingnote/wcms_740877.pdf / МОТ. (2020) "COVID-19 и мир труда. 2-е издание." https://www.ilo.org/wcmsp5/ groups/public/---dgreports/---dcomm/documents/briefingnote/wcms_740877.pdf

supporting enterprises, jobs and incomes; protecting workers in the workplace; and relying on social dialogue for solutions (Figure 3).13 PES are part of this framework, falling into the second pillar. Quality PES can be cushion the negative impact of the crisis, and enhancement of PES is recommended.

First, an accelerating digitalization of PES services and operations is inevitable. There are various benefits of digitalizing PES. It allows provision of better diagnosis and more tailored and personalized services for job seekers, including disadvantaged groups. Enriching remote services, digitalization can also expand PES coverage. It can also enhance the gathering and analysis by PES of labour market data. Better collection and analysis of labour market data can help PES at least provide information for labour market signalling and contribute to tailoring services. Furthermore, digitalization can help PES to reduce shortages and gaps in skills. By offering online training programmes, PES can contribute to filling these gaps in skills. Algorithms enable matching based on competencies rather than qualifications, and consequently allow employers to hire people based on the right skills, which consequently can contribute to overcoming shortages in skills in the labour market. As a result, PES can be

13 For the details of the policy framework, please refer to a relevant page on ILO's global website: "ILO Policy Brief on COVID-19: A policy framework for responding to the COVID-19 crisis" https:// www.ilo.org/global/topics/coronavirus/impacts-and-responses/ WCMS_739047/lang--en/index.htm

more efficient, effective and inclusive. Fully digital-ized PES can maintain people's attachment to the labour market and facilitate their reintegration to and transition in it, making the labour market more efficient, inclusive and transparent.14

On the other hand, there are some challenges and risks that PES need to address and overcome in digitalization. There is a risk of excluding the most vulnerable people who may not have internet access or the skills to use digitalized services. In order to avoid such exclusion, PES can provide digitalized services in combination with conventional strategy such as counselling in face-to-face meetings. Another possible challenge relates to the capacity of PES staff. Digitalization of services means changing the nature of jobs for them, and reskilling and upskilling will be necessary. Encouraging them to adopt new practices might also help them to adapt to the change. In addition, it will be necessary to develop the infrastructure and secure the resources for digitalization. This might be challenging, particularly in developing countries.15

The second policy implication for PES is a further focusing on vulnerable groups, such as youth, women, migrants, and informal workers, particularly those hard hit by the crisis. As mentioned earlier,

14 ILO. (2020) Global Employment Trends for Youth 2020: Technology and the Future of Jobs. Geneva, Switzerland. https:// www.ilo.org/global/publications/books/WCMS_737648/lang--en/ index.htm Section 3.2.

15 Ibid.

vulnerable people have become even more vulnerable due to the crisis. While PES were already providing targeted programmes for such groups before the crisis and prioritized them at the recovery stage as mentioned above, further prioritizing and allocation of resources for them, especially active labour market programmes, will ensure inclusive recovery. Supporting youth employment will contribute to preventing "scarring effects" on them and eventually a "lock-down generation."16

In particular, it is important to train and re-position workers and jobseekers for the new demands after the crisis. Skills that are in demand in the labour market have largely changed in the rapidly transforming world of work. This change in skills that are in demand has accelerated with the COVID-19 pandemic. Ability to update and refresh competencies will also be quite important after the COVID-19 crisis, when different sets of skills compared to before the crisis might be needed.17 PES need to ensure the availability of these training programmes and services for all who need them, which contributes to achieving an inclusive recovery [3]. Use of digital tools can allow timely, wide provision of such training and services.

Adopting an integrated response is the third policy implication regarding PES. Combining PES services and other support to overcome other challenges such as poor literacy, illness, housing and financial constraints will ensure that those affected by the crisis will fully recover and prevent them from falling into hardship again. In particular, a link between active labour market interventions and social protection measures (income support) is essential, in order to maximize the impact of both. Active labour market programmes facilitate beneficiaries of social protection to re-join the labour force and can ensure their sustainable recovery. Income support for participants of active labour market programmes provides a stable financial condition for them, ensuring their completion of the programme and allowing them to fully benefit from it. Such a link between active interventions and social protection is still missing or weak in many countries and should be addressed for sustainable, human-centred recovery from the crisis. Partnerships across government agencies, specialist providers, and other relevant actors at national and local levels can support this

integrated approach, by maximizing the potential of

both active labour market interventions and social

• 18 protection.10

Fourth, developing, maintaining and strengthening partnerships will be one of the key actions that PES can take for human-centred recovery from the COVID-19 crisis. Partnerships are important for PES even in non-crisis contexts. Collaborating with partners with stronger expertise makes PES more effective. Partners who can provide services with a lower cost allow PES to be more cost efficient. Partnerships with organizations that have networks with those not registered at PES, including those hard to reach, can expand PES coverage. As a result, this contributes to more inclusive services and operation of PES. Involvement of social partners can allow policy makers and PES officials to take fully into account the needs of employers and other users.19

For inclusive recovery from the crisis, the involvement of employers in active labour market interventions through employers' organizations can enhance the positive effects of such programmes, including the stabilisation of workers' lives, prevention of further job losses and preparation of the workforce to obtain jobs during the recovery. This has been proven with evidence from advanced and emerging countries. Moreover, partnerships with relevant actors can help accelerate reforms and introduce new measures. As mentioned above, working with partners can support the strengthening of linkages between active labour market interventions and income support programmes and can facilitate reintegration of affected people into the labour market. Public-private partnerships (PPP) will be critical during recovery as well, particularly where fiscal space and institutional capacity are limited [3].

In addition, the capacity development of PES by enhancing the skills of the staff is critical in order to make all of the three abovementioned actions most effective. Staff with appropriate skills at both management and front levels is a necessary condition not only for digitalization of services, operation and management of PES but also for focusing further on supporting vulnerable groups and developing and maintaining partnerships. For this upskilling and

16 Ibid.

17 ILO. (2020) "COVID-19: Public employment services and labour market policy responses." Policy Brief. https://www.ilo. org/emppolicy/areas/covid/WCMS_753404/lang--en/index.htm Section 3.3.

18 ILO. (2020) "COVID-19: Public employment services and labour market policy responses." Policy Brief. https://www.ilo.org/ emppolicy/areas/covid/WCMS_753404/lang--en/index.htm

19 For details on PES and partnerships, please see: ILO. (2020)

"Public Employment Services and the Future of Work: Training manual for the CIS regional network for youth employment promotion." https://www.ilo.org/wcmsp5/groups/public/---europe/--

-ro-geneva/---sro-moscow/documents/publication/wcms_779107. pdf (Accessed on 9 April 2021)

reskilling, distance or online training can be used on a large scale, particularly when the government still recommends physical distance.

In order to address these implications, PES need funding especially at the recovery phase. Governments are called to invest more in PES. Innovative financing can be considered, as well. As mentioned above, PPP will be also effective in overcoming limited finances. International financial support will be important for developing countries whose fiscal space is limited.20

This section has discussed PES in different phases of the COVID-19 crisis, providing relevant policy recommendations aimed at human-centred socio-economic recovery. During the initial stage, PES flexibly adapted to physical distance restrictions, while maintaining their core services and managing an increased demand in unemployment benefits by reallocating their resources. During the peak of the crisis, different labour market interventions started in the first phase became the most prioritized services for PES. In the recovery phase, PES have provided targeted active labour market programmes as a priority. In order to achieve a human-centred, sustainable recovery, enhancement of PES is inevitable. This is possible through further digitalization of PES, further support for vulnerable groups, taking an integration approach, building and maintaining partnerships, and enhancing the skills of PES staff. To realize these, more investment on PES is also recommended. What are the implications for Russian PES based on this discussion? The following section briefly mentions Russian PES and the crisis as well as how they can effectively facilitate the socioe-conomic recovery of the country.

EXPERIENCE OF THE RUSSIAN PES AND IMPLICATIONS FOR THEM

Russian PES have been undergoing a comprehensive reform for modernization as part of the National Projects, with a pilot project in 16 regions [1]. The project "Partnerships for Youth Employment for the Commonwealth of Independent States (YEP-CIS)"21 Phase II of the ILO has technically supported this reform with the development of a comprehen-

20 ILO. (2020) "COVID-19: Public employment services and labour market policy responses." Policy Brief. https://www.ilo.org/emp-policy/areas/covid/WCMS_753404/lang--en/index.htm pp. 16-17.

21 For more information of the project, please refer to: "Partnership for youth employment in the Commonwealth of Independent States (YEP CIS)" https://www.ilo.org/global/topics/ youth-employment/projects/cis-partnership/lang--en/index.htm (Accessed on 19 April 2021)

sive training manual on the operation, management and services of PES22 and with providing training based on it.

The COVID-19 pandemic has similarly affected the Russian labour market. With increased unemployment benefits and additional cash transfers, Russian PES has experienced a surge in demand for their services with an unprecedented increase in the number of registered unemployment, reaching 3.6 million in August 2020 [3]. The Federal Service for Labour and Employment (ROSTRUD) has dealt with this increased demand using an existing web portal, "Work in Russia."23 This site provides information on uploaded CVs and vacancies, employers, available services, opportunities and facilities for job seekers and employers. During the crisis, online registration for unemployed benefits became available through the portal [3].

This helped PES to deal with increased applications for the unemployment benefits while complying with movement restrictions by federal and local governments. Furthermore, efforts to support the transition in the labour market have been made. The Ministry of Labour and Social Protection has provided access to advanced vocational training or work-based learning programmes as well as special subsidies for people at risk of dismissal and part-time workers.24 On the other hand, restrictions on movement have negatively affected the progress of national PES reform.

In order for PES to facilitate job-rich sustainable recovery in the Russian Federation, enhancement and investment in it are recommended as in other countries. Russian PES have been somewhat digi-talized as mentioned before. However, for instance, their outdated procedural technologies have been reported [3]. The internal operations and services of PES beyond providing information and registration online could be further digitalized. About focusing on vulnerable groups, multiple active labour market interventions have been identified as ineffective and inefficient.25 Therefore, updating active labour market programmes is necessary, and they should be linked to income support and supported

22 ILO. (2020) "Public Employment Services and the Future of Work: Training manual for the CIS regional network for youth employment promotion." https://www.ilo.org/wcmsp5/groups/ public/---europe/---ro-geneva/---sro-moscow/documents/ publication/wcms_779107.pdf (Accessed on 9 April 2021)

23 ROSTRUD. "Work in Russia" https://trudvsem.ru/

24 ILO. COVID-19 and the world of work: Country policy responses. Russian Federation. https://www.ilo.org/global/topics/ coronavirus/regional-country/country-responses/lang--en/index. htm#RU (Accessed on 19 April 2021)

25 Ibid.

by partnerships with other government and private agencies. PES staff need to be trained enough to be able to adapt to the reforms. One positive fact is that many such recommended actions have been included in the design for the comprehensive national reform [1]. While some changes might be made in the design of the PES reform project in its revamping process to adjust to the delay, there is considerable potential in Russian PES to make a great leap forward with further implementation of the project.

CONCLUSION

This paper has discussed how PES have dealt with the COVID-19 crisis. The crisis has been historically unique, and reactivity and flexibility has been key for PES to effectively address this challenging time.

Globally PES have adapted to and changed their proprieties according to different phases during the crisis. Based on these experiences, enhancement of and investment in PES is recommended in order to realize human-centred, sustainable, and resilient socio-economic recovery. This is similarly true for Russian PES. As in any other policy development, a tripartite social dialogue can play an important role in such policy reforms, bringing the views of employers and workers to the discussions. In the context of the COVID-19 crisis and recovery from it, enough representation of vulnerable groups, particularly those hard-hit by the crisis, will enable their voices to be heard effectively and incorporated in the recovery process, and thereby ensure that the recovery is inclusive.

REFERENCES

1 Babenko, S. (2019) "National project 'Employment Support': Results Achieve Year 2019. (in Russian)". Presentation at Employment Academy II, held on 21 Nov 2019 by the ILO Moscow office (Moscow).

2 Pouchkin, M.P. et al. (2020) "Public Employment Services and the Future of Work: Guidelines for the Developmetn of Innovative Programmes". Social & labor research. No.3 (40) pp. 160-169.

3 Prokopov, F.T. (2020) "PES services to employers in the context of COVID-19 pandemic and post-pandemic management" Presentation at a webinar "Supporting sustainable enterprises: services to employers" held on 7 Oct 2020 by the ILO Moscow office.

4 Santos, R. and Metcalfe, H. (2020) "Introduction to How Core PES Services Have Been Adapted in Response to the COVID-19 Crisis." Presentation at ILO Moscow Webinars "PES Role in Overcoming the COVID-19 Crisis, and the Future of Work", Module V "COVID-19 crisis and experiences on the ground" held on 2 December 2020. https://www.ilo.org/moscow/ information-resources/publications/WCMS_763128/lang--en/index.htm

СПИСОК ИСТОЧНИКОВ

1. Бабенко С. (2019) «Национальный проект 'Поддержка занятости': итоги 2019 года» (на русском языке). Презентация в Академии занятости II, состоявшаяся 21 ноября 2019 года в Московском офисе МОТ.

2. Пушкин М. П. и др. (2020) "Государственные службы занятости и будущее труда: руководство по разработке инновационных программ." Социально-трудовые исследования. 2020;3(40):160-169.

3. Прокопов Ф. Т. (2020) "Услуги ГСЗ работодателям в контексте пандемии COVID-19 и управления после пандемии". Презентация на вебинаре "Поддержка устойчивых предприятий: услуги работодателям", проведенном 7 октября 2020 года Московским офисом МОТ.

4. Сантос, Р. и Меткалф, Х. (2020) "Введение в то, как основные услуги ГСЗ были адаптированы в ответ на кризис COVID-19." Презентация на вебинарах МОТ в Москве "Роль ГСЗ в преодолении кризиса COVID-19 и будущее работы", Модуль V "Кризис COVID-19 и опыт на местах", состоявшихся 2 декабря 2020 года. https://www.ilo.org/moscow/ information-resources/publications/WCMS_763128/lang--en/index.htm

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ИНФОРМАЦИЯ ОБ АВТОРАХ / ABOUT THE AUTHORS

Mikhail Pouchkin - Deputy Director, ILO Decent Work Technical Support Team and Country Office for Eastern Europe and Central Asia, Moscow, Russia

Михаил Пушкин - заместитель директора, Группа технической поддержки по вопросам достойного труда и Бюро МОТ для стран Восточной Европы и Центральной Азии, Москва, Россия [email protected]

Kanae Tada - Project Technical Officer, Research, ILO Decent Work Technical Support Team and Country Office for Eastern Europe and Central Asia, Moscow, Russia

Канаэ Тада - координатор проекта по вопросам занятости молодежи, Группа технической поддержки по вопросам достойного труда и Бюро МОТ для стран Восточной Европы и Центральной Азии, Москва, Москва, Россия [email protected]

Ramiro Pizarro - Project Manager "Partnerships for youth employment in the Commonwealth of Independent States, Phase II", ILO Decent Work Technical Support Team and Country Office for Eastern Europe and Central Asia, Moscow, Russia

Рамиро Пизарро - Руководитель проекта «Партнерства в сфере занятости молодежи Содружества Независимых Государств, фаза II», Группа технической поддержки по вопросам достойного труда и Бюро МОТ для стран Восточной Европы и Центральной Азии, Москва, Россия [email protected]

AUTHORS' STATED CONTRIBUTIONS

Pouchkin M. - Provided overall supervision of the study.

Tada K. - Performed analysis of the literature, structured the material, and formulated conclusions. Pizarro R. - Provided technical support and advice, and structured the material.

ЗАЯВЛЕННЫЙ ВКЛАД АВТОРОВ

Пушкин М. - научное руководство исследованием.

Тада К. - критический анализ литературы, логическое структурирование материала, формулирование выводов. Пизарро Р. - техническая поддержка и консультации, логическое структурирование материала.

Статья поступила в редакцию 23.04.2021; после рецензирования 28.04.2021, принята к публикации 30.04.2021. Авторы прочитали и одобрили окончательный вариант рукописи.

The article was submitted to the editorial office on 23.04.2021; after reviewing on 28.04.2021, it was accepted for publication on 30.04.2021. The authors read and approved the final version of the manuscript.