Labour Market Expert Sergey Nuzhdin on Language, Migration and TSU’s Role in Teaching Russian as a Foreign Language

Labor shortages in Russia are increasing business interest in legal and clearly defined mechanisms for recruiting foreign workers. Russian-language proficiency, industry-specific training modules, transparent examinations, and digital services are becoming increasingly important components of this system. 

Leading labor market expert and chairman of the relevant committee at OPORA RUSSIA, Sergey Nuzhdin, discussed the role of universities in this system, digital solutions for examinations, and the capabilities of Tomsk State University (TSU) in teaching Russian as a foreign language (RFL).

Labor Shortages Have Become a Systemic Problem

— Sergey Nikolaevich, how would you describe the current situation in the Russian labor market?

— The Russian labor market is currently experiencing an acute shortage of personnel. We are facing a systemic gap between the economy's needs and the available labor supply.

The problem is particularly pronounced in industries with intensive day-to-day operations, such as construction, manufacturing, logistics, agriculture, and services. For small and medium-sized businesses, which form a substantial part of regional economies, staffing has become one of the main challenges.

Entrepreneurs most frequently report shortages of frontline personnel, including drivers, loaders, cooks, and repair technicians. Without these workers, businesses struggle even to carry out their everyday operations.

At OPORA RUSSIA, we regularly survey entrepreneurs. More than 70% of respondents identify difficulties in recruiting staff as the main barrier to business growth. That is why addressing workforce shortages is currently among our priorities. We are preparing initiatives and discussing them with lawmakers, and some of our proposals have already been reflected in regulations.

— What role do foreign workers currently play for small and medium-sized businesses?

— For many companies, especially small businesses, recruiting workers from other countries is a necessity. It helps fill seasonal, temporary, and frontline positions for which it is currently difficult to find domestic candidates.

The Russian economy cannot completely dispense with this source of labor at present. According to Rosstat, Russia's unemployment rate was 2.1% in February 2026, the lowest level in the country's modern history. Unemployment continued to decline during the first quarter.

There are several reasons for this: demographic trends, a shrinking workforce, and structural changes in the economy. As a result, employers need workers, but there are not enough available candidates in the labor market.

— So this is not just about construction?

— Certainly not. Take retail and food services, for example. In major cities such as Moscow and St. Petersburg, foreign employees can account for a very large proportion of frontline workers, including cashiers, sales assistants, waiters, and kitchen staff.

In agriculture, migrants often fill seasonal positions involving fieldwork and food processing. In construction and housing and utilities services, foreign workers fill a substantial proportion of vacancies for general laborers and specialized tradespeople. Without them, many small contractors would be unable to fulfill their obligations.

Demand is also growing for foreign specialists with technical qualifications, particularly in equipment installation and maintenance.

Businesses need a legal and clearly defined system for recruiting workers. Employers must understand the rules, deadlines, responsibilities, and procedures for interacting with government authorities.

Regulation Must Reflect the Needs of the Economy

— Migration regulations have changed considerably in recent years. Which changes matter most to employers?

— Migration policy has become stricter, more transparent, and more technologically advanced. The government is strengthening oversight, developing digital tools, and increasing requirements for legal migration status. This is a natural direction for policy in this area.

At the same time, regulation must take account of the economy's actual needs. If businesses need workers and entire industries are experiencing labor shortages, the system must provide legal and understandable mechanisms for recruiting people.

A package of draft laws prepared by the Russian Ministry of Internal Affairs concerning organized recruitment of foreign workers is currently being revised. A pilot program is planned to run from January 2027 through 2030. This is an important issue for employers, who need to understand the rules, deadlines, and responsibilities in advance.

— Foreign citizens are currently required to demonstrate knowledge of Russian, Russian history, and the fundamentals of Russian legislation. How would you assess the role of this examination?

— I would describe the examination in Russian, Russian history, and the fundamentals of Russian legislation as an adaptation filter. When properly organized, it helps people integrate more quickly into the country's legal and working environment. For employers, such examinations help reduce the risk of conflicts, mistakes, and violations.

However, the examination procedure must be clear, and preparation must be accessible. Candidates should understand what is required of them, where they can prepare, how the examination is conducted, and how the results will subsequently be used. Only then can the examination function as an effective tool for adaptation.

— To what extent does Russian-language proficiency affect the quality of labor migration?

— It has a direct impact. Language barriers are not merely about difficulties in communication. They are directly connected to safety, work quality, and integration into the workplace.

For example, on a construction site or in a manufacturing facility, a worker might misunderstand an instruction, creating a risk of injury. In the service sector, basic language proficiency affects customer communication and a company's reputation.

According to Rosstat and relevant industry associations, companies employing migrant workers with certified Russian-language proficiency at or above the basic level report faster employee adaptation and fewer workplace incidents.

Therefore, high-quality labor migration is impossible without Russian-language proficiency. It is a fundamental requirement for foreign employees to work effectively in Russian companies.

“We Need a Clear Path: Training — Examination — Employment”

— What should a modern system for training and testing foreign citizens look like?

— It should be understandable to the government, employers, and the individuals coming to Russia to work.

In my view, the system should not revolve exclusively around a general examination. The basic examination covering Russian, Russian history, and the fundamentals of legislation should be supplemented with industry-specific modules. For example, there could be Russian-language courses for construction workers, drivers, and service-sector employees. This would allow employers to know that candidates are prepared for specific jobs. Migrants themselves would also find it easier to prepare for their future professions.

Transparency is extremely important. There must be clear assessment criteria, understandable rules, and a unified register of testing centers. This reduces the risk of abuse and increases trust in the system.

And, of course, digitalization is essential. Study materials, preparation, and testing can largely be delivered online. People should have a clear pathway: training, examination, verification of results, followed by employment and ongoing support. All these stages should be connected within a single digital ecosystem.

— Tomsk State University is among the organizations authorized to administer examinations in Russian, Russian history, and the fundamentals of Russian legislation, as well as state testing in Russian as a foreign language. What is the value of this partnership?

— Its value lies in bringing together two areas of expertise. A university such as TSU provides the academic and methodological foundation. It has experience in developing high-quality examinations, assessing language proficiency, and designing educational pathways.

The labor market, in turn, provides an understanding of the skills employers actually need. Businesses can explain that they require workers who understand professional terminology, instructions, and safety requirements.

An effective system for training and testing foreign citizens can emerge at the intersection of these approaches.

— So the university's role goes beyond simply administering examinations?

— Yes. In TSU's case, it also includes digital expertise, experience working with government clients, and the management of complex IT projects.

For example, if there is strong demand for construction workers, a university team can develop a specialized course focused on construction terminology. Drivers and service-sector employees would require different modules.

Universities can also help establish a pathway from education to employment by cooperating with employment centers and employers, analyzing program effectiveness, and adapting courses to actual market needs.

We support such collaborations. In my opinion, the experience of TSU and other leading universities should be extended to other regions.

Partnerships between the labor market and universities deliver significant benefits. The labor market contributes employers' actual requirements, while universities provide methodology, academic expertise, and digital capabilities. As a result, the training and testing system begins to serve the economy more effectively.

“Digitalization Has Already Become a Necessity”

— TSU has experience developing digital solutions for education and examinations. How significantly can digitalization change the way organizations work with foreign citizens?

— Very significantly. Digitalization can transform the entire infrastructure for working with foreign citizens, from preparation and testing to subsequent support.

Accessibility is particularly important. People can prepare for examinations online, whether they are in another region or have not yet entered Russia. This is especially relevant for CIS countries, which account for the majority of labor migrants arriving in Russia.

Automation reduces the workload of examiners and minimizes the influence of human factors.

If a person has a digital profile containing examination results, certificates, and verified information, employers can check documents more easily, while government authorities gain a clearer overall picture.

The fewer manual procedures there are, the faster and more transparent the system becomes. That is why digitalization in this field has already become a necessity.

— What are the benefits of a seamless digital examination environment?

— Such an environment benefits everyone involved.

The government gains oversight and analytical capabilities. It becomes easier to see how many people are undergoing training, where they are located, and which regions and industries need workers.

Employers gain quick access to verified information about candidates. This reduces the risk of hiring someone with forged documents and accelerates recruitment.

Educational organizations can expand their programs, attract more learners, receive feedback from employers, and improve their courses.

For foreign citizens, the main benefits are convenience and a clear pathway. People understand where to prepare, how to take an examination, where to obtain their results, and how to proceed with legalizing their status and finding employment.

At OPORA RUSSIA, we consider such an environment one of the key steps toward a well-regulated labor migration system. It makes it possible to replace fragmented procedures with a coordinated, manageable process.

“Labor Migration Must Become a Manageable Resource for the Economy”

— From a strategic perspective, what needs to be done for labor migration to be viewed as a manageable resource for the economy?

— We need to move toward a model based on planning and management.

The first priority is a structured system of targeted recruitment. Employers should specify in advance which specialists they need. Candidates should then receive language and professional training tailored to particular jobs. This way, companies obtain the personnel they require, while the government maintains visibility over the process of recruiting foreign citizens.

The second priority is integration infrastructure. Regions should have migrant support centers where people can obtain clear information and assistance. This would reduce social tensions and accelerate integration.

The third priority is cooperation between businesses and educational institutions. Universities and continuing professional education centers should develop programs that address actual workforce shortages. The experience of institutions such as TSU is particularly valuable here.

Another priority is a transparent digital platform that tracks a person's entire journey: entry into the country, training, examinations, employment, and document renewals.

If these measures are implemented consistently, labor migration will become a manageable resource for the economy. This requires clear entry rules, flexible recruitment mechanisms for industries experiencing labor shortages, language and professional training, and a digital ecosystem providing ongoing support.

This is precisely the approach we have consistently promoted through OPORA RUSSIA. We prepared initiatives, submitted proposals to the State Duma, and many of those measures were subsequently incorporated into existing legislation.