Fostering Youth Employment in Public Services final report.pdf · 2 Youth employment in the EU: key...

Experts’ report

Fostering Youth Employment in Public Services Report commissioned by CEEP and ETUC

April 2013

Fostering Youth Employment in Public Services

Experts’ report– April 2013

Document Control

Document Title Fostering Youth Employment in Public Services

Prepared by Claire Duchemin, Tina Weber

Checked by Tina Weber

Date April 2013

Fostering Youth Employment in Public Services

Experts’ report– April 2013

Contents

1 Introduction .........................................................................................................1 1.1 Public Services in Europe ........................................................................................................ 1 1.2 Approach and methodology ..................................................................................................... 2 1.3 Overview of the report .............................................................................................................. 2

2 Youth employment in the EU: key trends, challenges and policy interventions ......3 2.1 The crisis has aggravated the already fragile status of young people on labour markets ....... 3 2.2 Addressing youth unemployment has come to the top of the political agenda........................ 7

3 An overview of recent trends and challenges linked to youth employment in Public Services .................................................................................................... 12

3.2 The evolution of youth employment in Public Services in the context of the recession ........ 12 3.3 The importance of promoting of youth employment in public services .................................. 18

4 Fostering youth employment in Public Services: a review of initiatives and practices across Europe ...................................................................................... 24

4.1 Anticipating long-term recruitment needs in Public Services ................................................. 24 4.2 Raising the profile of Public Services as employers .............................................................. 25 4.3 Using apprenticeships and work placements to train and retain talent ................................. 26 4.4 Offering opportunities for quality training at the workplace .................................................... 29 4.5 Helping disadvantaged young people to access quality vocational training opportunities .... 30 4.6 Promoting the inclusion of disadvantaged youth via subsidised contracts ............................ 31 4.7 Adapting recruitment processes and creating fairer chances for young people to enter

and develop a career in Public Services ................................................................................ 33 4.8 Improving the representation of the interests of young employees in Public Services ......... 34

5 Bibliography ....................................................................................................... 35

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Experts’ report

1 Introduction

This document has been prepared by ICF GHK as a background to, and to stimulate discussions at

a conference on ‘Fostering Youth Employment in Public Services’ taking place in Brussels on the

24th of April 2013.

This conference is organised as the culmination of a project jointly managed by CEEP, the

European Centre of Employers and Enterprises providing Public Services and ETUC, the

European Trade Union Confederation, with the financial support of the European Commission.

CEEP is the European association representing enterprises and employers’ organisations with

public participation and enterprises carrying out activities of general economic interest, whatever

their legal ownership or status. ETUC represents the interests of trade unionists at the European

level; it gathers 85 member organisations in Western, Central and Eastern Europe, and 10

European Trade Union Federations.

This project stemmed from the Work Programme for 2012-2014 of the European cross-industry

social partners (BUSINESSEUROPE, UEAPME, CEEP and ETUC) stating that ‘focusing on youth

and employment is the top priority for the coming year’. With more than 22% of young people being

unemployed in the EU, the issue of young unemployment is clearly a high priority where cross-

industry social partners have a role to play.

The conference will provide the opportunity to:

■ Disseminate information on the cross-industry social partner ‘Framework of Action for Youth

Employment’

■ Discuss initiatives taken by social partner organisations to support youth employment in the

Public Services

■ Exchange information on good practices as well as challenges facing Public Service employers

in seeking to offer opportunities to young people

1.1 Public Services in Europe

Public Services, also known as Services of General Interest, are services whose provider is

entrusted by a public authority (national, regional or local) with specific missions of general interest,

which can include Public Service Obligations or Universal Service Obligations. National, regional or

local public authorities decide the nature and scope of Services of General Interest as well as the

way there are operated (public authorities can provide them themselves or entrust the responsibility

to public or private entities) and therefore in practice, the operation of these services often differs

from one Member State to another.

Public Services in Europe are responsible for the delivery of essential services, which have a direct

impact on territorial and social cohesion and on the well-being of citizens as well as providing the

infrastructure for future growth and development. Public Services include ‘services of general

economic interest’ (provided for remuneration) such as postal services, telecommunications, public

transport and the supply of water, electricity and gas, as well as ‘non-economic services’ such as

police, justice and statutory social security schemes, healthcare and social work, public

administration and defence.1

Public Services employ in total around 30% of the EU’s workforce, i.e. more than 64 million

employees (CEEP, 2010). The main employment sectors in Public Services are: Health and social

work (20.5 million employees); public administration and defence (15.4 million employees);

education (15 million employees) and transport, postal services, and telecommunications (5.9

million employees).

1 This project uses the definition of Public Services elaborated as part of the ‘Mapping of Public Services’ research project undertaken

by CEEP and funded by the European Commission.

http://www.etuc.org/a/9772

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1.2 Approach and methodology

While aiming to foster the debate on youth employment in Public Services across the EU, this

research focuses on particular on eight EU countries: Bulgaria, Denmark, France, Germany,

Greece, Italy, Netherlands and Spain.

This report builds on various elements:

■ A review of the available literature on youth employment in Public Services, including previous

research projects carried out by CEEP and ETUC and a review of key European and

international sources (including European Commission, Eurofound and OECD publications) as

well as a non-exhaustive review of the academic literature.

■ An analysis of Eurostat Labour Force Survey quarterly data on employment in Public Services

with a particular focus on youth employment (15-24 age group).

■ Interviews with national representatives of trade unions and representatives of public service

employers.

■ Findings from a seminar organised in Athens in October 2012 as part of this project, gathering

representatives of employers in Public Services and trade unions from Bulgaria, Croatia,

Cyprus, Denmark, France, Germany, Greece, Italy, the Netherlands and Spain as well as

representatives of CEEP and ETUC.

As the focus of this research project is on young people, it should be recalled that internationally

agreed definitions of ‘youth’ typically refer to the 15 to 24 age group, although the question arises

as to what extent this definition still capture the experience of today’s European youth. As both the

length of initial education and training and of school-to-work transitions is increasing, the perception

of various stakeholders is that the definition of ‘youth’ is evolving. In practice, many policies and

programmes put in place by Member States to support young people set the upper age limit for

beneficiaries at 29 years. This project adopts a flexible definition of youth (corresponding broadly to

the 15-29 age group), although some of the data presented in this report focuses on the 15-24 age

group as this is the only ‘youth’ age bracket available for some data series.

1.3 Overview of the report

This report includes:

■ A general overview of key trends and challenges related to youth employment in the EU, as

well as key policy interventions.

■ An analysis of recent trends affecting youth employment in Public Services, main rationales for

promoting youth employment in the Public services and related challenges.

■ Findings and examples from the review of initiatives and practices to foster youth employment

in Public Services.

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2 Youth employment in the EU: key trends, challenges and policy interventions

Fostering youth employment has become a top priority in the EU as current youth unemployment

rates are more than twice as high of those of adults. However, young Europeans do not form a

homogeneous group. To use the terminology used in the OECD Jobs for Youth review, two groups

of young people face particular difficulties in getting a stable job after leaving school, the ‘youth left

behind’ and the ‘poorly-integrated new entrants’ (OECD, 2010).

2.1 The crisis has aggravated the already fragile status of young people on labour markets

2.1.1 School-to work transitions are difficult for many young people, including tertiary education graduates

Concerns about lengthy school-to-work transitions are widespread even in those countries with

relatively ‘youth-friendly’ labour markets, as the recession has shown how vulnerable young people

- and especially new labour market entrants - are. Young people have typically lower employment

rates than adults due to the range of challenges they face to secure a first job, as well as remaining

in employment and finding a job matching their qualifications and expectations. In 2011, just over

24 million young people (42.7% of young people) in the EU-27 were economically active (this

category includes both those in employment and job seekers) but only 33.6% or 18.7 million were

in employment.

Lengthy school-to-work transitions can in part be explained by mismatches between the

educational profiles of young people leaving school and the level or types of qualifications required

by employers. As the overall level of educational attainment among young people has risen

continuously over the last decades and demand for (young) unskilled labour is generally

decreasing, less qualified young people such as early school leavers are at particular risk of being

‘left behind’. Mismatches can also be linked to the insufficient provision of career guidance and

counselling to young people. According to a recent Eurobarometer survey, about a quarter of

young Europeans consider the guidance they receive on education and training options and or

employment opportunities to be poor or very poor. Young people from Cyprus, France, Greece,

Ireland, Italy and Poland were most likely to complain about the low quality of guidance provision

(European Commission, 2011 b).

However, lengthy and difficult transitions are not only due to the lack of appropriate skills among

young people (ETUC, 2012); they are also explained by employers’ preferences and structural

characteristics of the labour market. Young people, as new labour market entrants, face a

disadvantaged situation as employers often prefer to recruit experienced workers. In the context of

the recession, job prospects for young graduates have been drastically reduced as they are

competing with jobseekers with more employment experience in a market with fewer jobs on offer.

Due to the lack of vacancies, some young people have to multiply experience such as in unpaid or

poorly paid internships/traineeships and traineeships, which are often not regulated at Member

State level.

2.1.2 Once in the labour market, young people are in a vulnerable position and tender to hold lower quality jobs

Labour market segmentation especially affects young people and the recession has increased the

precariousness of youth (ETUC, 2012). Indeed, a significant share of young people is only

marginally included in the labour market via fixed-terms contracts. In 2011, 42.5% of employed

young people were in temporary employment in the EU, against 14% for all employees. The extent

to which such fixed-term employment acts as a stepping stone towards more secure employment

relationships remains limited. Less qualified young workers are particularly at risk of becoming

trapped in temporary jobs, which delays their emancipation and economic independence. In

addition, the use of involuntary part-time work is also common among young people.

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Experts’ report

Young workers are clearly overrepresented in some economic sectors (in services) and

professions (such as sales workers). Overall, they are more likely to occupy a position that does

not correspond with their level of qualification and to have ‘low-quality’ jobs. Low pay is a common

feature of many jobs held by young people in Europe, particularly young people who have limited

or no previous work experience (European Commission, 2010).

Undeclared or informal work among young people is also identified as a potential problem in a few

Member States such as Bulgaria, Greece and Spain, as it traps individuals in unprotected forms of

work, particularly where entry level wages are low.

Precariousness is also linked with the perceived level of job security among young people. In the

current economic context, many young workers are uncertain about their future. According to the

findings of the 5th European Working Conditions Survey, across the EU, 21% of young workers

reported concerns about losing their job in the next six months, against 16% of those aged 25 or

over (Eurofound, 2011 b).

2.1.3 Young people have been hit the hardest during the recession, as they are particularly vulnerable to (cyclical) unemployment

Young people tend to be among the groups most affected by restructuring, both because of the

type of work contract they hold and the occupations and sectors in which they work (Eurofound,

2011 b). Younger employees are often amongst the first to lose their jobs during a recession as

their temporary contracts are not renewed or the ‘last in, first out’ rule is applied, as companies are

more interested in retaining experienced staff.

Since 2008, youth unemployment rates, which were already relatively high in Europe prior to the

crisis, have dramatically worsened. Except Germany and Luxembourg, no other country in the EU

has been spared the surge of youth unemployment. While youth unemployment is considered a

global issue, needless to say, not all European countries – and regions- face the same level of

challenges. Between 2008 and 2011, youth unemployment rates increased by more than 20 p.p. in

Spain and Greece, and very strong increases have been recorded in Lithuania and Latvia (around

18 p.p.), Ireland (about 16 p.p.), Estonia, Cyprus, Portugal and Slovakia (between 10 and 15 p.p.).

In contrast, youth unemployment rates have remained relatively low in Austria, the Netherlands and

Germany. Other countries which performed relatively well in 2008 (with levels of youth

unemployment below 10%) such as Czech Republic, Cyprus and Denmark have experienced a

clear deterioration of the situation. For example in Denmark, youth unemployment went up from 8%

in 2008 to over 14% in 2011.

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Experts’ report

Figure 2.1 Pre-crisis and 2011 youth unemployment rates (15-24 age group) in EU Member States

Source: Eurostat [lfsa_urgaed]

Overall, young men have been more adversely affected by the increase in unemployment, due to

their overrepresentation in sectors that were hit particularly hard by the crisis, such as construction

and manufacturing, although more recently female unemployment has also increased as cuts in the

public services begin to bite.

Differences between high and low skilled young people, new labour market entrants and young

workers have also been exacerbated in the context of the recession. Young people with low levels

of educational attainment those are particularly exposed to the risk of (long-term) unemployment.

Among both the 20-24 and 25-29 groups, the unemployment rates of low-skilled are 15 p.p. above

those of the high-skilled.

0 10 20 30 40 50

NL

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EU27

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2008

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Experts’ report

Figure 1.1 Evolution of youth unemployment rates by age group (15-19, 20-24 and 25-29 years old) and level of educational attainment (ISCED 0-2, 3-4 and 5-6) in the EU27

Source: Eurostat [lfsq_urgaed]

2.1.4 ‘Coping strategies’ of young people include staying longer in education and training, accepting any job available or looking for more opportunities abroad…

In the current context, some young people have chosen to stay longer in education and training,

hoping that postponing their entry into the labour market will pay off in the mid-term. In some

countries, the labour market ‘pull’ effect (attracting young people out of education) observed in

previous years came to an end with the crisis - the lack of immediate job prospects for the low-

skilled youth labour market led to a reduction in early school leaving rates. For example between

2008 and 2011, Portugal and Spain experienced decreases in early school leaving rates of 8 p.p.

and -4.7 respectively, at the same time as a rise in unemployment rates among early school

leavers.

The share of temporary employment among young people (standing at around 40% in the third

quarter of 2012) has increased overall since 2008, suggesting that many young people cannot

afford being picky about jobs and accept any available job. Other strategies such as emigrating to

another country can be considered by young people as a way to ‘escape’ poor prospects at home

(ETUC, 2012).

2.1.5 But gloomy job prospects can also lead to disengagement at a young age with ‘scarring’ effect on their career and income in the longer-term

In countries where youth unemployment levels have reached record levels, such as Greece and

Spain, there is a clear danger that some young people discouraged by the lack of employment

opportunities may drift into long-term unemployment and inactivity. More generally, across all

countries, the social exclusion of young people has an adverse effect on the wider community both

economically and socially, with the potential to lead to ‘long-term costs’ in the form of increased

criminality, welfare dependency and health problems (European Commission, 2010). According to

a study led by the European Foundation for the Improvement of Working and Living Conditions, in

2008 the cost of long-term unemployment (more than 6 months) or inactivity among young people

aged 16 to 29 years old in the 21 Member States for which data is available2 amounted to at least

2 Denmark, Greece, Finland, France, Malta and Sweden are excluded in the estimation due to missing statistical

variables.

0

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Q1

Y15-19, ISCED 0-2 Y15-19, ISCED 3-4 Y20-24, ISCED 0-2

Y20-24, ISCED 3-4 Y20-24, ISCED 5-6 Y25-29, ISCED 0-2

Y25-29, ISCED 3-4 Y25-29, ISCED 5-6

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EUR 2 billion per week to society, the equivalent of 1.1% of GDP in total, even excluding costs

such as unpaid taxes on foregone earnings, costs for health and criminal justice. The re-integration

into employment of just 10% of these people would create a yearly saving of more than EUR 10

billion (Eurofound, 2011 c).

National research also suggests that early labour market failure is costly. In Sweden, according to

a study from the Swedish Institute for Labour Market Policy Evaluation (IFAU), for those who were

unemployed directly upon leaving initial education, the probability of being unemployed five years

later was as high as 16%, and the reduction in their annual earnings averaged 17% (Eurofound,

2011 b).

2.2 Addressing youth unemployment has come to the top of the political agenda

Both across all Member States and at the European level, fostering youth employment has become

an urgent policy goal.

At a EU level, the strategy Europe 2020 and its flagship initiatives, including ‘Youth on the Move’,

emphasise the need to provide adequate support to young people and enhance the performance of

education systems in order to facilitate the entry of young people into the labour market and

generally reduce youth unemployment. The Commission ‘Youth Employment Package’3 released in

December 2012 reiterates the need for Member States and EU to combine their efforts to improve

the situation of young people, mobilise EU financial support and instruments in this regard, develop

innovative approaches supporting the transitions from school to work and supporting youth labour

market mobility. The European Commission has in particular called upon Member States to provide

‘Youth Guarantees’, i.e. ensuring that all young people are offered a job, further education or

activation measures within four months of leaving school4.The proposal has been supported by

various stakeholders both at the institutional level and among youth organisations.

Government and social partners have not stayed idle and many initiatives have been put in place to

support youth employment in general (European Commission, 2011), although in some countries

austerity measures have limited the margin of manoeuvre for implementing youth measures and

programmes. In a difficult socio-economic context, social dialogue mechanisms have been under

considerable strain in many countries; the consensus on social dialogue broke down in Ireland,

Portugal and Spain (Eurofound, 2011 a) which has also had an impact on some of these

programmes.

2.2.1 Social partners across the EU are highly aware of and have fully acknowledged the challenges facing young jobseekers and workers

Across Europe, social partners generally agree on the scale of the problem and on the need to

foster employment opportunities for young people. While there is broad agreement between social

partners on the need to further develop apprenticeships and reform education systems, employer

organisations and trade unions also pursue specific agendas (Eurofound, 2011 a).

Key concerns for employers relate to the perceived mismatch between education and training

outcomes and skills required by the labour market on the one hand, and labour market reforms on

the other hand. Some employer organisations have argued that minimum wages, and legislation

regulating probation and dismissal and unemployment protection are an obstacle to hiring young

workers.

For trade unions, key priorities are the reform of education systems (including the use of

apprenticeships to train and retain young workers) as well as measures to improve school to work

transition and improve the quality of jobs held by young people. The recession has also led some

trade unions to campaign more actively to recruit more young workers (Eurofound, 2011 a).

3 http://ec.europa.eu/social/main.jsp?langId=en&catId=89&newsId=1731&furtherNews=yes

4 A draft Council recommendation on Youth Guarantees has been put forward by the Commission - as part of its Youth

employment Package. COM(2012) 729 final.

http://ec.europa.eu/social/main.jsp?langId=en&catId=89&newsId=1731&furtherNews=yes

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Experts’ report

2.2.2 In many countries, major strategic policy initiatives or packages of measures for youth employment have been launched in response to the crisis

For example, in Bulgaria, youth unemployment was established as a major issue on the

employment agenda at the start of 2012, the Ministry of Labour and Social Policy convened an

urgent meeting with social partners and stakeholders involved in youth unemployment for

development of strategy with the problem of youth unemployment in Bulgaria. As a result, a

national initiative called ‘Jobs for young people in Bulgaria’ was adopted in March 2012. This

initiative aims to create new job opportunities for young people and to reduce the youth

unemployment rate by 5%.

In many countries, different waves of measures have been taken in response to the deterioration of

the youth situation over the last years. In Denmark, for example, a series of youth packages have

been adopted since 2009 to boost youth employment, the most recent adopted in November 2012

(see Box 2.1).

Box 2.1 Youth Packages in Denmark

Tackling youth unemployment has become a clear priority in Denmark. Today, there are approximately

100,000 young unemployed persons and other recipients of unemployment or welfare benefits. The latest

Youth Package was adopted in November 2012 as part of the 2013 budget. The agreement on a ‘Youth

package - Training and job experience to help young people get jobs’ was adopted by the Government and

the Unity party. The package includes various initiatives and has a total budget of € 86 million. The measures

target two main target groups: young persons on unemployment benefits or cash benefits without

qualifications as well as newly qualified young persons who need support to access a first job.

The measures that target low-skilled young persons on unemployment benefits are the following:

■ A total of € 9 million will be set aside to allow 950 young persons to enter ‘bridge building programmes’

(gradually introduction to a vocational school) over the next two years.

■ A total of € 2 million will be set aside from 2013-2014 for connecting traineeship advisers in vocational

schools to the bridge building programme. Traineeship advisers will be the main contact point for

participants and will also be responsible for identifying companies that can provide training places.

■ A further € 24 million will be allocated to support to the development of adult apprenticeship (across all

sectors) from 2013-2016 and to encourage an additional 1,050 persons to take part. Companies can

receive a subsidy if they train young adults as apprentices.

Other measures target newly qualified young persons:

■ The ‘job rotation scheme’ will receive an additional funding of € 36 million between 2012-2016 with a view

to allow 2,100 unemployed young people to get a footstep in the labour market (replacing young people

on leave). Young person with a master’s degree will also be able to enter the scheme during a during a

two-year trial period.

■ A vocational pilot scheme targeting young craftsmen (under the age of 30) will be launched for a budget

of € 1 million for 2013-2015. The scheme allows small and medium-sized companies a subsidy for six to

twelve months for hiring a young craftsman.

■ The knowledge pilot programme supporting hiring of highly-qualified young people with an academic

background) in small and medium-sized companies will benefit from extra support (€ 12 million) to

support the hires of 400 new graduates. Furthermore, the programme is extended to including young

graduates with a bachelor degree during a two-year period.

The Youth Package will primarily be financed by a reorganizing of priorities within the Ministry of Employment,

while the strengthening of the knowledge pilot programme is financed by redirecting priorities within the

Ministry of Education as well as funds transferred from the research reserve funds. The implementation of the

agreement is to be evaluated with a view to assess if the continuation of measures is needed.

In the Netherlands, key developments in the area include the Investment in Youth Act which came

into force on 1 October 2009, guaranteeing that young people aged 18-27 are offered work or

education opportunities (or a combination of the two) and strengthening the strong conditionality for

receiving social benefits. In addition the Dutch ‘Action plan on youth unemployment’ introduced in

September 2009 included a wide range of measures. As the Action plan ended in 2011, while the

youth employment situation has deteriorated since then, Dutch trade unions are now advocating for

a revival of the plan.

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Experts’ report

In France, various youth strategies, plans and measures have been launched in recent years. An

Emergency Plan for Youth Employment was adopted in April 2009 and a national governmental

plan ‘Acting for youth’ was launched in September 2009 with a view to tackling the problems facing

young people in a more comprehensive fashion (covering a series of mutually reinforcing

objectives in the field of education, employment and social policies). The current government has

also made youth clear priority and has already introduced new schemes and policies; the main

lines of a comprehensive strategy for youth, covering among others access to employment,

education, guidance, and other social and cultural objectives were recently presented5.

In Spain, despite of the disproportionate impact of the crisis on young people the development of a

comprehensive strategy for youth employment has taken place relatively late. The government and

social partners have recently announced that they have reached an agreement for a Youth

entrepreneurship and Employment Plan for 2013-2016 (See Box 2.2). Prior to that, specific support

measures to support youth employment had been taken in the framework of Spain’s Employment

Strategy 2012-20146 and in the Employment Policy Annual Plan for 2012 whose first objective is to

‘cut down the youth unemployment rate’.

Box 2.2 The Strategy for Entrepreneurship and Youth Employment 2013-2016 in Spain

The Strategy, presented in March 2013, was elaborated by the Ministry of Employment and Social Security

with the participation of Social Partners. With a total budget of EUR 3.5 billion (or EUR 800 million per year),

the Strategy aims to cover both the structural problems of youth unemployment and those that have arisen in

the context of the recession. Its four objectives are to help improve the employability of young people, to

increase job quality and stability, to promote equal opportunities and focus on the needs of young people at

risk of social exclusion and to promote entrepreneurship.

To achieve these objectives, the Strategy includes 100 measures. Among these, 15 ‘emergency measures’

focus on education, training and improved employability, the promotion of entrepreneurship and self-

employment, guidance, support and improvement of mediation by public employment services and partner

organisations and the provisions of hiring incentives. In addition, 85 medium and long-term in initiatives are

set in relation with the above-mentioned priorities as well as improving foreign language skills and the use of

technological tools, the promotion of equal opportunities and public-private sector collaboration in employment

services. None of the measures foreseen by the plan has a specific focus on the promotion of youth

employment in Public Services.

Another objective of the Strategy is to encourage various stakeholders such as Autonomous Communities,

local authorities, public and private employers to contribute through additional initiatives at their level. Any

organisation that wishes to adhere to the Strategy must provide information to Ministry of Employment and

Social Security on the type of initiative taken, available funding available, implementation and the number of

beneficiaries; the Ministry may give special recognition to organisations or initiatives which bring a significant

contribution to the Strategy.

2.2.3 A wide range of measures have been implemented at the national level with a view to support youth employment

Measures to support young people include ALMPs and extra support from public employment

services (including as part of ‘Youth Guarantees’) and hiring subsidies/bonus or social security

rebates. In addition, a few countries have reformed their labour legislation to remove or reduce

employment protection for young workers, with a view reduce barriers to labour market entry for

young workers expand and (temporary) work opportunities for young people. For example in the

Netherlands, since July 2010, a temporary measure was introduced to increase the maximum

5 http://www.jeunes.gouv.fr/IMG/pdf/CIJ_Rapport_21_fevrier_2013.pdf,

6 Royal Decree 1542/2011, on October 31st (Spanish Official Journal - BOE 19-11-2011)

http://www.empleo.gob.es/es/estrategia-empleo-joven/descargas/EEEJ_Resumen_Ejecutivo_INGLES.pdf

http://www.jeunes.gouv.fr/IMG/pdf/CIJ_Rapport_21_fevrier_2013.pdf

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Experts’ report

number of consecutive fixed-term contracts (from 3 to 4)7. In Spain, the 2010 labour law reform

introduced changes to the legal protection of young workers. In Greece, following a reform of

labour law, young workers under the age of 25 can be paid 84% of the national minimum wage in

an effort to encourage employers to offer opportunities to young workers.

However, such reforms have been highly contested, as indeed young people are one of the groups

of workers most affected by labour market segmentation. The effects of employment protection

legislation on youth employment are not clear-cut and are indeed, difficult to measure (ETUC,

2012). There is a danger that further deregulation could deepen divisions between generations and

worsen the quality of youth employment, with young people being disproportionately

disadvantaged. In the context of the recession, it has been argued that the prime objective has

moved to ‘getting young people into work’ at the expense of the quality of youth employment

(Eurofound 2011 a).

2.2.4 Apprenticeship-type programmes are increasingly regarded as highly effective mechanisms for facilitating youth integration on the labour market

One of the most noticeable trends in youth policy developments in the context of the recession is

the emphasis put by national governments - often with the support of social partners - on the

promotion of apprenticeships (or ‘dual learning’ systems combining in-company on-the job training

and off-the job school training), including subsidies and taxation incentives for employers to train

young workers. Indeed, of all forms of education and training, apprenticeships are the most directly

connected to the labour market. By facilitating the contact between young people and potential

employers, apprenticeships can aid rapid school-work transitions for students and recruitment

process for employers. In contrast with trainees or interns, apprentices are generally paid and

covered by a contract and collective agreement. Apprenticeship systems typically imply a strong

involvement of social partners in the governance and rely on a strong level of commitment and

investment in training from employers.

Regulated apprenticeship systems have attracted a lot of interest in recent years as they play a

crucial role in the education and training systems of many countries with low unemployment rates

such as Germany and Denmark. In Germany, for example, the low rates of youth unemployment

are undoubtedly due to the favourable economic situation and demographic developments, but

also to the role of ‘dual training’ enabling young people to smoothly enter into the labour market.

Dual training is considered as a high value pathway into the labour market and is chosen by about

two thirds of each youth cohort leaving general education. It is also advantageous for many

employers who see it as a way of preventing future shortages of skilled staff. Therefore, the

development of the system is strongly supported by social partners (ICF GHK, 2012 a).

Several European countries have recently sought to take some inspiration from the German dual

system. For example, very recently a Memorandum of Understanding to promote youth

employment was signed by the labour and education ministries of Germany and Italy, which covers

among other topics cooperation in vocational education. Spain has also initiated a reform to

introduce progressively a dual vocational training system in the country (ICF GHK, 2012 b). The

purpose of the reform is to increase the participation of enterprises in vocational training, adapt the

training offer to labour market needs and develop closer ties between young people and employers

with a view to facilitate labour market insertion.

Apprenticeship systems, however, have also been put under considerable strain in recent years,

including in Germany (European Commission, 2012 b). The number of available training

placements has experienced a remarkable downward trend in nearly all Member States, as

employers are more reluctant to offer train or even pay apprentices. In response to the general

shortage of apprenticeships placements, many countries have used financial or other incentives

for companies to increase the number of apprenticeship offers and to encourage young people to

7 The Law of 30 June 2010 (temporarily expanding the opportunity foreseen in Article 668a of Book 7 of the Civil Code to

use fixed-term contracts to promote of youth employment) foresees that unless a later point in time is agreed upon by

royal decree (not later than 1 January 2014), the provisions will expire with it remaining applicable for the employee

whose employment contract on 1 January 2012 or the later determined point in time meets the conditions laid out in the

law.

11

Experts’ report

take up apprenticeships (Eurofound, 2011 d; see also Box 2.3). Increasing emphasis is being

placed on the proper targeting of such subsidies to adverse long-term effects or perverse

incentives.

Some countries which do not have a well-developed apprenticeship system have also sought to

encourage other work placement and traineeship programmes (not leading to the acquisition of

qualification) or to improve their quality. In Bulgaria for example, the revision of the status of

traineeships in the Labour Code is currently on the agenda. Proposals for amendments suggested

by the trade union CITUB after consultation with other social partners are being examined by the

Ministry of Labour and Social Policy8.

Box 2.3 Measures to support the supply of apprenticeship placements: examples from Germany and France

In France, to support the increase of the number of apprenticeship contracts, significant financial help for

employers hiring apprentices such as the reduction of non-wage labour costs or exceptional subsides for

hiring a young apprentice have been proposed. The programme called ‘No apprentice without an employer’

involving training centres, public employment services and chambers of commerce has been implemented,

with an additional budget of EUR 100 million to reinforce the apprenticeship training offer.

Such subsidies can also focus on specific groups of young people at risk. For example in Germany, the

government has facilitated extension of apprenticeship placements through the provision of a training bonus

of up to €6,000 to employers offering an additional placement to a disadvantaged young person who has

been seeking training for 12 months or more. Another strategy used in Germany with a view to increase the

number of apprenticeships placements is to rely on voluntary tools and social dialogue. The ‘National Pact for

vocational training and promoting next generations’ specialists’ (the latest version of this Pact covers the

years 2010 to 2014) brings together the employers’ organisations, the federal Government and the Länder, its

aims was to agree on targets for the provisions of apprenticeship placements by employers.

8 Source: Information provided by CITUB (Confederation of Independent Trade Unions in Bulgaria) representative

12

Experts’ report

3 An overview of recent trends and challenges linked to youth employment in Public Services

This chapter provides a brief overview of the recent trends in employment of young people in

Public Services in the EU and explores the key rationale for promoting youth employment in

Services of General Interest.

Box 3.1 Available data on youth employment in Public Services at the EU level

The data presented in this report to measure youth employment and temporary employment in Public

Services is drawn from the quarterly Labour Force Survey (Eurostat) with a breakdown by sectors following

the NACE classification Rev. 2 (1-digit and 2-digit levels). This data is available since the first quarter of

2008. The figures presented in this chapter should be interpreted with caution, due to significant data

limitations. First, the only ‘youth age bracket’ available for this data is the 15-24 age group. In addition, due

to data limitations in terms of level of detail and coverage of the data from the LFS, the total volume of

(youth) employment in Public Services/Services of General Interest cannot be estimated.

The data presented in this report focuses on a selection of Public Services (NACE Rev.2 2-digit level, or 1-

digit level for temporary employment) for which data is available for the 15-24 age bracket:

■ Electricity, gas, steam and air conditioning supply,

■ Waste collection, treatment and disposal activities; materials recovery,

■ Postal and courier activities,

■ Scientific research and development,

■ Public administration and defence; compulsory social security,

■ Education

■ Human health activities

■ Residential care activities

■ Social work activities without accommodation

■ Libraries, archives, museums and other cultural activities

No data is available for some subsectors (3 or 4-digit level of the NACE classification Rev. 2) providing

Services of General Interest (this includes Silviculture and other forestry activities, Support services to

forestry, Land transport and transport via pipelines, Inland passenger water transport, Warehousing and

support activities for transportation, Programming and broadcasting activities, Wired telecommunications,

Satellite telecommunications activities, Central banking, Activities of employment placement agencies and

Funeral and related activities). Data is not available for the 15-24 group for some sectors (2-digit level of the

NACE classification Rev. 2) providing Services of General Interest such as Water collection, treatment and

supply, Remediation activities and other waste management service, Sewerage and Veterinary activities.

Youth employment in the share of the Air transport sector considered as Public Services cannot be

estimated on the basis of available data.

In addition, data from Cedefop forecasts (IER estimates) presented in this report, also based on the Labour

Force Survey, focuses on the following sectors: Electricity, gas and water, Public administration and

defence, education and Health and social work.

3.1 The evolution of youth employment in Public Services in the context of the recession

3.1.1 Youth employment in Public Services has been quite resilient in the context of the recession, although this general trend hides diverging trends across sectors

Across the EU, in the third quarter of 2012, more than 3.5 million young people were working in

sectors providing Services of General Interest9. Among Public Services, the sector that currently

9 Data limitations do not allow to allow to measure the total youth employment in Public Services. Amore sophisticated

analysis of LFS employment data carried out as part of study commissioned by CEEP on the evolutions of Public Services in Europe (Cambridge Econometrics, 2013), provides relatively similar results in terms of volume of youth

13

Experts’ report

employs the largest number of young people is the health sector (about 800,000 jobs), followed by

public administration (about 700,000 jobs) and the education sector (about 650,000 jobs). The

sectors of residential care and social work employ each about 450,000 young people. In

comparison, other sectors including utilities, postal services, cultural activities and research

concentrate much lower volumes of youth employment.

Figure 3.2 Number of young people employed (15-24) by sectors in the third quarter of 2013 in thousands, EU-27

Source: Eurostat, Labour Force Survey [lfsq_egan22d]. Note: The selection of sectors for which

data is displayed (NACE Rev.2 2-digit level) does not cover the entire range of Services of General

Interest.

Overall, the number of young people employed in Public Services has declined across the EU in

recent years – there were 237,000 less young people working in Public Services in the third quarter

of 2012 than at the start of 2008. However, a comparison with trends across the entire economy

shows that youth employment in Public Services has overall proved quite resilient during the

recession, as it has reduced in a smaller proportion that total youth employment.

employment (15-24) in Public Services: 3.57 million young people aged 15-24 in 2010, accounting for 6% of all employees in sectors providing Services of General Interest.

0 100 200 300 400 500 600 700 800 900

Scientific research and development

Libraries, archives, museums and other cultural activities

Waste collection, treatment and disposal activities; materials …

Electricity, gas, steam and air conditioning supply

Postal and courier activities

Social work activities without accommodation

Residential care activities

Education

Public administration and defence; compulsory social security

Human health activities

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Experts’ report

Figure 3.3 Evolution of the number of young people (15-24) employed in Public Services (selected sectors) and in the entire economy, EU-27

Unit: % of levels in the first quarter of 2008 (2008Q1 = 100%)

Source: Calculations based on Eurostat, Labour Force Survey [lfsq_egan22d]. Note: The selection

of sectors of Public Services does not cover the entire range of Services of General Interest.

As in the case for total employment in Public Services, the evolution of youth employment in

Services of General Interest is differentiated across sectors. Indeed, a noticeable decrease of the

number of young people employed has been felt in sectors that have suffered an overall reduction

of their workforce such as the health sector, public administration and postal activities. On the other

hand, positive developments in youth employment have been recorded in residential care and in

the electricity sector. Levels of youth employment have remained relatively stable since the

beginning of 2008 in sectors such as social work, scientific research, libraries and museums

despite of the recession.

Figure 3.4 Number of young people (15-24) employed by sectors, in thousands, EU-27

Source: Eurostat, Labour Force Survey [lfsq_egan22d].

80%

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Waste collection, treatment and disposal activities; materials recovery Postal and courier activities



Education



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Experts’ report

3.1.2 Gender imbalances in Public Services also apply to younger categories of staff

In the third quarter of 2013, around two thirds of young people employed in Public Services (2.3

million persons) were female10

. This gender ratio has not changed significantly in the last four

years, and has not been affected the decrease of the total volume of youth employment in Public

Services. The overrepresentation of women is not specific to the youth age bracket but is

characteristic of the workforce of Public Services as a whole11

- the percentage of female

employees has remained at around 63-64% since 2008. Indeed Public Services include some

traditionally female-dominated professions in education, healthcare, public administration, etc. and

are generally considered as more attractive for women due to more ‘family-friendly’ working

conditions (Cambridge Econometrics, 2013).

3.1.3 Young Europeans have been and remain underrepresented in Public Services

Since 2008, the general trend in Europe is towards the decrease in the share of young people in

the total employed population. This has also been observed across most of Public Services.

According to the latest figures available from Eurostat, young people account for a little less than

6% of the workforce in Public Services, compared to about 9% of the entire workforce and just over

10% of the active population.

Figure 3.5 Share of young people (15-24) in the active population, in the total workforce and in the workforce of Public Services (selected sectors), EU-27



10

Calculations based on Eurostat, Labour Force Survey [lfsq_egan22d], based on a selection of sectors in Public Services. Note: due to data limitations, this selection does not include some sectors which traditionally employ more men such as rails and public transport. 11

According to the mapping study mandated by CEEP including a more sophisticated and comprehensive analysis of employment data in Public Services, in 2010, women made up about 58% of all employment in Services of General Interests in 2010

5,00%

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% of young people in workforce, Public Services (selected sectors)

% of young people in workforce, all economic sectors

% of young people in active population

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Experts’ report

Figure 3.6 Share of young people (15-24) in the workforce by sector in the third quarter of 2012, EU-27



The sector of residential care activities is however an exception, as the share of young workers in

the workforce in this sector, at about 10%, is slightly higher than the average across the entire

economy. In addition, the shares of young workers in the sectors of social work activities and postal

and courier activities are also close to the average. In contrast, Public Services where young

people are the most underrepresented are public administration, scientific research and

development and education, where less than 5% of employees are under the age of 25. However,

in these sectors which typically require relatively high levels of qualifications and recruit via open

competitions, looking at the age bracket 15-24 is probably not relevant to monitor developments in

youth employment.

In addition, a more detailed analysis at the national level for the age group 15-24 shows that there

are significant differences in youth representation across sectors of Public Services and countries.

For example, as shown in Figure 3.7, Italy is characterised by low shares of young people in the

workforce, compared to Germany, Denmark or France. In the Netherlands, young people are

relatively more likely to be employed in the sector of residential care.

Figure 3.7 Share of young people (15-24) in the workforce in the sectors of Education, Health, Public administration and Residential Care, 3

rd quarter of 2012,

Source: Calculations based on Eurostat, Labour Force Survey [lfsq_egan22d]. Note: Data is not

available for some sectors and/or countries.

0,0% 2,0% 4,0% 6,0% 8,0% 10,0% 12,0%

Education



Public services (selected sectors)







All economic sectors


0

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BG DE DK EL ES EU27 FR IT NL

Education Health Public administration Residential Care

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3.1.4 Across the EU, young people working in Public Services are in average more likely to work under temporary contracts

Another important concern relates to the quality of job opportunities offered to young people

working in Public Services. Indeed, the proportion of young people employed on temporary

contracts is higher in Public Services than across the entire economy and is following an upward

trend. In the third semester of 2012, the share of temporary employment among young employees

in Public Services is about 47% on average, compared to 40% across all economic sectors. A

small majority of young people working for public administration (52.9%) and close to half of young

employees in the education and electricity and gas sectors had a temporary contract.

Figure 3.8 Share of temporary employment among young employees (15-24) by sectors in the third quarter of 2012, EU-27

Source: Calculations based on Eurostat, Labour Force Survey [lfsq_etgan2], [lfsq_egan2]. Note:

The selection of sectors of Public Services (NACE Rev 2 1-digit level sectors) does not cover the

entire range of Services of General Interest.

Labour market segmentation (within and between organisations) and the quality of job

opportunities offered to new entrants are a key concern in Public Services. Changing contractual

relationships have become an important issue in sectors such as postal services, public transport

and central public administration (CEEP, 2010 b)

The use of fixed-term contracts among younger employees is not even across all countries and

sectors of Public Services in Europe, also depending on the type of legal provisions regulating

these contracts. These provisions also depend on the type of sector and the ‘typical’ employment

relationship in the sector.

For example, in the field of education, in the majority of European countries, teachers are

employed as public sector employees or on a contractual basis (permanently or temporarily), while

in a few other countries, teachers are employed as career civil servants (appointed for life). In

some cases, various types of employment relationships for teachers can coexist in the same

country (ETUCE, 2010 a).

The same situation can also be observed in other sectors.

■ For example within public administration, in the Netherlands for instance, young employees are

typically offered temporary contracts (for a maximum duration of three years. In some cases,

municipalities can make agreements for other shorter, types of contracts with lower levels of

protection (in terms of social security scheme, pension etc.)12

. In the sectors of health and

social care, especially home care and elderly care, new starters are more likely to work under

temporary and/or part-time contracts (EPSU, 2012).

12

Source: Information provided by FNV (Federatie Nederlandse Vakbeweging) representative

20,0% 25,0% 30,0% 35,0% 40,0% 45,0% 50,0% 55,0%


Water supply; sewerage, waste management and remediation activities

Human health and social work activities

Public Services (selected sectors)

Education


Public administration

18

Experts’ report

■ In France, a part of young people working for central and local public administrations is

employed under fixed-term contracts as ‘contractual agents’ while the vast majority of staff has

a civil servant status. Such temporary contracts are in generally linked to administrative

positions, but not exclusively.

■ In Italy, although no detailed data on national sources is available on fixed-term contracts,

temporary contracts and ‘collaboration contracts’ (not covered by collective agreements) in

central and local public administration and in the health sector, the forms of precarious

contracts are known to be particularly widespread among the youngest categories workers.

The use of such forms of contracts has been encouraged by the ‘ban on hiring’ applicable to

permanent positions over the last decade13

.

■ In Germany, young workers in health in social care overrepresented among those in so-called

‘mini-jobs’ (EPSU, 2012).

3.2 The importance of promoting of youth employment in public services

3.2.1 Large numbers of workers in Public Services are expected to retire in the coming years

As a consequence of demographic trends and of the gradual ageing of their workforce, Public

Services are expected to lose a significant share of their staff due to retirement in a relatively short

period. Older workers are clearly overrepresented in the workforce in Public Services - today, one

out of three employees in Public Services is aged 50 or beyond, compared to about 28% of

employees in the economy as a whole. In both Public Services and the entire economy, the shares

of older workers has already increased significantly in the last years, while the gap between Public

Services and the rest of the economy has remained unchanged, at about 5 percentage points.

Figure 3.9 Share of employees aged 50 and over in the workforce (15+) by sectors , EU-27

Source: Calculations based on Eurostat, Labour Force Survey [lfsq_egan22]. Note: The selection


According to the latest forecasts available from Cedefop, the number of employees leaving for

retirement (also known as the ‘replacement demand’) over the 2010-2020 period will amount to 7.4

million in health and social work, 5.8 million in education, 4.6 million in public administration and

defence and 0.5 million in the sector of electricity, gas and water. When looking at these figures it

must be borne in mind that current austerity and ongoing trends towards staff reductions in the

many public services will mean that at least some of these individuals will not be replaced.

13

Source: Information provided by CGIL (Confederazione Generale Italiana del Lavoro) representative

20% 22% 24% 26% 28% 30% 32% 34% 36% 38% 40%










Public Services (selected sectors)

Education


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Experts’ report

Figure 3.10 Forecasted job openings during the period 2010-2020 by sectors, in the EU-27 and Norway, in thousands

Source: Cedefop (IER estimates). Note: the sectors of Public Services for which data is available

do not cover the entire range of Services of General Interest.

In the health sector, the ageing of the workforce has been identified at the EU level as a major

issue for years and the workforce has even already started to shrink due to the retirement of many

health professionals. According to data collected from Germany, Denmark, Ireland, France,

Sweden and the UK reported in the Commission Staff Working Document on an Action Plan for the

EU Health Workforce, the average age of nurses is between 41-45 years; in 2009, about 30% of all

doctors in the EU were over 55 years of age and by 2020, more than 60 000 doctors are expected

to retire annually (European Commission, 2012 a).

Ageing and losses of qualified staff are also identified as a key challenge in the rail sector.

According to the results of a survey of social partners in the rail sector, across the EU about 34% of

employees are already past the age of 50 and demographic shifts have already affected the

recruitment of staff or will do so in the future (EVA, 2011).

Are there any studies/forecasts available on the volume of jobs left vacant due to retirement in

Public Services or some sectors of Public Services in your country? How many of these posts will

remain unfilled to achieve downsizing?

3.2.2 Young recruits could help filling the gap and meeting changing skills demand

Even if not all older employees leaving for retirement are replaced, recruitment of new (young) staff

will be necessary to compensate for the loss of workers. Indeed, transfers of staff from other

economic sectors outside Public Services and/or countries are not always a possible and/or

desirable solution. For example, strong tensions for recruitment are particularly noticeable in the

healthcare sector, as chronic skills shortages are experienced and recruitment of qualified doctors

and nurses has gone beyond boundaries, raising some questions about the ‘ethical international

recruitment’ of health care workers.

In addition, the recruitment of younger staff could not only alleviate labour shortages but also

addresses any skills mismatches already identified across different sectors in the Public Services

by bringing new skills and competences. Indeed, changing and emerging skills needs have been

identified in various sectors as the nature of work is changing and (older) employees face new

demands for improved service delivery, using new technologies and management practices that

tend to add intensity and complexity to their work (CEEP, 2010):

■ In the education sector, teachers have to keep pace with changing technology, its impact on

learning methods and changing pupil profiles;

■ In the health sector, ‘e-skills’ are emerging as a new key competence for managers, medical

doctors and health associate professionals, as well as nurses due to the increasing role of ICT,

both for diagnostics as well as contact with patients via e-mail or the use of electronic patient

dossiers. For all these occupations, updating ICT skills will essential to keep up with the rapidly

growing technological innovations (European Commission, 2009).

■ In central, local and regional administration, new demands for ICT skills emerge from the

implementation of e-government initiatives.

-1000 1000 3000 5000 7000 9000

Electricity, gas and water

Public administration and defence

Education

Health and social work

Expansion demand Replacement demand (staff leaving for retirement)

20

Experts’ report

■ In the electricity sector, despite a large number of jobs have either disappeared or been

outsourced, jobs have been created at both ends of the skill spectrum including call centres,

customer service specialists, brokerage, business development, project managers, legal

services and new product development.

■ In the rail sector, skill changes include eco-driving, foreign languages, customer orientation,

sales and logistics; skills shortages have been identified in the areas of logistics, IT and

environment engineering.

Is there any evidence from your sector on changing skills needs and skills shortages and how

young people could help address these? Are any actions being taken by social partners in these

sectors to specifically address these skills shortages?

3.2.3 However, important obstacles to youth employment in Public Services remain

Too few concrete actions has been taken to address staffing challenges and increasing

youth representation in Public Services

According to the evidence collected for this project, prior to the crisis, the promotion of youth

employment in Public Services was typically not considered as a central point of debate (with some

exceptions, as will be evidenced in the sections below) or the object of a specific strategy at the

national level. A key question is why the challenges of ageing in public services still not treated as

a top priority, despite the increasing awareness of the importance of the demographic challenge.

Looking at some of the sectors of Public Services ageing most quickly, such as public

administration and education, long-term anticipatory approaches concerning staffing and age

management remain too rare or insufficiently developed:

■ In the sector of public administration, age management ‘has emerged in the 1990s but has

remained something of a back-room technical issue to be discussed amongst an inner circle of

consultants and managers, but with little broader public exposure’ (Mc Kinnon, 2010). As such,

ageing and staffing challenges have not been a key driver behind major reforms affecting the

sector, while debates have been largely dominated by fiscal constraints and more generally

requirements for ‘doing more with less’ and improving the cost-efficiency of services. Therefore,

little evidence is available on actions undertaken by governments at various levels to cope with

the challenge of staff ageing.

■ In the education sector, evidence from recent surveys of social partners carried out at the EU

level suggest that current policies and practices to recruit and retain teachers in the long-term

are not considered adequate, and that social partners are not systematically involved in the

development of such policies (ETUCE, 2012 a).

There is some evidence that market liberalisation and constrained budget in public services, even

in the years pre-dating the crisis, has led many employers in the public services to be required to

implement recruitment freezes, which have left then with a very skewed age profile, without being

able to effectively address this issue (ICF GHK, 2012 c).

Is there any evidence from your sector on the level of awareness of the staffing challenges in

Public Services?

In some sectors of Public Services, austerity measures have drastically limited job

opportunities for youth

Fostering employment in Public Services has not been one of the key priorities followed by

governments to support youth employment in the context of the recession. According to a recent

research project carried out for EPSU by the Working Lives Research Institute, ‘few of the

initiatives aimed at youth are expressed through public employment (and none exclusively so)’

(Working Lives Research Institute, 2011). Indeed, existing reviews of youth policies measures

suggest that there has been very little explicit emphasis on recruiting or retaining youth in Public

Services, which has been confirmed by the stakeholders consulted as part of this project.

21

Experts’ report

Indeed, counter-cyclical approaches strengthening Public Services and the State as an employer

have not been favoured in Europe in the context of austerity policies. As the priority in many

countries is placed on containing public expenditure and reducing public deficit, opportunities for

recruitment of new (young) staff have been drastically reduced or closed due to ‘job freezes’ in

some sectors, often further exacerbating medium term trends towards staff reductions. It is

important to note, however, that the picture not only diverges across countries but also across

different the sectors composing Public Services and indeed across companies and organisation,

reflecting very different contexts. Some employers in Public Services are currently clearly reducing

or freezing recruitment while others, particular in network services, are less affected by austerity

measures and still offer job opportunities to young people, due to strong replacement needs, for

instance in the energy sector. It must be noted that even in these sectors in many countries this

follows years of limited recruitment as services are liberalised and have shed many employees.

Among the sectors most affected are (central) public administrations. Recruitment in competitive

exams has been stopped or drastically reduced, which contributes to the dramatic reduction of job

opportunities for new labour market entrants. According to a review carried out by the OECD,

personnel cuts have taken place in central governments in Ireland, Czech Republic, Netherlands,

Poland, Portugal and the UK. Limited replacement rates for retiring staff and recruitment freezes

are taking place in Spain, Greece, Italy, Austria, France, Slovakia and the UK. In addition, the

reallocation and restructuring of personnel to decrease staffing costs is taking place in various

countries in Denmark Estonia, Finland, France and Slovenia (OECD, 2011).

In the sample of countries covered by this study, Southern European countries are particularly

affected by public expenditure cuts. In Spain, due to recent austerity measures, recruitment in the

public administration has been frozen except for some departments. In Greece, only one out of ten

civil servants leaving for retirement is currently replaced14

.

In Italy, due to the effects of recruitment freezes over several years, young people with open-ended

contracts are particularly underrepresented in central and local public administrations as well as in

the health sector. According to national data, the number of young people in permanent positions in

such sectors has been halved in the last ten years. In addition, even young people who have

successfully passed a competition to enter one of these sectors cannot be recruited15

.

Budget constraints also affect the volume of temporary contracts used in Public Services as some

of these are not renewed due to austerity measures. In Cyprus for example, less temporary

contracts - which used to be considered as entry point for young people in Public Services – are

now offered.

Which sectors are the most affected by austerity measures in terms of lay-offs/non-renewal of

temporary contracts or recruitment freezes in your country? Which sectors are most likely to recruit

again to counteract demographic trends? Is there any data on these aspects?

Staffing challenges cannot be dissociated from general factors affecting the attractiveness

of careers in Public Services

In the current economic context and scarcity of job vacancies, jobs in Public Services could overall

still be considered attractive for young people, especially when these are still associated with stable

career prospects. However, all sectors in Public Services are not equally attractive, and some

sectors fail to attract young candidates. This can be due to the nature of work in Public Services,

the working conditions and wages, the prestige associated to the position/sector and well as

existing practices in terms of recruitment in Public Services. The overall attractiveness of Public

Services is very difficult to measure and varies a great deal among countries and sectors, as well

as among professions within a given sector, and indeed on individual perceptions.

Across Europe, one of the sectors which is struggling to attract enough (young) candidates to fill

available posts is the healthcare sector. Evidence from various countries suggests that not enough

14

Source: Information gathered from participants during the seminar in Athens organised as part of this research project. 15


22

Experts’ report

trained young people in the field of health are coming through the education system to replace

those who leave for retirement. For example, in Italy, while 13,400 nurses were due to retire in

2010, only 8,500 nurses graduated in 2008-2009. Recent studies highlight that many European

countries are facing serious difficulties in training sufficient number of graduates and unfilled

specialist training places are reported16

. According to European Commission estimates, there could

be a shortfall of around one million healthcare workers by 2020 (up to two million, if including long

term care and ancillary professionals) if no measures are taken to address these challenges.

In some countries, recruitment difficulties are also experienced in the education sector. According

to the results of a Europe-wide survey of social partners in education, the recruitment of teachers

has been considered more difficult since 2008 in some countries as a result of lack of applicants

with the right profile. While most of recruitment difficulties are specific to some teaching specialities

(especially maths, science and language), general concerns reported are the lack of attractiveness

and prestige of the profession, for instance in Lithuania and Romania (ETUCE, 2012 b). In general,

difficulties for attracting new teachers are attributed to low salaries, limited opportunities for career

development and training and to the perceived low status of the profession (ETUCE 2012 a).

The image and status of work in Services of General Interest is also very dependent on specific

factors linked to national context, e.g. the perception of the status of civil servants in society and

their working conditions. For example, in Bulgaria, some sectors of Public Services which are

considered attractive for youth are the electricity sector, telecommunications and activities linked to

environment protection. These sectors indeed offers stable job prospects for highly skilled workers,

with good wages and benefit packages, more advantageous than for civil servants working for

public administration and education. Professions in the field of social services, where there is a

greater competition between providers, are also considered less attractive as wages are lower and

many workers are offered temporary contracts17

.

Furthermore, geographical mismatches can also explain in part some of the recruitment difficulties

to recruit in Public Services, including in the education sector (ETUCE 2012 b). In Bulgaria, it is

reported that due to the migration of large numbers of young people to urban areas, employers in

Public services in smaller towns and rural areas can face challenges to find appropriate candidates

with the required levels of qualification18

.

Is there any evidence in your country of Public Services struggling to attract young candidates?

What are the underlying reasons?

Recruitment difficulties specific to some sectors of Public Services also need to be tackled

In addition, some obstacles to recruitment in Public Services are not only linked to the lack of

(young) applicants with the right profile but also to existing recruitment procedures, especially

linked to the specific status of ‘career civil servants’. In Public Services, recruitment into permanent

positions is a typically a selective process based on principles of merit. When recruitment is based

on competitive exams instead of ‘appointment based’, it is in practice more difficult for (very) young

people to ‘get in’ and entry into a career in Public Services typically takes place beyond the age of

30. In countries where only few competitions have been organised over the past years due to

recruitment freezes while workers have been recruited temporary contracts, young people are even

less likely to access a job due to the very high level of competition between applicants.

Specific recruitment procedures in Public Services also limit the value of apprenticeship training as

a way to plan the transfer of competence from an ageing workforce and future recruitments. For

example, in France, since 1992, apprenticeship training can take place in the civil service ( central

public administration, local public administration and public hospitals) but apprentices who have

successfully completed their training cannot be directly recruited unless they pass an open

16

See for example research of the WHO’s European Observatory on Health Systems and Policies quoted in Commission

Staff Working Document on an Action Plan for the EU Health Workforce, SWD (2012) 93 final 17

Source: Information provided by CITUB representative (Confederation of Independent Trade Unions in Bulgaria) 18

Source: Information provided by CITUB representative (Confederation of Independent Trade Unions in Bulgaria)

23

Experts’ report

competition, exception made of direct recruitments at the lowest grade of civil service (Henard,

2009). This situation is clearly discouraging for apprentices and can explain why in practice the

number of apprentices in these sectors remains very limited; in total 8.400 young people had

started an apprenticeship in 2010 (DARES, 2011).

Are there any other obstacles for promoting youth employment linked to the specific recruitment

produced applied in Public Services in your country?

Young workers are underrepresented in representative bodies and in trade union

membership

Both across Public Services and the economy as a whole, young workers are traditionally much

less unionised than adults, although in some countries apprentices can also join trade unions (for

example in Denmark). Many young people are not well aware of activities of trade unions or do not

feel identified with these. Young employees under (short-term) temporary contracts are much less

likely to actively engage in the defence of their interests, due to their precarious status. In some of

the sectors strongly affected by the recession however, it seems that the deterioration of

employment prospects has led more young people to become interested in joining labour

organisations. For instance, is reported that in Italy, the number of young teachers joining the trade

unions UIL Scuola and FLC-CGIL has been on the rise since 200819

.

Which are the obstacles for increasing the visibility of young people in representative bodies in your

company? Are there noticeable trends concerning trade union membership among young workers?

19

http://etuce.homestead.com/Crisis/country_features/Featuring_model_Italy_eng.pdf

http://etuce.homestead.com/Crisis/country_features/Featuring_model_Italy_eng.pdf

24

Experts’ report

4 Fostering youth employment in Public Services: a review of initiatives and practices across Europe

This chapter presents information on selected examples of initiatives of relevance for the promotion

of youth employment in Public Services:

■ Examples of good practice at the enterprise or organisation level which underline the

commitment of employers in the Public Services to provide training and employment

opportunities for young people, also in the context of an increasing awareness of the impact of

demographic change on future skills and labour shortages.

■ Sectoral agreements linked to the improvement of youth employment in Public Services or

focusing on the provision of apprenticeships, internships/traineeships, work placement and

work contracts for young people.

■ Relevant national and regional policy policies and programmes.

Most of the examples presented in this section have been identified through interviews with

representatives of trade unions and employers and other stakeholders from Bulgaria, Denmark,

France, Germany, Greece, Italy, the Netherlands and Spain; in addition, some other initiatives has

been identified by means of desk research. Some of these examples will be presented during the

conference in Brussels.

4.1 Anticipating long-term recruitment needs in Public Services

Although recruitment of new staff is currently limited in some Public Services, the evolution of the

age pyramid and forthcoming waves of retirement will imply that recruitments will be needed

sooner or later. Attracting and retaining young workers is therefore set to become a prime

challenge for many Public Services in Europe, raising questions and needs for new approaches in

terms of recruitment and career development of new employees.

Public Services need to put in place anticipatory approaches in human resource management,

looking beyond the short-term budgetary constraints, and address specific issues linked to the

staffing challenges in their sectors.

Box 4.1 The Programme ‘Better Working in the Public Administration’ of the Ministry of the Interior and Kingdom Relations, Netherlands

In the Netherlands, it is difficult for young people to find a stable job in the central public administration,

although the recruitment of civil servants is ‘position-based’ and not based on competitive exams. The

average age in the central administration is quickly increasing - by 2020, 60% of current staff in the

government is expected to reach pensionable age. Although it is expected that not all employees leaving for

retirement will be replaced due to current recruitment freezes, a significant number of job openings should be

offered after 2020.

The programme ‘Better Working in the Public Administration’ aims to address the challenge of how to keep

young people at work in government and to get young people working in the sector in a few years. Agenda-

setting is a critical dimension of the project - the programme aims to challenge the working culture of public

administrations and to position the topic on the political agenda. The programme also involves negotiations

with trade unions representing civil servants.

In addition to support policy development, the programme supports pilot projects in cooperation with

organisations in the public sector (ministries, provinces and municipalities), such as the setting up of a cross-

disciplinary young talent pool of civil servants, an alumni network (to be able to get in touch with and attract

former young employees from the public sector at the time when job opportunities eventually arise) and the

support to public administration ‘ambassadors’ visiting upper secondary schools and giving presentations in

order to raise interest in government jobs among young people.

25

Experts’ report

How common are these approaches in your country? Can good examples be found and if so, in

which sectors?

4.2 Raising the profile of Public Services as employers

Various sectors or individual employers in Public Services organise outreach activities and

campaigns to recruit young employees and more generally to promote the image and

attractiveness of their sector among young people and graduates.

Education

■ In Germany, campaigns are being organised in the federal government in cooperation with

social partners with a view to raise the image of the teaching profession.

■ In France, the communication campaign ‘Ambition enseigner’ (Ambition to teach) has been

launched in December 2012 by the Ministry of National Education. The campaign aims to

promote the teaching profession at a time when large numbers of teaching posts will be

opened for recruitment. It is foreseen that 40,000 new teachers will be recruited via open

competitions during 2013 and 2014 (140.000 recruitments are planned in the next five years).

The main focus of the communication campaign and related website, which targets the general

public, is to promote the image of teaching as a profession, to relay information on the current

competitions and recruitment opportunities and inform on the changes in teacher initial training.

Public administration and defence

■ In Hungary, ‘RE-generáció’ is an initiative of the government started in 2010 that advertises

public administration jobs among recent graduates. It involves annual job fairs, summer camps

(with seminars) and maintains an information blog (http://regeneracio.blog.hu/).

■ In Bulgaria, the military has been particularly active at developing pro-active approaches to

attract and hire young people. The Ministry of Defence organises job fairs together with the

Employment Agency every year in various location across the country, which give the

opportunity for applicants to do interviews on the spot20

.

Transport

■ In Belgium, the National Railway Company NMBS/SNCB uses radio, street and web

advertising as well as a website to promote employment possibilities in various positions mostly

related to the maintenance of the railway infrastructure.

■ In Germany, Deutsche Bahn, the German railway company has cooperation schemes with

schools across the country to promote the company and the various types of positions it offers.

Deutsche Bahn also has been working on improving its image among young people through

adds in the press, job fairs, social media, its website or via cooperation with schools and

universities and public employment services.

■ In France, the state-owned railway company SNCF organises every year special events to

reach students and graduates - for examples in schools - to provide information about the

company and the employment and training opportunities it offers and also provides information

on recruitment and training opportunities on its website.

■ In Sweden, the members of the Swedish Transport Administration and the Swedish Association

of Train Operating Companies had started since 2007 an initiative to promote the image of the

sector in society as well as developing efficient educational system to train future employees in

the railway sector, as there is a high level of competition for young people with specific

technical skills. A website has been set up to provide information for young people on available

job opportunities as well as education and training opportunities (EVA, 2011).

20

Source: Information provided by CITUB (Confederation of Independent Trade Unions in Bulgaria) representative

http://www.education.gouv.fr/recrutement/

http://regeneracio.blog.hu/

http://jobs.b-rail.be/

http://www.deutschebahn.com/de/jobs_karriere/schueler/

https://www.emploi.sncf.com/fr/emploi/

http://www.jarnvagsjobb.se/

26

Experts’ report

■ In France, Air Emploi, an association created by Air France and other employers in the sectors

of air transport aims to anticipate recruitment needs, raise vocations and improve the image of

the sector among young people (see Box 4.2).

Box 4.2 AirEmploi: supporting vocations in the air transport sector in France

In France, the air transport sector, which currently employs over 115.000 persons, generally benefits from a

positive image, but too often young people perceive the type of job positions offered in the sector are

exclusively high qualified and male. To ensure that appropriate information on air transport professions is

available, the association Airemploi was created in 1999 as a join initiative from the Air France group and

federations of employers in the sector of air transport (FNAM, Fédération Nationale de l’Aviation Marchande)

and aeronautics (GIFAS, Groupement des Industries Françaises Aéronautiques et Spatiales), in partnership

with the French Air Force army and Aéroports de Paris.

The activities of Airemploi target any person potentially interested in a career in air transport (and

aeronautics), from school pupils to tertiary students, employees and job seekers, as well as professionals that

can provide them with orientation and guidance services. Airemploi uses various channels to provide

information and guidance:

■ Its website (http://www.airemploi.org) provides information on activities of employers in the sector,

different types of jobs available and required qualifications and skills and relevant resources (orientation

test, description of occupations, useful links, etc.).

■ Counsellors from Airemploi are also involved in proactive approaches to raise vocations among young

people. Airemploi participate in job fairs and also intervenes at an early stage by providing collective

information sessions and conferences to young people at the lower and upper secondary level, working in

partnership with local stakeholders, schools and teachers. Strategies used to attract the interest of young

people including short presentations, videos and multimedia tools such as ‘serious games’. Through

these activities, one of its objectives is to reach out some groups that are less likely to consider a career

in air transport, such as girls.

■ Airemploi offers tailored individual guidance and advice to help young people interested in a career in air

transport to build their professional project and/or find an apprenticeship placement in the sector; this

support can be provided over the phone, during face-to-face meetings or as part of collective information

sessions.

■ Airemploi also refers young people to other services and stakeholders (e.g. training institutions and public

employment services) if appropriate and provides specific information sessions on careers in air transport

to vocational advisors, teachers, etc.

Are there similar initiatives trying to promote the image of individual Public Services employers in

your country, or initiatives at the sectoral level?

4.3 Using apprenticeships and work placements to train and retain talent

Apprenticeship-type training is already used by various employers across Public Services as a

strategy to secure qualified staff, especially in professions where shortages are already felt and/or

anticipated, and address the impact of demographic change. Apprenticeships offer some key

advantages as it allows potential new recruits to acquire specific know-how and practical skills.

Public administration

■ In Bulgaria, the programme ‘Start a career’ provides opportunities to unemployed graduates to

gain work experience in public administration (at the national and local level) in order to

facilitate their transition to employment. Young people apply for vacancies according to their

degree and after a selection procedure young people start their appointment for a period of

nine months. Payment and social contributions are paid by the State. After the completion of

the placement nearly two thirds of young people are employed in permanent positions.

Energy

http://www.airfrance.fr/

http://www.fnam.fr/

http://www.aeroportsdeparis.fr/

http://www.airemploi.org/

27

Experts’ report

■ In Hungary, E.ON Földgáz (a gas company) has introduced a scholarship programme aiming to

remedy the difficulty of attracting and recruiting young engineers into the company. The

programme was introduced in 2008 as a part of a longer‐term strategic approach to planning

and managing the workforce in the company. It is aimed at third year students of the

universities preparing gas engineers. Through the scholarship programme the company also

wants to improve its brand image and to become the employer of choice for university students.

The scholarship is also a way for the company to ensure a continuous talent pool by

strengthening its ties with universities and establishing on-going relationships with talented

young people. Information about the scholarship is distributed through universities and an open

day introduces students to the programme. The nine‐month scholarship programme provides

an induction to the company, a mentoring scheme, professional and skills training, and

opportunities to develop a university thesis. At the end of the programme, the best students are

offered jobs in the company21

.

Transport

■ In Bulgaria, the National Railway Infrastructure Company (NRIC) has developed different types

of placement programmes since 2008 as part of its ‘policy to attract young people’, launched in

response to the ageing of its workforce and to identified difficulties in filling vacancies for

specialized engineering staff. Three programmes give access to on-the-job training at different

levels: the ‘Young specialists appointment programme’ is designed for young graduates and

offers a six-month temporary contract (with a possibility of conversion into a permanent

contract), the traineeship programme (one to three months during the summer period) targets

students and the scholarship programme targets for students in their final year of studies (EVA,

2011).

■ In France, the state-owned railway company SNCF offers a large number of apprenticeships

positions per year (3000 positions including 750 for higher education graduates) in a wide

range of qualifications are available. Students acquire a vocational qualification at the end of

their training.

■ In Germany, various employers in use ‘the dual training’ as the main strategy to recruit new

qualified staff (see Box 4.3), i.e. the number of apprenticeships placements offered is set to

meet internal demand.

Box 4.3 Examples of practical implementation of dual training in three German companies: Deutsche Bahn, Bogestra and Rheinergie

In the German vocational ‘dual training’ system, apprenticeships last from 2 to 3.5 years and are regulated by

a contract. Apprentices need to take a final exam in order to receive their diploma.

The Deutsche Bahn group (DB), whose core business is rail, employs around 200,000 employees in

Germany. As part of its proactive approach towards recruitment, the dual training system or apprenticeship

training is the basis of securing junior employees for DB at different levels22

. The enterprise trains about

8,700 apprentices (3000 new apprentices per year) spread across 25 occupations in the field of transport,

technology, commerce and IT. Apprenticeship is a well anchored tradition in the company and about 95% of

apprentices who have successfully completed their training are eventually recruited. At DB, in addition to the

‘standard’ dual training (combination of in-company training and training in vocational school), expert training

is provided to apprentices by DB training department. At DB, there is an important focus on social

competences and methodological capacities to foster the personal development of apprentices. Teamwork,

self-reflection and responsibility are also a central component of training.

21

http://www.epsu.org/IMG/pdf/TOOLKIT_gas_sector_final_15.10.09.pdf 22

http://www.deutschebahn.com/site/nachhaltigkeitsbericht__2009/en/our__employees/qualification/securing__junior__staff/training/training.html

http://www.epsu.org/IMG/pdf/TOOLKIT_gas_sector_final_15.10.09.pdf



28

Experts’ report

A similar strategy is used in Bogestra, a public transport operator located in the Ruhr area, employing over

2,200 workers. Continuous needs for recruitment in the company are mainly met by integrating young people

through apprenticeships, which are positively valued as an efficient system to transfer skills from more

experienced employees to newcomers. In 2011, Bogestra trained 105 apprentices in a variety of profiles

according to the company’s needs including for example administrative clerks, IT specialists and industrial

mechanics (about 35 new apprentices per year). Bogestra also uses on-the-job training to address the

anticipate shortage of engineers and trains young people for this type of profiles for instance mechatronics

engineers, through a combination of vocational training and university degree. To attract more young people

to engage in vocational training at Bogestra, the company has launched a major advertising campaign in

2012. Among other things, the newly created website www.bogestra-durchstarter.de informs students,

teachers and parents about various training opportunities.

Rheinenergie, an energy provider majority owned by the City of Cologne works in partnership with a number

of local schools and a local university to attract potential future apprentices. This is considered important not

only to prevent future skill shortages, but also to market the company as a good employer, as the energy

sector is not considered to have a particularly good reputation. Rheinenergie provides about new 35

apprenticeship places per year. A collective agreement is in place which essentially requires the employer to

retain most if not all its successful apprentices. This is one of the reasons why the company does not train

more young people than it can reasonably predict will be required in three years’ time.

Sectoral collective agreements can also to encourage and regulate apprenticeship training.

■ In the UK, a framework agreement on apprenticeships in the government sector (civil service)

has been drawn up in 2010 by the Cabinet Office, Government Skills and the Council of Civil

Service Unions, with a view to develop the skills of local young people and growing the future

workforce to anticipate recruitments. The agreement foresees that departments and agencies

will determine the total number of apprenticeships needed including ‘internal’ apprenticeships

used as means to upskilling and developing members of staff and as part of the recruitment

offer; when apprentices are new recruits, they must be appointed to undertake a real job in a

substantive role. The agreement also includes provisions concentring the quality of training,

qualifications and support provided to apprentices and the involvement for trade unions in the

development of apprenticeship training.

■ In Italy, the use of apprenticeship training was regulated by the latest national collective

agreement of social cooperatives (see Box 4.4).

Box 4.4 Italy – Regulating apprenticeship training in social cooperatives

In Italy, social cooperatives carry out various activities linked to Services of General Interests such as youth

community centres and information/guidance services, day centres for different types of groups (e.g. drug

addicts, people with a handicap, the elderly, etc.), residential homes, home care services, etc. The majority of

social cooperatives that operate in the sector of health, education and welfare are governed by a national

collective agreement (CCNL). As this sector is characterized by a strong presence of youth and there is

therefore a large potential for the development of apprenticeship training (leading to a recognised vocational

qualification) in social cooperatives.

As part of the last renewal of this national collective agreement, the use of apprenticeship training of social

cooperatives was regulated23

. The current national collective agreement clearly sets the procedures and the

parties involved and the type of profiles covered. Apprenticeship contracts are aimed at young people aged

between 18 and 29 years. For each professional profile available, the duration and content and methods of

training leading to the acquisition of technical and vocational skills and a recognized qualification have been

defined. The use of apprenticeships is now better controlled due to a series of criteria:

■ Apprenticeships are submitted to a contract and paid

■ The duration of the apprenticeships contract varies depending on the professional profile (from 18 to 36

months)

23


http://www.bogestra-durchstarter.de/

http://www.civilservice.gov.uk/wp-content/uploads/2011/09/apprenticeship-framework-agreement-feb10_tcm6-37345.pdf

29

Experts’ report

■ The number of apprentices may not exceed 80% of qualified workers in service

■ Cooperatives who have not kept at least 70% of young people who had completed their apprenticeship in

the previous 24 months cannot hire more apprentices.

Are there similar initiatives in your country and in which sectors? Are there examples of use

collective bargaining to promote apprenticeship-type training in Public Services?

4.4 Offering opportunities for quality training at the workplace

The provision of quality training opportunities for young people is particularly important in those

countries where there is still a limited tradition of work-based learning and school-to-work

transitions are particularly difficult. In the context of the recession, employers in Public Services can

also play a role with regards to the provision of training opportunities for young people, even if they

have no or few job vacancies to offer in the short-term due to recruitment freezes.

■ In the Greek labour market, work experience in Public Services acquired during an

apprenticeship is highly valued by employers. The dual apprenticeship system promoted by the

Greek Public Employment Service (Manpower Employment Organization, OAED) combines

classroom training in Apprenticeship schools (Epagelmatiki Sholi, EPAS Mathiteias) and work

placements ,which can take place either in Public Services or in the private sector. In Public

Services, apprenticeships can take place in hospitals (where there is significant demand for

apprentices assistant nurses), municipal kindergartens (for infant care nursing assistants),

municipalities and military services (offering apprenticeship places in several technical

specialties, such as plumbers, air condition technicians, electronic system technicians etc.).The

target group for apprenticeship training is young people aged 16-23 years who have graduated

from the first grade of upper secondary school (lyceum). Apprenticeship lasts two years and

apprentices receive wages set at 70% of the minimum wage.

■ In Italy, the quality of the traineeships in Public Services is considered as an important issue.

The region of Tuscany has launched a comprehensive programme for young people aiming,

among other objectives, at supporting the use of paid training placements including in Public

Services (see Box 4.5).

Box 4.5 The Giovanisì programme, Tuscany (Italy): supporting quality traineeships, including in Public Services

In Tuscany, employment prospects for young people have deteriorated over the last years although they

remain slightly better than in the rest of Italy. The regional government of Tuscany has launched the project

‘Giovanisì’ (2011-2015) co-funded by the ESF in to create opportunities for social mobility, personal and

professional development of young people and to focus on youth.

The programme, among other objectives, supports regional policy initiatives promoting quality traineeships.

Indeed, Tuscany has recently approved a regional law regulating extra-curricular traineeships (i.e. outside an

education course or degree), according to which employers have provide trainees with a minimum monthly

allowance of 500€, with a view to limit the abusive use of trainees as cheap labour24

. The Giovanisì

programme supports this objective by co-funding the mandatory allowance paid to trainees; for young people

aged 18-30 such co-funding amounts to EUR 300. In addition, Tuscany has signed agreements with regional

24

Legge n.3 ‘Modifiche alla Legge Regionale n.32 del 26 luglio (Testo Unico della normativa della

Regione Toscana in materia di educazione, istruzione, orientamento, formazione professionale e

lavoro) in materia di tirocini’. In addition, new developments foreseen at the regional level with a

view to promote apprenticeships training (as of 1st February 2013, Tuscany will launch a new call

for proposals for compulsory and not compulsory apprenticeships, offering placements in public

administration and in other sectors of public services which are a regional competence (such as

health).

http://www.giovanisi.it/files/2011/04/legge-2002-32.pdf

30

Experts’ report

bodies and institutions with regard to encourage the provision of traineeships in Public Services.

In less than a year, with the support of the programme about 125 young Tuscans have already started to

carry a paid internship in a local public administration (city councils and provincial administration), publicly

owned company or university, the vast majority of them in city councils.

Is the promotion of quality training also a key issue in your country tackled by specific measures

and programmes? Are there any examples of employers offering training opportunities to young

people, even if they cannot offer permanent job positions to trainees/apprentices or beyond their

recruitment capacities?

4.5 Helping disadvantaged young people to access quality vocational training opportunities

A sustainable and fair recruitment and training policy in Public Services cannot only focus on

attracting the best school performers - pro-active interventions from employers are needed to

broaden access to training opportunities to a wider pool of applicants. In addition to fulfilling social

responsibility objectives, such strategies can also directly benefit Public Services employers as it

widens the potential pool of skills from which they draw.

Opening up access to training opportunities is a particular challenge in a country such as Germany

with a relatively selective apprenticeship system due to high level of requirements in regulated

vocational training and the limited number of apprenticeship placements available. As a result,

young people with low academic results may be excluded from the opportunity to engage in

vocational training. Various companies in the sector of Public Services have acknowledged this

issue and have engaged in measures to prepare young people for entry into apprenticeships

training, either offering support during secondary school (see Box 4.6) or as part of ‘bridging’ pre-

vocational programmes (see Box 4.7).

Box 4.6 Encouraging secondary school students to train in Public Services: examples form the ‘ Berlin needs you’ project and from Bogestra

‘Berlin needs you’ (Berlin braucht dich) is a joint initiative of the Berlin Vocational Training Network for

Immigrants (BQN25) and the government of the Land of Berlin implemented by various companies including

the city’s largest public-services companies: Berliner Wasserbetriebe (water and sewage), Berliner

Stadtreinigung (cleaning and environmental services), Berliner Verkehrsbetriebe (public transport) and

Vivantes (healthcare) and covers twelve occupational areas.

The aim of the imitative is to motivate secondary school students from diverse backgrounds to train in Public

Services, in order to raise to 25% the proportion of trainees in Public Services who come from an immigrant

background. The activities target secondary school students: in Class 7, information about careers in the

participating companies is provided; during the three following years, students are given an opportunity to

engage in short-term placements to have a first practical experience on the world of work and, during the

final year, also receive assistance in applying for apprenticeship training. The programme started in 2006,

and by 2009 the number of young people from immigrant backgrounds engaged in training in Public

Services had doubled (CEEP/Cambridge Econometrics, 2013).

Bogestra, a transport company in the Ruhr area, has started the internship programme ‘Starting vocational

training’ in 2010 in co-operation with secondary schools (Hauptschulen) in order to facilitate the access to

dual vocational training for applicants with a lower educational degree. This programme targets 10th-grade

students and includes a one-year internship as ‘specialist on vehicle operation’. The internship takes place

25

Berufliches Qualifiziungsnetzwerk für Migrantinnen und Migranten in Berlin

http://www.bqn-berlin.de/index.php

http://www.berlin-braucht-dich.de/

http://www.bqn-berlin.de/index.php

31

Experts’ report

one day per week to help young people get a sense of how work is carried out in the company. In addition,

young participants are thoroughly prepared for the selection process for apprenticeship training, which

involves an entrance exam and a job interview.

Box 4.7 Company pre-vocational training programmes: examples from Deutsche Bahn and

Rheinenergie

In Germany, the railway company Deutsche Bahn and the energy provider Rheinergie are two examples of

companies that rely on apprenticeship training to fulfil their recruitment needs (see Box 4.3) and have also

developed initiatives to train disadvantaged young people who do not qualify to enter such form or training or

face obstacles to find apprenticeship placements on the open market. Such pre-vocational programmes

typically last one year and can be followed by a standard apprenticeship.

The Deutsche Bahn has developed a company-specific programme called ‘Chance +’. About 200 young

people enrol in Chance + every year and get an opportunity to acquire job experience in the company for a

period lasting up to eleven months. Youth workers/educators supervise the participants and fully integrate

them into the operational processes of the company. A certificate form the Chamber of Commerce documents

their successful participation; participants can then continue their training via a standard apprenticeship.

Similarly, Rheinenergie makes a conscious effort to offer training opportunities to school leavers with different

levels of school leaving certificates. In addition to ‘standard’ apprenticeship placements, it offers

approximately 10 placements for so called entry level training qualifications (Einstiegsqualifizierung) for young

people. The trainees pursue a 12 months training programme in the company and around 50% of these are

later retained as apprentices. Beneficiaries of this measure are mediated to the company via the Public

Employment Services.

Are there any similar examples of good practice in place in your country at the company or sectoral

level?

4.6 Promoting the inclusion of disadvantaged youth via subsidised contracts

Employers in Public Services must also play their part in offering job opportunities for all young

people and contribute to youth inclusion. In a times of recession and austerity where some groups

of young people are particularly vulnerable are at a risk of marginalisation, Public Services have a

role to play in supporting young people to make their first steps into the labour markets. This

requires a commitment to trust young people, especially those facing barriers to employment.

A few examples of programmes with a nation-wide coverage relying offering subsidised work

contracts in Public Services can be found:

■ In Bulgaria, municipalities and municipal entities offer subsidized jobs for young people and

people from other vulnerable groups in the labour market. Some of these activities are

financed by European Social Fund programmes for the activation of (young) jobseekers and

include the completion of vocational training. One of the largest and oldest programmes at the

local level is the programme ‘From Social Assistance to Employment’ which has been

implemented for more than 12 years. The programme offers opportunities to young people,

especially those on social benefits, to gain work experience in municipalities and municipal

enterprises in the field of environmental protection, health, military clubs, libraries, schools, and

public transport, water and sewerage companies.

■ In France, a new type of subsidised contract for young people in sectors providing services of

general interest (or in profit sectors which present a large potential in terms of job creation) has

been introduced by the government at the end of 2012 (see Box 4.8).This schemes is based on

a substantial financial effort from the State to help young people

Box 4.8 Subsidised jobs in sectors offering services of general interest in France - Emplois d’avenir

32

Experts’ report

The ‘emplois d’avenir’ (‘jobs with a future’) is a new measure launched in 2012 in France to boost youth

employment in sectors who have offers services of general interest (or exceptionally in sectors that

present a large potential in terms of job creation). Emplois d’avenir are subsidised work contracts

regulated in the Labour Code (amended by the law of 26 October 2012) targeting young people aged 16

to 25 without any qualification, or young people who have at most a vocational diploma and have been

looking for a job for 6 months over the last 12 months. Young people from disadvantaged urban areas and

less developed rural areas are targeted in priority by the scheme; in these areas, the scheme also targets

long-term unemployed young people with higher qualifications.

A wide range of employers across Public Services such as local public administrations, hospitals, public

institutions and State-owned companies such as the railway company SNCF) can offer emplois d’avenir.

In this case, the State subsidy will amount to 75% of the minimum salary, the rest being paid by the

employer, which also has the obligation to provide training and individual tutoring to the young person

recruited. The development of the scheme, matching of candidates with employers and the follow-up of

participants has been put under the responsibility of local structures for youth insertion (Mission locales)

and public employment services (mission locales).

The official objective stated by the government is to create 150,000 emplois d’avenir in total - in both profit

and non-profit sectors in 2013 and 2014. The annual cost of the measure is estimated at EUR 500 million

in 2013, and EUR 1.5 billion per year once the scheme has reached its full capacity26

.

Subsidised work contracts can also be promoted at the company level. For example, in France,

the enterprise Triselec Lille, specialised in collecting and sorting waste, regularly recruit low-skilled

young people facing obstacles to enter the labour market under subsidised work contracts ;

subsidies received by the enterprise are used to finance extra training and mentoring of new

recruits (see Box 4.9).

Box 4.9 Triselec Lille: support the first steps in the labour market of disadvantaged young people

Triselec Lille is an enterprise located in the northern part of France specialised in collecting and sorting

waste, employing about 300 workers. Triselec Lille aims to support the social inclusion and labour market

integration of local residents facing obstacles to access employment, including young people. No selection

prior to recruitment in terms of qualification or experience is operated in order to allow those further away

from the labour market (unemployed for at least one year) to apply. About a quarter of all workers

recruited are young people with limited work experience, who are generally very low qualified, with some

of them lacking basic literacy skills (especially young migrants).

For young people, working at Triselec offers an opportunity to gain confidence while discovering the world

of work and requirements in an enterprise with high level of working standards (ISO-certified). Young

workers get trained to work on the sorting chain (a minimum 3 days of induction training and individualised

training and tutoring depending on the needs of the person) and also have an opportunity to elaborate a

new professional project, with the enterprise paying for training courses leading to the acquisition of a

vocational certification and supporting the outplacement process. State subsidies received by Triselec for

hiring long-term unemployed individuals compensate for the extra costs in terms of training, human

resources and management generated by the high turnover.

About 60% of former Triselec employees eventually find a job in another organisation or enterprise (but

not necessarily within the sector of public services). Important success factors identified are:

■ Accessibility and flexibility (employees that have not successfully adapted and left the company

prematurely can come back at a later stage)

■ Promotion of diversity and work ethics, playing an important role in the process of successful

integration and motivation of individuals

■ The use of innovative training tools such as videoconferencing and multimedia tools to overcome

26

Source: Official website http://travail-emploi.gouv.fr/emplois-d-avenir,2189/

http://travail-emploi.gouv.fr/emplois-d-avenir,2189/

33

Experts’ report

training barriers for participants, especially employees with limited literacy skills.

Are there any similar examples of good practice in your country?

4.7 Adapting recruitment processes and creating fairer chances for young people to enter and develop a career in Public Services

For Public Services, ensuring that transparent, competency-based recruitment procedures,

allowing to increase the diversity of the workforce are especially important at a time when skills

shortages can emerge due to the loss of experienced employees.

■ In Bulgaria, the Ministry of Public Administration is responsible for collecting applications from

young people interested in working in the sector n. The main selection criteria for recruitment

are the competences of young applicants including academic performance, knowledge of

foreign languages and IT skills. To facilitate the access to job positions in the public

administration, a specific simplified competition procedure for young people was laid out in the

Public Servant Act. This practice has been considered to have positive effects27

.

■ In France, it has been recently acknowledged in official documents that the State administration

should ‘better reflect the composition of the population and the diversity of origin and

background of young people’28

. According to the Action Plan for Youth presented in February

2013 by the government, , a project on diversity and recruitment in the public sector (civil

service) will be implemented in cooperation with trade unions starting in the spring of 2013 as

part of the agenda led by the Minister of State Reform, Decentralization and Public Service.

Furthermore, from 2013 onwards, public institutions depending from the ministries of Justice

and Home Affairs responsible for the initial training of civil servants (once they have

successfully passed an open competition) will also put in place special ‘equal opportunities’

preparatory classes for candidates to the competitions.

Box 4.10 Recommendations to improve recruitment and induction in Public Services (OECD, 2011, Fostering diversity in the public service’ in Public Servants as Partners for Growth: Toward a Stronger, Leaner and More Equitable Workforce)

■ Use all available mechanisms for job advertising and include pro-diversity statements in job

advertisements.

■ Enhance equity at entry through education through traineeships, scholarships etc.

■ Move away from purely academic competitive examinations.

■ Focus on job descriptions on skills, competencies and experience required for good performance.

■ Interview and selection panels should reflect diversity.

■ Design neutral recruitment exams eliminating elements that may be considered as the cause of

discrimination.

■ Adopt mechanisms to facilitate the transition to the working life in the public service (training,

mentoring).

■ Open the possibility to denounce cases of unfair and discriminatory practices.

Are there any similar examples of initiatives specifically linked with recruitment processes in Public

Services in your country?

27

Source: Information provided by CITUB (Confederation of Independent Trade Unions in Bulgaria) representative

28 Document issued by the Inter-Ministry Committee on Youth of the government available at:



34

Experts’ report

4.8 Improving the representation of the interests of young employees in Public Services

In Public Services, as in other sectors, young workers are typically underrepresented in works

councils and other employee representative bodies, which is partly due to the fact that many of

them work under temporary contracts. As a result young workers have limited opportunities to relay

their concerns and interests. Representative bodies voicing young peoples’ interests at the

organisation level and ensuring that these are taken into account by management can act as a

powerful lever of change and can also support the recruitment and retention of young employees.

A few examples can be found, for example in public administration, aiming to either improving the

representation of young people in existing representative bodies, or creating specific structures

open to young employees:

■ In the Netherlands, since 2012, a few young employees from the Dutch Ministry of Economic

Affairs have actively engaged in the activities of the Work Council of the Ministry, which reports

every monthly to the Secretary General. One third of all seats of the Work Council is currently

held by younger employees. Thanks to the change in composition of the Work Council,

discussions about the need to anticipate departures for retirement can get more attention

internally; representatives of young employees can voice their concerns and proposals on how

to create a suitable and stimulating work environment for new recruits within the Ministry.

■ In the Kent Council in the UK, a staff group which aims to represent the interests of younger

employees (under the age of 30) has been put in place. The aim of this staff group called

Aspire (formerly Greenhouse) is to ‘promote the value that younger colleagues bring to the

workplace as well as providing them with the tools and skills to progress and develop within the

Council’ and activities provide include the provision of training/development opportunities and

networking events. The staff group is formally recognised by the Kent Council and therefore the

organisation can seek to get feedback from the group on its employment policy.

■ In Germany, representative bodies for young workers and trainees (Jugend- und

Auszubildendenvertretung) can also be found across all economic sectors including Public

Services in accordance with the requirements of the BetrVG (Works Constitution Act). Indeed,

all establishments regularly employing at least five employees under the age of 18 or

vocational trainees under the age of 25 must set up a representative body for young workers

and trainees. Its responsibilities correspond to those of the works council in matters specific to

young employees and trainees; they work in close co-operation with the general work council.

All employees under the age of 18 and all vocational trainees under the age of 25 may

participate in elections for this council, which is elected for a two year period29

.

Another strategy to improve the representation of interests of young workers in Public Services is

to increase the representation of young people in trade union membership. According to a report

prepared by Working Lives Research Institute in 2011 on behalf of EPSU, the European Federation

of Public Service Unions, there is evidence that trade unions are currently increasing their efforts

towards a better representation of the interests of young workers and are leading campaigns to

recruit young people (Working Lives Institute, 2011). Increased efforts from trade unions to recruit

more young members are actually not limited to Public Services – over the past years, trade

unions have tended to use more ‘youth-friendly’ approaches such as social media campaigns and

online support mechanisms for interns, working students and trainees (Eurofound, 2011 b).

Are there any examples of good practice aiming to a fairer representation of young workers’

interests, either at the company, sectoral or even national level in your country?

29

Source: Eurofound

http://www.eurofound.europa.eu/emire/GERMANY/REPRESENTATIVEBODYFORYOUNGWORKERSANDTRAINEES-DE.htm

http://www.kent.gov.uk/jobs_and_careers/working_for_us/equality_and_diversity/our_staff_groups.aspx

35

Experts’ report

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