FINAL DOCUMENTATION European Commission GD Employment, Social Affairs and Inclusion Regional ESF desk Germany
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FINAL DOCUMENTATION European Commission GD Employment, Social Affairs and Inclusion
Regional ESF desk Germany 1
Course of action 2
After a shared lunch, Adam Pokorny, head of the German regio-
nalnd Integration, welcomed all the participants in the workshop
on behalf of his team. Mr Pokorny made it clear that this workshop
would have a different format in terms of the course of action taken
and the targets pursued:
We are doing something new that is well worth trying,
we are using a different method: a meeting without a
specific agenda, during which we want to
LEARN WITH EACH OTHER AND FROM EACH OTHER.
A particularly wide range of ESF stakeholders will be
focusing on the subject of long-term unemployment and
the ESF.
This is a participative method in which we bring our expe-
riences from different working environments onto a level
playing field.
We are attempting to exchange experiences with one
another and obtain insight which can be used in the Euro-
pean debate.
Welcome and collective introduction 3
The main focus of the workshop was on the European Social Fund (ESF) The aims of the participative workshop in which all the participants were able to
as a key tool in reducing long-term unemployment in Germany. The cen- share their practical experiences, can be summarised as follows:
tral question under discussion was: “How can the ESF contribute more
effectively to the reduction of long-term unemployment?” • Guiding theme: we want to learn with and from each other and gain
knowledge about how we can make better use of the ESF in order to tackle the
Long-term unemployment is a pressing problem within the European problem of long-term unemployment.
Union and in Germany. Since the start of the crisis, long-term unemplo-
yment has doubled throughout Europe. Half of all unemployed people • Current implementation of the ESF: we want to gain a better understan-
in Europe are long-term unemployed. This is therefore a priority issue for ding of the success factors and limitations of existing ESF approaches in the
the EU. The Council of the European Union adopted a Recommendation field of long-term unemployment. This should help us with implementation
in February on the basis of a proposal from the European Commission during the current programming period of 2014-2020.
concerning the reintegration of long-term unemployed people in the
labour market. The German ESF support programmes for the integration • ESF in the future: we want to learn from the experiences of the ESF stake-
of long-term unemployed people in the labour market form an essential holders for the future structure of the ESF after 2020.
part of the German operational programme within the ESF.
• Reality check on the Council recommendation: we want to obtain feed-
back from ESF stakeholders on the Council recommendation for the reinteg-
ration of long-term unemployed people in the labour market and discuss the
The workshop has been supported by the Commission’s internal team of matter together.
moderators, Ursula Hillbrand, André Meyer and Carsten Schierenbeck.
Sabine Soeder has captured the Workshop visually.
Welcome and collective introduction 4
After the welcome and introduction phase, the participants were
asked to divide into groups of three and discuss three questions:
1. What have been your positive experiences with the ESF in the
field of long-term unemployment?
2. What were the underlying criteria for these positive experiences?
3. In which areas does unexploited potential remain, i.e. where in
the ESF would you like to see similar positive experiences?
The participants were given 30 minutes to discuss the questions
and record their findings. One person in each group acted in turn as
reporter, interviewer and note-taker for each round of questions. The
keywords from the discussion were then presented to the partici-
pants on bulletin boards.
Exchange of experiences with the ESF in the field of long-term unemployment 5
Exchange of experiences with the ESF in the field of long-term unemployment 6
The central success criteria identified within the groups were as follows: • Using existing systems as far as possible.
• Flexibility is an important factor in the implementation of the ESF.
With regard to the target group of long-term unemployed people (LTU) • The possibility of using simplified cost options was identified as a key factor
• Guaranteeing individual and longer-term support for long term unemplo- for the success of projects.
yed people
• Voluntary participation in projects In addition to the above-mentioned success criteria, the following points were
• Funding based on the strengths of the participants for activities serving a referred to in terms of being able to exploit the potential of the ESF more
defined purpose effectively with regard to long term unemployed people:
• Supporting participants before, during and after the start of employment. • Always keeping sight of the holistic approach.
• Qualifications which can be completed by an long term unemployed • Maintaining flexibility in the implementation of projects. If necessary allo-
person whilst in employment should be given precedence over “full-time” wing for an alteration in the design of a scheme (e.g. as was necessary after
qualifications. the financial crisis and economic downturn in certain branches).
• Incorporating the family and social environment in the supporting of long • Greater emphasis should be placed on gender sensitivity in projects.
term unemployed people, i.e. holistic support should be offered incorpora- • Simplification and the reduction of red tape remain important issues in the
ting schools, sport, youth welfare, debt counselling, etc. ESF.
• Checking consistency with existing programmes on a regular basis.
• Integrated approaches prioritising the linking of funding programmes or
With regard to the structures of the ESF projects in relation to LTU funding possibilities.
• Guaranteeing a good mentoring ratio.
• Enabling or guaranteeing funding spanning several years. The participants were then asked to allocate 3 votes to the topics identified
• The different offices and services should be linked and accompanying under questions 2 and 3 which were most personally relevant to them. The sub-
structures should be developed. jects which the participants most frequently considered to be relevant were:
• The involvement and supporting of employers should be based on trust in
order to prevent a breakdown in communication. Question 2:
• Projects should be planned in cooperation with firms as far as possible to • Funding possibilities over several years (long term)
ensure that the funding is market oriented. • Individual support (coach)
• Firms / employers should be supported and coached before, during and • Flexibility
after the integration of long term unemployed people in employment. • (…)
• Precedence should be given to local concepts and qualifications in the Question 3:
regional labour market in order to take specific regional features into ac- • Social labour market
count. • Involvement of employers
• The indicators should also reflect the increased participation opportunities • Simplification
of long term unemployed people and not focus solely on integration in the • Holistic approach
labour market. • Linking services
• Striving to promote the social aspects of the projects. • (…)
Exchange of experiences with the ESF in the field of long-term unemployment 7
The possibility was offered, within the framework of the in-depth discussion
rounds, to address personally chosen questions in more detail.
The central question was: „How can we release the full potential of the ESF for
long-term unemployed people together?“
Participants were invited to put themes and questions forward based on their expe-
rience of the most pressing issues and practical problems.
Some of the themes proposed to be examined in depth were related to the previous
exchanges, others were new. The agenda for the discussion rounds was thus esta-
blished by the participants themselves. There were no external moderators of the
discussions and the group work was organised by the participants themselves. The
participants were invited to attend the discussions from which they felt they could
learn or to which they felt they could contribute the most. They could also move
between groups during the discussions.
In-depth discussion rounds Introduction 8
Theme 1: Theme 2: Theme 3:
What needs to be done to enable single parents How can successful support schemes for LTU be Refugees
to gain employment and qualifications? financed for as long as the corresponding needs
exist? The group addressed the question as to how the
The key problem single parents are facing is the ESF can be used to support refugees. It transpired
lack of available child care and limited flexibility Co-financing requirements are particularly high from the discussion that a number of German ope-
among employers. The ESF can play an important with respect to LTU (high per-head costs). Never- rational programmes already promote refugees in
role for these groups of people. The country-spe- theless, the guaranteeing of stable, long-term a targeted or indirect manner but in very different
cific recommendations presented to the mem- co-financing is generally problematic for the target ways. An exchange of experiences between the dif-
ber states within the framework of the European group of long-term unemployed people. On the ferent players involved would therefore be useful
semester could provide significant impetus to one hand, ESF funding is limited (7 year eligibility and desirable.
influence national policies and the orientation of period) and on the other hand a different type of
the ESF. Other suggested solutions included the reasoning is applied in terms of action with other Experience has shown that an integrated approach
development of new models (e.g. Edeka initiative); funding sources (local, national, private, public is particularly effective in supporting refugees. A
the development of part time qualification offers co-financiers). One of the conclusions of the group successful example referred to was the “mixed trai-
which have already been successfully implemen- discussion was that the question of financing ning course”, which nevertheless requires a certain
ted in certain federal states; the application of new is more a political debate than one focusing on understanding of German. A further element refer-
techniques such as e-learning for part time qualifi- content. Decisive factors include the provision of red to in the successful integration of refugees was
cations in order to promote a work-life balance. A resources and the ways in which society and politi- the provision of funding chains. It was also stated
quota could also be established for single parents cians wish to support this target group. A possible that competition between refugees and existing
in ESF schemes. Socio-spatial policy was referred solution could be to advance the logic of project target groups had to be avoided in all circumstan-
to as a (further) decisive success factor in enabling funding by taking on project funding rules, find ces.
single parents to gain employment and qualifica- co-financiers and subsequent financiers and gua-
tions. rantee a genuine asset and liability transfer. In order to be able to fulfil these new tasks, a short-
Decisive factors referred to in terms of offering term increase in ESF resources may be considered.
effective, efficient support to LTU included better In addition, the flexibility of the ESF needs to be
communication with all the relevant institutions increased and this could be achieved in the me-
and the importance of reaching a political con- dium term by the adaptation of revised funding
sensus. guidelines.
In-depth discussion rounds Themes 01 - 03 9
Theme 4: Theme 5:
Holistic approach to integration Involvement of employers
This group referred to multiple individual problem This group discussed how employers could be at- could assist with administrative duties. Another
situations and a lack of continuity in support as tracted as partners and involved more effectively essential success factor is to provide coaching on
essential factors in a holistic approach to integ- in the ESF process. At the start of the discussion, it a level playing field both for firms and long-term
ration. Such a comprehensive approach would was noted that not only was it difficult, in gene- unemployed people as a way of offering long-term
need to take individual institutional, temporal and ral, to attract employers to the ESF, but the target support in their reintegration in the general labour
organisational components into account. The ESF group of long-term unemployed people also had market. Firms need assurance that the long-term
needs to become actively involved as an innovator an image problem and their placement in busi- unemployed will have a professional contact part-
in this area without delay. The follow-up financing ness therefore presented a particular challenge. It ner for all issues which do not directly concern their
and institutionalisation of these approaches would is therefore necessary to pre-select certain mem- activities within the firm.
have to be guaranteed. bers of the extremely heterogeneous group of
Some of the essential success factors mentioned long-term unemployed people, as only those offe-
included the strengthening of existing support ring the optimum requirements for incorporation
structures and the development of additional ones. in the labour market would have the opportunity
A „guide“ should we equipped with networking to be integrated in businesses.
skills and the corresponding co-funding has to be
guaranteed in due time. It was also noted that entrepreneurs and ESF
administrators spoke different „languages“ and
it would take a long time to establish long-term
contacts and develop shared levels of confidence.
The first step would be to make direct contact
with firms and to engage with them through their
networks (e.g. employer groups, rotary clubs, etc.).
It is also important to make entrepreneurs awa-
re of the value of being involved in projects and
above all to keep bureaucratic requirements and
procedures to a minimum. Intermediaries such as
chambers of commerce and industry could create
a bridge in this respect between ESF administra-
tors and firms. Discussions should also be held
concerning ways in which associations
In-depth discussion rounds Themes 04 - 05 10Theme 6: Theme 7:
How can youth welfare be incorporated more Innovative qualifications
efficiently?
This group noted that there was a lack of tailored
The main problem relates to the fact that youth solutions for long-term unemployed people with
welfare is covered by ex-gratia payments under the complex problems. Innovative actions therefore
national system, which means that the local au- need to be taken. The group commented in this
thorities first of all finance standard benefits such context that modular training could be useful.
as children’s day care places. It would be difficult Qualification packages should be tailored individu-
for private agencies to be considered as equal ally in order to suit participants. It was also noted
partners. This raises the question as to how people that more modules were needed for professions
who are not in the system should (can) be reached. requiring simple qualifications, e.g. care workers or
Common standards should be developed for youth assistant nursery nurses.
welfare so that cooperation can be established
with job centres. Private agencies need the backing A more in-depth profiling intended to determine
of the youth welfare system. what is feasible and what the participants need
was put forward as a possible immediate choice
In order to face these challenges, it would be of action. . Reference was also made to support
beneficial to seek out “best practice” examples and learning in low-threshold activities in addition to
network more effectively with other players in the partial qualifications (e.g. job starter projects). In
labour market with the support of the ESF. Job cen- the medium term, it will be necessary to guarantee
tres should also cooperate more efficiently with the an adequate number of employers and institutio-
general social service of the youth welfare office. nal coordination. Furthermore the development of
The following elements were quoted as success business areas, including businesses traditionally
factors in incorporating youth welfare more effec- linked to particular regions should be expanded.
tively: the youth welfare sector needs to be more Decisive success factors referred to with regard to
self-confident and state its own claims. In addition, innovative qualifications were the provision of sup-
more practical knowledge needs to be acquired by port in the establishment of a training coach, the
participants in ESF projects and job plans need to linking together of training processes and coopera-
be implemented in networked projects with other tion between all the players involved.
players such as job centres.
In-depth discussion rounds Themes 06 - 07 11Thema 8: Theme 9:
Theme 8: Effective linking of measures for LTU allocation of resources (ESI fund, federal and regio- Contribution of NGOs to the structuring of ESF
and social orientation nal resources and resources from local authorities, programmes for the long-term unemployed
associations and private sources) could open up
The group discussed the central underlying prob- possibilities for balancing out disparities in cities, This group discussed ways in which non-govern-
lem of improving cooperation between the players suburbs and regional areas or districts through mental organisations (NGO) could contribute their
involved, in particular local authorities, job centres, integrated social, structural, economic and environ- experience both as economic and social partners
labour administration and firms. Because of the mental means, removing development restrictions in advisory committees and as service providers for
wide range of different target groups involved in (such as vacant buildings and uncultivated land), projects. Thanks to their expertise, they also advise
projects, this problem is not generally easy to solve creating employment and strengthening the social the federal government in fields within its com-
and several possibilities are available. In all events, infrastructure and integration. petence. As employers, NGOs contribute in parti-
the value of social orientation needs to be pointed cular to the inclusion of handicapped people and
out to the individual cooperation partners. It may In North Rhine Westphalia, the department de- the integration of people returning to the labour
be necessary in the short term to contact potenti- dicated to fighting social poverty (Fachstelle für market, e.g. single parents. Their traditional fields
al cooperation partners, for example (or organise sozialraumorientierte Armutsbekämpfung (FSA)) of activity include the social labour market and
meetings) and develop training programmes for offers towns, communities and districts as well as local social care. A typical example referred to was
social area managers. In the medium term, diffe- other public and non-profit-making players advice, the village shop. In the short term, NGOs are able
rent ranges of interests could be brought together qualifications and transfer possibilities focusing on to offer their skills and gain informal access to the
with the social orientation of urban administration strategic social planning. A suitable indicator in the target groups. In the medium term, they see poten-
and the appointment of a network coordinator and field of social orientation within the ESF could be tial in the strengthening of regional services for the
the eventual implementation of cooperation. The the reduction of the SGB-II (LTU) quota in the area benefit of the economy in general. Reference was
success factors highlighted included the analysis of from 50% to 45%. made in this context to the potential of measures
social areas, the concentration of all funding offers implemented by the local population to promote
for the social area concerned and implementation local development (CLLD approach) in the ESF. The
in funding programmes targeting social areas. essential success factors referred to included pro-
ximity to the target groups, the holistic experience
As an example of how social orientation might and the emphasis on common welfare. All funds
work in practice, reference was made to the joint need to be included in this approach, not simply
call for projects entitled “strong neighbourhoods - the ESF.
strong people” which is being implemented within
the framework of the European structural funds
EFRE, ESF and ELER in North Rhine Westphalia du-
ring the eligibility period of 2014-2020. The joint
In-depth discussion rounds Themes 08 - 09 12Theme 10: Theme 11: Theme 12:
How should a social labour market be structu- How can improvements in employability be Incorporation / integration chain
red? measured?
This group discussed the possibilities and problems This group discussed how suitable instruments This group discussed how the different elements
associated with successful integration in the labour could be developed in order to measure employa- of the integration chain could be more effectively
market. The discussion highlighted the fact that bility more effectively. The main issue appears to interwoven for LTU. The limitations of individual
there is no standard definition of the social labour be achieving success in increasing improvements participation in projects and staff fluctuations in
market that is shared by all the participants. In in employability beyond integration into em- job centres were identified as problem areas. The
addition, the LTU target group is extremely hetero- ployment, which gives only a partial view on the integration chain consists above all of the forming
geneous, which makes it necessary to determine impacts of measures on employability. During the of a basis followed by stabilisation and activation
a precise target group. The question underlying course of the discussions, it was noted that new and eventual integration. Proximity and impetus
this theme was ‘how can people who cannot be models are being developed in Mecklenburg-Vor- provided by coaches also have a decisive influence.
integrated in the labour market in the long term be pommern, Rhineland-Palatinate and Brandenburg
supported?’ The group discussed in depth the fact for the measurement of employability. A joint plan is to be established in the short term
that compensation for the disadvantages caused By using a differentiated indicator for the evalua- with the main players in the labour market. The
by the reduced output from LTU for businesses tion of employability, it could be expected that possibilities for co-financing need to be exploi-
should be available and that ESF model projects to the impacts of project work would be more visible ted and aligned in this context and constructive
develop social enterprise in SGB II 1 (LTU) should be beyond the 25% who achieve integration into em- promotion programmes need to be developed.
established on the basis of the example of integra- ployment, the participants would display a higher In the medium term, promotion or project phases
tion businesses according to SGB IX (relating to the level of motivation and be more self-reflective and will need to be extended. Essential success factors
disabled). The success criteria highlighted included in particular progress in integration would be mea- included continuous support, introduction / integ-
the need for a proper „active-passive transfer“ , the surable beyond the actual integration in the labour ration in employment, stabilisation and assistance
need to obtain a consensus at regional level in this market. The essential success factors mentioned with self-help.
respect and the importance of secure planning for included a cooperative process between the regio-
project executing organisations through the sus- nal administration, executing organisations and job
tained orientation of promotional programmes and centres and intensive cooperation with specialists
their establishment within the regulatory structu- at university level. The “prescribing” of the use of
res. differentiated indicators was also a decisive factor.
1 Code of Social Law
Scientific support is required for the development
of these indicators resulting eventually in a simple
tool which is easy to understand.
In-depth discussion rounds Themes 10- 12 13Theme 13: Theme 14:
Intensifying / initiating exchanges Simplification
Exchanges are already taking place on a techni- This group discussed different themes which are
cal level between the administrative authorities problematic for initiators in the field, e.g. control
but thematic exchanges concerning comparable mechanisms and staff costs or residual costs. Pro-
programmes are lacking between the specialist blems could also occur due to the postponement
departments of ministries. One possible drawback of implementation and control or verifications
which could make exchanges even more difficult is (e.g. if certain aspects cannot be subsequently
the fact that functional departments are not always changed after successful implementation even if a
responsible for guidelines as they sometimes come corresponding error has been identified as a prob-
within the scope of the administrative authorities lem during verifications). The different settlement
(with the involvement of specialist departments). systems represent difficulties for the executing
This means that information available within the organisations when they are involved in different
individual federal regions may get lost. ESF programmes at federal and regional levels.
Greater emphasis needs to be placed on the quality
At least one meeting a year with technical de- of implementation as far as programmes are con-
partments or an extended circle would be helpful cerned. At present the focus is on the profile of the
to discuss these matters. Alternatively it may be ESF, documentation and verification management,
possible to start a question or exchange system on whereas in future more emphasis should be placed
specific issues by post or by email. The possibilities on results and output orientation and implemen-
for exchanges could be discussed at meetings with tation skills. These are the success factors on which
the administrative authorities or in the form of a simplification is to be based.
newsletter. Questions could also be collected by
means of an Internet platform. In order to ensure
that intensive exchanges can actually take place,
initiators need to be found who can take on the
organisation and follow-up activities.
In-depth discussion rounds Themes 13 - 14 14In the discussion about the future of the ESF
after 2020, the participants were invited to present
their solutions and ideas on the process for the
restructuring of the framework conditions for the
ESF. The participants began by noting their main
ideas on a flipchart and discussing them in small
groups. The groups were then asked to write down
the results of their discussions; these results were
presented during a final round of discussions and
summarised under different main categories. A
number of relevant ideas were identified which will
be included in the debate on the future of the ESF.
Future prospects for ESF 2020+ 15Impressions of the conversation - rounds Future prospects for ESF 2020 + 16
Structure / framework conditions There should be no obligatory use of financial instruments in the field of social inclusion. At the same
time, however, the possibility of using financial instruments in the field of social integration should be
It was noted that the fund should be available to developed.
all regions and not simply directed towards the
“poor” regions. It was stated in this context that The ESF should serve as an additional instrument rather than as a substitute for national or regional fun-
the ESF was an instrument of European solidarity ding. In countries with a comparably limited budget from the ESF, emphasis should be placed on experi-
and should therefore be maintained (including mental and innovative projects. Particularly eligible regions / countries should be able to select a broad
in Germany). The ESF should not develop into a development approach. Under no circumstances should the resources be used simply for the co-financing
transfer instrument which drives a wedge between of existing national / regional systems. The added value of the European resources should be visible. There
the different member states and risks offering should be increased possibilities for concentrating on a limited number of topics.
insufficient support to address the needs of poo-
rer states compared with those of the richer ones. The burden of verification and monitoring of expenditure should be reduced overall and trust rather than
The ESF is an instrument of regional labour market mistrust should become the guiding principle
promotion, but not only. The „S“ in ESF should not
be forgotten. Increased emphasis should be placed
on the socio-political nature of the ESF including
social orientation and social participation.
A bundling of funds, e.g. ESF and FEAD, could be
considered. Cooperation between different funds
should be promoted more effectively in general.
Consideration could also be given to increased
pooling of budgets and the share of the ESF in
the European Structural and Investment Funds
could be increased. The question was raised as
to whether there was a need for a federal ESF
programme at all in Germany. The ERDF is in fact
managed exclusively through regional operational
programmes.
Increased sustainability with pilot projects may
be achieved through corresponding follow-up
financing. Even if pilot projects are not taken up
and financed within the regular system, follow-up
financing must still be available.
Future prospects for ESF 2020+ Results 01 17Innovation Continuity, legal certainty, removal of administrative burdens
The ESF is an important instrument for innovation The legal framework conditions (including guidelines) must exist prior to the start of the funding period.
in Germany. The ESF should have an “experimenta- There is no reason why regulations should not exist prior to the conclusion of negotiations on the finan-
tion pot” in which project ideas can be tried out in- cing framework spanning several years. There must be an appropriate link between the use of resources
dependently from funding guidelines. The ESF will and expenditure. The administration structures should be simplified by means of specifications in the re-
be used to develop new models which will later be gulations. Rules on simplification options (lump sums, standard scales of unit costs, etc.) should be estab-
incorporated in the regulatory system. Innovative lished ex-ante and not ex-post. Legal certainty must be guaranteed. The wheel cannot be reinvented every
projects should be offered better protection th- seven years. Functioning, tried and tested structures should be maintained in order to guarantee conti-
rough the development of promotion over several nuity. The creation of new structures is always associated with costs. Employees have to be trained, new
years. Innovative projects require a certain prepara- procedures developed and new information materials prepared. Therefore, tried and tested rules - also
tory period prior to their development and must be those with some room for improvement - should be maintained in those cases where the costs incurred in
offered the opportunity to prove their success. the realignment of the system are considerably higher than the benefit gained.
Simplification should be achieved through the abolition of existing rules. The regulations need to be
clearer, e.g. by creating a table of contents. Simplifications should apply not only to employers but also to
job centres. The idea would be to create a superordinate level which deals with all these administrative
tasks. The personal responsibility of firms should not be forgotten in the development of administrative
procedures. Precedence should always be given to continuity in subsidy law. Restrictions in subsidy rights
should be removed in the promotion of the rights of the long-term unemployed. The flexibility of ESF pro-
grammes could be increased through association with target groups and combined offers for participants.
Future prospects for ESF 2020+ Results 02 18Indicators Target groups Partnership
Data requirements should be alleviated and should The basic discussion about target groups addres- The participants referred to the important role of
be limited to indicators which are easy to record sed the question of how target groups will be the partnership agreement in the implementation
/ measure. The indicators should be limited to as- defined in the future eligibility period and whether of the ESF but would like to see a greater obligation
pects which are relevant for the ESF. they should be reduced / concentrated. Emphasis for cooperation between partners in the forthco-
should be placed in future on refugees and long- ming funding period.
The most important thing in measures addressing term unemployed people. The choice of target
the long-term unemployed is not just their rapid groups should be carefully considered and made
integration in the general labour market. The in- selectively. Supporting of refugees
dicators for this target group therefore need to be
amended. Social integration and social participati- The supporting of refugees is to be included in the
on should also be evaluated as success factors. Ad- existing system and the ESF is to be opened up to
ditional so-called “soft factors” should also be taken refugees in the near future. Germany will shoulder
into account in the evaluation of success indicators. the major costs of refugee integration. The ESF
The current data acquisition process is too complex share should be increased for Germany. Under no
and the processing of sensitive data needs to be circumstances should special support structures be
improved. created for refugees within the ESF. Support should
be offered in the general system in order to prevent
potential stigmatisation and competition or envy
between target groups.
Cooperation, mobility, transnationality
A cooperative approach should be developed for
ESF promotion. Greater emphasis should be placed
on a transnational approach as the opposite pole
to nationalisation. The transnational components
should be a prerequisite for funding. An increase in
the support for rural areas was requested.
Future prospects for ESF 2020+ Results 03 19To round off the workshop, the participants discus-
sed the Council recommendation on the integra-
tion of long-term unemployed people, which was
adopted by the member states in February on the
basis of a proposal from the European Commotion,
within the framework of a podium discussion. On
the podium were: Georg Moser (ESF administrative
authority, Bavaria), Katharina Opitz (federal emplo-
yment agency), Ulrike Storost and Carsten Glietsch
(both DG EMPL). The discussion was moderated by
Carsten Schierenbeck.
Discussion on the Council recommendation 20The main conclusions of the podium discussion Publicly supported employment / social labour
were as follows: market
General issues • Publicly supported employment (PSE) is an
important instrument for people who are not
• The measures referred to in the Council recom- involved in the labour market but whose acti-
mendation (notification of the employment vities are nevertheless meaningful and linked
administration, individual appraisal, conclusion to the market and represent a step towards
of a reintegration agreement, closer cooperati- employment subject to social insurance contri-
on with employers) were generally considered butions.
to be positive.
• Reference was made to the fact that around
• Success factors for labour market measures 31% of European resources for labour market
for LTU in Germany included: involvement of measures are dedicated to PSE but PSE does
employers in professional and targeted emplo- not always allow for integration in the general
yer discussions on a level playing field, creati- labour market. Particular emphasis is placed
on of personal links between employers and on PSE with certain target groups especially
employees, supporting all participants through in eastern European countries. A study by the
coaching by means of coaching on the job and European Commission was quoted 2 , which
supporting long term unemployed people even shows that PSE programmes can run for long 1
Becker, Irene (2015), Der Einfluss verdeckter Armut auf
after entry in the labour market. periods (on average 17 years) even though das Grundsicherungsniveau. Hans-Böckler-Stiftung. Arbeit
und Soziales. Arbeitspapier 309. Düsseldorf.
there is a considerable amount of evidence Becker, Irene; Schüssler, Reinhard (2014), Das Grundsiche-
• As regards the notification of LTU to the em- showing the ineffectiveness and inefficiency of rungsniveau: Ergebnis der Verteilungsentwicklung und
ployment administration, with respect to the these programmes with regard to returning to normativer Setzungen. Eine empirische Analyse auf Basis
der EVS 2003 und 2008. Arbeitspapier Nr. 298. Hans-Böck-
situation in Germany reference was made to employment. ler-Stiftung. Düsseldorf.
studies1 according to which up to 40% of long Bruckmeier, Kerstin et al. (2013), Simulationsrechnungen
term unemployed people were not registered • The employment phase of the federal ESF zum Ausmaß der Nicht-Inanspruchnahme von Leistungen
der Grundsicherung. IAB-Forschungsbericht, 05/2013.
and therefore not recorded in the system. The programme, “civil labour”, is considered to be Nürnberg.
decline in integration resources since 2010 was ineffective above all due to the “wrong” choice
considered critical. On account of the existing of participants and the difference between
2
European Commission (2015): Commission Staff Wor-
subdivision into the legal instruments SGB II its conception and aims: during the employ- king Documents, Analytical Supporting Document Accom-
and SGB III with different budgets and structu- ment phase non-active long term unemployed panying the document Proposal for a Council Recommen-
res, the single contact point has not yet been people were placed in PSE, whereas the specific dation on the integration of the long-term unemployed
into the labour market, SWD(2015) 176 final, pages 19 f.
established in Germany. Structural and organi- aim of the programme was integration in the
sational differences even exist within SGB II. general labour market.
Discussion on the Council recommendation 01 21The European Social Fund
• The ESF has been allocated an important economic policy. An intermediate labour market This was considered important, for example, in
role in terms of the integration of long term un- cannot be a substitute for the general labour mar- order to distinguish the social labour market more
employed people in the labour market. Thanks to ket for financing reasons. effectively from other labour market instruments
its flexibility, the ESF allows for innovative, flexible such as integration subsidies.
measures extending beyond SGB II promotion in • The problem of structural unemployment
particular with regard to administration, care, qua- seems to have been omitted from the Council The following additional points were also given
lification, personalised systems and the integration recommendation but at the same time the target as feedback to the European Commission:
of individual employers with on-going support and of integration in the general labour market is still
sustainability (as long term unemployed people on the agenda. It is questionable, however, as to • The discussion concerning the integration
often fall back into the support system after being whether people who have been unemployed for of long term unemployed people in the labour
in employment for only six months). several years can be successfully integrated in firms market also focuses on the type of people con-
in the general labour market after a 2-year promo- cerned. The question raised is: ‘What needs to
Following the statements made by the participants tion programme through labour market policies. happen “around” long term unemployed people to
on the podium, a lively discussion ensued bet- allow them to make use of services?’ Where does
ween the participants in the workshop. The central • In all the discussions about the social labour support link up with self-help? What needs to be
point of these open rounds of discussion consis- market and PSE, it is important to remember that demanded of long term unemployed people and
ted of different contributions focusing above all on the issue is not one of long-term promotion in the where in order to ensure that they are able to act
the understanding, structure and connectivity of social labour market but rather social firms which for themselves?’
the social labour market. The main conclusions are operate close to the market even with public sup-
presented below: port. • The European Commission should not sim-
ply address and discuss with the federal level on
• Reintegration in the general labour market • There is no unified definition of the social this issue. The ESF follows an approach with a social
must be a matter of priority. Publicly supported labour market and social entrepreneurship. The focus and questions of participation and services
employment should be maintained as an alterna- European Commission refers to public work sche- for the public are dealt with at regional level. In
tive measure for a small, narrowly defined target mes as PSE. The different types of PSE and social certain cases the federal agency tends to be part of
group. It should, however, be continually verified in entrepreneurship will not be called into question the problem rather than the solution.
individual cases if transferral to the general labour but problems could arise if the aim of reintegration
market is a possibility. in the general labour market were to fail.
• In addition to this mismatch, there is also a • Lively discussions were also held concer-
problem with the labour market. The labour market ning the issue of whether the target group for the
policy faces difficulties with regard to the creation social labour market could be defined exclusively
of jobs. This could be achieved with an effective on the basis of limited efficiency (reduced output).
Discussion on the Council recommendation 02 22Ms Soeder presented to all the participants the graphical re- cording which she had completed during the workshop. Adam Pokorny thanked all the participants for their active involvement in the workshop and assured them that the experiences gained would be incorporated in future discussi- ons, either on the future of the ESF after 2020 or on long-term unemployment. He thanked the moderators for their support in the organisation and implementation of the workshop in addition to the members of the German team from his unit whose commitment was essential in ensuring that the work- shop could take place. Mr Pokorny announced that a follow-up to the workshop would be organised so that the discussions could be continu- ed. The results of this round of discussions have already been sent to the participants and individuals interested in the indi- vidual rounds of discussions. This documentation represents a further element in the follow-up activities. The participants in the workshop will also receive information on a specially created Internet platform on which experiences and opinions on the workshop themes can be exchanged and the on-going discussions and debates can be continued. At the end of the event, all the participants were offered the possibility of summarising in one key word what they would like to take away from the two-day workshop: Conclusion, thanks and follow up 23
„Check-out“ – what can I take from this? 24
Documentation of results European Commission, DG for Employment, Social Affairs and Inclusion Regional department Germany Adam Pokorny and team Graphic Recording and graphic documentation, Sabine Soeder, CoCreativeFlow Documentation 25
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