How to fight youth unemployment? Author: Luis Cortès Movimiento por la paz (SPAIN) September 2012 y: How to fight youth unemployment? 1. INTRODUCTION Spanish economic performance is currently facing a significantly different scenario to the boom years beginning in the mid-1990s. From 1996 real GDP in Spain grew more than twice as fast as the EU average, employment grew by more than 50% and the general unemployment rate fell to about 9 %1. The most recent unemployment data published by the INE2, the Spanish National Statistics Institute, in July 2012, shows that 37,600 more people were unemployed in the 2nd quarter of 2012. In one year the total number of unemployed people has increased by 782,900 and the total number of unemployed people are currently 5,693,100. The unemployment rate stands at 24.63 %. Eurostat ranks Spain as the country with the worst rate of unemployment, even compared with Greece, Portugal and Ireland and their record high rates of unemployment. According to the INE, the term unemployed describes a person aged 16 years and over who, is jobless, available for work, and actively looking for a job. People who might have already found a job and are waiting to start are also considered to be unemployed, provided that they meet the first two conditions. According to European Commission Regulation 1897/2000, the following are considered to be active search methods in the four weeks prior to the interview: 1) Being in contact with a public employment office for the purpose of finding work, whatever part they play in the initiative (the renewal of registration for purely administrative reasons does not constitute active planning). 2) Being in contact with a private office (temporary employment agency, specialized hiring agency, etc.) with the aim of finding work. 3) Having sent an application directly to employers. 4) Having searched through contacts, trade unions, etc. 5) Having advertised oneself or responded to newspaper advertisements. 6) Having studied job vacancies. 7) Having taken part in a test, public exam or interview in the framework of a contracting procedure. 8) Having looked for land, premises or material. 9) Having taken steps to obtain permits, licenses or financial resources. The effects of the global crisis on the labour market in Spain have been four times higher than in the majority of other EU countries3; young people and low-skilled workers on temporary contracts have been 1 EUROSTAT. Unemployment statistics 2012. European Commission. 2 INE – Instituto Nacional de Estadística 3 The Employment Crisis in Spain. International Labour Organization. For an explanation of the characteristics of the Spanish economic boom during the period 1999-2007 , see A. Estrada, J.F. Jimeno, and J.L. Malo de Molina, “The performance of the Spanish economy in EMU: The first ten years” in J.F. Jimeno, ed., Spain and the euro. The first ten years, Banco de España, 2010 (http://www.bde.es/webbde/Secciones/Publicaciones/OtrasPublicaciones/Fich/Spain_and_the_euro.pdf) 1 How to fight youth unemployment? disproportionately affected because the growth model relies excessively on construction and housing. A real estate driven-demand on the Spanish economy has had a huge impact on household finances and the public and private sectors. Today one of the biggest economic challenges is growth without public expenses. This new economic policy is far from the previous crisis in the 90’s when European Structural Funds stimulated the labour market by using active employment policies and the economy grew through public expenditure. According to Eurostat, the youth unemployment rate in Spain has increased by 28 percentage points (from 18 to 45.8 per cent) since 2007. It is one of the highest youth unemployment rates among European countries as Table 1 shows, reaching more than 73.27% for people aged 16-19, almost 48.93% for those aged 20-24 and 31.06% for those aged25-29. Table 1: Unemployment rate by age. INE 80 70 60 50 Total 40 16 - 19 aged 30 20 - 24 aged 20 25 - 29 aged 10 2005TI 2005TII 2005TIII 2005TIV 2006TI 2006TII 2006TIII 2006TIV 2007TI 2007TII 2007TIII 2007TIV 2008TI 2008TII 2008TIII 2008TIV 2009TI 2009TII 2009TIII 2009TIV 2010TI 2010TII 2010TIII 2010TIV 2011TI 2011TII 2011TIII 2011TIV 2012TI 2012TII 0 Young people aged 16 to 24 have been particularly affected due to temporary contracts, as reported in Table 2. In summary, 1 in every 2 young people in Spain is unemployed. Temporary and low-skilled young workers are affected the most, given that the dismissal of temporary workers is easier and cheaper for companies. How to fight youth unemployment? Table 2: Temporary and Permanent contracts by age. INE 100% 90% 80% 70% 60% 50% 40% 30% Temporal contract 20% 10% 0% Permanent contract 16 - 19 aged 20 - 24 aged 25 - 29 aged However, the economic crisis can only partly explain youth unemployment, since this problem has been a persistent phenomenon in Spain for decades. And at the levels now being registered, measures to fight it i can no longer be delayed. “The long-term term unemployment rate has increased most significantly in Denmark, Ireland, Spain, the United Kingdom and the United States since 2007” ILO4. Structural problems in the labour market remain: lack of competitiveness, flexibility, resilience and adaptability. The main issue to be discussed is how to fit the current Spanish economic model (and unemployed people like youngsters) into a knowledge-based knowledge based economy (competitive in a global market). To cope with unemployment, Prime Minister Mariano Rajoy´s Government in February 2012 approved a new labour market reform. A new permanent contract is aimed at young workers. "The goal is to make it easier to hire new workers in our country, especially the young and long-term long unemployed", oyed", Deputy Prime Minister Soraya Saenz de Santamaria told the news conference. However, trade unions called a general strike on 29 March in protest at this new reform, because it makes it easier for companies to fire workers, especially for those under permanent contracts. “El Plan de Empleo de España 2012” (The Employment Plan for Spain 2012), approved in July by the Spanish Government with about 1.3 million euros from the state budget, considered it a priority to fight youth 4 World of work report 2012: Better jobs for a better economy/International Labour Office, International Institute for Labour Studies. – Geneva: ILO, 2012 How to fight youth unemployment? unemployment by improving the employability of young people, vocational training and entrepreneurial issues. If the current crisis persists, Spain risks losing a generation and experiencing social unrest brought about by movements such as “15 M Spanish Revolution”, which involved mainly young people ,and “29 March general strike” against labour reform encouraged by the Government. 2. SPANISH YOUTH LABOUR MARKET According to Eurostat Labour Statistics, youth unemployment rates in Spain have been rising since mid2007, reaching more than 50% in 2012. Just before the crisis the youth unemployment rate had been stable at around 20% for 6 years, having dropped from 45% in 1994. For main social agents such as trade unions, working conditions and long-term unemployment have a huge effect on the Spanish welfare system, as Silvia Sazatornil, responsible for Youth at the UGT trade union, stated: “What we have seen during these past two or three years is that young people are returning to a period of increased insecurity, namely situations that had previously been overcome. Therefore, at the moment there has been a setback. Policies and ideas of employment quality and decent jobs have been abandoned and young people just want a job. Therefore, they have set aside the idea of having equal rights simply because they prefer worse labour conditions rather than remaining unemployed.” Precariousness is not only associated with having temporary contracts; now, young people are lucky to get one of these. Therefore, precariousness is not only evident for temporary workers. Precariousness also leads to excessive rotation in companies, disorders, psychosocial maladies, anxiety, long working hours, unpaid extra hours, a higher rate of accidents in the workplace, lack of adequate training for the post, etc. Young people “ought to accept” this situation because there are many unemployed young people willing to accept the conditions of precarious work. 4 How to fight youth unemployment? The greatest risk of precariousness for the young is that they will not be able to leave home at a reasonable age. A few years ago we were in a situation where young people frequently left home at the age of 29, which is already a fairly high age in comparison with other European countries. Under the current situation this has risen to 31 years. The average age for leaving home in Spain is higher than ever and, indeed, the mass media are reporting stories of many young people who are returning to their their parents, because they cannot afford the costs of living. The current situation is worse than in the 1960s when the wages of young people were much better than today’s in comparative terms, as well as having better access to housing. Today that means a mortgage of 50 or 60 per cent of one’s salary and the age for moving out is about 29 years, six years older than for most European young people. The 15 M5 movement caused social unrest, and is also referred to as indignant movement. Even though protesters ers form a heterogeneous and ambiguous group, many of them are young people. The 15 M Movement began in March 2011 as a social movement far removed from political parties under the ‘Arab Spring’ framework. It rejects unemployment, unemployment welfare cuts, the two-party system consisting of the Spanish Socialist Worker’s Party (PSOE) and the Spanish People's Party (PP), bankers and political corruption and firmly supports what it calls basic rights: housing, employment, culture, health and education. For a better understanding of the 15 M social movement, Stéphen Hessel wrote in 2010 “Time for Outrage!” (“Indignez vous!”6 in the French version), which could c be defined as an ‘anti-globalist’ globalist’ manifesto for international social rights. An ILO Report in 20127 wrote about 15 M: “In Spain the ‘indignados’ movement and its occupation of the ‘Puerta del Sol’ square in Madrid mobilized youth across the country in in protest against the handling of the economic crisis by the political establishment and the ensuing catastrophic rise in youth unemployment. A central demand of the movement was for more participatory forms of democracy, reflecting the younger generation’ss sense of alienation and economic and social exclusion”. 5 http://movimiento15m.org/sobre-movimiento movimiento-15m-org/ 6 http://indignez-vous-indignacion.blogspot.com.es/p/english.html indignacion.blogspot.com.es/p/english.html 7 ILO Report V: The youth employment crisis: Time for action. International Labour Conference, 101st Session, 2012. ILC.101/V How to fight youth unemployment? E. Crespo, Professor of Social Psychology at UCM and also Research Group Co-Director at EGECO (Employment, Gender and Social Cohesion Regimes), has an interesting opinion of the 15M social movement: “Regarding the 15 M "Spanish Revolution" movement I think that there is such a necessity for change that its importance has been magnified (...) I think that the 15 M is a movement that is very interesting as an expression of what is happening. I have my doubts about the capacity for change that it might bring about. I certainly see that 15M has now lost its momentum, with a reduced capacity for mobilization. ” According to statistics published by the RTVE, the Spanish public broadcasting company, between 6.5 and 8 million Spaniards participated in these peaceful protests. The mass media reports that these protests are related to the Spanish financial crisis global crisis and many participants could be defined as NEET8 or a “lost generation”, as The Guardian considers Spanish graduates who have moved abroad. 2.1. Spanish Social Security system for the unemployed The Spanish Social Security system supports people who are willing to work but, for whatever reason, cannot find work or have lost their jobs, or even if their hours have been reduced.In order to qualify for unemployment benefit the following rules apply9: - The applicant must be registered with Social Security. - The applicant must be registered with the Employment Office and be available to actively search for a job. - The applicant must accept an adequate job offered by the Employment Office. - The applicant must present their application for unemployment benefit. Furthermore, the applicant must have made Social Security payments (usually done by the employer) for a minimum of 12 months within the last six years before becoming legally unemployed, providing they are under retirement age, unless they have a specific right to it. The duration of this benefit depends on how long one has been contributing to the system. If you have 8 NEET: acronym for “not in education, employment or training”. 9 www.sepe.es/contenido/prestaciones/ag00.html 6 How to fight youth unemployment? been working legally and making Social Security payments for between 360 days and 539 days (i.e. one to one and a half years), the benefit will last for 120 days. The amount one is entitled to receive depends on the gross salary received by the worker during the period of employment. The person will receive 70% of the salary for the first 180 days, and from then on, 50%, according to recent measures passed by the Government in July. Average unemployment benefit in Spain is about 750 euros per month, up to a maximum of about 1200 euros, whereas the legal minimum wage is about €641 per month. That means that unemployment benefit is higher than the minimum wage, which may discourage people from looking for a job while they are receiving unemployment benefit. However, only 15% of young unemployed people receive unemployment benefits in Spain because they do not qualify under the rules described above, according to data gathered by trade unions. Young people leaving school or who have been unemployed for a long period of time are not covered by the Spanish Social Security system. Many of them are supported by their families or work on the black market. Due to the present economic climate, for those unfortunate enough to have lost their jobs, a return to the workplace is far from certain and unemployment benefit does not usually last for a sufficient period of time. Once unemployment benefit has run out, in some cases a subsidy10 can be applied for. In such cases, the subsidy is about 420 euros per month, which is lower than the minimum wage. Note that it depends on the personal circumstances of the person in question, e.g. if they have family responsibilities. Regarding the amount of unemployment benefit, we conclude that it does not affect youth unemployment rates. However, it is possible that an increase in the legal minimum wage could lead to an increase in youth unemployment rates, especially for less-skilled workers. 2.2. Industrial Relations profile of the Spanish labour market11 Industrial relations in Spain are managed by trade unions and employer organisations. It should be highlighted that Spain has traditionally had one of the lowest rates of trade union membership among the EU15. The most important national trade unions in terms of number of members are the Trade Union 10 www.seg-social.es/prdi00/groups/public/documents/.../49446.pdf 11 www.eurofound.europa.eu 7 How to fight youth unemployment? Confederation of Workers’ Commissions (Comisiones Obreras, CCOO) and the General Workers’ Confederation (Unión General de Trabajadores, UGT), in that order. These two organisations represent over 70% of all trade union membership in Spain and are recognised as the most representative organisations. This means that any of their trade union organisations and federations are authorised to negotiate at their respective levels, regardless of their number of members and representatives. The most representative employer organisations are the Spanish Confederation of Employers’ Organisations (Confederación Española de Organizaciones Empresariales, CEOE) and the Spanish Confederation of Small and MediumSized Enterprises (Confederación Española de la Pequeña y Mediana Empresa, CEPYME). It is not possible to comment on trends in the membership density of employer organisations due to lack of information. According to the National Advisory Board on Collective Agreement, we can highlight the following aspects about industrial relations in Spain: The national minimum wage (salario mínimo interprofesional, SMI) is a minimum guarantee of pay for all types of workers and is a reference for determining minimum monthly contributions and some social benefits, such as unemployment benefit. The government sets the SMI each year after consulting the most representative social partners. After a long period of continual loss of purchasing power, in 2004 the socialist government decided to revalue the SMI. From 2008, it amounts to about €600 a month. The total labour cost – which includes pay and contributions – is about €2,271.88 per worker per month. Of this amount, 73.8% represents pay costs (€1,676.70) and the remaining 26.2% represents other costs (€595.18). The average number of working hours per week is about 38. Working time tends to be longer in multicompany agreements, whereas company agreements have shown the greatest reduction in agreed working time in the last 10 years. This has led to a progressive widening of the gap between agreed working time at company level and at higher bargaining levels. The number of agreements that include clauses on flexible distribution of working time has increased in the last few years. In 2007, about 20% of agreements featured clauses of this type, affecting 49.2% of the workers covered. Other aspects of flexible working time, such as working days longer than nine hours and accumulating weekly time off, have less importance in collective agreements: long working days concern 18.9% of the 8 How to fight youth unemployment? workers covered and accumulating time off concerns 17.3% of the workers. Social partners have given greater attention to the issue of lifelong learning and training as a vital element for achieving a more sustainable and competitive economic model. About 40% of agreements registered in 2007 contained clauses on continuing vocational training, which affected 51% of the workers covered by collective bargaining. These rates of coverage have remained stable in recent years. Training is increasingly dealt with at the more decentralised levels: about 45% of company agreements contain clauses on this subject, affecting 70% of the workers covered by this level of bargaining. However, the official figures do not reflect the real extent of training practices in companies as there is no obligation to negotiate training initiatives with workers’ representatives. Collective agreements mainly consider company training plans. Industrial conflict has shown a progressive decline over the last few decades. The number of disputes and their importance in terms of participation and working days lost has decreased considerably. This reduction in the number of strikes was due to the duration and intensity of the economic growth cycle, bipartite social dialogue establishing common guidelines for pay bargaining to ensure industrial peace, and the consolidation of bodies and procedures for resolving labour disputes out of court. Strikes have been used to apply pressure during the bargaining processes, to protest against the refusal to sign or revise an agreement or – less often – as a result of differences in interpretation of the prevailing agreement. In the last few years, the national social dialogue process has been intense. Social dialogue has been extended to many economic, labour and social issues with a common strategic objective: to promote a sustainable economic model based on improving company competitiveness and increasing productivity to reach a higher level of development and employment equality. In Spain, workers have two channels of representation at company level: the trade unions and the joint bodies that represent all workers of the company. The joint bodies – the workers’ committees and the workers’ delegates – are also highly unionised in practice because most of the candidates are presented by the trade union sections of the company. Workers’ committees are elected in all companies or workplaces with more than 50 workers. The number of 9 How to fight youth unemployment? representatives is determined according to the electoral audience of each candidacy and the mandate is for four years. The competencies of the worker representatives are regulated by workers´ statutes and include the right to receive information from the employer and to ensure fulfilment of the agreed working conditions. Collective disputes that arise between employers and workers may be resolved through an agreement between the parties, or through mediation or arbitration by the labour inspectorate or another competent body, which must be accepted as a solution by both parties to the dispute. 2.3 New labour market reform New labor market reform (by Royal Decree-Law 3/2012, dated 10th February, on the urgent measures for labour market reform) is the main measure taken by the Government in order to cope with youth unemployment, trying to promote among other reforms a new permanent contract for young workers. According to Vicente Cuñat, Lecturer at LSE12: “Job market duality in Spain refers to the two very different types of employment contracts that coexist. About 60% of employees have permanent contracts, which mean that they have legal restrictions to being fired, high severance pay and, overall, a protected job. The remaining 40% work under fixed-term, often short-lived, temporary contracts, with no severance pay. Firms value the flexibility that temporary contracts give, but, as a result, they have little incentive to invest in on-the-job training or transform their most valuable temporary employees into permanent ones. This generates a great deal of inefficiency, as well as inter-generational and inter-class inequality. Most temporary workers are young and low-skilled. And he continues: “The reforms will reduce the employment protection of permanent contracts. This is likely to be a positive move, bringing Spanish permanent contracts closer to those in most EU countries. However, the reform does not change the nature of temporary contracts. The gap between both types of contracts will obviously be reduced but not by enough to end the duality problems”. 12 http://blogs.lse.ac.uk/europpblog/2012/04/23/the-reform-of-the-spanish-labour-market-is-politically-costly-and-will-only-bringminor-economic-changes/ 10 How to fight youth unemployment? Trade unions called for a general strike on March 29th against new labour market reform. Trade unions consider it a useless measure against such a high rate of unemployment. The only effect will be to make it easier and cheaper to fire workers. Labour market reform establishes the following main aspects according to Eurojuris España13 an international network of law firms in Spain: Reform of some aspects relating to labour-related mediation and professional development training. Temporary Employment Companies have turned out to be a powerful force for the labour market in times of economic crisis, creating jobs and contributing towards employee inclusion and placement. The new Law allows them to operate as employment placement agencies, in line with other EU countries. In addition, the Law seeks to foster workers’ continuous learning and development of their full potential, granting paid leave of 20 hours per year to those workers who have worked for the company for at least one year. Encouraging permanent employment contracts and other forms of employment: special focus on young people and SMEs. These measures seek to help those who are in the most severe financial need due to the economic crisis. Firstly, it has been noted that the number of part-time contracts is much higher in countries within our region. Therefore, the aim is to boost this type of contract through, for instance, the possibility to work extra hours and include them in the contribution base for common contingencies. Secondly, also with the aim of promoting new work-related development channels, the system traditionally known as “working from home” was altered, which has implemented a balanced regulation of “telecommuting” rights and obligations. The Law also created a new permanent employment contract exclusively for companies with less than 50 employees, which entitles the company to apply certain tax incentives and a bonus system if they hire young people between 16 and 30 or people in long-term unemployment who have been on the jobseekers register for at least twelve out of the eighteen months prior to being hired. Incentives to foster the company’s internal flexibility: alternative measure to job loss. The Law has created mechanisms that do not involve dismissal in order to maintain human capital by adapting working 13 http://www.eurojuris.net/eng/publication-detail.asp?PublicationId=334 11 How to fight youth unemployment? conditions to the specific circumstances the company is undergoing. In summary, the 2010 and 2012 labour market reforms modified the legislation of both individual and collective dismissals. For individual dismissals, notice periods in cases of dismissals for objective causes have been reduced from 30 to 15 days. In cases of unfair individual dismissals, the employee is no longer entitled to the salary that accrues during the tribunal proceedings if the dismissal is contested. Moreover, the employee is now only entitled to 33 days’ salary per year of service (compared to 45 previously). Finally, consultations between the employer and workers’ representatives in cases of collective dismissal have been reduced to a maximum of 30 days in companies with more than 50 employees and 15 days in smaller companies. As Vicente Cuñat, Lecturer at LSE, concluded regarding Spanish labour reform: “This is a reform that heads in the right direction on some aspects but ignores, or only partially deals with, many needed changes. It is also a reform that unnecessarily risks being perceived as one-sided; echoing the demands of some corporate representatives and not making the necessary changes that are potentially beneficial to everyone. Its high political cost decreases the chance of further reforms in the near future, sadly, giving a certain sense of missed opportunity”. 3. CHARACTERISTICS OF THE TARGET GROUP In order to briefly explain the current situation of high rates of youth unemployment, the following factors of exclusion from the labour market should be taken into account: 1. Temporary work as the most important exclusion factor for young workers14 It has a huge impact on unemployment in recession, especially in economic activities like construction and real estate. 94% of job destruction is related to temporary workers. As E. González, International Relations Coordinator, Institutional Relations & Judicial Assistance at the Spanish National Public Employment Service (SEPE), stressed: 14 Amuedo-Dorantes, C.; Serrano-Padial, R. (2005). Fixed-term employment and its poverty implications: Evidence from Spain”, In Focus, Vol. 23, No. 3, pp. 42-51. Dolado, J.J.; Garcia-Serrano, C.; Jimeno, J.F. 2002. “Drawing lessons from the boom of temporary jobs in Spain”, in Economic Journal, Vol. 112, No. 721, pp.270-295. Available at: http://ideas.repec.org/a/ecj/econjl/v112y2002i721pf270-f295.html [14 Apr. 2012] 12 How to fight youth unemployment? “Between 2004 and 2007 the construction sector in Spain expanded significantly, and many people left training and the education system to find in the labour market a job that did not require any professional qualifications. The number of young people who dropped out of the education system was massive; from there, once the crisis hit the sector, it too found it easy to reject these young people. We now have two main problems: the first is the difficulty of access to the labour market for these young people (internships with companies are rare) and the second is that employers seek professional experience, a very valued factor. Wages at the moment are not attractive.” Temporary jobs are one explanation for the impact of the crisis on youth unemployment. About 60% of young workers were hired under temporary contract conditions, a percentage that rises to 82% for people aged 16 to 19. Specialized technical analysis reveals that companies´ labour factor adjustments have been made by ending temporary contracts. According to the ILO15: “Spain, along with Poland, continues to have the highest proportion of temporary employment in Europe (20 per cent), despite significant losses of temporary employment during the crisis (…) In contrast, in Spain, job quality was improved through the destruction of temporary jobs. Spain also presents the highest rate of transition from temporary jobs to unemployment in 2009.” There is also a cultural factor that explains the bias in payroll adjustment towards workers without family burdens like young workers. Flexibility but not security characterize Spain’s labour market, and also explain the vulnerability of young workers, due to their high rate of temporary employment: 82% of those aged 16 – 19, 60% of those aged 20 - 24 and 40% of those aged 25 – 29 are on temporary contracts. 2. Many young people left school in the booming years In fact, young men experienced an important increase in their activity rate, particularly those aged 16 to 24. This behaviour is closely associated with low-skilled demand from intensive workforce sectors such as 15 World of work report 2012: Better jobs for a better economy / International Labour Office, International Institute for Labour Studies. – Geneva: ILO, 2012 13 How to fight youth unemployment? construction. As a matter of fact, this factor contributed to drop out from school. This phenomenon should be taken into account in order to understand the structural feature related to youth employment that is characterized by a high level of temporary working. In Spain, more than 28% of young people aged 18 to 24 have at most lower secondary education and are not in further education or training (early school leaving), which is more than twice the EU-27 average. 1 in every 4 young people is defined as NEET. A. Jaspe, responsible for the coordination and evaluation of occupational training at the Spanish Public Employment Service (SEPE), argues that NEETs should be the focal point in order to establish an strategy to fight against youth unemployment: “We would like to stress that in this new European strategy, special attention is given to young people, so SEPE participated in the introduction of indicators beyond rates of employment and unemployment in this group. In this sense the concept of NEET (Not in Employment, Education or Training) is created as a significant indicator because it measures something more, it measures the vital activity of the young in relation to the labour market. In the case of Spain this indicator is providing significant results that attend to social and educational needs, as well as demographic and those of the family of young people.” J. Bonet, responsible for occupational training at the Spanish Public Employment Service (SEPE), added on this subject: “What we must do as a Public Service for Spanish Employment is firstly to be aware of this reality and to adopt policies. These policies should distinguish between groups, those identified as qualified and those who do not have any kind of qualification.” The incidence of early school leaving has remained high and stable during the past decade, while it has tended to decline in most other EU-27 countries. 3. The educational level of those who have lost their jobs during this period represents another important factor of the exclusion of young people from the labour market. As shown in table 3 below, unemployment is concentrated in two main groups of young people. Young 14 How to fight youth unemployment? people with primary education have experienced an unemployment rate of 60% and those with secondary education an unemployment rate of 45% when aged 25 to 29. For well-qualified youngsters the current situation is also dramatic; many of them are looking for jobs abroad, because of the lack of opportunities for them. For those aged between 25 and 29, unemployment rates reached 22.85%. Last year, NEETs made up a significant percentage of unemployed young people, and vocational training could again be the solution for these people. Table 3: Unemployment rates by level of education attained, sex and age group 2012 Total Illiterates First stage Second Primary of stage of Higher education secondary secondary education education education Doctorate Both sexes Total 24.44 53.10 36.22 31.50 24.09 14.37 3.80 16 to 19 71.45 0.00 80.39 72.46 62.17 43.85 .. 20 to 24 48.06 21.04 62.71 51.75 46.07 36.87 .. 25 to 29 31.17 63.67 48.64 40.38 27.38 22.85 10.18 Total 24.09 56.11 36.52 30.58 22.54 12.88 3.02 16 to 19 71.22 0.00 79.37 70.56 64.68 36.83 .. 20 to 24 50.34 100.00 61.40 50.98 49.69 37.57 .. 25 to 29 32.90 59.85 47.58 40.83 27.89 23.22 0.00 Total 24.86 49.90 35.78 32.89 25.81 15.78 5.02 16 to 19 71.73 0.00 82.12 75.04 60.35 53.30 .. 20 to 24 45.57 0.00 65.43 52.95 42.79 36.48 .. 25 to 29 29.28 81.62 50.68 39.66 26.89 22.56 20.87 Males Females 15 How to fight youth unemployment? 4. Gender discrimination Gender pay differences are affected by the occupational segregation of women, who tend to be concentrated in the lowest-paid sectors and jobs. The increase in the participation rate of Spanish women in the labour market has been accompanied by an increase in low-quality employment, with a high level of temporary employment, part-time work and staff turnover. As a result of all these factors, the annual income of women is 30% lower than that of men. Even though the education level of young women is often higher than that of young men, their unemployment rate is higher, their wages lower and they are more likely to end up in precarious jobs16. 5. Need for vocational training Director of the Spanish youth employment observatory and lecturer at UCM, E. Sanchez, argues that vocational training schools are somewhat stigmatized as “second-class”: “In Spain, vocational training has not been established in the terms required by the labour market, as in the rest of Europe. The burden of the General Education Act, a law put into force in the 1970s and one of the last laws of the Franco Regime, is still being felt. The General Education Act set out the idea that vocational training should be a ‘second-class’ education. This legislation made education compulsory until the age of 14, and at that age, children who failed were sent to vocational training as a stigma of failure at school. Although that structure has not been maintained, it has not yet been overcome.” 6. Deficit of Research and Development and innovation Most stakeholders interviewed highlighted the lack of R&D and innovation as a main structural problem regarding the youth unemployment phenomenon in Spain. As José Luis López, in charge of the Socioeconomic Department at the CJE Spanish Council for Youth, stated: “I think we have an opportunity as we have the best-qualified young people for 35 years. Spain has invested a lot in their education. We have a highly-qualified young generation but they have to go abroad because they cannot get a job in Spain. We understand that one of the solutions is precisely investment in R&D and innovation. We must take advantage of this talent.” 16 Moreno, G y Cebrian, I. (2008): La situación de las mujeres en el mercado de trabajo español. Desajustes y retos. Economía industrial, nº 367. Ministerio de Industria, Turismo y Comercio. 16 How to fight youth unemployment? The European Commission recommends that public deficit control measures should not affect Research and Development and innovation. However, the Spanish Government approved on 30th March a State Budget that would cause considerable long-term damage to the already weakened Spanish research system. This would imply the maintenance of an obsolete economic model that is not competitive as mentioned above and is especially vulnerable to economic and political contingencies. In the last few years, investment in Research and Development has been cut significantly: public research bodies have suffered a 25% reduction in resources coming from the State Budget 2012 plus 30% accumulated from previous years. The situation has been considerably aggravated by financial difficulties at universities, which contribute to more than 60% of the research in the country and whose budgets have suffered severe restrictions in the last few years, seriously affecting their research potential in terms of their material and human resources, especially those of young researchers. E. Sanchez, Director of the youth employment observatory and lecturer at UCM, is also worried about Spanish R&D policy: “we need to invest knowledge-transfer from academia and universities in the productive sector. In my opinion this explanation is central to understanding the high youth unemployment rates in Spain.” 7. Low salaries and worse working conditions Salaries and working conditions are based on employment experience and time working for the same company. Productivity does not contribute to determining salaries. As a result, young workers have worse working conditions. David Silva, President of the CEAJE, the Association for Young Entrepreneurs, says of the mismatch between salary and productivity/qualifications in our labour market: “Until 2007 Spain had been a country where low-skilled workers had pretty high salaries. For example, a bricklayer earned €4000 per month, half in A and half in B –black market–, just for putting bricks together. Whereas a surgeon who had trained for 10 years and had begun to see a return on his effort much later earned € 2800 per month after 20 years of work. That 17 How to fight youth unemployment? paradigm leads to the situation that many young people drop out of school and aren't educated in the culture of effort. ” According to the ILO17, an examination of the nature of jobs created between 2007 and 2010 shows that the majority of new jobs are remunerated at a rate below average wages. This is particularly the case in Spain, and especially affects young people. 8. Training contracts On the subject of scholarships and training which is one of the ‘modalities for recruitment’ -in quotesbecause nobody has the right to benefit either from unemployment or from social security, these are also paid below the minimum wage and replace a job. Trade unions are calling for a major overhaul of training contracts to avoid discrimination against young workers. Paola Guisande, responsible for Youth at the Madrid branch of the CCOO Trade Union, said: “We believe that training contracts should be regulated much more. It cannot be right that a young worker aged 35 with a postgraduate qualification can have a job where they do the photocopying and bring people coffee.” If we look at the training data, young people have better training than other experienced workers. For instance, languages and computer literacy are relevant skills for well-qualified young people. In summary, regarding the above exclusion factors of young people from the labour market we can draw the following interesting 5 conclusions: 1. Construction and building activities between 2004 and 2007 grew significantly in Spain, so young people left school to find a temporary well-paid job in the labour market, without any professional qualifications. As a matter of fact, drop out of school was massive; from there, once the crisis hit the sector, it was easy to reject these young people. So early school leaving has been very high and returning to training will be very difficult for many of them. 2. Young people with good qualifications have few opportunities in the labour market, and there is 17 World of Work Report 2012: Better jobs for a better economy. 18 How to fight youth unemployment? also a mismatch between the education system and what the labour market requires. 3. University graduates who are well-qualified are suffering from the scholarship deficit to innovation and promotion of Research and Development policies. 4. Internships with companies have been regulated, since they occupy jobs in many companies. 5. The Spanish model lacks good working conditions, since it is based on seniority in the company, not linked to productivity, which leads to a lack of solidarity towards young people. 4. GOOD PRACTICE Active employment policies Active employment policies have been a useful tool to fight against youth unemployment in Spain, especially for those low-skilled workers who acquire job training and, for many of them, their first experience of the world of work. However, active employment policies have been cut significantly in the State Budget for 2012, which risks long-term youth unemployment and social costs. To illustrate good practice on this important issue, six polices can be highlighted18: 1. Promotion of local initiatives. In 1986, and particularly in 1994, the government established a programme for promoting local employment initiatives which gives advice and subsidies for setting up viable projects to small and medium-sized enterprises. In other words, it is an approach from the bottom, from the local level, rather than a centralised approach from the top. Nevertheless, these initiatives are not of sufficient scope and importance to create jobs on a large scale. 2. Improving information systems and labour market observatories. It consists in improving the information systems between demand and supply in the local area by promoting employment "observatories" at a regional level. The aim of the network, connected through electronic mail, is to: exchange information on labour demand and supply; exchange labour information for the planning of local policies; study demands for qualifications and professional profiles for companies; and 18 http://www.eurofound.europa.eu/eiro/1997/07/feature/es9707214f.htm 19 How to fight youth unemployment? monitor and assess employment policies. Another novelty in labour mediation is the establishment of personalised employment programmes for certain groups of people who find it difficult to obtain work. These programmes form part of the Integrated Employment Service Plan (SIPES) of the Ministry of Labour, whose aim is to provide careers guidance. The SIPES plan is run by the town halls, amongst other institutions, and is linked with the "trade houses" (Casas de Oficios) and "workshop-schools" (Escuelas-Taller), whose purpose is to share the training of young people - in craft trades and professions - with work on useful public tasks such as restoring historical buildings, repairing parks and gardens and so on. 3. Commercial development and export promotion. A fourth line of action taken by regional governments is the promotion of trade and export. 4. Fiscal policies and investment incentives. The third line of action is through fiscal policies. In recent years, certain regional governments have been carrying out initiatives to stimulate investment in their respective territories. This has led some companies to move their headquarters to regions. 5. Vocational training and occupational training. Vocational training was reorganised in the period 1993-6 to increase the quality of the content of training, and to bring it closer to the demands of companies, the needs of the labour market and the establishment of new qualifications. Two types of qualification will be recognised: those resulting from official vocational training and those resulting from occupational training. Occupational training also plays an important role as a mechanism for rapid adjustment between demand and supply of training and professional retraining, especially at the local level, because it can be adapted more quickly than official vocational training. At a local level the workshop schools and trade houses, linked to the town halls, also make a contribution to training. The activity of these local institutions is aimed particularly at young people who have failed at school, those who have not finished school and those who find it difficult to enter the employment market. 6. Regional employment policies. As an example of the integral and general nature of attempts to reorient regional employment policy. European mobility strategy The European mobility strategy to assist well-qualified young workers in getting a job abroad in European countries is a good practice to highlight. To improve mobility it is necessary to enhance language skills of 20 How to fight youth unemployment? young people from school. Erasmus programmes represent a good practice for well-skilled youngsters. However, the mobility of young people through EURES should be increased, which requires improving information about vacancies and a better recognition of educational achievements from one country to another. Spain is the European country where more students go abroad under this programme. Research and Development policies Another example of good practice carried out jointly by the Spanish Public Employment Service, SEPE, and the Directorate-General for Research and Innovation of the Ministry of Economy and Competitiveness is the recruitment of technologists within SMEs, through a system of loans to small businesses for Research and Development. It is an opportunity for companies and therefore is working well. 5. CONCLUSIONS As was recently written in a report on Spanish youth unemployment by the SOLIDAR Social Affairs Committee by MPDL19 there is no single solution to the challenges regarding the high youth unemployment rates, especially during the current economic recession. This issue requires in any case, as noted by the International Organization of Labour (ILO), integrated and coherent interventions combining macro and microeconomic approaches in various spheres: the education system, the labour market and social policies. The challenges in youth employment and the labour market are, as pointed out by the International Labour Organization (ILO), to help young workers to have a good start, promoting their occupational trajectories to reach decent jobs. If the impact of the economic crisis on young people has been a significant increase in precariousness, it is necessary by all means to promote leaving the parental home and decent living and working conditions. Active employment policies can play an important role. These policies have a positive impact, although they are limited to increased occupation rates. Their scope depends on policies contributing to boosting the recovery of economic activity in the different productive sectors. However, the State Budget for 2012 reduces widely the amount dedicated to these employment policies. 19 Fernandez Nuevo, P (2010): Youth unemployment in Spain. http://cms.horus.be/files/99931/Newsletter/MPDL%20%20Youth%20unemployment.pdf 21 How to fight youth unemployment? Also there is a need to promote changes to shift from the ‘current productive model’ towards a knowledge economy to enhance human capital in terms of job quality and innovation. Social dialogue, social contracts or tripartite negotiation on youth unemployment is a huge issue to tackle urgently. Age cohorts should be considered as a focal point, considering that not all young people have the same qualifications or perspective for the future, i.e. young people who are NEET. Obviously we must analyse segments of the youth population and try to implement those policies based on each group. Some aspects of the labour market have already been reformed: for example, training and apprenticeship contracts are encouraged for those young people who have no qualifications. However, there are other groups for whom it is possible that active policies of employment are not appropriate; rather, it is necessary to look for other solutions. As for well-qualified young people, it is necessary to implement other measures within the business sector, to offer training through active employment policies. Recently, European Commission President Mr. Barroso said that there would be a specific budget fund to help countries whose young people are at risk of exclusion, a measure which, if carried out properly, could be significant. 22 How to fight youth unemployment? 6. RECOMMENDATIONS Regarding the youth unemployment situation by age group, we can consider the following actions: Age group Main problem Action proposal 16 to 19 years School leaving Return to school policies 20 to 25 years Lack of training and Active employment policies mismatch for job post and dual system Lack of work experience Scholarships and internships 26 to 30 years Reduce early school leaving The rate of drop out of school is one of the highest among EU countries, and it is especially relevant for two reasons: firstly, because it determines a higher degree of precariousness in working conditions. Secondly, it has a high social and economic cost in terms of poverty and social exclusion. The recommendations made by the Council, supported by the trade unions, constitute a good basis for the design of a strategy aimed at: A better understanding of this phenomenon. Strengthening careers guidance in compulsory education (ESO). The need to ensure an adequate supply of training alternatives. Increased flexibility in the post-primary educational offer, prompting an interconnected educational system with pathways to facilitate the passage from vocational training to general education and vice versa, and increasing movement between the educational system and the labour market, in order to encourage the return to training. Facilitating a combination of work and training through a more intensive school timetable and distance learning. The implementation of the system of recognition, assessment and accreditation of qualifications obtained through professional experience or non-formal ways of learning. 23 How to fight youth unemployment? Improve Vocational Training policies through a ‘dual education system’ Spain requires vocational training policies to cope with changes and needs and also measures to enhance young people’s participation in vocational training: A more attractive vocational training offer through institutional action to diversify, supply and open up pathways and settings to return young people to the education system. Encourage cooperation among organisations and institutions linked to the local productive system. Promote competition and quality of teachers and trainers. Improve information, advice and guidance related to decisions taken in relation to education and career development for life. The dual education system in Germany has become, as many interviews pointed out, a model in Europe as it combines an apprenticeship with a company and vocational education at a vocational school. Both companies and vocational schools are co-responsible for young people’s education. Trainees enrolled in the dual education system spend one or two days a week at school and three or four days in a company. Such a model represents a guarantee for employers that a youngster has acquired the necessary skills and knowledge related to the job on leaving school. Encourage an entrepreneurial culture in the education system Promote an entrepreneurial culture in the educational system. This would mean that at the end of compulsory education students could develop an ‘open-minded’ attitude towards self-employment, not only as an alternative to unemployment, but also as a positive choice. In short, improve ‘soft skills and competences’ like autonomy and personal initiative, communication, social and citizen competence, solidarity, critical thinking, etc. Internships as a good policy, but under regulation According to the OECD20, initial experience in the labour market has a profound influence on later working life. Getting off to a good start facilitates youth integration into the world of work and lays the foundation for a good career, while it can be difficult to catch up after initial failure. Compared with other European countries, Spanish students have limited contact with the labour market before they finish school. Few of them combine work and study, and there are relatively few internship opportunities. Evidence from other countries, like Germany, highlights the benefits of combining study with 20 OECD: Off to a good start? Jobs for Youth. 2010 24 How to fight youth unemployment? part-time work, in terms of post-education labour market outcomes. A guarantee of training is one of the best practices we can highlight, but it should be controlled in order to protect young people from exploitation because it has been abused in many companies. In Spain there are very positive experiences of training scholarships because they provide an introduction to companies and facilitate the transition from training to the labour market, but once the training finishes, these scholarships should no longer be necessary. Research and Development policies To include Research and Development and innovation among the “priority sectors”, allowing hiring in public research bodies, universities and technological centers, will avoid a “brain drain” that would take decades to reverse. This recommendation is linked to well-qualified youngsters and the need to change the economic model to a knowledge economy. Access to lifelong learning Today, Curriculum Vitaes are assessed in a different way; they are no longer only about qualifications, but also value "soft skills“ such as adaptability. It is possible that the latter could be improved by an education in values. There is a certain ambiguity about what the job market requires. In Germany they have begun to try to find out what companies require in terms of 'soft skills' in addition to professional qualifications. The need for guidance and access to lifelong learning is recognised by companies and specialists in labour market institutions, collaborating with schools from an early age. Non-formal education recognition Professional experience when applying for a job should be recognised with an official certificate in order to facilitate the return to the labour market. 25 How to fight youth unemployment? 7. LIST OF STAKEHOLDERS Prof. Dr. Eduardo CRESPO, Professor in the Department of Social Psychology, Faculty of Sociology and Political Studies (University Complutense of Madrid, UCM). Eduardo Crespo is also Co-Director of the Research Group EGECO (Employment, Gender and Social Cohesion Regimes). EGECO is an interdisciplinary research group focused on these matters; EGECO maintains a direct relationship with European researchers and Research Centres in the field. Dr. Esteban SANCHEZ, Senior Lecturer in the Faculty of Social Work (Complutense University of Madrid, UCM). Esteban Sanchez is also Director of the Spanish Observatory for Youth Employment and associated to the Department of Sociology V (Social Theories) in the Faculty of Political Science and Sociology at Complutense University of Madrid. Mrs. Elvira GONZALEZ, International Relations Coordinator, Institutional Relations & Judicial Assistance. General Sub-department of the Spanish Public Employment Service (Spanish initials, SEPE). SEPE offers services to workers, whether active or unemployed, and to companies. Applying for and being granted unemployment benefits, obtaining benefit-related certificates and reporting hiring and sending in company certificates are among the services offered, as well as vocational training for employment and up-to-date information on the job market and statistics on employment and training. Mr. Juan BONET, Responsible for occupational training at the Spanish Public Employment Service (SEPE). Mrs. Almudena JASPE, Responsible for the coordination and evaluation of occupational training at the Spanish Public Employment Service (SEPE). Mrs. Silvia SAZATORNIL, Responsible for the Youth Department at the UGT – Confederation Level (Unión General de Trabajadores). One of the most representative trade unions in Spain, the UGT is an institution of productive workers, organized along lines of trades and liberal professions, which respects freedom of thought, leading toward the transformation of society, in order to establish it on the basis of social justice, equality and solidarity. 26 How to fight youth unemployment? Mrs. Paula GUISANDE, Responsible for the Youth Department at CCOO - Madrid (Comisiones Obreras). CCOO's Trade Union Confederation is the central office of a prestigious, democratic trade union which confederates the national and regional union’s state federations and confederations. It defends the professional, economic, political and social interests of both male and female workers in all spheres of labour. CC.OO. is affiliated to the European Trade Union Confederation (ETUC) and the International Confederation of Free Trade Unions. It is also part of the Trade Union Consultative Committee to the OECD. Its industry-wide federations are members of the European and international federations. Mr. David SILVA, President of the CEAJE, the Spanish Confederation of Associations of Young Entrepreneurs, which has more than 20,000 members. The CEAJE is a not-for-profit organisation, whose aim is the promotion of a business vocation among young people, by offering them support and advice on the economic and business world. Mr. Jose Luis LOPEZ, in charge of the Socioeconomic Department at the CJE, the Spanish Youth Council. The Spanish Youth Council is an organization devoted to cooperation among young people. It has two principal goals: to be present wherever problems having to do with young people are debated upon and to create solutions to the problems affecting young people based on youthful ways of thinking. Mrs. Ana PICAZO, Officer programme in the “Leganes Occupational Centre” at the Madrid Regional Council for employment. This educational centre provides the most advanced training in mechanical and aeronautical techniques. Ana Picazo is also a teacher at the vocational training school “IES Sagrado Corazon”. 27
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